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1. Rapid Transit Environmental Assessments – Response to 27 June 2007
Motion of Council Évaluations environnementales du transport en commun
rapide – réponse à la motion du Conseil adoptée le
27 juin 2007 |
joint CommitteeS’ recommendations as amended
That Council authorize staff to proceed with the following recommendations:
1. a) Suspend consideration of the middle portion of the East-West Corridor (Orleans-Walkley-Kanata) LRT Environmental Assessment (EA), pending the Transportation Master Plan update revisiting the need for east-west transit movements that by-pass the downtown, and
b) Re-scope the existing EA assignment and complete EAs for:
i West Transitway – Terry Fox to Fernbank, and Eagleson to Kanata North.
ii Cumberland Transitway Connection – Navan Road to Blair Station.
2. Resume the Rideau-Montreal Corridor LRT EA
immediately using the firm already identified through a competitive process and
the previously committed funds set aside for the purpose.
3. Defer the initiation of the Carling Avenue Corridor
LRT Environmental Assessment Study until the completion of the updated
Transportation Master Plan.
4. That the City of Ottawa immediately agree to
restart the Ottawa, Gatineau, National Capital Commission Interprovincial
Transit Integration Study in order that studies undertaken with respect to
planning for transit in central Ottawa take into account input from the other
agencies in a timely fashion and to ensure that Ottawa’s plan, when finalized,
is co-ordinated with those of the other agencies.
5. Proceed with
the detailed Downtown Ottawa Transit LRT (Electric) Tunnel; and that the
Downtown Coalition be a stakeholder group and as such be a working member of
the Technical Advisory Committee and the Public Advisory Committee for the
Downtown Ottawa Transit Tunnel Environmental Assessment; and similarly be
involved in the Downtown Rapid Transit Network Study.
6. Undertake
a feasibility/Value Engineering study by 31 December 2007, to an upset value
of $75,000, to determine the most co-effective solution for the Woodroffe
to Pinecrest section of the West Transitway Extension, and then amend the
approved EA as appropriate, with any modification of the EA commencing
immediately after the study is approved by Committee and Council with a
completion time frame of 6-12 months.
Recommandations modifiÉes dES ComitÉS conjoints
Que le Conseil autorise le personnel à procéder
aux recommandations suivantes :
1. a) Mettre
fin à l’examen de la partie centrale de l’évaluation environnementale (ÉE) du
tronçon est-ouest (Orleans-Walkley-Kanata) du TLR, d’ici la mise à jour au Plan
directeur des transports dans laquelle sera réenvisagé le besoin en
déplacements est-ouest du transport en commun sans passer par le centre-ville;
b) Réorienter l’affectation actuelle de
l’ÉE puis mener à terme les ÉE :
i du
Transitway à l’ouest – de la promenade Terry Fox au chemin Fernbank, et du
chemin Eagleson jusqu’au nord de Kanata;
ii de la jonction du Transitway à
Cumberland – du chemin Navan à la station Blair.
2. Faire reprendre
immédiatement l’ÉE sur le tronçon Rideau-Montréal
du TLR par la société déjà choisie par voie d’appel d’offres et y affecter les
fonds engagés à cette fin.
3. Reporter l’amorce de
l’étude d’évaluation environnementale du tronçon de l’avenue Carling du TLR jusqu’à ce que soit terminée
la mise à jour du Plan directeur des transports.
4. Que la Ville d’Ottawa accepte immédiatement
de reprendre l’étude de l’intégration du transport en commun interprovincial de
la Commission de la capitale nationale, d’Ottawa et de Gatineau afin que les
études entreprises relativement à la planification du transport en commun au
centre-ville d’Ottawa tiennent compte des observations des autres organismes au
moment opportun et que le plan d’Ottawa, une fois terminé, soit coordonné avec
les plans des autres organismes.
5. Amorcer une évaluation
environnementale détaillée d’un tunnel servant au transport en commun par TLR
(électrique) au centre-ville d’Ottawa; et que la Coalition du centre-ville soit
reconnue comme groupe intéressé et qu’elle soit à ce titre membre du Comité
consultatif technique et du Comité de consultation publique pour l’évaluation
environnementale du tunnel servant au transport en commun au centre-ville
d’Ottawa; et qu’elle participe de la même manière à l’étude sur le réseau de
transport en commun rapide au centre-ville.
6. Entreprendre une étude
technique sur la valeur ou la faisabilité au plus tard le
31 décembre 2007, d’une valeur maximale de 75 000 $,
afin de déterminer la solution la plus rentable en ce qui concerne le tronçon
allant de l’avenue Woodroffe jusqu’au chemin Pinecrest, dans le prolongement du
Transitway ouest, et ensuite modifier l’ÉE avalisée, au besoin, toute
modification de l’ÉE commençant immédiatement après l’approbation de l’étude
par le Comité et le Conseil selon un échéancier d’entre six et 12 mois.
Documentation
1.
Deputy City Manager, Planning, Transit and the
Environment report
dated 24 July 2007 (ACS2007- PTE-POL-0048).
2.
