2. BUS SHELTERS IN FRONT OF RIDEAU CENTRE– NEED REPLACEMENT TO OPEN CONCEPT DESIGN

NÉCESSITÉ DU REMPLACEMENT DES ABRIBUS EN FACE DU CENTRE RIDEAU PAR UN CONCEPT D’AMÉNAGEMENT OUVERT

commITTEE RECOMMENDATION as amended

That Council direct OC Transpo replace their bus shelters, in front of 50 Rideau Street (Rideau Centre) and 73 Rideau Street (The Bay), respectively, with a new shelter design that utilizes a canopy, but leaves the sides open; and that the cost of removal be assumed by OC Transpo.

recommandation modifiÉe du COMITÉ

Que le Conseil enjoigne OC Transpo de remplacer les abribus qui se trouvent en face du 50 de la rue Rideau (Centre Rideau) et du 73 de la rue Rideau (magasin La Baie) par un nouveau type d’aménagement doté d’un toit mais ouvert sur les côtés; demande à OC Transpo d’assumer le coût de l’enlèvement des abribus.

For the information of Council

The Committee approved the following directions to staff:

1. That the recommendations of the Crime Prevention Through Environmental Design Ottawa Police Service (CPTED) be referred to the staff and appropriate advisory committees for report back on solutions to the issues raised in the CPTED.

2. That staff be directed to take such appropriate interim actions to improve safety and security on the sidewalks at 50 and 73 Rideau Street, including the removal of planters;

That OC Transpo be directed to examine appropriate security measures for this area and to report to the Transportation Committee by October 2006, and;

That staff work with the local councillor, local stakeholders, the Ottawa Police Service and the Pedestrian and Transit Advisory Committee on an urban design concept for this area of Rideau Street that accommodates transit users in a safe, secure environment, with an interim report on progress to the Transportation Committee by October 2006.

Pour la gouverne du Conseil

Le Comité a approuvé les directives suivantes :

1. Que les recommandations du Service de police d’Ottawa à l’égard de la prévention du crime par l’aménagement du milieu (PCAM) soient déférées au personnel de la Ville et aux comités consultatifs appropriés, qui feront rapport sur les solutions aux enjeux soulevés dans les recommandations.

2. Que le personnel soit chargé de prendre les mesures temporaires qui conviennent pour améliorer la sécurité sur les trottoirs aux numéros 50 et 73 de la rue Rideau, y compris par l’enlèvement des bacs à fleurs;

Que OC Transpo soit chargée d’examiner les mesures de sécurité appropriée pour ce secteur et fasse rapport au Comité des transports au plus tard en octobre 2006;

Que le personnel travaille avec le conseiller municipal local, les intervenants locaux, le Service de police d’Ottawa et le Comité consultatif sur les piétons et le transport en commun à l’élaboration d’un concept de design urbain pour cette portion de la rue Rideau permettant d’offrir aux usagers du transport en commun un environnement sûr et sécuritaire, en vue de la présentation d’un rapport provisoire au Comité des transports au plus tard en octobre 2006.

Documentation

1. Councillor Georges Bédard’s report dated 29 May 2006
(ACS2006-CCS-TRC-0004).

2. Extract of draft Minutes, 7 June 2006.

Report to/Rapport au :

Transportation Committee

Comité des transports

29 May 2006 / 29 mai 2006

Submitted by/Soumis par : Councillor/Conseiller Georges Bédard

Ward 12 Rideau-Vanier / Quartier 12 Rideau-Vanier

Contact Person/Personne ressource : Councillor / Conseiller Georges Bédard

(613) 580-2482, georges.bedard@ottawa.ca

Rideau-Vanier (12)

Ref N°: ACS2006-CCS-TRC-0004

SUBJECT:	BUS SHELTERS IN FRONT OF RIDEAU CENTRE– NEED REPLACEMENT TO OPEN CONCEPT DESIGN

OBJET :	NÉCESSITÉ DU REMPLACEMENT DES ABRIBUS EN FACE DU CENTRE RIDEAU PAR UN CONCEPT D’AMÉNAGEMENT OUVERT

REPORT RECOMMENDATION

That the Transportation Committee direct OC Transpo replace their bus shelters, in front of 50 Rideau Street (Rideau Centre) and 73 Rideau Street (The Bay), respectively, with a new shelter design that utilizes a canopy, but leaves the sides open; and that the cost of removal be assumed by OC Transpo; and also direct the ‘Societé de Transport de l’Outaouais’ (STO) to remove or modify their shelter on the north side of Rideau Street between The Bay and Chapters accordingly.

