Comité des transports
1 March 2017 / 1 mars 2017
Submitted on February 14, 2017
Soumis le 14 février 2017
Manager / Gestionnaire,
Transportation Planning / Planification des transports
613-580-2424 x21877, Vivi.Chi@Ottawa.ca
Robert Grimwood, Senior Project Manager, Transportation Strategic Planning / Gestionnaire principal de projet, Planification stratégique des transports
613-580-2424 x28757, Robert.Grimwood@ottawa.ca
Ward: CITY WIDE / À L'ÉCHELLE DE LA VILLE
File Number: ACS2017-TSD-PLN-0001
SUBJECT: Ottawa Pedestrian Plan Mid-term Review
OBJET: Examen de mi-mandat du plan de la circulation piétonnière d’Ottawa
That the Transportation Committee receive this report for information.
RECOMMANDATION DU RAPPORT
Que le Comité des transports reçoive le rapport pour information.
This report summarizes the progress to-date on the Ottawa Pedestrian Plan (OPP). This includes OPP affordable sidewalk network projects implemented up to the end of 2016 and those projected for future implementation, the status of the OPP recommendations, and an update on the City’s pedestrian safety initiatives.
The implementation of the OPP is progressing, with 10 of 33 Phase 1 sidewalk projects completed by 2016 and the remainder to be in implementation or design by the end of 2018. Two of the OPP’s recommendations are complete, one is underway, one is ongoing, and the remaining five will be completed before the next OPP update.
The City’s pedestrian safety programs are ongoing. Highlights include a variety of initiatives by Safer Roads Ottawa and the establishment of a permanent Pedestrian Safety Evaluation Program.
In 2016, the City added 3.5 km of new stand-alone sidewalk projects through the Pedestrian Facilities Program and expected to add an additional 2.8 km in 2017.
Ce rapport résume les progrès réalisés à ce jour dans le cadre du Plan de la circulation piétonnière (PCP) d’Ottawa. Il présente notamment les projets de réseaux de trottoirs abordables du PCP construits jusqu’à la fin de 2016 et ceux s’inscrivant dans des projets à venir, l’état des recommandations du PCP et une mise à jour sur les initiatives pour la sécurité des piétons de la Ville.
La mise en œuvre du PCP progresse, tandis que 10 projets de trottoirs de phase 1 ont été achevés en 2016 sur un total de 33. Le reste des projets sera en cours de construction ou de conception d’ici la fin de 2018. Deux des recommandations du PCP ont été déployées, deux autres en sont à différentes étapes de leur mise en œuvre et cinq autres seront finalisées d’ici la prochaine mise à jour sur le PCP.
Les programmes pour la sécurité des piétons de la Ville suivent également leur cours. Parmi les faits saillants, mentionnons toute une gamme d’initiatives dans le cadre du Programme d’amélioration de la sécurité des routes à Ottawa et l’établissement d’un programme permanent d’évaluation de la sécurité des piétons.
En 2016, la Ville a ajouté 3,5 km de trottoirs dans le cadre de projets autonomes de construction s’inscrivant dans le Programme d’installations piétonnières et elle prévoit ajouter encore 2,8 km de trottoirs en 2017.
The Ottawa Pedestrian Plan (OPP) was approved by Council on November 26, 2013. The OPP includes a list of “affordable sidewalk network” projects for implementation out to the year 2031 along with eight recommendations to improve walking in Ottawa.
This report is in response to Council’s direction to staff on September 3, 2014 to provide a mid-term progress update of the 2013 OPP. The report summarizes sidewalk projects implemented up to the end of 2016 and those projected for future implementation, as well as the status of the OPP recommendations.
The report reviews progress on the Ottawa Pedestrian Plan (OPP) with a focus on the OPP’s primary objective of providing sidewalks to improve pedestrian connectivity.