Extract
of the Draft Joint Minutes 3, Transportation Committee and Transit Committee,
15 August 2007 (To be distributed separately prior to Council).
Report to / Rapport au :
Joint Meeting -
Transportation Committee/Transit Committee
Réunion conjointe du Comité des transports
et du Comité du transport en commun
24 July 2007 / 24 juillet 2007
Submitted by / Soumis par : Nancy Schepers, Deputy City Manager / Directrice
municipale adjointe,
Planning, Transit and the
Environment/ Urbanisme, Transport en commun et Environnement
Contact Person /
Personne ressource : Vivi Chi, Manager / Gestionnaire, Transportation and
Infrastructure Planning / Transports et planification des infrastructures
Planning Branch / Direction de
l’urbanisme
(613) 580-2424 x21877,
vivi.chi@ottawa.ca
REPORT RECOMMENDATIONS
That the Joint Transportation and Transit Committee recommend Council authorize staff to proceed with the following recommendations:
1. a) Suspend consideration of the middle portion of the East-West Corridor (Orleans-Walkley-Kanata) LRT Environmental Assessment (EA), pending the Transportation Master Plan update revisiting the need for east-west transit movements that by-pass the downtown, and
b) Re-scope the existing EA assignment and complete EAs for:
i) West Transitway – Terry Fox to Fernbank and Eagleson to Kanata North.
ii) Cumberland Transitway Connection – Navan Road to Blair Station.
2. Cancel
the initiation of the Rideau-Montreal Corridor LRT EA study.
3. Cancel
the initiation of the Carling Avenue Corridor LRT EA study.
4. Defer
the initiation of the Interprovincial Transit Integration – Core Area EA until
after Council approves the downtown rapid transit network.
5. Proceed
with the detailed Downtown Ottawa Transit Tunnel EA upon Council approval of a
downtown rapid transit network.
6. Undertake
a Feasibility/Value Engineering Study to determine the most cost-effective
solution for the Woodroffe to Pinecrest section of the West Transitway
Extension, and then amend the approved EA as appropriate.
RECOMMANDATIONS DU
RAPPORT
Que le Comité conjoint du Comité des
transports et du Comité du transport en commun recommande au Conseil
d’autoriser le personnel à procéder aux recommandations suivantes :
1. a) Mettre
fin à l’examen de la partie centrale de l’évaluation environnementale (ÉE) du
tronçon est-ouest (Orleans-Walkley-Kanata) du TLR, d’ici la mise à jour au Plan
directeur des transports dans laquelle sera réenvisagé le besoin en
déplacements est-ouest du transport en commun sans passer par le centre-ville;
b) Réorienter
l’affectation actuelle de l’ÉE puis mener à terme les ÉE :
i du
Transitway à l’ouest – de la promenade Terry Fox au chemin Fernbank, et du
chemin Eagleson jusqu’au nord de Kanata;
ii de la jonction du Transitway à
Cumberland – du chemin Navan à la station Blair.
2. Annuler l’amorce de l’étude sur l’ÉE du
TLR ayant trait au tronçon à Rideau-Montréal.
3. Annuler l’amorce de l’étude de l’ÉE du
TLR ayant trait au tronçon de l’avenue Carling.
4. Reporter l’amorce de l’ÉE de
l’intégration du transport en commun interprovincial dans le secteur central,
d’ici à ce que le Conseil avalise le réseau de transport en commun rapide au
centre-ville.
5. Procéder à une ÉE détaillée d’un tunnel
servant au transport en commun au centre-ville d’Ottawa, une fois que le
Conseil aura avalisé le réseau de transport en commun rapide au centre-ville.
6. Entreprendre
une étude technique sur la valeur ou la faisabilité afin de déterminer la
solution la plus rentable en ce qui concerne le tronçon allant de l’avenue Woodroffe
jusqu’au chemin Pinecrest, dans le prolongement du Transitway ouest, et ensuite
modifier l’ÉE avalisée, au besoin.
EXECUTIVE SUMMARY
Assumptions and Analysis:
On 27 June
2007 City Council considered the recommendations from the Mayor’s Task Force on
Transportation and passed a motion to report back in August on:
a) the
reinstatement of transit project environmental assessment (EA) studies that
were put on hold;
b) a
program to undertake an EA for a downtown tunnel; and
c) an
update on the EA for the West Transitway from Woodroffe to Pinecrest to find a
more cost-effective corridor.
On 14 February 2007 Council approved a motion to suspend the work on the East-West Corridor (Orleans-Walkley-Kanata) LRT EA and defer the initiation of the Rideau-Montreal Corridor LRT, Carling Avenue Corridor LRT, and the Interprovincial Transit EA Studies “pending the review of Rapid Transit Expansion Study (RTES) and Ottawa Rapid Transit Expansion Program (ORTEP)”. This transit review is being undertaken as part of the current Transportation Master Plan (TMP) update to support the review of the Official Plan. The release of the Mayor’s Task Force recommendations, and Council’s strategic direction to complete the Transitway by 2015, were also taken into consideration in the drafting of the recommended action plan in this report – as a response to the 27 June 2007 Council motion.
This project was envisaged in RTES to provide improved east-west rapid transit service bypassing the downtown, which would relieve pressure on the downtown transit corridors, and to influence development within Kanata and Orleans (Cumberland) and serve as a catalyst for redevelopment of older industrial lands inside the Greenbelt.
The study commenced in Fall 2004, with public consultation occurring at key points in the study. At the time that the study was put on hold, it was approximately 75% complete. The original study scope extended 47 km from Kanata North to Trim Road in Cumberland. It was extended in the west to consider both RTES corridors serving Kanata: an LRT corridor to Kanata North, and; a BRT corridor running parallel to Highway 417 through Kanata Town Centre, extending through the future Kanata West to Hazeldean Road and southerly to Fernbank Road. These two corridor options were to be evaluated to determine which technology best serves the existing and future growth.
The EA incorporates and considers previously approved EA plans for the West Transitway from Bayshore to Terry Fox, and the Cumberland Transitway from Navan Road easterly to Trim Road (1999). At the time Council approved the RTES plan, it passed a motion to consider implementing the Cumberland Transitway as a BRT facility in the near term, with conversion to LRT at a later date. The East-West LRT EA was addressing this concept.