RECOMMANDATION DU RAPPORT

Que le Comité des transports enjoigne OC Transpo de remplacer les abribus qui se trouvent en face du 50 de la rue Rideau (Centre Rideau) et du 73 de la rue Rideau (magasin La Baie) par un nouveau type d’aménagement doté d’un toit mais ouvert sur les côtés; demande à OC Transpo d’assumer le coût de l’enlèvement des abribus; enjoigne la Société de transport de l’Outaouais (STO) d’enlever ou de modifier son abribus au nord de la rue Rideau, entre le magasin La Baie et la librairie Chapters.

BACKGROUND

Currently the bus shelters located on Rideau Street between Sussex and Nicholas Road have become a haven for criminal activity, including drug dealing and using, loitering and aggressive panhandling. The shelters are appealing to those looking to partake in such illegal activities since the shelters don’t allow any clear visibility to the sidewalks due to the encumbrance of the transit maps/posters within them and the tinted glass. They also create a closed in space that offers a confined hidden area in which to carry out illegal activities.

Rideau Street is a major pedestrian and transportation artery servicing both OC Transpo and STO bus routes and must support 250,000 visits to the immediate area every week. The areas in and around the shelters are very congested at any given time of day. Unfortunately, the transit customers that the bus shelters were installed to service rarely utilize them out of safety concerns even in inclement weather. The Rideau Centre and the Downtown Rideau BIA have received many complaints over the years from customers, employees and visitors (see Document 1) to Ottawa who feel intimidated and uncomfortable in and around the shelters.

The Ottawa Police, along with the Downtown Rideau Business Improvement Area (BIA) are in strong support of this recommendation.

DISCUSSION

It is the view of the Ottawa Police and the Downtown Rideau BIA that the four bus shelters (2 on the north and 2 on the south side) of Rideau Street are creating a hazard to the safety and security of the area (see Appendix B and C). The sidewalks behind the shelters are narrow and closed in and are frequently occupied by drug dealers, vagrants and panhandlers who interrupt the traffic flow or sit in the protected enclosures and take up most of the space. The sight line visibility on the street is also impeded by vending boxes and planters directly next to the shelters making it impossible to see into the shelters.

On the north side of Rideau Street, there is a concave area directly behind the bus shelter between The Bay Department Store and McDonald’s Restaurant, which is a particularly popular area for individuals to loiter and commit illegal acts as it is not easily visible from the street therefore providing optimal concealment due to the obstruction of the bus shelter. This is certainly not restricted to the concave area, as the individuals who use the bus shelters as a meeting area and their place of illegal activities frequently spill out onto the sidewalk and greatly impede pedestrian flow in an already narrow walkway.

The south side has similar issues. These areas have become a hangout for groups of loiterers who take up even more of the limited sidewalk space and who sit on the sidewalk leaning against the shelters with their legs stretched out into the public right of way.

The Downtown Rideau BIA approached the Ottawa Police Service about hiring off-duty police officers to assist with this, but the OPS turned down the request on the grounds that if this was approved it would suggest that Ottawa policing is “based on the financial means of the local business interests.”

The Ottawa Police and the Downtown Rideau BIA have previously requested OC Transpo remove the shelters and replace them with a design that will not offer concealment to any individuals who wish to partake in illegal activities in the area. However, OC Transpo has not been willing to replace the shelters, preferring to ignore the security issues in favour of protecting clients against inclement weather.

The problem is best solved by compromising and replacing the bus shelters with a new design that utilizes a canopy but leaves the sides open. STO is willing to remove its shelters should Ottawa request this.

CONSULTATION

The Downtown Rideau BIA and the Ottawa Police have discussed the matter with the Councillor and support the report’s recommendation.

FINANCIAL IMPLICATIONS

OC Transpo will be responsible to cover the cost of replacing the shelters in question with a more open design.

SUPPORTING DOCUMENTATION

Document 1 – Public Comments

Document 2 – Crime Prevention Through Environmental Design Police Report

Document 3 – Supporting Letter from Downtown Rideau Business Improvement Area.

Document 4 – Image of Discussed Bus Shelters

DISPOSITION

That OC Transpo replace bus shelters as recommended.

Document 1

Public Comments regarding Rideau Street and surrounding area

Below are some Travel Reviews of Ottawa & Rideau/Market area that may be useful as comments from tourism sources to include in the transportation committee request to remove the shelters or substantiate our comments –they are from the public --Source: IgoUgo, Virtual Tourist, Tripadvisor & other travel related websites where people can write their reviews on a city and ask for advice/suggestions etc.

