Approval to Construct Streetcar Track

on Charlotte Street.

The Urban Environment and Development Committee recommends that Council:

(1)approve the construction of a single streetcar track on Charlotte Street, between AdelaideStreet and KingStreet; and

(2)request the Chief General Manager, Toronto Transit Commission, to review the ClarenceSquare option as part of the Environmental Assessment process.

The Urban Environment and Development Committee submits the following communication (July 9, 1998) from the General Secretary, Toronto Transit Commission:

This is to confirm that the Toronto Transit Commission has conveyed the Commission Report, entitled "Approval to Construct Streetcar Track on Charlotte Street" to the Committee Secretary on July 9, 1998, for the Committee's deliberation on July 13, 1998.

(Toronto Transit Commission Report dated July 15, 1998, entitled

"Approval to Construct Streetcar Track on Charlotte Street")

Recommendations:

It is recommended that the Commission:

(1)approve, and request the City of Toronto Council to approve, construction of a single streetcar track on Charlotte Street, between Adelaide Street and King Street, as described in the attached staff report, entitled "Construction of Streetcar Track on Charlotte Street", which was considered by the Commission at its meeting on June17,1998;

(2)note that the noise and vibration study conducted by the firm of S.S. Wilson Associates, Consulting Engineers, concludes that the sound levels which would result from streetcar operations on Charlotte Street are within applicable daytime and nighttime criteria even without special noise and vibration attenuation measures; however, to mitigate any potential streetcar-generated noise and vibration in this location, TTC staff still intend to include attenuation measures such as water lubrication on curves and a special rubber-insulated rail design; and

(3)forward this report to the Ministry of Environment, Councillors Olivia Chow and KyleRae, and the Toronto Transportation Department.

Noting that a copy of this report has been forwarded to the Urban Environment and Development Committee for consideration at its meeting of July 13, 1998.

Funding:

Funds for this project are included in the Spadina LRT project budget, Project No. CWP 25, as set out on pages 685-686 in the TTC 1998-2002 Capital Program, as approved by City of Toronto Council at its meeting of April 29, 1998.

Background:

At its meeting of June 17, 1998, the Commission considered the attached staff report, entitled "Construction of Streetcar Track on Charlotte Street". That report described the alternative looping facilities which had been considered for the 510 Spadina route, (and previously approved as a scope change by the Commission on May 28, 1996), and the fact that a short-turn of 510 Spadina streetcars via Adelaide, Charlotte, and King Streets, is the most cost-effective location, given that it would replace the inner track which had been planned for the Spadina-Queen's Quay loop, at a net cost increase of $250,000.00, and would save the TTC $300,000.00 in annual operating costs. The report explained that the majority of owners of businesses or properties in the area adjacent to the planned Charlotte Street loop, who had attended the public meetings on this matter, were strongly opposed to its construction, primarily due to concerns regarding increases in noise and vibration.

At that meeting, the Commission referred to staff a June 17, 1998 communication (attached) from Mr. Michael Steinberg of Robins, Appleby and Taub, Barristers and Solicitors, and requested comments on the issues raised in Mr. Steinberg's letter. This report responds to that request, and recommends that the Commission approve proceeding with this project.

Discussion:

A copy of staff's June 29, 1998 letter, responding to the issues raised by Mr. Steinberg, is attached, together with a covering letter, also dated June 29, 1998, to the Ministry of Environment, advising Ministry staff of the concerns raised by the public, and staff's approach to addressing these concerns. Staff's letter provides further detail on the $300,000.00 operating cost savings which will result from the construction of the short-turn loop via Charlotte Street.

In response to the concerns raised by Mr. Steinberg regarding the future impact of the Railway Lands development, staff explained that there has been a dramatic shift in the mix of planned development in the Railway Lands, from commercial to residential, and that the reduction in commercial development has resulted in a significant decrease in the projected customer demand, in the peak direction, on the 510 Spadina streetcar line. This being the case, the service which would continue south of King Street, if a short-turn loop is implemented via Adelaide, Charlotte, and King Streets, would have sufficient capacity to accommodate the future demand to and from the Railway Lands.