The Ottawa Pedestrian Plan (OPP) highlights the fundamental importance of a complete and connected pedestrian network in making pedestrian travel a viable and attractive transportation mode. A primary focus of the OPP is the provision of sidewalks based on the following guiding principles:
• Create no new deficiencies - Build new communities and develop sites with adequate density and quality of pedestrian facilities to create walkable communities;
• Maximize opportunity through construction - Build sidewalks when roads are being constructed or reconstructed, as this is most cost-effective, least disruptive and results in a better quality facility; and,
• Retrofit by priority - Undertake stand-alone projects to fill gaps at priority locations that best increase the walking mode share by supporting access to transit, and create connections between key nodes in a community.
Section 4.1 of the OPP states the City’s policy for the provision of pedestrian facilities, which is summarized in Table 1 below.
Table 1 – Policy for the Provision of Pedestrian Facilities
Arterial and Collector Roads – Urban and Village
Arterial and Collector Roads through the Greenbelt
Bus Routes – Urban and Village
Local Roads leading to Transit, Schools, Parks, Recreation Centres and Public Institutions, Retail, Commercial, Employment Areas
One Side or Both Sides as appropriate to provide access
Staff use discretion and professional judgement in implementing the City policy quoted above, and also consider input from the public and Ward Councillors when making decisions about new sidewalks. Although every situation must be considered individually and there may be exceptions, staff generally adhere to the following:
• In considering bus routes, if there are bus stops on only one side of the road, the policy requires a sidewalk only on that one side. If buses operate along a road but there are no bus stops, then the requirement for sidewalks on both sides doesn’t apply; and,
• In considering local roads, the interpretation of “leads directly to” generally refers to a local road that either:
o Has a destination on it within a reasonable walking distance; or
o Connects to a road, path or sidewalk with a destination on it within a reasonable walking distance.
When a new sidewalk is required by the City policy, there are three primary implementation mechanisms:
• In conjunction with land development/ redevelopment;
• As part of road reconstruction; or,
• As a stand-alone retrofit to an existing street.
With land development / redevelopment, the City may compel a developer to implement a sidewalk on a new or existing street as part of site plan or subdivision approval, and the sidewalk is integrated in the development-related construction works. The requirement for a sidewalk is based on the City’s policy for the provision of pedestrian facilities. Document 1 provides the total kilometres of new sidewalks implemented in conjunction with development.
Alternatively sidewalks may be added when a street is reconstructed as part of lifecycle renewal or coordinated road works (e.g. storm, sanitary and water renewal), and the sidewalk is integrated into the reconstruction project. The requirement for a sidewalk is based on the City’s policy for the provision of pedestrian facilities and the constraints of each individual project. Document 2 provides the total kilometres of new sidewalks implemented as part of road reconstruction.
Finally, sidewalks can be retrofitted to existing streets. These are the OPP affordable sidewalk network projects delivered through the annual Pedestrian Facilities Program (Term of Council Strategic Initiative #8). Typically the sidewalk work is the only component of the construction project, although staff do seek opportunities to coordinate implementation with other works for efficiency. These projects have been identified and prioritized in Annex E of the OPP, and are based on available funding. They are grouped into three phases: Phase 1 (2014-2019), Phase 2 (2020-2025) and Phase 3 (2026-2031). Document 3 lists the Phase 1 OPP sidewalk projects and the status for each. Phase 1 comprises 33 stand alone sidewalk projects with a total estimated investment of $8.3M; of these:
• Ten projects ($2.1M) were completed by the end of 2016 (including 3.5 km in 2016);
• Five projects ($1.1M) are committed for completion of construction in 2017 (totaling 2.8 km); and,
• Eighteen projects will be completed or in design/ implementation by the end of 2018 ($5.1M).
An additional $1.55M of OPP Phase 2 sidewalk projects will be implemented by March 2018 as part of the Public Transit Infrastructure Fund as described later in this report.
Funding and Costs
Investments in Walking
The City’s investment in new sidewalks through the Pedestrian Program (Pedestrian Facilities, Pedestrian Accessibility – Intersection & Ramping, and Pedestrian Missing Links Studies) for the current term of Council (TOC2015-2018) is projected to be approximately $7M. When Public Transit Infrastructure Fund (PTIF) funds are included, the total increases to $8.55M. This total represents an increase in investment of 126 per cent over the previous term of Council (TOC2011-2014).
