June 26, 1998
To: Urban
Environment and Development Committee
From: Commissioner of Urban Planning and
Development Services
Subject: A
Rapid Transit Connection Between Pearson International Airport
and Union Station
Purpose:
To update Council on issues related to planning
for a rapid transit connection between Pearson International
Airport and Union Station and to recommend next steps.
Financial Implications:
The recommendations of this report do not
require any additional funding.
Recommendations:
It is recommended that City Council:
- endorse the concept of a rapid transit connection between
Pearson International Airport and Union Station;
- endorse the conclusions of Provincial and Federal studies
that the corridor adjacent to Hwys 409 and 427, as shown
in Figure 1, should be protected for a rapid transit
connection between Pearson Airport and the CN Weston rail
corridor, and request the Province, Transport Canada, the
City of Mississauga, Region of Peel, and the Greater
Toronto Airports Authority to pursue measures to protect
the corridor;
- support upgrading of the Weston rail corridor to
accommodate a new station in the vicinity of the Woodbine
Racetrack and all-day GO service from Union Station to
the new station, and request GO Transit to advise on
costs;
- support the extension of the internal airport transit
system from the airport to upgraded GO rail service in
the CN Weston rail corridor as the preferred rapid
transit option in the 5-10 year time frame, and request
Transport Canada (in conjunction with the City of
Toronto, Ministry of Transportation, GO Transit, Greater
Toronto Airports Authority, Region of Peel, and City of
Mississauga) to conduct a physical, operational, and
financial feasibility study for this extension;
- request the GTAA to consider technologies for the
internal airport transit system which would be capable of
being extended into the Weston rail corridor for a
transfer-free connection to Union Station;
- request the Province and GO Transit to ensure that the
upgrading of the CN Weston rail corridor for all-day GO
service to the airport is a high priority for GO Rail
expansion;
- request the Greater Toronto Airports Authority to
continue to plan for an internal airport transit system
in a manner which serves passenger convenience and to be
prepared to build the transit system in conjunction with
the upgraded GO rail service, or prior to, if demand
warrants;
- request the Mayor and the Chair of the Urban Environment
and Development Committee to meet with the Federal
Minister of Transport to discuss Federal support for the
feasibility study and for the early implementation of the
rapid transit connection; and
- direct the City Clerk to distribute copies of this report
to Transport Canada, the Ministry of Transportation, GO
Transit, the Region of Peel, the City of Mississauga, the
City of Brampton, and the Greater Toronto Airports
Authority, the Toronto Olympic Bid Corporation, the
Toronto Board of Trade, and Tourism Toronto.
Background:
On July 30, 1997 the former Metropolitan Toronto Council
requested the Acting Commissioner of Planning in consultation
with the Chief General Manager of the Toronto Transit Authority
to submit a report to the Task Force on Downtown Rapid Transit
Access to Pearson Airport on
a) the Official Plan Amendment required to protect public
transit access to Lester B. Pearson International Airport;
b) the design of the new terminal in relation to its
availability to accommodate public transit including rail:
c) implementation options for rail and subway;
d) interim rapid transit arrangements for access to Lester B.
Pearson International Airport, e.g. enhanced bus service; and
e) negotiating arrangements with the Greater Toronto Airports
Authority for cost-sharing of rapid and public transit access to
Lester B. Pearson International Airport, similar to the
arrangements being made with the Provincial Government
improvements to road access to the Airport.
The Task Force on Downtown Rapid Transit to Pearson Airport
was not reconstituted by the new City Council. Over the past year
both the Provincial and Federal governments have completed
studies which specifically address a rapid transit connection to
Pearson Airport. City staff have also been directed by Council to
negotiate with the Greater Toronto Airports Authority (GTAA) on
an accord on matters of mutual interest regarding Pearson
Airport; the rapid transit connection is one of the issues to be
addressed in the accord.
This report summarizes the findings of the recent studies,
responds to the issues raised by the former Metro Council, and
provides staff recommendations to pursue this initiative through
the accord negotiations and through more detailed feasibility
analysis.