Staff advised that streetcars can operate on Charlotte Street and allow a suitable operating environment for passenger cars and delivery trucks. Finally, as indicated in staff's letter to Mr.Steinberg, the firm of S.S. Wilson Associates, Consulting Engineers, has been retained to technically assess the potential noise and vibration impacts of streetcar operation on Charlotte Street. Its final report was sent to Mr. Steinberg on July 10, 1998. The conclusion of that study is that the predicted streetcar sound levels and vibration are within acceptable daytime and nighttime criteria, as jointly developed by the TTC and Ministry of Environment staff for the Spadina LRT project, without the need for any noise or vibration attenuation measures. Nevertheless, staff are still planning to use water lubrication on curves and a special rubber-insulated rail design to further mitigate any potential streetcar-generated noise and vibration.

In their June 29, 1998 letter to the Ministry of Environment, staff advised of the TTC's intention to proceed to City of Toronto Council on July 29, 1998, for formal approval of this looping facility, unless Ministry staff advise, prior to that date, that there are outstanding issues that have not been resolved to the Ministry's satisfaction.

Justification:

The construction of a new single streetcar track on Charlotte Street would allow staff to balance service with customer demand in a more cost-effective manner, and would result in an ongoing annual operating cost saving of approximately $300,000.00. The proposed loop does not conflict with the land uses, traffic volumes, and existing ambient noise levels in the area around Charlotte Street. Any noise and vibration from streetcar operations will be mitigated by use of a water lubrication system at curves in the track and a special rubber-insulated rail design.

The Urban Environment and Development Committee also submits the following communication (June19, 1998) from the General Secretary, Toronto Transit Commission:

At its meeting on Wednesday, June 17, 1998, the Toronto Transit Commission (Commission) considered the attached report, entitled "Construction of Streetcar Track on Charlotte Street."

The Commission took the following action:

(1)received this report for information, noting that:

TTC staff recently met with ten owners of businesses or properties in the area adjacent to the loop planned for the 510 Spadina streetcar line via Adelaide Street, Charlotte Street, and King Street, to explain its benefits and potential impacts. All but two voiced strong opposition to the construction of this loop; however, staff believe that their concerns regarding noise and vibration can be significantly alleviated through mitigating measures, as described in this report;

-these opponents to the project have indicated that they intend to hire a consultant to conduct their own independent review of the potential impacts of the streetcar loop;

-staff will be resubmitting this report to the Commission meeting of July 15, 1998, at which time it will be recommended that the Commission request City of Toronto Council to formally approve construction of a single streetcar track on CharlotteStreet, between Adelaide Street and King Street, providing that the Commission, after hearing deputations at that time, continues to support proceeding with this project;

(2)approved forwarding this report to the Urban Environment and Development Committee, advising that the Commission plans to submit its request and documentation directly to City Council, at its meeting of July 29, 1998, through a Notice of Motion;

(3)approved forwarding this report to the Ministry of Environment, on behalf of the City of Toronto, as authorized by the Council of the City of Toronto at its meeting of June3,4and5, 1998, in order to confirm the acceptability of this section of streetcar track as a minor amendment to the Environmental Assessment for the Spadina streetcar line, and to document the public consultation process which has occurred to date regarding this project; and

(4)approved forwarding this report to Councillors Olivia Chow and Kyle Rae, and to the Toronto Transportation Department.

(Toronto Transit Commission Report No. 24 dated June 17, 1998,entitled "Construction of Streetcar Track on Charlotte Street.")

Recommendations:

It is recommended that the Commission:

(1)receive this report for information, noting that:

- TTC staff recently met with ten owners of businesses or properties in the area adjacent to the loop planned for the 510 Spadina streetcar line via Adelaide Street, Charlotte Street, and King Street, to explain its benefits and potential impacts. All but two voiced strong opposition to the construction of this loop; however, staff believe that their concerns regarding noise and vibration can be significantly alleviated through mitigating measures, as described in this report;

-these opponents to the project have indicated that they intend to hire a consultant to conduct their own independent review of the potential impacts of the streetcar loop;

-staff will be resubmitting this report to the Commission meeting of July 15, 1998, at which time it will be recommended that the Commission request City of Toronto Council to formally approve construction of a single streetcar track on CharlotteStreet, between Adelaide Street and King Street, providing that the Commission, after hearing deputations at that time, continues to support proceeding with this project;