§ Ottawa is generally a fairly safe city; the federal presence within the capital makes the city heavily policed and patrolled. However, it’s always best to be on the look out-just in case. The areas around the Rideau Centre along Rideau St. at night are sometimes filled with bored teens and wannabe drug dealers. Homeless people also are found along the area. It’s usually best to ignore these crowds. If any unlikely trouble does happen, contact the Ottawa Police Service or the Ontario Provincial Police. The RCMP (the Mounties) also operate in Ottawa, but are involved more in federal law enforcement. Always contact the local authorities first. I do find that the bus stop area near the Rideau Center is sometimes a little sketchy and walking down Rideau Street at night is not the best idea unless you are in a big group. Watch out around 2 a.m. for drunken people, but otherwise, I feel damn safe here! (I mean come on, the Prime Minister lives here!)

§ To say we were disappointed in Ottawa is an understatement. First, we had to walk through some streets with some very dodgy looking people (drunks, homeless, prostitutes, etc.), but we finally got to the Byward Market. What is there to see? Nothing. It is just the old market, now with some modern shops and street vendors. We ended up walking across the bridge over the river to see the museum of Civilization, but it is technically not in Ottawa anymore

§ Ottawa has a beautiful Canal that cuts the city in two and turns into a skating rink in the winter. You can go skating, cross country skiing, Canoeing or Paddling there. You can also go hiking in the Gatineau Park you can smoke pot anywhere. You can get Pot from Rideau Street, usually.

§ There’s a bit problem with drug soliciting and loitering right at the front door on Rideau street, there’s garbage all over the place and is grossly overpriced! If you are dead set on shopping here, enter the mall from the Mackenzie King Bridge entrance by Sears to avoid the hassle and eye sores on Rideau Street.

§ The Rideau center is pretty good. It has all the popular and "in" stores as well as something for the older people. Inside the mall is excellent but they should do some work on the outside… all sorts of garbage and homeless people is kinda scary because you get harassed by them as you walk out.

§ Downtown can be scary at night, especially the Byward market. There are homeless shelters in and around there, and like anywhere else, a lot of “bad” people (and I’m not saying all homeless are bad) are downtown. Try to stay in big groups, don’t go down dark alleys, stick to what looks safe.

§ If you travel to Ottawa, and decide to shop in the area of Rideau Street beware of many bums that are in the street. They can get aggressive, so I recommend anyone to not go out and walk alone at night in the street.

BUS SHELTERS IN FRONT OF RIDEAU – NEED REPLACEMENT TO OPEN CONCEPT DESIGN

NÉCESSITÉ DU REMPLACEMENT DES ABRIBUS EN FACE DU CENTRE RIDEAU PAR UN CONCEPT D’AMÉNAGEMENT OUVERT

ACS2006-CCS-TRC-0004 Rideau-Vanier (12)

Councillor Bédard highlighted the issues detailed in the report. He emphasized the need to take action to remove the illegal activities that occurs in these bus shelters, stating they provide protection for criminals to carry on their dealings and as such, they should be removed. He understood the need to protect transit users during inclement weather, but maintained that this is an issue of public safety and security and quite often, commuters do not use the shelters because of the other uses going on inside. He believed his recommendation to replace the enclosed shelters with large canopied shelters instead, would offer the necessary protection for transit users, while maintaining safety and security on the street.

Lynne McCarney, Chair, Pedestrian and Transit Advisory Committee provided the following comments:

- the Pedestrian and Transit Advisory Committee (PTAC) was never consulted in the preparation of this report and there is no indication in the report that even transit riders were consulted;

- replacing the enclosed shelter design with one with a more open concept would have a huge negative impact on transit users; such canopies will only protect commuters when there is a gentle rain coming down, but would do nothing to protect them against the wind, snow and cold;

- the suggestion was made to removing some of the street furniture first, as an option to replacing the shelters; and, if visability is the problem, the City could relocate the maps currently posted in the shelter to the end of the enclosure;

- the PTAC would prefer to have a thorough discussion, particularly with transit users and, if, after a thorough consultation and examination of the issue it is determined that replacing the shelters is the answer, then a variety of designs should be examined before the existing ones are removed.

