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5. STO (SOCIÉTÉ DE
TRANSPORT DE L’OUTAOUAIS) BUS LAY-BY ON VOIE D’ARRÊT DES AUTOBUS DE LA STO (SOCIÉTÉ DE TRANSPORT DE L’OUTAOUAIS)
AVENUE KING EDWARD ET RUES ADJACENTES (RUES YORK ET GEORGE) |
Committee Recommendations as amended
That Council approve:
1. That
la Société de Transport de l’Outaouais (STO) be requested to use its new lay-by
spaces on the Gatineau side of the Macdonald Cartier Bridge for at least 7
buses and be invited to use the new bus lay-by area for 14 buses under the new
access ramp on the Ontario side of the Macdonald-Cartier Bridge;
2. That
the STO be advised that the bus lay-by on the following three streets, King
Edward Avenue, George Street and York Street, will no longer be available, subject
to staff bringing forward a report by the end of October 2008 for consideration
by the Transportation Committee on the steps to be taken to immediately
implement the temporary removal of STO buses and to accommodate the STO in the
short term.
3. That staff bring forward a second
report on long-term steps to be taken to implement a permanent solution removing
STO buses before the end of construction on King Edward Avenue in 2009.
Recommandations modifiées du comité
Que le Conseil approuve :
1. Que la Société de transport de
l’Outaouais (STO) soit obligée d’utiliser ses nouvelles voies d’arrêt accommodant
sept autobus situées à l’extrémité du pont Macdonald- Cartier proche de la
Ville de Gatineau et soit invitée à utiliser les nouvelles voies d’arrêt
accommodant quatorze bus situées sous la nouvelle rampe d’accès du côté
ontarien du pont Macdonald-Cartier.
2. Que la STO soit informée qu’elle n’aura
plus accès aux voies d’arrêt avenue King Edward, rue George et rue York, sous
réserve du dépôt par le personnel, à l’intention du Comité des transports avant
la fin d’octobre 2008, d’un rapport concernant les mesures à prendre afin de
procéder immédiatement au retrait temporaire des autobus de la STO et
d’accommoder la STO à court terme.
3. Que
le personnel présente un deuxième rapport au sujet de mesures à long terme
qu’il faudrait prendre pour mettre en oeuvre une solution permanente visant à
retirer les autobus de la STO avant la fin des travaux sur l’avenue King Edward
en 2009.
D ocumentation
1. Councillor Georges Bédard’s report dated 9
June 2008 (ACS2008-CCS-TRC-0013).
2. Document 1 - Letter from Mr. Michel Brissette, General
Manager, STO, dated 19 August 2008.
3. Extract of Draft
Minutes, 20 August 2008 (available in English only).
Documents
1. Rapport du Conseiller Georges Bédard daté le
9 juin 2008 (ACS2008-CCS-TRC-0013).
2. Document 1 - Lettre du M. Michel Brissette,
directeur général, STO, daté le 19 août 2008.
3. Extrait de l’ébauche du procès-verbal, le 20
août 2008 (disponible en anglais seulement).
Report to / Rapport au :
Transportation Committee
Comité des transport
9 June 2008 / le 9 juin 2008
Submitted
by / Soumis par: Conseiller /
Councillor Georges Bédard
Contact /
Personne-ressource : Councillor G. Bédard
(613) 580-2482,
Georges.Bédard@ottawa.ca
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Rideau-Vanier (12) |
Ref. N°:
ACS2008-CCS-TRC-0013 |
SUBJECT: STO (SOCIEÉTÉE DE TRANSPORT DE L’OUTAOUAIS) BUS
LAY-BY ON KING EDWARD AVENUE AND ADJOINING STREETS (YORK, GEORGE)
OBJET
: VOIE D’ARRÊT DES AUTOBUS DE LA STO (SOCIÉTÉ
DE TRANSPORT DE L’OUTAOUAIS) AVENUE KING EDWARD ET RUES ADJACENTES (RUES YORK
ET GEORGE)
REPORT
RECOMMENDATIONS
That the
Transportation Committee recommends that Council approve:
1. That la Société de Transport de l’Outaouais (STO) be requested
to use its new lay-by spaces on the Gatineau side of the Macdonald Cartier
Bridge for at least 7 buses and be invited to use the new bus lay-by area for
14 buses under the new access ramp on the Ontario side of the Macdonald-Cartier
Bridge;
2. That the STO be
advised that the bus lay-by on the following three streets, King Edward Avenue,
George Street and York Street, will no longer be available.