Figure 1: Investments in Pedestrian Facilities
The implementation of new sidewalks through the Pedestrian Facilities program follows the project prioritization list from the Council-approved OPP. There is generally strong public support for adding sidewalks, however there is also typically opposition from homeowners directly impacted by construction. Impacts may include disruption due to construction, driveway reinstatement, the “loss” of use of City property (for private landscaping, gardens, etc.) and parking impacts. Staff endeavour to minimize these impacts, but also recognize that the benefits of sidewalks accrue to the broader community (and particularly to vulnerable populations such as older adults, children, and persons with disabilities) despite some negative impacts to residences fronting the new sidewalk. Any changes to the OPP require Council approval.
Synergy with Cycling Program
Through the Cycling Program and the Major Structures program, the City provides multi-use pathways (MUPs) and pedestrian/ cycling bridges that are used by both cyclists and pedestrians. Also, new cycling facility projects often incorporate enhancements for pedestrians such as accessibility improvements at signalised intersections (e.g. tactile walking surface indicators and curb ramps). To avoid “double counting”, dollar investments and total facility kilometres for MUPs, pedestrian/ cycling bridges, and intersection accessibility improvements from cycling projects are reported as part of the Cycling Program, and the Ottawa Cycling Plan Mid-term Review, and are excluded from this report. However it is important to note that these improvements generate significant benefits for pedestrians in addition to cyclists.
As part of the OPP, initial planning level cost estimates were done for all of the affordable sidewalk network projects. These estimates were used to complete an affordability analysis and generate the list of projects for implementation out to 2031. With 10 projects complete and five nearing completion, the original planning cost estimates have been compared to actual (or anticipated Class A estimate) total costs.
Overall actual design and construction costs for new sidewalk projects have been as much as 20 per cent higher than originally estimated. This is being managed by delivering projects more efficiently by bundling with other capital works when possible and reducing the scope of planned projects during functional planning.
Public Transit Infrastructure Fund
The City applied for and received funding through the Government of Canada’s Public Transit Infrastructure Fund (PTIF) program for new sidewalk links to improve connections with public transit. This additional funding totals $1.55M including both Federal and City shares, and will be used to bring forward sidewalk projects from Phase 2 of the OPP affordable sidewalk network that particularly improve pedestrian connectivity to public transit. Three projects have been selected for implementation based on a review of the OPP project list relative to the funding available:
Chimo Drive between Katimavik Road and Anik Way;
Sherway Drive between Fable Street and Malvern Drive; and,
Malvern Drive between Fable Street and Greenbank Road.
These projects are currently in scoping/ design and the conditions of the PTIF program will be implemented within the terms of the agreement with our federal funding partners.
The PTIF program also includes separate funding for AODA (Accessibility for Ontarians with Disabilities Act) enhancements of intersections, which will improve pedestrian accessibility at road intersections. To maximize the benefit of this investment, locations were selected to coordinate with cycling projects where intersection works are taking place. Since these enhancements will be delivered as part of cycling facilities projects, they are captured in the Cycling Program and the Ottawa Cycling Plan Mid-term Review.
Ottawa Pedestrian Plan Recommendations
Of the OPP’s eight recommendations, as summarised in Document 4, two have been completed, one is underway, one is ongoing and the rest will be addressed before the next update of the OPP, which will be coordinated with the next Transportation Master Plan which is expected to take place in 2021.
