Transportation Committee / Comité des transports
February 1, 2017 / 1 février 2017
Submitted on January 17, 2017
Soumis le 17 janvier 2017
Vivi Chi, Manager / Gestionnaire, Transportation Planning / Planification des transports, Transportation Services Department / Direction générale des transports
(613) 580-2424, 21877, Vivi.Chi@ottawa.ca
Frank McKinney, Program Manager, Transportation Environmental Assessments / Gestionnaire de programme, Evaluation environmentale des transports
Ward: INNES (2)
File Number: ACS2017-TSD-PLN-0002
SUBJECT: Blackburn Hamlet Bypass Extension and Cumberland Transitway Westerly (Blair Road to Brian Coburn Boulevard) - Environmental Assessment Study - Alternate Corridor – Statement of Work
OBJET: Prolongement de la rocade de Blackburn Hamlet et Transitway de Cumberland vers l’ouest (du chemin Blair au boulevard Brian Coburn) – Étude d’évaluation environnementale – Couloir de rechange – Énoncé des travaux
That the Transportation Committee approve the Statement of Work for the Blackburn Hamlet Bypass Extension and Cumberland Transitway Westerly (Blair Road to Brian Coburn Boulevard) Environmental Assessment Study – Alternate Corridor, as outlined in this report and as detailed in Document 1.
RECOMMANDATION DU RAPPORT
Que le Comité des transports approuve l’énoncé des travaux de l’étude d’évaluation environnementale du couloir de rechange pour le prolongement de la rocade de Blackburn Hamlet et le Transitway de Cumberland vers l’ouest (du chemin Blair au boulevard Brian Coburn), comme l’indique le présent rapport et le précise le document 1.
The Environmental Assessment (EA) for the four-lane Blackburn Hamlet Bypass Extension (BHBPE) from the Blackburn Hamlet Bypass to Trim Road was completed and approved in 1999. Portions of this BHBPE have been renamed to Brian Coburn Boulevard and a two-lane road is already built east of Mer Bleue Road. The two-lane section from Navan Road to Mer Bleue is currently under construction. The 2013 Transportation Master Plan (TMP) identified the section from Navan Road to the Blackburn Hamlet Bypass as a Phase 2 project (2020-2025), this section of roadway still retained its original name (BHBPE) and is the subject of this report.
The EA for the Cumberland Transitway (Blackburn Hamlet Bypass to Frank Kenney Road) was also undertaken at the same time as the BHBPE EA due to their proximity, particularly for the section from the Bypass to Mer Bleue Road. Through this section, the road and transit facility run parallel and immediately adjacent to one another. The Cumberland Transitway EA was also approved in 1999 and because the study followed the Individual EA process, there is no expiry date for this EA. The TMP identified the Transitway construction as post 2031.
A recent geotechnical analysis concluded that the soil conditions are very poor in the vicinity of the planned BHBPE (Blackburn Hamlet Bypass to Navan Road). To design and construct the roadway would require the existing budget envelope of $17.5M to increase to approximately $70M. This planned corridor is no longer affordable and therefore a more cost-effective alternate corridor must be found. Similarly, an alternate corridor for the Cumberland Transitway in this vicinity must also be developed because a change in the location of the roadway has ramifications for the location of the future Transitway corridor.
Figure 1 depicts the current EA-approved corridors for the roadway and Transitway, in the area of concern. Figure 2 depicts the new location for the Chapel Hill Park and Ride Lot, as per the approved Chapel Hill Park and Ride Alternate Site EA Environmental Assessment Study, 2016.
Figure 1: EA Approved Corridors
Figure 2: EA Approved Relocated Chapel Hill Park and Ride, 2016
Since the construction is currently underway to complete Brian Coburn Boulevard (Navan Road to Mer Bleue Road) by the fall of 2017, the outcome of this study may have implications on the short section of Brian Coburn between Navan Road and
Pagé Road, depending on the recommended corridor. It is staff’s assessment that in the worst case scenario (for example: if the road profile between Navan Road and
Pagé Road needs to be adjusted, requiring a full rebuild of this section), the implications on the current contract would be in the order of $2M. While unlikely, there is the potential that this amount could be a throwaway cost. Staff will use every possible measure to ensure that this risk is minimized or eliminated.