Discussion:
Over the past several years Planning staff have been involved
in transportation studies of the airport area and have responded
to the directions and requests of the former Metro Council
regarding support for a rapid transit connection between Pearson
Airport and Union Station. The Metropolitan Toronto Official Plan
shows a connection between the CN Weston rail corridor and the
airport. Planning for the connection has become more prominent
with the GTAA beginning its plans for the redevelopment of
Pearson Airport.
The GTAAs plans for the redevelopment of Pearson Airport
include both airside and groundside improvements to be made over
the next ten years which will increase passenger capacity to meet
projected demands from the existing 28 million to 50 million.
Improved access to the airport is essential to accommodate these
new demands. The principal component of the plans is the
development of a new terminal to replace terminals 1 and 2.
Highway access to the new terminal will be via Hwy 409 and will
require extensive improvements to Hwy 427 and Hwy 409 including
widenings and modifications to the Hwy 409/427 interchange. A new
cargo facility on the west side of the airport will be provided
with a new interchange with Hwy 401 for cargo traffic only as
well as new access routes to the surrounding road system. The
airport redevelopment plan includes an internal airport transit
system to provide access between parking areas and various points
within the new terminal, but the GTAA is not committed to build
the airport transit system until demand warrants it.
The Georgetown GO commuter rail service (peak periods only)
and VIA Rail service (to Sarnia) are currently provided in the CN
Weston rail corridor which runs north-westerly from Union Station
and passes within 1.5 km of the airport property. The upgrading
of the Weston Rail corridor has been proposed by GO Transit to
accommodate all-day commuter rail service to the high growth
areas of Brampton and Georgetown. The cost of upgrading the
entire corridor to Georgetown was estimated at $238 million (in
1994). The cost to provide all-day frequent service, every 15
minutes, as far as Pearson Airport, has not yet been determined.
The Weston rail corridor was also identified as a possible
routing for high-speed rail between Toronto, London and Windsor.
Union Station may be redeveloped to include a remote terminal
facilities for Pearson Airport and the Toronto City Centre
Airport. The addition of the airport facilities would further
enhance Union Station as an intermodal transportation terminal.
The redevelopment of Pearson Airport, the proximity of the
Weston rail corridor, the proposed upgrading of the Georgetown GO
rail service and the possible redevelopment of Union Station
present a unique opportunity to connect Pearson Airport to the
regional rapid transit network and particularly to Union Station.
Such a connection would be a valuable asset for the Citys
tourism and convention business and for hosting the 2008
Olympics.
Recent Studies
In response to a request from the former Metropolitan Toronto
Council, the Ministry of Transportation identified a corridor
from the Weston subdivision to Pearson Airport to accommodate a
rapid transit connection between the airport and downtown
Toronto. The draft report recommends a new Woodbine GO Station
between Hwy 427 and Hwy 27 adjacent to Woodbine Racetrack and a
corridor for rapid transit from the new station, along the west
side of Highway 427 and the north side of Highway 409 to connect
with the airport property east of Airport Road (see Figure 1).
The preferred corridor is entirely within the City of
Mississauga. Given the regional significance of the corridor, the
Province, Transport Canada, the City of Mississauga, Region of
Peel, and the GTAA should use their powers to protect the
corridor.
A 1997 Transport Canada study supported the Provincial study
and also recommended that Transport Canada and the GTAA should
protect lands for a station to accommodate a potential
rail/airport transit system interface as well as a corridor from
the airport south to possible future transit facilities on
Eglinton Avenue.
Design of the New Terminal
The GTAA redevelopment plan for Pearson International Airport
protects a transit right-of-way within the access corridor that
runs between the the parking garage and the terminal building.
(Figures 2 and 3). The internal airport transit right-of-way
extends to a station north of the terminal complex which the GTAA
intends to be the transfer station with the regional transit
system as shown on Figure 1. The internal airport transit will be
constructed when the need for the service is established. In the
interim, bus service will be provided.