RECOMMANDATIONS DU RAPPORT
Que le Comité des transports recommande au
Conseil d’approuver :
1. Que
la Société de transport de l’Outaouais (STO) soit
obligée d’utiliser ses nouvelles voies d’arrêt accommodant sept autobus situées
à l’extrémité du pont Macdonald- Cartier proche de la Ville de Gatineau et soit
invitée à utiliser les nouvelles voies d’arrêt accommodant quatorze bus situées
sous la nouvelle rampe d’accès du côté ontarien du pont Macdonald-Cartier.
2. Que la STO soit informée qu’elle n’aura
plus accès aux voies d’arrêt avenue King Edward, rue George et rue York .
BACKGROUND
At present, some
21 curbside parking spots, on the west side of King Edward Avenue (KEA) from Murray to George, and extending into York
and George streets, are used each work-day during the evening rush hour for
buses operated by the Gatineau-owned STO line to lay-by and wait until the time
comes to progress on their routes. From Monday to Friday, from around 3 pm
until 5:30 or later, the buses come and go, filling these spots
constantly. It should
also be noted that buses also lay-by between Bruyere and St-Andrew on KEA. Lay-by between George and Rideau on KEA was
initially authorized by the then Regional Government of Ottawa-Carleton in
1991, while lay-by between Bruyere and St-Andrew began more than three years ago
without any formal authorization by the City of Ottawa. In general,
these buses serve residents of Gatineau who work in Ottawa.
DISCUSSION
The presence of the buses in these locations, with their emissions,
noise, and constant maneuvering, compromises the health and safety of
residents, stresses King Edward Avenue which is already unsuitably overburdened
as an urban highway supporting a growing number of transport trucks every
month, and has disturbed the peace and well-being of residents for generations.
STO works collegially with OC Transpo in operating the part of their bus
routes that run through Ottawa. The
City has no authority to regulate the STO since they operate from outside this
jurisdiction, much as Voyageur and Greyhound do. The City of Ottawa can however regulate the location of lay-by
areas.
Health Threat: Residents, nursery school-children, theatre
patrons, and business operators are directly exposed to dangerously high levels
of toxic emissions from diesel engines that are almost constantly idling during
these hours as numerous buses lay-by outside their homes and places of business
for extended periods every work-day.
Because of the proximity of the buses, the emissions have no opportunity
to dissipate before they are absorbed and respirated by people along the
street.
In 2001, in a report prepared for Delcan Corporation by Daley Ferraro
Associates on existing environmental conditions, peak values for certain
emissions exceeded acceptable limits even then. The report stated: “Maximum concentrations
are highest at signalized intersections including King Edward Avenue and Rideau
Street… as well as King Edward and Murray Street … due in part to idling
emissions and queue lengths of traffic. The worst conditions will occur during
rush hour periods when vehicle emissions are trapped by adverse temperature and
buoyancy inversion in the atmosphere.”
The values obtained for that study were estimates. This year, 2007, actual pollution levels are being studied on King Edward Avenue with mobile emission monitors and satellite data, as part of the National Capital Air Mapping project, a joint federal-provincial-municipal undertaking, which will report in 2008. It is anticipated that findings will show pollutants are far in excess of acceptable limits.
The dangers to people’s health from vehicle emissions, and diesel emissions in particular, are well known. Canadian scientists recently found a “startling rise” in death rates associated with living within 50 metres of a major highway, in a study that did not even include extensive idling statistics. Air pollution is said to cause between 290 and 340 premature deaths each year in the City of Ottawa. The concomitant costs and burdens on health care systems are high and could be mitigated by the removal of diesel motor idling from within 100 meters of densely populated communities.