Even with the suspension of the Study, there is strong Council and public desire to implement east-west rapid transit enhancements as soon as possible. The Mayor’s Task Force on Transportation report identifies the completion of the West Transitway extension per the City’s TMP as a short-term recommendation, and Council has adopted completion of the Transitway by 2015 as a Strategic Direction. The report on Near-Term Transit Investment Options recommends that portions of the West Transitway (Bayshore to Moodie and Eagleson to Terry Fox) and the Cumberland Transitway (Navan to Trim) projects be approved as priorities for implementation in the near future, subject to funding availability.
Given these stated priorities, staff recommends deferring any further study of the ‘middle portion’ of the East-West corridor (which runs primarily along arterial roads for the section inside the Greenbelt) and to focus attention on completing EAs for the eastern and western portions of the study area. This would provide the necessary recommendations for the full extension of the West Transitway, and allow the City to identify and protect a corridor to serve the Kanata North high-tech employment area. Also, it would identify a recommended plan for the missing link of the Cumberland Transitway from Navan Road to Blair Station to provide a continuous link from Cumberland to downtown.
On 08 June 2005 Council directed staff and pre-committed funds for 2006 to advance the EAs for these two projects to complete the planning component for all east-west LRT services. The study process was initiated for both projects, with a consultant firm for each selected through a competitive process.
The appropriateness of both lines will be re-visited in the TMP update. The role and suitability of LRT operations within an arterial road corridor, as well as potential impacts on surrounding land uses and other modes of transportation will be considered. Ultimately, both projects may or may not end up as a component of the updated TMP network. Given this uncertainty staff recommends cancelling the initiation of both studies.
The purpose of the study is to define a transit system that serves the downtown cores of Ottawa and Gatineau. The City of Ottawa, the Société de transport de l'Outaouais (STO), and the National Capital Commission (NCC) are the joint proponents of this EA, with the City acting as the administrative lead. Council approved the study Statement of Work in October 2004. A study consultant was selected through a competitive process and the contract was not yet awarded when Council decided to defer the study’s initiation.
The City must make some key decisions about its downtown rapid transit network prior to starting this study. These decisions will emanate from the TMP update, which will consider all existing and possible future transit services that will enter and exit downtown Ottawa, including those of the STO and potential but currently undefined services such as an interprovincial rapid transit service. The resulting recommended downtown transit network will be presented to Council for approval in Spring 2008.
With an approved downtown transit plan in place, the City and its partners will be in a better position to proceed with the EA. Accordingly, staff recommends deferring the initiation of this EA until after Council approves the downtown rapid transit network.
Downtown Tunnel EA
It is generally accepted that there is no more
growth potential in the downtown for on-street rapid transit and that a tunnel
separating some or all of the transit services from general traffic is
required. The Mayor’s Task Force recommends that the City move forward with the
construction of a downtown transit tunnel as a priority. For the same reasons
as the above-noted Interprovincial Transit Integration EA study, it would be
pre-mature to initiate the EA for a tunnel at this time.
As part of the visioning component of the TMP
update, several key issues will be examined and decisions made that will
directly influence the configuration of the downtown rapid transit network.
With a transit vision confirmed, the TMP update will recommend an updated
downtown rapid transit network, with the preferred combination of transit
services to be included in a tunnel, and the proposed timing for its
implementation. This will be presented to Committee and Council for approval by
late Spring 2008.
With a Council-approved project scope in place,
a comprehensive detailed EA study can be undertaken to identify and address all
remaining planning aspects and obtain approval for the tunnel project.
Accordingly, staff recommends proceeding with the detailed Downtown Ottawa
Transit Tunnel EA upon Council approval of a downtown rapid transit network.
West Transitway Extension – Woodroffe to
Pinecrest
In 1994 the former Region completed the EA for
the West Transitway Extension from Woodroffe Avenue to Acres Road. The
recommended plan was for a grade-separated facility approximately 4 km long
located on the north side of the Queensway for most of its length. The only
section not adjacent to the Queensway was that in the vicinity of Connaught
Avenue where it will be located in a cut-and-cover section extending part way
into the NCC corridor to connect to the Southwest Transitway. The cut-and-cover
solution was developed as a mitigation measure to address public concerns
regarding the disruption to the community.
The Woodroffe to Pinecrest section is 1.6 km
long and includes the cut-and-cover noted above. It is the last remaining segment of the approved West Transitway
extension awaiting construction. Given such a cost for this short stretch of
transitway, it is prudent to explore more cost effective options that provide a
similar function prior to making any decisions regarding its implementation.
Accordingly, staff recommends the undertaking a feasibility/Value Engineering
study to determine the most cost-effective solution for the Woodroffe to
Pinecrest section of the West Transitway Extension, and then amending the
approved EA as appropriate.
Financial
Implications:
Funds
required to carry out the re-scoped East-West EA studies are available in Order
No. 902135 - Rapid Transit EA Studies. Funds for the City’s share of the
Interprovincial Transit Integration – Core Area EA are available in Order No.
900267 – Rapid Transit Studies.
The cancellation of the Rideau-Montreal and
Carling Avenue Corridor LRT EA studies release the encumbered funds, which
could then be used for the Downtown Ottawa Transit Tunnel EA and the West
Transitway Extension (Woodroffe to Pinecrest) Value Engineering study. If additional funds are required, they will
be sought during the 2008 capital budget deliberations.
Public
Consultation/Input:
No
consultation was undertaken in the preparation of this report. Consultation
with the public, agencies and other project stakeholders will be a fundamental
component of all studies emanating from the recommendations detailed herein.