The City has a number of ongoing pedestrian safety awareness programs as described in Section 6.0 of the OPP. Recent updates include:
• As part of its broader road safety program, Safer Roads Ottawa runs various pedestrian safety initiatives including: “Slow Down for Us”/”Please Stop for Us”; “Be Safe, Be Seen”; the Left Turn campaign; and community based pedestrian safety presentations with the Ottawa Safety Council;
• Traffic Services’ Pedestrian Safety Evaluation Program (PSEP) is a pilot project that was made permanent in late 2013 and has now been incorporated into regular operations. The PSEP is used in conjunction with the current Safety Improvement Program (SIP) studies and in the preliminary design stages of capital rehabilitation projects to make targeted road and intersection improvements for pedestrian safety; and,
• The City has directly engaged community stakeholders through the Laurier Avenue Working Group to collaborate on improving the safety of all travel modes, and is holding quarterly meetings.
The City also participates in various external organizations related to pedestrian safety, for example through the Transportation Association of Canada, the Ontario Traffic Council, and the upcoming September 2017 Walk21 conference in Calgary.
The development of the OPP included an extensive public consultation program. There was no public consultation specifically for the development of this mid-term review report.
COMMENTS BY THE WARD COUNCILLOR(S)
ADVISORY COMMITTEE(S) COMMENTS
The Environmental Stewardship Advisory Committee and the Accessibility Advisory Committee were not consulted during the development of this report, but were engaged during the development of the Ottawa Pedestrian Plan.
There are no legal impediments to receiving this report for information.
RISK MANAGEMENT IMPLICATIONS
This report identifies the risk that capital costs for planned Phase 1 sidewalk projects may exceed available funding. This risk is being mitigated by delivering projects more efficiently by bundling with other capital works when possible, reducing the scope of planned projects during functional planning, and if necessary deferring implementation of select project(s) based on OPP prioritization framework and in consultation with Ward Councillor(s).
Site-specific conditions – such as drainage issues and utility conflicts – are difficult to always assess sufficiently during the master planning phase and sometimes result in increased costs. However for the completed projects, these costs are typically within contingency limits and have not significantly affected total project costs. The higher project costs are primarily due to changes in Provincial legislation pertaining to accessibility and the resulting increase to project costs for both design and construction. As the requirements of the Provincial Accessibility for Ontarians with Disabilities Act (AODA) and the associated Integrated Accessibility Standards Regulation have come into effect, sidewalk projects have been required to include extensive traffic signal upgrades and enhanced curb ramps for sidewalks at intersections (with tactile walking surface indicators). The magnitude of additional costs varies primarily with the number of intersections affected, particularly those that are signalized.
These higher costs are being reflected in current functional planning cost estimates; however, the project list budgets for delivery out to 2031 is based on the original, strategic planning level cost estimates which have turned out to be lower. There may be opportunities to access other sources of funding to compensate for the budget shortfall such as the Provincial Climate Change Action Plan and future federal stimulus funding. Staff will pursue these additional funding sources when the scoping details of these programs are made available.
ASSET MANAGEMENT IMPLICATIONS
The information documented in this report is consistent with the City’s Comprehensive Asset Management (CAM) Program (City of Ottawa Comprehensive Asset Management Program) objectives. Implementation of pedestrian plan objectives as outlined assists to fulfil the City’s obligation to deliver quality services to the community, in a way that balances service levels, risk, and affordability.
Ongoing long term operation, maintenance and ongoing capital renewal cost will increase in order to sustain the upgraded and new assets required to support the expected level of service. Inclusion of the scope of work with planned renewal projects is an effective means of coordinating delivery of the targeted enhancement and changes in level of service to the community. In some cases, dependent on the nature of the scope added to planned renewal projects, this impacts the extent of funding directed to lifecycle renewal objectives. These impacts will be reflected in Long Range Financial Plan and Asset Management Plan updates.
There are no financial implications with receiving this report.
The planning, design and construction of new sidewalks will continue to meet all municipal, provincial and federal accessibility requirements.
TERM OF COUNCIL PRIORITIES
The ongoing implementation of the OPP is supportive of the following Term of Council Priorities:
• TM2 – Provide and promote infrastructure to support safe mobility choices.
• TM4 – Improve safety for all road users.
• ES1 – Support an environmentally sustainable Ottawa.