The
Question of Idling Controls: Although stricter controls are being
effected on vehicle idling, particularly on the city’s Corporate Fleet (which
STO has agreed to abide by) these attempts in no way solve the problem of bus
lay-by. First, because even the strictest guidelines allow for one minute
idling. Secondly, because there are and will continue to be exceptions for
extreme temperatures and for ensuring that old engines start, etc. Thirdly,
because transit bus drivers are resistant to shutting off their engines
while they wait and it is impossible to monitor and enforce every bus every
day. And finally, while the idling emissions component is very important, it is
not the only reason to remove the lay-by from King Edward and adjoining
streets.
Safety Issue: Lines of parked buses pose a safety issue for pedestrians to see around and for motorists to make their turns. Buses are parked in the southbound curb lane during highest traffic volume hours. This has the effect of obscuring the line of vision for vehicles attempting to turn anywhere in the bus lay-by vicinity. This is a particular problem for parents coming to pick up their children from the Andrew Fleck Child Care Centre on George Street. Parked buses also eliminate the use of this third lane by southbound traffic.
Many collisions have occurred over the years on King Edward Avenue, both
pedestrian and vehicular, with injuries and loss of life. Traffic is heavy most
of the day, moves quickly, peaking at rush hour, and is especially constrained
during construction, which will go on for at least two more years. Any
additional hazard, such as buses queued along one lane, makes the situation
even more dangerous.
Historical Overview: Then and Now
STO buses have been using King Edward Avenue as a lay-by location for
decades, at least since the Macdonald-Cartier Bridge was built in the ‘60s.
Residents have been petitioning for their removal almost as long.
1991 In February, 1991, as a result of complaints and representations by citizens, the then regional transportation committee approved a plan to limit the number of Outaouais Transit (STO) buses that can idle on King Edward, limiting bus stacking to a maximum of 10.
A report in the Ottawa Citizen on February 14, 1991 said, “Members of the King Edward Task Force … told the committee Wednesday that the area …was buffeted daily by the noise and pollution of up to 25 buses at a time idling along the street during the afternoon rush hour.” Regional staff have also been asked to find ways to eliminate the use of King Edward entirely, the report stated. Apparently, this attempt failed.
An earlier report
(January 25, 1991) that said residents were fed up with bus lineups clogging
King Edward, quoted the then STO operations manager as sympathizing with the
complainants and willing to make some improvements, by making sure drivers
don’t leave the garage early, and by moving some buses back to the Quebec side:
“In addition, drivers will be told to shut off the engines while idling in
warmer weather.” The STO manager said it was impossible to remove all the buses
because they needed to wait near where their routes start and the company
couldn’t afford to build a new garage. As for drivers who don’t follow
directives and allow engines to idle, the manager of Ottawa’s parking control
officers said it was difficult to ticket them, and the STO official was quoted
as saying the drivers wouldn’t appreciate being ticketed.
2007 More than 16 years later, in June 2007, a meeting of residents, STO officials, city of Ottawa staff (OC Transpo, King Edward Construction Project “KECP”) and Councillor Georges Bédard, who called and chaired the meeting. As a result the following occurred:
1) STO will remove seven buses to Gatineau streets;
2) A study report is under consideration by the Ministère des transports du Québec that recommends the construction of a bus station on the Gatineau side of the Macdonald-Cartier Bridge to be funded by Québec. The option would be actionable in the longer term.
3) The construction of waiting spots for 14 buses on lay-by under the new portion of the bridge. This option could be temporary (i.e., until STO constructs its full lay-by on the Gatineau side) or permanent since it would significantly reduce the negative impacts of the present situation.
Setting aside the longer-term option of building a bus station, because of 1) urgency for action and 2) dependence on decision-making outside the domain of the City, the focus must be on a short term solution.