RÉSUMÉ
Hypothèses et analyse :
Le 27 juin 2007, après
avoir pris en compte les recommandations du Groupe de travail du maire sur les
transports, le Conseil a adopté une motion selon laquelle il fera rapport en
août des points suivants :
a) la
reprise des études sur l’évaluation environnementale (ÉE) du projet de
transport en commun qui avaient été suspendues;
b) un
programme visant à entreprendre une ÉE par rapport à un tunnel au centre-ville;
c) une mise à jour à l’ÉE du Transitway
ouest, allant de l’avenue Woodroffe au chemin Pinecrest, afin d’établir un
tronçon à coût avantageux.
Le
14 février 2007, le Conseil a donné son aval à une motion visant à
suspendre les travaux à l’ÉE du tronçon est-ouest (Orléans-Walkley-Kanata) du
TLR et à reporter l’amorce des ÉE des tronçons Rideau-Montréal et de l’avenue
Carling du TLR de même que l’ÉE du transport en commun interprovincial
« dans l’attente de l’examen de l’Étude sur l’expansion du réseau de
transport en commun rapide (ÉERTCR) et du Programme d’expansion du réseau de
transport en commun rapide d’Ottawa (PERTCRO) ». Cet examen relatif au
transport en commun est entrepris dans le cadre d’une mise à jour au Plan
directeur des transports (PDT) servant à appuyer l’examen du Plan officiel. La
parution des recommandations du Groupe de travail du maire et l’orientation
stratégique du Conseil afin d’achever le Transitway d’ici 2015 sont également
prises en compte dans la version provisoire du plan d’action recommandé dans le
présent rapport – pour faire suite à la motion adoptée le
27 juin 2007 par le Conseil.
On avait envisagé ce projet dans l’ÉERTCR afin
d’améliorer le service du transport en commun rapide est-ouest sans passer par
le centre-ville. Ce projet qui aurait facilité la circulation aux tronçons du
transport en commun dans le centre-ville, influé sur le lotissement à Kanata et
à Orléans (Cumberland) et joué un rôle catalyseur dans le réaménagement des anciens
terrains industriels dans la ceinture de verdure.
Amorcée à l’automne 2004, l’étude à cet effet
prévoyait des séances de consultation publique à des points cruciaux. Cette
étude était achevée à près de 75 % au moment où elle a été suspendue. À
l’origine, la portée de l’étude s’étendait sur 47 km, de Kanata Nord
jusqu’au chemin Trim, à Cumberland. On a par la suite étendu cette portée vers
l’ouest y pour prendre en compte les tronçons de l’ÉERTCR desservant
Kanata : un tronçon du TLR vers Kanata Nord de même qu’un tronçon du TLR
qui traverse le centre-ville de Kanata parallèlement à l’autoroute 417
pour atteindre le futur secteur de lotissement à Kanata, vers l’ouest jusqu’au
chemin Hazeldean et vers le sud jusqu’au chemin Fernbank. Ces deux options de
tronçon ont été évaluées en fonction des possibilités optimales offertes par la
technologie afin d’appuyer la croissance actuelle et future.
L’ÉE intègre et prend en compte les
plans d’ÉE adoptés au préalable pour le tronçon du Transitway ouest allant de Bayshore
jusqu’à la promenade Terry‑Fox et celui du Transitway de Cumberland
allant du chemin Navan vers l’est jusqu’au chemin Trim (1999). Au moment
d’adopter le plan de l’ÉERTC, le Conseil a également donné son aval à une
motion visant à envisager à court terme le Transitway de Cumberland sous forme
de voie de TRA pour ensuite convertir celle‑ci ultérieurement en TLR.
L’ÉE du projet de tronçon est-ouest du TLR englobe ce concept.
Malgré la suspension de l’étude, le
Conseil et la population témoignent d’une forte volonté quant à la mise en
œuvre le plus tôt possible des améliorations au tronçon est-ouest du transport
en commun rapide. Le Groupe de travail du maire sur les transports préconise à
court terme l’achèvement du prolongement du Transitway ouest, conformément au
PDT de la Ville. De plus, le Conseil préconise en guise d’orientation
stratégique l’achèvement du Transitway d’ici 2015. Il est également recommandé
dans le Rapport sur les options d’investissement à court terme dans les
transports d’accorder la priorité aux projets de tronçons du Transitway ouest
(de Bayshore à la promenade Moodie et de la rue Eagleson à la promenade Terry‑Fox)
et du Transitway de Cumberland (du chemin Navan au chemin Trim), afin que ceux‑ci
soient mis en œuvre dans un avenir prochain, sous réserve de la disponibilité
du financement.
Compte tenu que ces priorités sont énoncées, le
personnel recommande de reporter toute autre étude portant sur le
« tronçon du milieu » du corridor est-ouest (celui qui passe
essentiellement le long des artères dans la partie au sein de la ceinture de
verdure) pour prêter attention à l’achèvement des ÉE des tronçons est et ouest
de la zone à l’étude. De cette façon, la Ville obtiendra les recommandations
nécessaires au prolongement intégral du Transitway ouest, si bien qu’elle
pourrait consacrer un tronçon à la région de Kanata Nord, ou les emplois en
haute technologie abondent. En outre, la Ville pourrait établir un plan
recommandé sur le lien manquant du Transitway de Cumberland, allant du chemin
Navan à la station Blair, de façon à assurer une continuité dans la liaison
entre Cumberland et le centre-ville.
Le 8 juin 2005, après avoir engagé
préalablement des fonds à cette fin, le Conseil a demandé au personnel de faire
progresser pour 2006 les ÉE de ces deux projets dans l’optique d’achever le
volet planification de l’ensemble des services du TLR du tronçon est-ouest. Le
personnel a amorcé le processus d’étude des deux projets, choisissant dans
chaque cas une firme d’experts-conseils par le biais de concours.