Councillor El-Chantiry noted that this problem has been ongoing for quite some time and asked the delegation what solutions she would recommend. Ms. McCarney indicated the PTAC was not given the chance to formulate any recommendations of their own and further suggested that if this problem has been going on for as long as stated, there would have been opportune time to consult with the PTAC.

Councillor Bédard explained that this is an issue of public security and safety and reminded the delegation that transit users do not use the shelters because of what is going on inside of them. While she agreed with some of his comments, Ms. McCarney stated that replacing the shelters with a canopy design only appears to address the issues the councillor does not want, and does not address the issue of serving transit users.

Peggy Ducharme, Downtown Rideau BIA explained that the BIA has had concerns about the use of these bus shelters for a number of years. She recalled the previous transit mall on Rideau Street and suggested that what exists today (bus shelters) is simply a smaller version of the same situation. She believed that with the vision to improve transit in the downtown, people will not have as long to wait for a bus, so it may not be necessary to provide enclosed shelters for their use. The Downtown Rideau BIA is open to dialogue on this issue.

Chair Stavinga asked Ms. Ducharme to respond to the suggestion that staff be directed to examine alternatives to a canopy design and report back in early September with some interim measures that could be put in place to address the issues. She responded by stating she would support that kind of an approach, in consultation with the ward councillor. In response to a question posed by Councillor Bédard, Ms. Ducharme advised that this issue has been raised with seven different committees over the years.

Brian McQuaid, M. McGrath Canada Limted indicated they have been on Rideau Street for 53 years and have seen the street change over the years with regards to safety. He noted that pedestrians walk a gauntlet of panhandlers and drug dealers through this area. He was concerned about visibility because the shelters are tagged with grafitti and plastered with posters. He believed if the shelters were removed and replaced with a more open concept design, it would provide better visability and bring a vibrancy back to the street.

When asked to comment on the report, John Manconi, A/Deputy City Manager, Public Works and Services, referred to the last paragraph of the CPTED report (Crime Prevention Through Environmental Design), which indicates their willingness to work with any design team or consultation group to assist with a re-design of Rideau Street, but notes that such design will have a huge impact on the safety and security of the users as well as impact the calls for police service. Staff believe therefore, there is a need to look at this whole issue in a comprehensive manner, in order to address all uses and concerns.

When asked what costs would be incurred if the Committee approved the recommendation, staff could not provide an estimate at this time, but they agreed to provide those figures. Councillor Cullen made note of the fact that people appreciate the shelters, especially in the winter, but he also recognized the concerns expressed by the ward councillor. He believed the latter could be dealt with by taking steps to address those specifically. Dr. Helen Gault, Manager, Transit Service Planning and Development indicated that unless staff are given more definition of what is being requested with respect to design, staff would request an opportunity to work on an urban design concept that balances all needs. Without that, it is difficult to provide an estimated cost.

Councillor El-Chantiry questioned whether the sides of the shelters could be removed to address the problem. Mr. Manconi advised that it would not be as easy as that since other concerns come into play which need to be addressed, such as the location of the large planters along the street, and there is a requirement to conduct a comprehensive review of all those elements and how they contribute or take away from providing a safe environment.

When asked for a police comment, Staff Sergeant Paul Johnston explained that this is a police issue because safety and security is their mandate. They were seeking permanent solutions to address the issues of crime on Rideau Street, noting there is an immediate need to address the summer months and tourism. He acknowledged that the removal of planters and phone booths has resulted in decreased illegal activities to some degree, because drug dealers used to hide their contraband in the soil of the planters and within the confines of phone booths. When asked whether there was another way to eliminate the problem, SSgt. Johnston advised that sight lines and concealment is what the police are dealing with and bus shelters provides the opportunity to conceal contraband.

In response to an additional question posed by Councillor El-Chantiry, Dr. Gault advised that the STO shelters currently located on the north side are going to be removed in any case as part of a study dealing with taxi service on Rideau Street. She added that given the number of people using the shelters, staff is anxious to find a solution that balances all needs. She indicated that the level of lighting was improved in the shelters as originally suggested and Sgt. Bill VanRyswyk confirmed this has made some improvements with respect to visibility for the police.