It appears that the area identified for the temporary replacement of some of the buses (Option 3) required for the construction project, could be made a permanent location for all 14 that can’t be accommodated in Gatineau.
As mentioned previously, this location is the underpass to the new approach to the bridge. Buses waiting in this location would be out-of-sight of Ottawa residents, not visible from windows of Foreign Affairs headquarters on Sussex Drive, and well-positioned to move into their routes. These routes would still use King Edward Avenue but since the curb lane would be freed up, traffic would move more smoothly and emissions would be further reduced since vehicles in motion produce less pollution than vehicles stopped and idling.
Environmental Considerations: Removal to less densely-populated area would allow emissions to dissipate and cause fewer health problems.
Traffic Considerations: Flow of traffic would not be impeded by lay-by and would be further improved with the designation of the curb lane for buses/taxis, with no parking, no stopping during rush hour.
Cost Considerations: Costs are part of the KEA development project.
Stakeholder Support: Lowertown and Sandy Hill citizens, Rideau BIA, educational, recreational, cultural establishments. Improved perception of the street by visitors to the National Capital. King Edward Avenue Construction Project.
CONSULTATION
The Community has been consulted about the
contents of this report and they have had their input accordingly.
Planning, Transit and the
Environment Department / Transit Services Branch
The
transit services which the STO operates from downtown Ottawa into Gatineau
form, along with OC Transpo services, an integral part of the metropolitan
public transit system. The STO services
support the high employment levels and strong economy of downtown Ottawa, and
in this regard are as important as the OC Transpo services that serve downtown Ottawa. The City of Ottawa has an important role in
supporting and providing facilities for public transit from all parts of the
Ottawa-Gatineau metropolitan area.
Staff
support Recommendation 1. The bus
staging area that has been built alongside the section of King Edward Avenue
where it passes under the approach to the Macdonald-Cartier Bridge is an
appropriate location for buses to pause and wait for their scheduled departure
time from Rideau Street, as long as transit priority measures can be established
between the staging area and Rideau Street.
Staff
do not support Recommendation 2 for two reasons:
First, no other definitely
feasible and practical method has yet been identified for STO buses arriving
into downtown Ottawa via the Portage Bridge to turn around so that they can
return via the Portage Bridge. Several
methods are under discussion among STO, TPO, and Transit Services staff, such
as having the buses turn around elsewhere or over a longer on-street loop. STO and Transit Services staff have also
discussed the possibility of restructuring some of the STO services in Ottawa
so that they pass through downtown, as some OC Transpo services do, rather than
entering and turning around to return via the route over which they entered
downtown. This latter possibility would
not address all of the trips which now end at King Edward/George/York, but
could reduce the number of trips which turn around, to be handled at this or
another location.
Second,
the effect of the recommendation, even if a location were found for buses to
turn around and to wait, would be to increase transit operating costs without
an improvement in service for transit customers. The benefit of the recommendation would be to reduce the intrusion
of transit operations in the residential and commercial areas. If the STO were required to accommodate
these costs within its budget, then fewer capacity improvements could be made
across their entire network in future years, which would impair the improvement
of service and would suppress transit ridership, leading to more auto use
across all of Gatineau and across the bridges into Ottawa.
City
staff will continue to work with STO staff to find solutions to reduce the levels
of intrusion in the King Edward/George/York area in the short term. It is recommended that consideration of the
matter of an absolute ban on bus time points in the King Edward/George/York
area be deferred until after the completion of a number
of studies currently underway and Council's resulting decisions.
Public Works & Services
Department / Traffic and Parking Operations Branch
Staff support Recommendation 1,
and this as
it has been partially implemented as STO
is currently using time points located on boulevard des Allumettières in
central Gatineau, and the new lay-by area recently constructed at the north end
of King Edward Avenue near the MacDonald-Cartier Bridge. As part of the temporary traffic management
plan for the King Edward Avenue rehabilitation project, the number of buses using the time point on the west side of King Edward
Avenue, between Clarence and George Streets, was reduced when the new locations
became available at the end of 2007.