Le
caractère opportun de ces deux tronçons sera réévalué dans la mise à jour du
PDT. Le rôle et le caractère convenable du fonctionnement du TLR dans un tronçon
d’artères, de même que l’incidence possible sur l’utilisation des terres
avoisinantes et les autres moyens de transport seront également pris en compte.
Au bout du compte, on décidera s’il faut intégrer ou pas ces deux projets comme
composante du réseau du PDT mis à jour. Étant donné l’incertitude qui plane, le
personnel recommande d’annuler l’amorce des deux études à cet effet.
L’objectif de l’ÉE à ce sujet est d’établir un
réseau de transport en commun desservant les centres-villes d’Ottawa et de
Gatineau. La Ville d’Ottawa, la Société de transport de l’Outaouais (STO) et la
Commission de la capitale nationale (CCN) ont proposé l’ÉE conjointement, la
Ville y jouant un rôle de chef de file administratif. En octobre 2004, le
Conseil a donné son aval à l’énoncé des travaux de l’étude. Bien qu’un
expert-conseil ait été choisi par voie de concours pour l’étude, le contrat
n’est pas encore adjugé en raison de la décision du Conseil de reporter le
début de l’étude.
La Ville doit prendre certaines
décisions cruciales sur le réseau de transport rapide qui passe par le
centre-ville avant que l’ÉE ne soit amorcée. Ces décisions résulteront de la
mise à jour au PDT, laquelle prendra en compte l’ensemble des futurs services
de transport en commun actuels ou éventuels qui passeront par le centre-ville
d’Ottawa, notamment ceux qui relèvent de la STO ou qui demeurent possibles sans
être encore établis, comme un service de transport en commun rapide
interprovincial. Ce processus donnera naissance à des recommandations sur le
réseau de transport en commun du centre-ville, lesquelles seront présentées au
Conseil pour fins d’adoption au printemps 2008.
Une fois avalisé et mis en place le
plan du transport en commun au centre-ville, la Ville et ses partenaires seront
alors en mesure de procéder à l’ÉE. Par conséquent, le personnel recommande de
reporter l’amorce de cette ÉE d’ici à ce que le Conseil donne son aval au
réseau de transport en commun rapide du centre-ville.
ÉE du tunnel au centre-ville
En règle générale, on convient du
fait que la croissance au centre-ville du transport en commun rapide sur rue a
atteint son plein potentiel et qu’il est nécessaire de creuser un tunnel
permettant aux services de transport en commun d’échapper, en tout ou en
partie, à la circulation générale. Le Groupe de travail du maire recommande que
la Ville accorde la priorité à la construction d’un tunnel de transport en
commun au centre-ville. À l’exemple de l’étude sur l’ÉE de l’intégration du
transport en commun interprovincial susmentionnée, il serait prématuré
d’amorcer actuellement l’ÉE relative à ce tunnel.
Par rapport à la visualisation dans
la mise à jour du PDT, on étudiera plusieurs questions cruciales pour ensuite
prendre des décisions qui influeront directement sur la configuration du réseau
de transport en commun rapide au centre-ville. Une fois établie la vision sur
le transport en commun, la mise à jour du PDT permettra de recommander un
réseau mis à jour de transport en commun rapide au centre-ville, assorti de
l’ensemble des services de transport en commun dont on préconisera le passage
dans le tunnel ainsi que le calendrier de mise en œuvre à cet effet. Le tout
sera présenté au Comité et au Conseil pour fins d’approbation d’ici la fin du
printemps 2008.
Une fois
mise en place la portée du projet avalisée par le Conseil, on pourra
entreprendre une ÉE complète et détaillée afin de cerner puis de régler les
composantes de planification restantes pour ensuite obtenir l’aval ayant trait
au projet de tunnel. Par conséquent, le personnel recommande de procéder à l’ÉE
détaillée du tunnel de transport en commun au centre-ville d’Ottawa dès que le
Conseil aura avalisé le réseau de transport en commun rapide au centre-ville.
Prolongement du Transitway ouest allant de l’avenue Woodroffe jusqu’au
chemin Pinecrest
En 1994, l’ancienne municipalité
régionale avait mené à terme l’ÉE du prolongement du Transitway ouest, allant
de l’avenue Woodroffe jusqu’au chemin Acres. On préconisait alors d’installer
un croisement superposé d’environ 4 km longeant presque tout le Queensway
dans son versant nord. La seule section n’étant pas adjacente au Queensway dans
cette recommandation couvrait les environs de l’avenue Connaught, où il y
aurait eu une tranchée couverte se prolongeant en partie vers le corridor de la
CCN pour ensuite joindre le Transitway sud-ouest. La tranchée couverte faisait
figure de solution d’atténuation en réponse aux préoccupations de la population
quant aux perturbations que subissait la collectivité.
D’une
distance de 1,6 km, le tronçon allant de l’avenue Woodroffe jusqu’au
chemin Pinecrest englobe la tranchée couverte susmentionnée. Il s’agit du
dernier tronçon restant au prolongement avalisé par rapport au Transitway ouest
et dont la construction tarde. Compte tenu des coûts qu’entraînerait le
prolongement sur une distance si courte, il serait prudent d’envisager les
autres options rentables aux fonctions semblables avant de prendre quelque
décision que ce soit quant à la mise en œuvre du prolongement. Par conséquent,
le personnel recommande d’entreprendre une étude technique sur la valeur ou la
faisabilité à cet effet, dans l’optique de déterminer la solution la plus
rentable par rapport à la question du tronçon allant de la rue Woodroffe
jusqu’au chemin Pinecrest, dans le prolongement du Transitway ouest, pour
ensuite modifier l’ÉE avalisée, au besoin.