Design work on the relocated Chapel Hill Park and Ride lot will be underway shortly. There are two bus access points along Brian Coburn Boulevard which could potentially be affected by a new alignment for the BHBP Extension. Prior to construction of the lot, the EA study will have enough information to inform the Park and Ride project if the accesses onto Brian Coburn have to be redesigned. Additional cost for the potential redesign is in the order of $ 50K.
This report describes the proposed Statement of Work (project scoping) for the study of alternate corridors for the BHBPE and Cumberland Transitway. Details are provided in Document 1. A combined study is being undertaken, which will follow the Municipal Class Environmental Assessment Process (Schedule C), in accordance with the Ontario EA Act.
The EA study limits will extend from Blair Road to Brian Coburn Boulevard and south to Anderson/Renaud Road to allow for a larger range of alternatives to be examined. The Study Area is shown in Figure 3.
Figure 3: Study Area
The majority of the study area is the National Capital Commission (NCC) Greenbelt lands. The original corridors (as per the original EAs) also affect the edge of the Greenbelt and are included as transportation projects in the NCC’s 2013 Greenbelt Master Plan. Deviations from those original corridors will require NCC approval.
Key tasks for this EA study include the following:
Confirmation of the future east-west transportation demand in the eastern part of the City;
Development of alternative corridors to address travel demand;
Assessment of walking and cycling infrastructure requirements and connections;
Assessment and evaluation of environmental implications:
Wetlands, natural environmental areas and features;
Stormwater management, hydrology;
Cumulative effects on the Greenbelt; and,
Adjacent land uses and communities (existing and future).
Development of mitigation measures;
Development of a Recommended Plan for both the roadway and the transitway;
Identify capital and operating costs for implementation;
Consultation with community groups, stakeholders, and the NCC; and,
Development of plans and costing will reflect the differences in implementation timelines for the roadway and the transitway.
This EA is expected to be completed in 24 months from contract award.
There are no rural implications.
Consultation will include meetings with key stakeholders through the Agency Consultation Group, Public Consultation Group, and Business Consultation Group as appropriate, including consultation with Aboriginal Communities. The NCC will be a key stakeholder for this study, as well as community groups in proximity to this project. Consultation with the broader general public will occur primarily through Open Houses. A dedicated project web page will be set up to share study information.
COMMENTS BY THE WARD COUNCILLOR(S)
Councillor Mitic is supportive of the expanded scope of study and will continue to advocate for and support the following:
• The Orleans projected population is expected to increase steadily over the next several years to an anticipated population of well over 135,000 by 2021
• Any new corridor should not pose additional challenges to neighbourhood traffic congestion
• The corridor should look to improve quality of life for commuters and local residents who reside in the adjacent communities
• The preferred option would be to examine the viability to realign Renaud Road linking the existing Brian Coburn to the northern portion of the 90 degree curve west of Mud Creek, therefore permitting the closure of the southern portion of the 90 degree curve to Joshua Street. This option would aim to reduce the amount of cut through traffic through the Bradley Estates neighbourhood.
ADVISORY COMMITTEE(S) COMMENTS
Consultation with the Accessibility Advisory Committee will be completed through the EA process.
There are no legal impediments to implementing the recommendation in this report.
RISK MANAGEMENT IMPLICATIONS
There are no risk management implications.
ASSET MANAGEMENT IMPLICATIONS
The recommendations documented in this report are consistent with the City’s Comprehensive Asset Management (CAM) Program (City of Ottawa Comprehensive Asset Management Program) objectives.
The recommended approach, of expanding the EA study limits for alternate corridors for the BHBPE and Cumberland Transitway, is an efficient and affordable approach to project delivery which supports a forward looking approach to meet future challenges, including changing demographics and populations, legislative and environmental factors.
Funding for this EA study is available within existing capital accounts.
There are no accessibility implications in this report.
The study will examine and evaluate the project’s effects on the social, cultural, physical, and natural environments within the study area as well as the downstream impacts. Appropriate mitigation measures will be developed and post mitigation environmental impacts will also be determined.
TERM OF COUNCIL PRIORITIES
The recommendation contained herein aims to support the following Strategic Directions adopted by Council:
Transportation and Mobility
TM2 Provide and promote infrastructure to support safe mobility choices.
TM3 Integrate the rapid transit and transit priority network into the community.