With the progression of construction activities further south, the
remaining time point zone on the west side of King Edward Avenue will soon be removed. These new time points and the new lay-up
area accommodate the STO buses that start their trips in Ottawa during the
afternoon peak period. For this
staging area to work effectively without reducing the on-time reliability of
STO buses leaving from downtown Ottawa, transit priority measures (including
a southbound
bus Bus
only lane, with right turn lanes where required) must
are to be provided along King Edward
Avenue during the afternoons from Monday to Friday, upon the completion of stages
of the King Edward Avenue construction project.
Staff cannot support Recommendation
2 at this time as there are a number of
operational aspects that need to be addressedunderstood. The recommendation indicates that the
time points on George and York Streets would no longer be available, but does
not provide any indication of how or where these buses might travel so as to
reach an alternate area such as the newly-opened lay-by area at the north end
of King Edward Avenue. Some of the
buses using these time points arrive in Ottawa in-service from the west (via
the Portage Bridge, Wellington Street and Rideau Street) during all time
periods of the day (not just the pm peak period) and must turn around somewhere
in the vicinity of the Rideau Centre before returning to the City of Gatineau
via Rideau Street, Wellington Street and the Portage Bridge. City staff,
in consultation with STO, are currently analyzing
alternative routes for STO to access the King Edward terminal, including King
Kind Edward Avenue and several
corridors through the Byward Market area.
The time points on George and York Streets
could potentially be removed if alternate arrangements are made by the City of Ottawa. This could
involve the rerouting of STO buses to other streets in the By Ward Market area,
infrastructure or operational changes to mitigate the impact of traffic
congestion on transit operations in these areas, and/or the construction of a
bus turn-around near the intersection of King Edward Avenue and Union Street,
(which likely will require a Class A+ environmental assessment).
If directed by Council, staff
will bring forward a report for consideration this fall
to the Transportation
Committee on steps taken to accommodate STO, and to seek Council
direction on alternatives and any major changes, with
implementation to be completed before the end
of the 2009 construction season.
Removal of the time points on George and
York Streets without alternate arrangements to maintain STO service could
result in the use of other curb side spaces in the vicinity of their departure
stop at the Rideau Centre and increased traffic congestion. The current STO time point locations, in effect
throughout the day on George and York Streets, minimize the need for STO to
circulate on other streets in the area, and the suggested
requirement to vacate these time points will potentially
have a greater impact in the neighbouring community.
FINANCIAL
IMPLICATIONS
Subject to Council approval of the recommendations:
Traffic and Parking Operations Branch has advised, in respect to
Recommendation 1, there are no further financial impacts as the transit
priority measures on the Ontario side have already been incorporated in the
overall King Edward Rehabilitation project.
Traffic and Parking Operations Branch has advised, in respect to
Recommendation 2, that if directed, a report to Transportation
Committee detailing alternatives and required changes can be submitted for
consideration
this fall, with implementation completed before the end of the
2009 construction season. The
alternatives and required changes that may be proposed in the report would be
subject to Council direction to be submitted as part of the 2009 Draft
Operating and Capital Budget deliberations for Council approval.
DISPOSITION
Staff to take appropriate action as
directed by the Committee and Council.
DOCUMENT 1
Gatineau, August 19, 2008
Ms. Nancy Schepers
Deputy City Manager
Planning, Transit and the Environment
City of Ottawa
110 Laurier Avenue West
Ottawa, Ontario
K1P 1J1
Subject: King Edward Terminus
Dear Ms. Schepers:
The following is in regard to the King Edward
terminus.
Every day, the Société de
transport de l’Outaouais makes more than 62,000 trips, including 17,400 to or
from Ottawa. This public transit service helps maintain a large number of jobs
and a strong economy for downtown Ottawa. With workers travelling by bus rather
than by automobile, traffic downtown is significantly reduced and fewer
workplace parking spaces are required. In general, public transit is beneficial
because it reduces travel costs as well as pollutants and greenhouse gas
emissions. Furthermore, motorists also benefit by saving a lot of time, seeing
as the road network is freed up by public transit.