Répercussions financières :
Les fonds nécessaires à l’exécution
des ÉE de réévaluation du tronçon est-ouest sont offerts au poste no 902135 –
ÉE du transport en commun rapide. Les fonds relatifs à la partie que doit
assumer la Ville dans l’ÉE de l’intégration du transport en commun
interprovincial dans le secteur central sont offerts au poste no 900267 –
Études sur le transport en commun rapide.
L’annulation des ÉE sur les tronçons
Rideau-Montréal et de l’avenue Carling du TLR permet de dégager d’autres fonds.
Ces fonds pourront servir à l’ÉE du tunnel de transport en commun au
centre-ville d’Ottawa ou à l’étude technique sur la valeur du prolongement du
Transitway ouest (allant de l’avenue Woodroffe jusqu’au chemin Pinecrest). Au
besoin, un financement supplémentaire sera demandé pendant les délibérations
sur le budget d’immobilisations de 2008.
Consultation publique / commentaires :
La
préparation du présent rapport n’a fait l’objet d’aucune consultation.
Toutefois, la consultation de l’ensemble des intervenants aux projets,
notamment la population et les organismes, fera fondamentalement partie de
chacune des études qui émanent des recommandations ci‑détaillées.
INTRODUCTION
On 27 June 2007 City Council considered the recommendations from the Joint Transportation and Transit Committee regarding the Mayor Of Ottawa’s Task Force on Transportation report and passed a series of motions which included the following:
4. That staff report at the August Meeting on:
a)
the reinstatement of Environmental Assessments that
were put on hold and,
b)
a program to undertake an environmental assessment of a
downtown tunnel
c)
an update on the EA for the transitway from Woodroffe
to Pinecrest to find a more cost-effective corridor.
This report responds to the motion, with each of the sub-sections (a) through (c) discussed separately. The environmental assessment (EA) studies referred to under sub-section (a) are as follows:
BACKGROUND
The Official Plan (OP) and Transportation Master Plan (TMP) established objectives to increase the overall peak hour transit modal split from 17% to 30% by 2021. The TMP identified an expanded rapid transit network, which was developed through the City’s Rapid Transit Expansion Study (RTES), as a key component to achieving this objective. The TMP is the guiding framework for the expansion of the rapid transit network, identifying implementation timelines for specific projects.
These projects are subject to a combination of provincial and federal environmental assessment (EA) requirements before proceeding to construction. The City undertakes these EAs in advance of project need to: identify and protect corridors; define projects to enable negotiations to secure funding commitments, and assess impacts and identify mitigation measures. Consultation with the public, project stakeholders and approval agencies is a key component of EA studies.
In Ontario, EAs for transit projects follow the Individual EA process, which requires the development of a study Terms of Reference (ToR) at the outset. The Minister of the Environment must approve both the ToR and the final EA Report before a project can proceed to implementation. These approvals can add a minimum of 42 weeks to a project.
On behalf of proponent municipalities, the Municipal Engineers Association (MEA) is proposing a new Class EA process that would reduce transit EA timelines and study costs. Council endorsed this proposal on 23 May 2007 (refer to Transit Committee report ACS2007-PTE-POL-0028). This proposal is currently undergoing public review. Ministry of the Environment approval of this Class EA process is expected by end of 2007.
On 14 February 2007 Council approved a motion to suspend the work on the East-West Corridor (Orleans-Walkley-Kanata) LRT EA and defer the initiation of the Rideau-Montreal Corridor LRT, Carling Avenue Corridor LRT, and the Interprovincial Transit EA Studies “pending the review of Rapid Transit Expansion Study (RTES) and Ottawa Rapid Transit Expansion Program (ORTEP)”.
On 25 April 2007, Council received a report that outlined that the RTES and ORTEP review would be undertaken as a component of the TMP update, which is to be completed in late 2008. The TMP update will be founded on a Council approved transportation vision, incorporating new information related to the new planning horizon year of 2031, and revised population and employment and travel demand projections.
A principal component of TMP update will be to establish a permanent solution to address downtown transit capacity, such as a tunnel. The resulting downtown transit plan will have ramifications for the entire network - including technology choice and implementation priorities for future extensions of both the LRT and the Transitway. The update will also examine the issue of conversion of the Transitway to rail technology. The outcome of the TMP update will be a long-term rapid transit network plan, along with implementation priorities and the identification of capital funding needs. This work is currently underway.
With the 06 June release of the Mayor’s Task Force on Transportation recommendations, and Council establishing the strategic direction to complete the Transitway by 2015, it is appropriate to re-consider the re‑initiation of these EA studies at this time. A brief discussion and the staff recommendations regarding each of these studies follow.
The East-West Corridor (Orleans-Walkley-Kanata) LRT Project was envisaged in RTES to provide improved east-west rapid transit connectivity bypassing the downtown, which would help to improve the City’s transit modal split and relieve pressure on the downtown transit corridors. Also it would influence development within the growth areas of Kanata and Orleans (Cumberland) as well as serve as a catalyst for intensification and revitalization of older industrial lands inside the Greenbelt.
Although RTES and ORTEP identified a later implementation date for this project, in September 2003 Council directed staff to initiate the EA for this corridor to identify and protect it in advance of new residential and commercial developments, and to signal to senior levels of government that the City is serious about implementing its entire comprehensive rapid transit network in order to achieve the targeted modal split and ensure sustainable growth and development. With this work complete, the City would be in an advantageous position to discuss funding opportunities to advance the implementation of the East-West corridor earlier than planned.
The study commenced in the Fall of 2004 with the development of the study Terms of Reference. In June 2005 Council approved the ToR, which was then approved by the Ontario Minister of the Environment (MOE) in September 2005. After that, the EA proceeded in accordance with the approved ToR, with public consultation at key points in the study.