TM4 Improve safety for all road users.
TM5 Ensure reliable safe, accessible and affordable transit services.
Document 1 Blackburn Hamlet Bypass Extension and Cumberland Transitway Westerly (Blair Road to Brian Coburn Boulevard) Environmental Assessment Study - Alternate Corridor– Statement of Work
Following the Transportation Committee approval of the attached Statement of Work, the Transportation Services Department will initiate the process to retain a consulting firm to assist the City with this Environmental Assessment Study. Once the consultant has been selected, the Environmental Assessment Study will proceed as described.
Document 1 Statement of Work
Blackburn Hamlet Bypass Extension and Cumberland Transitway Westerly (Blair Road to Brian Coburn Boulevard) Environmental Assessment Study – Alternate Corridor
The City of Ottawa is the proponent of a Class Environmental Assessment (EA) Schedule C study to develop an alternate corridor for the Blackburn Hamlet Bypass Extension and the Cumberland Transitway Westerly between Blair Road and Brian Coburn Boulevard. This Statement of Work describes the City’s intentions with respect to the methodology, public consultation, and deliverables for the study.
2.0 Planning Context
The Environmental Assessment (EA) for the four-lane Blackburn Hamlet Bypass Extension (BHBPE) from the Blackburn Hamlet Bypass to Trim Road was completed and approved in 1999. Portions of this BHBPE have been renamed to Brian Coburn Boulevard and a two-lane road is already built. The two-lane section from Navan Road to Mer Bleue is currently under construction. The 2013 Transportation Master Plan (TMP) identified the section from Navan Road to the Blackburn Hamlet Bypass as a Phase 2 project (2020-2025), this section of roadway still retained its original name (BHBPE) and is the subject of this report.
The EA for the Cumberland Transitway (Blackburn Hamlet Bypass to Frank Kenney Road) was also undertaken at the same time as the BHBPE EA due to their proximity, particularly for the section from the Bypass to Mer Bleue Road. Through this section, the road and transit facility run parallel and immediately adjacent to one another. The Cumberland Transitway EA was also approved in 1999 and because the study followed the Individual EA process, there is no shelf-life (no expiry date) for this EA. The TMP identified the Transitway construction as post 2031.
A recent geotechnical analysis concluded that the soil conditions are very poor in the vicinity of the planned BHBPE (Blackburn Hamlet Bypass to Navan Road). To construct the roadway would require a quadrupling of the existing budget envelope from $17.5M to $70M. This planned corridor is no longer affordable and therefore a more cost-effective alternate corridor must be found. Similarly, an alternate corridor for the Cumberland Transitway in this vicinity must also be developed because a change in the location of the roadway has ramifications for the location of the future Transitway corridor.
The EA study limits will extend from Blair Road to Brian Coburn Boulevard and south to Anderson/Renaud Road to allow for a larger range of alternatives to be examined. The Study Area is shown in Figure 3.
The majority of the study area is the NCC Greenbelt lands. The original corridors (as per the original EAs) also affect the edge of the Greenbelt and are included as transportation projects in the NCC’s 2013 Greenbelt Master Plan. Deviations from those original corridors will require NCC approval.
3.0 Project Scope and Major Tasks
3.1 Study Area
The Study Area (Figure 2) is broad to include Innes Road corridor to the north, Renaud Road to the south, Blair Road to the west and Brian Coburn Boulevard to the east. This ensures a reasonable range of alternatives can be developed and assessed. However, some tasks will require examination of a broader area beyond these limits to address environmental impacts, operational issues and to co-ordinate with relevant on-going studies and projects.