Document 1 New Sidewalks with Development
Document 2 New Sidewalks with Road Reconstruction
Document 3 Phase 1 Affordable Sidewalk Network Projects Status
Document 4 OPP Recommendations Status
Staff will continue to implement the policies and projects identified in the Ottawa Pedestrian Plan.
Document 1 – New Sidewalks with Development
Length of New Sidewalks Implemented with Development
*Data as of December 13, 2016.
Source: Infrastructure Services, Asset Management Branch
Document 2 – New Sidewalks with Road Reconstruction
Length of New Sidewalks Implemented with Road Reconstruction
Document 3 – Phase 1 Affordable Sidewalk Network Projects Status
Bridgestone (north side) - Grassy Plains to Eagleson
Bronson off-Ramp for Heron (west side) - Transit Link Station to Heron
Castlefrank - Torcastle to Winchester
Planning to start in 2017/2018
Colonial Rd - Henn to Delson
Cummings - Cyrville to Ogilvie
Cyrville Rd, north side between Cummings and Transit Linkway
Cyrville Rd, north side Startop Top to Labrie
Cyrville Rd, south side between 250m east of Startop and 200m east of Transit Linkway
Dovercourt - Churchill to Broadview
Dumaurier - Ramsey to Pinecrest
Gardenway - Thicket to Portobello
Grassy Plains - Stonehaven to Emerald Meadows
Halton - Flamborough to Newcastle
Industrial (south side) - just east of Trainyards to Neighbourhood
Iris - Pinecrest to Navaho
Jeanne d'Arc - Champlain to Tenth Line
Katimavik - Davis (north side) to MUP
Katimavik (north side) - Eagleson to Hearst
Klondike - north side, March to Sandhill
March (south side) - Teron to Hwy 17 S Ramp Terminal
McCurdy - Castlefrank (N) to Castlefrank (S)
McGibbon - Katimavik to Davis
Meadowlands - south side, Fisher to Apeldoorn
Michael, east side between Cyrville to 150m s of Cyrville
Parkglen - Woodroffe to Withrow
St Laurent Blvd, east side between Hwy 417 e/b on-ramp at Tremblay
St Laurent Blvd, east side between Tremblay and Belfast
Startop, east side, between Cyrville and Algoma
Sunview - Belcourt to Des Epinettes
Teron - East side, Campeau to existing sidewalk
Teron - East side, Existing sidewalk to The Parkway
Tremblay, north side between Riverside and Transit Linkway
Varley Drive (inside) Beaverbrook to Carr
1. As part of functional design, based site-specific conditions and budget constraints the Iris Street project scope was reduced from “Pinecrest to Navaho” to “Pinecrest to Woodroffe”. The Ward Councillor approved the Roadway Modification Approval (RMA) for the project.
Document 4 – OPP Recommendations Status
The City will adopt a Pedestrian Charter that outlines guiding principles to create an environment in which walking is a more attractive, accessible, safe and popular mode of travel.
City Staff will develop a set of detailed design guidelines for the development of pedestrian-friendly infrastructure. The General Manager of the Planning and Growth Management Department will be given delegated authority to approve these design guidelines and any subsequent revisions to these guidelines.
Underway (anticipated completion in 2017)
The City will include appropriate data in the GIS database to be used in future versions of the Walkability Map and to further evaluate the walkability of Ottawa neighbourhoods.
To be initiated in 2018
The City will continue to develop appropriate performance measures that quantify the impact of various roadway designs on pedestrians and will lead to the adoption of level of service measures for pedestrians.
City staff will investigate the feasibility of developing a new roadway design guideline for a 30 km/h speed.
The City will require that development projects permitted to provide cash-in-lieu of pedestrian facilities contribute funds at a sufficient rate to support implementation of the pedestrian facilities.
To be initiated in 2017
The City will require that developers inform prospective purchasers of pending pedestrian facilities.
The City will consider providing additional funding for maintenance at the time of capital and operating budget approvals to support improved priority sequencing to lower priority routes within proximity to Rapid Transit (600 m) and Transit Intensive Corridors (200 m).
Ongoing - to be determined through the annual budget process.