Almost all buses leaving Ottawa depart from King
Edward terminus, which is therefore a strategic location for STO operations.
The proximity of King Edward terminus, on the one hand to the Macdonald-Cartier
bridge, and on the other to Rideau Street on which most STO bus routes travel,
enables quick and direct access to the buses’ point of origin and favours an
effective and timely service. Prior to their departure, the vehicles wait in
the designated areas on King Edward, York and George streets, as well as in the
waiting area on Union Street, which was built this past year.
…2
2
Major refurbishment work on King Edward Avenue over the
last few years has affected how the terminus and waiting areas operate.
To this effect, joint STO and City of Ottawa working
committees have been set up in order to identify operational alternatives.
Many joint actions have been taken over the last year,
including:
-
the
construction of a 14-space waiting area, plus 8 double-line spaces north of
King Edward – Union terminus (City of Ottawa);
-
the
reserved lane on Sussex Street (City of Ottawa);
-
the
addition of 3 on-street parking spaces – Des Allumettières Blvd. (STO);
-
the
addition of 4 on-street parking spaces – Laurier Street (STO);
-
the
use of the reserved lane opposite to traffic on Fournier Blvd. for 15 parking
spaces (STO);
-
the
relocation of the point of origin at Château Laurier – 46 trips (waiting on the
Quebec side of the region - STO);
-
the
decrease in the number of trips departing from Ottawa and the progressive
relocation of departures to Union terminus:
o number of departures day/week
on King Edward, York and George streets: 2006 = 572, 2008 = 34.
Starting
September 1, 2008:
-
the
relocation of all trips on Saturdays (171) and Sundays (124) to Union terminus
(STO);
-
the
relocation of almost all trips during the week to Union terminus, for a total
of 439 trips (STO).
…3
3
Upcoming:
-
the
installation of intelligent transportation systems for the management of bus
movements – spring 2010 (STO);
-
the
creation of 15 parking spaces below Des Draveurs bridge – St-Louis Street –
spring 2010 (STO).
Total investments of close to
$3M are required to complete these works. The STO is awaiting an answer from
the Ministère des Transports du Québec.
Regarding the overall
approach, the STO is awaiting an answer from representatives of the City of
Ottawa on the following items, which would enable to free up the waiting areas
on York, George and King Edward streets:
-
make
the waiting area on Union Street permanent;
-
install
sanitary facilities at Union terminus for the bus drivers;
-
conclude
a snow removal agreement for the Union site;
-
establish
a reserved lane on King Edward Avenue going south up to Rideau Street,
accessible upon exiting the Union waiting area;
-
make
the reserved lane from Boteler Street to Sussex Street permanent;
-
establish
a priority measure to enable buses to turn right on King Edward Street when on
Sussex Street;
-
enable
access to the Union waiting area from King Edward Avenue going north.
…4
4
Many concrete actions have
been taken either individually or jointly by the STO and the City of Ottawa over
the last two years in order to solve operational problems and nuisances related
to operating King Edward terminus. Other actions are to be taken between now
and 2010 in order to serve this sector properly. The action plan requires the
commitment of all partners involved in the matter.
In order to bring this action
plan to life, to ensure a follow-up that makes it possible to periodically
assess the evolution of activities and to make the required adjustments, the
STO would like to continue the work of the City of Ottawa-STO-OC Transpo
operational committee. All actions taken and upcoming actions, as well as the
commitment of the different partners, should solve the King Edward terminus
problem and ensure effective service for STO clients.
Please feel free to contact
us for additional information.
Sincerely,
Michel Brissette, CGA
General Manager
c. c. Mr. Michael Murr, Manager, Strategic
Initiatives and Business Planning – City of Ottawa
Mr. Alain Mercier, Director, OC
Transpo
Mr. Salah Barj, Director of Planning
and Development – STO
Mr. Robert Lapointe, Assistant to
the Director of Operations – STO