The original study scope extended approximately 47 km from Kanata North to Trim Road in Cumberland. The approved Terms of Reference extended the scope in the west to consider both rapid transit corridors identified in RTES to serve Kanata: an LRT corridor to Kanata North, and a BRT corridor running parallel to Highway 417 through Kanata Town Centre which extends through the future Kanata West development to Hazeldean Road. Before suspension of the study, this corridor was extended southerly to Fernbank Road to incorporate the preliminary findings of the on-going Fernbank Community Design Plan. These two corridor options were to be evaluated to determine which technology best serves the existing and future growth.
The EA incorporates and considers previously approved EA plans for the West Transitway from Bayshore to Terry Fox (West Urban Community Transit Integration Study, 1996), and the Cumberland Transitway from Navan Road easterly to Trim Road (1999). At the time Council approved the RTES plan, it passed a motion to consider implementing the Cumberland Transitway as a BRT facility in the near term, with conversion to LRT at a later date. The East-West LRT EA was addressing this concept.
At the time that the study was put on hold, it was approximately 75% complete. A preliminary plan was developed that showed a corridor running on dedicated lanes, primarily along arterial roads for the section inside the Greenbelt, and on exclusive rights-of-way outside the Greenbelt. Concerns expressed that the ‘middle portion’ of the preliminary plan doesn’t serve the downtown, and that the arterial road portions do not constitute ‘rapid’ transit, directly led to a recommendation to suspend the study.
There is strong Council and public desire to implement east-west rapid transit enhancements as soon as possible. This was clearly expressed during the 2006 municipal election, and was one of several key issues that led to the development of the Mayor’s Task Force on Transportation. Their final report identifies the completion of the West Transitway extension per the City’s TMP as a short-term recommendation. Furthermore, it supports Council’s strategic direction to complete the Transitway by 2015.
The report on Near-Term Transit Investment Options (ACS2007-PTE-POL-0050) is recommending that portions of the West Transitway (Bayshore to Moodie and Eagleson to Terry Fox) and the Cumberland Transitway (Navan to Trim) projects be approved as priorities for implementation in the near future, subject to funding availability.
Given these stated priorities, there is justification to defer any further study of the ‘middle portion’ and to complete the EA for the eastern and western portions of the study area at this time. This would provide the necessary recommendations for the full extension of the West Transitway, and allow the City to identify and protect a corridor to serve the Kanata North high-tech employment area. Also, it would identify a recommended plan for the missing link of the Cumberland Transitway from Navan Road to Blair Station to provide a continuous link from Cumberland to downtown.
It should be noted that up to October 2006, $1.8 million has been spent on the East-West LRT EA study, and a significant amount of work has already been completed on identifying recommended corridors for both the eastern and western portions of the study area. Accordingly, staff recommends the following:
Recommendation 1
a) Suspend
consideration of the middle portion of the East-West Corridor
(Orleans-Walkley-Kanata) LRT EA, pending the TMP update revisiting the need for
east-west transit movements that by-pass the downtown, and;
b) Re-scope
the existing EA assignment and complete EAs for:
RTES had identified two other east-west LRT corridors – the Rideau-Montreal and Carling Avenue LRT projects. Although both are Phase 3 priorities in the TMP, on 08 June 2005 Council directed staff and pre-committed funds for 2006 to advance the EAs for these two projects to complete the planning component for all east-west LRT services. Thus Council could consider all options for the next stage of the implementation of the RTES network after the North-South LRT project.
The study process was initiated for both projects, with a consultant firm for each selected through a competitive process. However neither contract has been awarded. Staff recommendations regarding these two studies follow.
The Rideau-Montreal Corridor LRT is as an extension to the North-South Corridor LRT line. It would run easterly in a semi-exclusive right of way along Rideau Street and Montreal Road to the campus of the National Research Council (NRC), whereupon it would turn south and run through the NRC campus, the Blair Transitway Station, and over Highway 417 to a point south of Innes Road where it would connect to the proposed East-West LRT line. Approximately 13 stations are proposed along the entire corridor.
A benefit of advancing the Rideau-Montreal Corridor LRT EA study was that it could be coordinated with the Community Design Plan (CDP) for the 310-acre CFB Rockcliffe Lands. The planning for each project could take into account the findings and recommendations of the other, and many of the same communities would be engaged in their respective public consultation processes. The CDP study was initiated in early 2006 by Canada Lands Company, however it is currently on hold.
The appropriateness of the Rideau-Montreal Corridor LRT line will be re-visited in the TMP update. The role and suitability of LRT operations within an arterial road corridor, as well as potential impacts on surrounding land uses and other modes of transportation will be considered. Ultimately, the Rideau-Montreal corridor may or may not end up as a component of the updated rapid transit network. Given this uncertainty it is not appropriate to proceed with the Rideau-Montreal Corridor LRT EA at this time.
In the meantime, staff will continue to be involved in the work on the CFB Rockcliffe Lands CDP, once it re-commences, to ensure that options are not precluded for a future extension of transit corridors from downtown. Accordingly, Staff recommends the following:
Recommendation 2
The Carling Avenue LRT Project consists of approximately 13 km of twin tracks from Bells Corners to the existing O-Train station on Carling Avenue. It was to take advantage of the relatively wide existing right-of-way by running within the median of Carling Avenue, and within the centre of the other existing roadways under consideration. Approximately 26 stations are proposed along the entire corridor, connecting with transit supportive land use (high rises, employment areas, shopping malls, Lincoln Fields, Carlingwood, Fairlawn Plaza, Westgate), entertainment, schools (Woodroffe, Broadview, Nepean, Notre Dame), and other rapid transit lines (O-Train, Southwest Transitway, future East-West LRT Corridor).