3.2 Coordination with Existing and Concurrent Studies
The EA Study will take into consideration any information including analysis and preliminary findings of concurrent on-going transportation, development and infrastructure projects that could influence the direction and/or conclusions of the Study. These include:
Cumberland Transitway and Blackburn Hamlet Bypass Extension EA Studies (1999)
Community Design Plans including East Urban Community CDP, Phase 1 and 2 and on-going East Urban Community Mixed Use Centre CDP
Chapel Hill Park and Ride – Alternate Site Environmental Assessment (2016)
Brian Coburn Road (Navan Road to Mer Bleue Road) – under construction
Current development applications and associated studies (i.e. transportation impact studies)
Joint Study to Assess Cumulative Effects of Transportation Infrastructure on the National Capital Greenbelt (2013)
3.3 Major Tasks
Confirmation of the future east-west transportation demand in the eastern part of the City
Development of alternative corridors to address travel demand
Assessment of walking and cycling infrastructure requirements and connections
Assessment and evaluation of environmental implications
Wetlands, natural environmental areas and features
Stormwater management, hydrology
Cumulative effects on the Greenbelt
Adjacent land uses and communities (existing and future)
Development of mitigation measures
Development of a Recommended Plan for both the roadway and transitway
Identify capital and operating costs for implementation
Consultation with community groups, stakeholders, and the NCC
4.0 Planning and Environmental Assessment
The EA study comprises of the following tasks:
4.1 Need and Justification
This exercise will be carried out by forecasting travel demand and determining both existing and future needs for infrastructure with respect to the impact on east-west travel demand/distribution, economic benefits and links to major employment destinations. In addition, the study will identify current and projected transportation problems and opportunities within the study area.
4.2 Environmental Inventory / Existing Conditions
An inventory of the existing social, cultural, economic, physical and natural environments within the study area will be compiled. This inventory will consider all available background material and will be supplemented by on-site surveys and/or detailed studies. The inventory must be of sufficient detail to enable the analysis of effects arising from alternatives considered in this study.
In general, the inventory will identify and describe those aspects of the environment that could potentially affect, or be affected by, the undertaking. Some of the specific aspects of the environment associated with this project include:
Adjacent private property (NCC) and neighbouring communities
Effects on green spaces and protected natural areas
Current and future pedestrian, cycling and recreational pathway corridors/routes
Current storm water drainage patterns
Subsurface (geotechnical) conditions
Heritage and archaeological conditions
Utilities including water, sanitary, hydro, gas, cable, phone, fibre optic, etc
Noise and vibration
The complete inventory will be clearly described and documented within the Environmental Study Report (ESR).
4.3 Develop Alternative Alignments
The various alternatives will consider:
Transportation performance in terms of connectivity to the transportation network (road and transit)
Grade separations and structural general arrangements
Access and connectivity to pedestrian, and cycling network
Utility location and relocations
Landscaping and urban design features
Undertake additional field investigations, surveys, test pits and boreholes as necessary to document the scope and potential impact of the design alternatives.
4.4 Evaluation Criteria and Evaluation Process
The evaluation criteria and methodology will be developed. The potential effects of each alternative solution on the environment will be thoroughly evaluated. Mitigation measures and associated implications, such as cost of mitigation, are to be identified and considered in the evaluation process. The study will clearly identify the initial impacts of each alternative solution as well as the net post-mitigation effect and enhancement opportunities using quantifiable indicators and measures wherever possible. To ensure that all impacts are appropriately evaluated, the following issues will be addressed:
Transportation Service and Existing Infrastructure:
Impact on pedestrian and cycling network
Impact on utilities and existing infrastructure
Impact on green space and urban natural environment
Impact on groundwater and surface storm water drainage
Impact of contaminated lands
Impact on adjacent land uses
Urban design including landscape and streetscape plans
Impact on air quality
Impact on noise and vibration levels
Heritage and archaeological matters
Capital and operating costs
4.5 Recommended Plan
Following the evaluation of alternative solutions and after determining all necessary mitigation measures to minimize the adverse impacts of the project, a technically preferred plan will be developed.
This Recommended Plan will include but is not limited to:
A detailed written description of the undertaking including the design parameters
Functional design drawings (1:500 scale, plan and profile) for the preferred alignments with geo-referenced horizontal alignment; vertical profile; grading; drainage; and property envelopes
Cross-section drawings for typical sections as well as critical areas
Landscape and urban design plans
Storm water management requirements
Property needs/acquisition plan
Project cost estimates (capital and operating)
The Recommended Plan, including mitigation measures, will clearly identify and set out the requirements and timing for all subsequent approvals required to proceed with construction of the project.
Developing an accurate project budget is an essential component of this study as it will contribute to the City’s short and long range capital budget requirements and development charges strategy. The project estimates will be developed using a Work Breakdown Structure (WBS) format in current dollars, and include contingency allowances, as well as detouring during construction costs. Cost estimating will follow the City Council’s approved Project Delivery Review process.