A terminal design which incorporates the internal transit
system directly into the terminal building and as close to the
terminal passenger facilities as possible would provide a more
convenient connection for air passengers by reducing walk
distances. An internal airport transit system, built with and
integrated into the terminal, would provide the optimum
arrangement for passenger convenience.
Options for Rapid Transit Connections
The following broad categories summarize the various options
for providing a rapid transit connection between Pearson Airport
and Union Station: (Figure 4)
1. Bring Regional Transit Service into the Airport
(a) Diversion of the Weston rail corridor through the airport
to provide direct VIA and GO station in the airport.
(b) Spur line from the Weston rail corridor to the airport
2. Extend Airport Transit System to Connect to the Regional
Transit Service
(a) To upgraded GO and VIA services in the Weston rail
corridor.
(b) To the possible future Eglinton rapid transit line and
Mississauga busway.
3. Provide a new Regional Transit Service from Pearson Airport
to Union Station
(a) Extend the airport transit service to Union Station
through or adjacent to the Weston rail corridor.
(b) Provide a subway in a separate right-of-way in or adjacent
to the Weston rail corridor.
(c) Provide a busway in a separate right-of-way in or adjacent
to the Weston rail corridor.
The preliminary estimate for the diversion through the airport
(1a) is $1 billion (1994); for the spur (1b), $30 million (1994).
Option 2a, extending the internal airport transit system to the
Weston rail corridor is estimated at $40 million (1997). All
three of these options (1a, 1b, 2a) also require the upgrading of
the rail corridor at least to the new station near the airport.
The cost of the connection to the Eglinton line, Option 2b, has
not been estimated; the cost of the Eglinton rapid transit line
itself is likely over $1 billion. No estimates are available for
a new transit service, (3a, b, and c), but these options could be
$1 billion dollars or more. Appendix 1 includes more information
on the preliminary assessment of options.
Currently passengers from downtown Toronto account for less
than 15% of the total Pearson Airport passengers. It is unlikely
that even the most optimistic 10 year forecasts of transit travel
to Pearson Airport would justify the high capital and operating
costs of a new rapid transit infrastructure, such as Options 3a,
b, or c. These options would require a widening of the Weston
corridor as well as new tracks or a road, in addition and
parallel to upgraded GO service in the Weston corridor. To ensure
that transit service to the airport is cost-effective, it should
be integrated with the regional rapid transit services serving
the growing commuter demands to downtown Toronto and providing
access to Pearson Airport from all parts of the GTA. An airport
transit service should be frequent all day while a commuter line
generally focuses on peak period demand. Running both kinds of
service on the same track requires flexibility in the type of
vehicle and service provided, ie. shorter, more frequent trains
to the airport outside the peak period. Further analysis is
required to determine the operational requirements and costs of
such a service. Assuming that GO service in the Weston rail
corridor is upgraded to be compatible with the needs of the
airport passengers, extending the airport transit system to the
Weston rail corridor is the most promising option (2a) which
could be operable within the next 5-10 years.
The extension of the internal airport transit system to the
Weston rail corridor (Option 2a) could be the first phase of a
longer-term extension to Union Station via the Weston rail
corridor (Option 3a) to ultimately provide transfer-free service.
If the airport system could run on the same tracks as the GO rail
service, the cost of new infrastructure would be significantly
reduced. This type of mixed service on one set of tracks should
be considered as changes to rail operating requirements are made.
In order to protect for a transfer-free connection to Union
Station, the GTAA should focus on technologies for the internal
airport transit system which also have the capability of
providing frequent service in the Weston rail corridor.
A detailed feasibility study is required to determine the
operational, physical, and financial requirements for the
extension of the internal airport transit system to the Weston
rail corridor and all-day GO service in the corridor. This study
should include preparation of more detailed ridership
projections.
Costs and cost-sharing
The costs to upgrade the corridor to provide all day frequent
service to the Pearson Airport, or to extend the internal airport
transit system to Union Station have not been estimated.