Carling Avenue is designated in the Official Plan as a Main Street area and the provision of LRT will support this concept and influence the redevelopments along the corridor. It has also been designated as a Transit Priority Corridor in the TMP. To date, interim transit priority measures have been identified for the Pinecrest to Lincoln Fields, Woodroffe to Kirkwood, and Kirkwood to Bronson sections, with implementation ongoing.
The Carling Avenue Corridor will also be re-visited in the TMP update, with the same potential outcome that it may or may not end up as a component of the updated transit network. Therefore it also not appropriate to proceed with the Carling Avenue Corridor LRT EA at this time. Accordingly, staff recommends the following:
Recommendation 3
The purpose of the study is to define a transit system that serves the downtown cores of Ottawa and Gatineau. This system would effectively integrate existing and planned transit services while enhancing the vitality of the two central areas of the Capital Region. The City of Ottawa, the Société de transport de l'Outaouais (STO), and the National Capital Commission (NCC) are the joint proponents of this EA, with the City acting as the administrative lead.
Direction to begin this work came from the National Capital Tripartite Planning Committee and was confirmed by Council through their approval of the study Statement of Work in October 2004. A study consultant was selected through a competitive process, however the contract was not awarded.
The City must make some key decisions about its downtown rapid transit network prior to starting this study. These decisions will emanate from the above-mentioned TMP update, which will consider all existing and possible future transit services that will enter and exit downtown Ottawa, including those of the STO and potential but currently undefined services such as an interprovincial rapid transit service. The resulting recommended downtown transit network will be presented to Council for approval in Spring 2008.
With an approved downtown transit plan in place, the City and its partners will be in a better position to proceed with the EA. Accordingly, staff recommends the following:
Recommendation 4:
Concern over the mixed operation of on-street light rail and buses was one of the principle reasons leading to the December 2006 cancellation of the North-South Corridor LRT project. The 2002 RTES recommended surface running LRT in the downtown, after concluding that a downtown tunnel would not be justified within the 2021 planning period. Today however, it is generally accepted that there is no more growth potential in the downtown for on-street rapid transit and that a tunnel separating some or all of the transit services from general traffic is required. The Mayor’s Task Force recommends that the City move forward with the construction of a downtown transit tunnel as a priority.
For the same reasons as the above-noted the Interprovincial Transit Integration EA study, it would be pre-mature to initiate the EA for a tunnel at this time. As part of the visioning component of the TMP update, several key issues will be examined and decisions made that will directly influence the configuration of the downtown rapid transit network. These issues include: whether all transit services be accommodated in one corridor or facility, or not; operating strategies – ‘hub and spoke’ versus express routes; the need for a high profile downtown transit hub; and the pedestrian and street level urban environment for all users, amongst others.
With a transit vision confirmed, the TMP update will consider all existing and possible future transit services in the downtown against the practical capacity for rapid transit on the existing downtown street network. Which transit services should be accommodated in tunnel will be identified, and the appropriate rapid transit technology options (e.g. bus, LRT, subway) will be determined. The final recommendation will be an updated downtown rapid transit network, with the preferred combination of transit services to be included in a tunnel, and the proposed timing for its implementation. This will be presented to Committee and Council for approval by late Spring 2008.
With a Council-approved project scope in place, a comprehensive detailed EA study can be undertaken to identify and address all remaining planning aspects and obtain approval for the tunnel project. Accordingly, staff recommends the following:
Recommendation 5:
In 1994 the former Region completed the EA for the West Transitway Extension from Woodroffe Avenue to Acres Road. The study evaluated a range of corridors options and confirmed that the Queensway corridor between the Southwest Transitway and Acres Road was the best corridor for the extension. The recommended plan was for a grade-separated facility approximately 4 km long located on the north side of the Queensway for most of its length.
The only section not adjacent to the Queensway was that in the vicinity of Connaught Avenue where it will be located in a cut-and-cover section extending part way into the NCC corridor to connect to the Southwest Transitway. Recognizing the importance people place on preserving as much open space as possible, the cut-and-cover solution was developed as a mitigation measure to address public concerns regarding the disruption to the community. It requires the removal of three homes on Connaught Avenue and the provision of a storm water pumping station to ensure that intense storms do not flood the Transitway.
The Woodroffe to Pinecrest section is 1.6 km long and is the last remaining segment of the approved West Transitway extension awaiting construction – its implementation being deferred principally due to its high cost (the 2003 ORTEP report estimated the construct cost of this section in the vicinity of $100M). Given such a cost for this short stretch of transitway, it is prudent to explore more cost effective options that provide a similar function prior to making any decisions regarding its implementation. Accordingly, staff recommends the following:
Recommendation 6:
The recommendations contained herein directly support the following Strategic Directions adopted by Council on 11 July 2007:
No consultation was undertaken in the preparation of this report. Consultation with the public, agencies and other project stakeholders will be a fundamental component of all studies emanating from the recommendations detailed herein.
Funds required to carry out the re-scoped studies identified in Recommendation 1 are available in Order No. 902135 - Rapid Transit EA Studies.
Funds for the City’s share of the Interprovincial Transit Integration – Core Area EA are available in Order No. 900267 – Rapid Transit Studies.
The cancellation of the studies identified in Recommendations 2 and 3 would release the encumbered funds, which could then be used for the studies identified in Recommendations 5 and 6. If additional funds are required, they will be sought during the 2008 capital budget deliberations.
SUPPORTING DOCUMENTATION
N/A
DISPOSITION
Upon Council approval, Staff will proceed with each of the recommendations detailed herein.