Councillor McRae asked whether removing the shelters would reduce the opportunity for crime and Sgt. VanRyswyk advised that the less inviting it is for drug dealers, the better. When asked whether such removal would simply move the problem elsewhere, he indicated it might be a consequence to some degree, but the job of the police is to identify that ahead of time. The councillor noted the costs associated with the police having to go to court to provide information on tickets issued to people breaking the law and she wondered if that had been taken into consideration. SSgt. Johnston confirmed that when the police deal with any criminal charges there is a cost involved and the result is also a reduction in police on the street during the day because they are tied up in court. The councillor understood this would be difficult to quantify but felt it was necessary. She asked whether OC Transpo examined any alternatives, noting it is a balance of providing shelter and addressing the issue of criminal activity. John Moser, A/Deputy City Manager, Planning and Growth Management stated that staff are looking for an opportunity to continue the dialogue with all stakeholders. He confirmed that staff do not support the recommendation in the report, but they do agree there is a need to balance the needs of all.

Councillor McRae referred to an article in the Ottawa Citizen, which referenced public comments in support of replacement of the shelters. Given what she has heard thus far, she believed that the negative connotations of removing the sides of the shelters would be weather and she deemed the concerns brought forward by the ward councillor to be of greater consequence.

If Councillor Cullen’s Motion is approved, Chair Stavinga expected there would be action taken this year, with an interim plan provided later in the fall and a long-term strategy brought forward next spring. She wanted assurances these things would happen before proceeding further. Mr. Manconi indicated that staff could commit to responding to the action items and long-term strategy. With regards to timeline, he expected they would be prepared to report back in two months, keeping in mind there would have to be a long term strategy developed for the future. He suggested staff could move quickly to remove the planters, but cautioned there were cost implications associated with many of these things and staff would be seeking Council’s concurrence before moving forward.

The Chair then asked whether one of the interim measures could be that all or some of the shelters are taken down for the summer and that as part of the evaluation staff bring back to the Committee in two months, they could report on whether or not those shelters should be reinstated. Dr. Gault indicated that there is a large electrical box in one of the shelters so she did not think it would be a matter of taking down the shelters overnight.

In closing, Councillor Bédard reiterated his previous concerns that safety is paramount and he believed the bus shelter is the problem because people are using it incorrectly and he did not believe further study was required to determine what the problems and solutions are. These bus shelters are dangerous and he urged the committee to consider the action he proposes now so the issue can be dealt with during the summer.

Councillor Cullen recognized that there is an environment on Rideau Street that supports illegal activities. However, he believed that can be dealt with through the design of the area and investing in both social and law enforcement aspects. He believed the report recommendation, if approved, would only serve to move the problem elsewhere. He asked that committee be cognisant of the of the fact that if the shelters are replaced with canopies, Council must take into account the fact that people will complain about the lack of shelter when winter comes.

Moved by R. Bloess

That the question be put.

CARRIED

YEAS (5): G. Bédard, R. Bloess, E. El-Chantiry, M. McRae, D. Thompson

NAYS (3): A. Cullen, C. Doucet, J. Stavinga

Staff advised Committee that the second portion of the report recommendation which refers to the suggested removal of the bus shelter owned by the STO, was redundant, since it had already been actioned, as previously mentioned. The Committee was also advised that the report would have to rise to Council and the report recommendation was amended to accordingly.

Moved by G. Bédard

That the Transportation Committee recommend that Council direct OC Transpo replace their bus shelters, in front of 50 Rideau Street (Rideau Centre) and 73 Rideau Street (The Bay), respectively, with a new shelter design that utilizes a canopy, but leaves the sides open; and that the cost of removal be assumed by OC Transpo.

CARRIED, as amended

YEAS (5): G. Bédard, R. Bloess, E. El-Chantiry, M. McRae, D. Thompson

NAYS (3): A. Cullen, C. Doucet, J. Stavinga

Moved by G. Bédard

That the recommendations of the Crime Prevention Through Environmental Design Ottawa Police Service (CPTED) be referred to the staff and appropriate advisory committees for report back on solutions to the issues raised in the CPTED.

CARRIED

Moved by A. Cullen

That staff be directed to take such appropriate interim actions to improve safety and security on the sidewalks at 50 and 73 Rideau Street, including the removal of planters;

That OC Transpo be directed to examine appropriate security measures for this area and to report to the Transportation Committee by October 2006, and;

CARRIED

In response to a request by the ward councillor, the committee agreed to have this item rise to Council on 14 June, and staff was directed to provide the cost estimates for replacement of the shelters, at that time.

For the information of Council

Pour la gouverne du Conseil

REPORT RECOMMENDATION

BACKGROUND

DISCUSSION

CONSULTATION

FINANCIAL IMPLICATIONS

SUPPORTING DOCUMENTATION

Document 2

Ottawa Police CPTED Evaluation

Letter of Support from Rideau BIA

Images of Rideau Bus Shelters