4.7 Project Deliverables
The deliverables for the study include:
Forecast travel demand modelling and analysis
Environmental Inventory/Existing Conditions Report
Noise, Vibration and Air Quality Report
Functional design drawings (1:500 scale) of the Recommended Plans, including plans and profiles for recommended alignments, structure general arrangement drawings, utility relocation details, storm water management plans, landscape design plans, supporting infrastructure
Clearly defined property requirements
Project Implementation/Staging Plan, which will identify all future approval requirements including those for property acquisitions and easements and other property related matters
Project capital and operating cost estimates
Project web page information in accessible format
Written and graphical content for all public notices; presentation materials and handouts for the Open Houses, Consultation Groups and stakeholder meetings
Consultation Summary Report
Draft and Final Ontario Environmental Study Report (ESR) to document the study activities and findings in support of the Recommended Plan for both roadway and transitway
An Executive Summary which will be translated and in accessible format.
4.8 Environmental Study Report
The final ESR, incorporating all pertinent comments, will be prepared and placed on public record for a minimum 30 day review period. An FTP site for the public to access and download the ESR will be made available during this review period.
The study is expected to be completed within approximately 24 months from award of the contract.
Consultation will involve stakeholders, City Advisory Committees, community groups, property owners, businesses, approval agencies, First Nations, and special interest groups. Early in the study process, stakeholders will be identified through consultation with Ward Councillors.
The consultation strategy will consist of meetings with key stakeholders through an Agency Consultation Group (ACG), Business Consultation Group (BCG), Public Consultation Group (PCG), and the general public through Open Houses. The membership, roles and responsibilities of each Consultation Group will be defined prior to the first meeting. Specific aspects of the consultation program are summarized below.
5.1 Agency Consultation Group
An Agency Consultation Group (ACG) will be formed to address the full range of technical issues and to comment on all of the special studies required to fully assess the various alternatives. The ACG will also ensure that the City is following the procedures, legislation and addressing appropriate policies. Members will include representatives primarily from government agencies and approval bodies. The ACG will meet at key stages throughout the study. Direct one-on-one consultation with other Agency groups may be necessary as specific issues arise during the course of the study.
5.2 Business Consultation Group
A Business Consultation Group (BCG) will be formed to enable business owners and private sector property owners to inform and provide input to the study, advising and commenting on local economic and business issues and concerns.
5.3 Public Consultation Group
A Public Consultation Group (PCG) will be formed to enable community groups, special interest groups, the City’s Advisory Committees, and adjacent property owners to provide direct input to the study, advising and commenting on local issues and concerns.
5.4 First Nations
The Ontario Secretariat for Indigenous and Northern Affairs Canada will be contacted to review First Nations issues or ongoing claims within the Study area. Recognizing the federal role in this regard, the Study will ensure appropriate coordination with federal authorities pursuant to the 2008 federal guidelines on “Aboriginal Consultation and Accommodation.” Direct consultation with affected First Nations will also be carried out as appropriate.
The public will be notified of the EA Study commencement, all Public Open Houses (POHs), and the submission of the ESR for Ministry approval. Notifications will be sent out at appropriate stages in the Study, and each announcement will take the following forms:
Advertisements in local community newspapers (EMC, Le Droit)
The project web site on the City’s web portal
Additional notifications will be undertaken, as required.
5.6 Open Houses
A minimum of two Open Houses will be held to present and obtain feedback on:
Alternative corridor options
Results of the evaluation process
Bilingual staff will be present during all Open House meetings and all material presented at these meetings will be in both official languages.
5.7 Project Mailing List
A Master Mailing List for the project will be established and updated throughout the course of the project. The Mailing List will be updated via Open House attendance, general inquires, e-mails and other forms of consultation.
5.8 Project Web Page
A Project Information Web Page will be established for this Study on the City’s website. The purpose of the Web Page will be to inform the public of the progress and interim findings of the study and upcoming meetings or activities, and to provide a point of access for public consultation and feedback. The web information will conform to the Accessibility for Ontarians with Disabilities Act.
To assist in providing information to the public, a Frequently Asked Questions (FAQ) will be prepared to provide answers to common questions raised during the study. The FAQ document will be established early in the study process and will be updated regularly. It will also be posted on the project web site.
5.9 Transportation Committee and Council Meetings
The final study findings will be presented to Transportation Committee and Council for approval.