Currently, there is no obvious funding source for either the
operating or construction costs of the connection of the internal
airport transit system to the Weston rail corridor. The GTAA
would fund the construction of the internal airport transit
system within the airport. Funding of the Weston rail corridor
upgrading for the GO rail service would be the responsibility of
GO Transit, but financial constraints have put the project on
hold indefinitely. A funding source for the link between the
airport and the Weston rail corridor has not been identified. The
City is requesting that the Province give the City and other GTA
municipalities authority to establish new sources of funding,
such as gas taxes and surcharges on parking revenues and vehicle
licenses. Such revenue could fund or partially fund the
connection between Union Station and Pearson Airport. Private
sector parties may be interested in providing contributions
toward the connection particularly owners of lands in the
vicinity of the connection, such as Woodbine Racetrack, who could
benefit through increased development potential. Another
possibility is a public-private partnership for a
design/build/operate arrangement. To date these funding options
have not been investigated. A study to determine the business
case and financial feasibility of the connection should be
conducted. The potential for cost-sharing with the GTAA is an
issue which is being addressed in the negotiations on an accord
between the City and the GTAA on matters of mutual interest
regarding Pearson Airport.
Conclusions:
A rapid transit connection between Pearson International
Airport and Union Station will be a valuable asset to the City,
its tourism and convention business, and its bid for the 2008
Olympics. The extension of the internal airport transit system to
connect with the Weston rail corridor and all-day frequent GO
rail service is the most cost-effective option for providing the
connection within the next 5-10 years. The further extension of
internal airport transit system through the Weston rail corridor
would provide a direct transfer-free connection to Union Station
in the longer-term.
The Pearson Airport redevelopment plan is a unique opportunity
to ensure that the rapid transit connection is integrated into
the airport in a manner which is convenient and attractive to
passengers and which will influence travel to the airport to be
more reliant on transit. The new terminal at Pearson
International Airport is now being designed and site preparation
work for the redevelopment plan is underway. Transport Canada
should take the lead in conducting a feasibility study,
consistent with environmental approval requirements, to determine
the type of technology, operating requirements, capital and
operating costs and funding sources for the connection between
the airport and the Weston rail corridor and the future extension
through the Weston rail corridor to Union Station. The GTAA
should only consider technologies for the internal airport
transit system which can be extended through the Weston rail
corridor to Union Station in the future. GO Transit should
conduct a review of the requirements and costs for upgrading the
Weston rail corridor for all day GO service to the airport.
Contact Name:
Anna Pace
Metro Hall
Telephone: 392-8117
Fax: 392-3821
Reviewed by:
______________________________ ______________________________
Paul J. Bedford Virginia M. West
Executive Director and Chief Planner Commissioner of Urban
Planning
City Planning Division and Development Services
Appendix 1
Options for a Rapid Transit Connection between
Pearson Airport and Union Station
1. Bringing
Regional Rapid Transit to the Airport |
a. Diversion
of the Weston rail corridor through the Airport b. Spur line from the Weston rail corridor to
the Airport
|
- implications for the operation of
commuter rail and intercity rail services
- passengers require a transfer to
the airport transit system
- 1a estimated at $1 billion (1994)
- 1b estimated at $300 million
(1994)
- requires upgrading of the Weston
rail corridor
|
2. Extend the
Airport Transit System to Connect to the Regional Transit
System |
a. To the GO
and VIA services in the Weston rail corridor |
- passengers require a transfer to
the airport transit system
- requires upgrading of the Weston
rail corridor
- estimated $40 million (1997)
|
b. To the
possible future Eglinton rapid transit line and
Mississauga busway |
- requires construction of Eglinton
subway
- access to the airport from more
locations within the City
- long travel times and many stops
from Union Station
- passengers to and from Union
Station require at least two and possible three
transfers
|
3. Provide a
new Regional Transit Service in the Weston Rail Corridor
from the Airport to Union Station |
a. Extend the
Airport transit service to Union Station. b. Subway in a separate right-of-way
c. Busway in an exclusive right-of-way
.
|
- could be compatible with Options
2a and b
- long term possibilities
- 3a would be transfer-free for
passengers to and from Union Station
- Options 3b and c require a
transfer for passengers to and from Union Station
- 3b possibly cost greater $1
billion
|