(2)forward this report to the Urban Environment and Development Committee, advising that the Commission plans to submit its request and documentation directly to City Council, at its meeting of July 29, 1998, through a Notice of Motion;

(3)forward this report to the Ministry of Environment, on behalf of the City of Toronto, as authorized by the Council of the City of Toronto at its meeting of June 3, 4 and5, 1998, in order to confirm the acceptability of this section of streetcar track as a minor amendment to the Environmental Assessment for the Spadina streetcar line, and to document the public consultation process which has occurred to date regarding this project; and

(4)forward this report to Councillors Olivia Chow and Kyle Rae, and to the Toronto Transportation Department.

Funding:

Funds for this project are included in the Spadina LRT project budget, Project No. CWP 25 as set out on pages 685-6 in the TTC 1998-2002 Capital Program, as approved by City of Toronto Council at its meeting of April 29, 1998.

Background:

At its meeting of May 28, 1996, the Commission approved the staff report, entitled "Project Approval - Spadina LRT - Scope Change: Short-turn at King Street", and, by so doing, approved the design and construction of a single streetcar track on Charlotte Street, between Adelaide and King Streets. That report explained that the construction of this section of track would allow streetcars to turn around via Adelaide Street, Charlotte Street, and King Street, and would allow a better matching of service levels to customer demand on the different sections of the 510 Spadina streetcar line. This, in turn, would allow the TTC to achieve significant operating cost savings on this route. The loop via Charlotte Street would replace the inner track which had been planned for the Spadina-Queen'sQuay loop, and the net cost increase would be $250,000.00.

Staff are planning to proceed with construction of this single streetcar track this fall, and this report provides an update on the status of this project.

Discussion:

The new section of streetcar track to be constructed on Charlotte Street, between Adelaide and KingStreets, is illustrated in Exhibit 1, attached. The new track would allow a scheduled SpadinaStation-King Street short-turn service to be operated, in addition to the SpadinaStation-Union Station through service via Harbourfront. The scheduled short-turn would make use of existing track on Spadina Avenue, Adelaide Street, and King Street, all of which would be joined by the new single track on Charlotte Street.

The scheduled short-turn would allow the TTC to provide a better match of service levels and capacity to the higher level of customer demand which occurs north of King Street and the lower level which occurs south of King Street. The scheduled intervals between streetcars would remain unchanged from the current levels over the busier part of the route north of KingStreet, while between King Street and Queen's Quay, the scheduled interval would be widened from the current 2'20" during peak periods to 4'40", and from the current 2'40" during the midday to 5'20". At present, between 87 and 93 percent of the capacity on this line south of King Street remains unused, so the relocation of the short-turn branch to KingStreet will achieve a better match of capacity to demand, while still leaving sufficient capacity to accommodate ridership south of King Street, including the increase in demand which is expected to result from planned development of the railway lands in the vicinity of Spadina Avenue. Because of the shorter distance between Spadina Station and King Street, compared to between Spadina Station and Queen's Quay, two fewer streetcars would be required during peak periods, and one fewer streetcar would be required during the midday on weekdays and the daytime on weekends. This would allow operating costs on this line to be reduced by approximately $300,000.00 annually. The logic and need to capture cost-saving opportunities like this is particularly apparent in the current environment of decreasing public subsidies for the operation of transit in Toronto.

Design work for the new single track on Charlotte Street has been completed, in consultation with the City of Toronto Transportation Department staff. City staff have advised that they will tender the road/track bed work in August 1998.

Alternative Looping Locations:

TTC staff identified alternative looping opportunities which would allow a short-turn operation south of Queen Street, where ridership drops off significantly and the capacity exceeds demand. Three alternative loopings were identified:

(i)Adelaide Street/Charlotte Street/King Street;

(ii)Adelaide Street/Peter Street/King Street; and

(iii)Clarence Square.

The alternatives were compared on the basis of capital cost and the associated reduction in operating cost, relative to the current short-turn operation via the loop at Spadina-Queen's Quay. A summary of staff's assessment follows.

Capital Costs:

A loop via Charlotte Street would require the installation of a single southbound track on the roadway, including connections to the existing tracks on Adelaide and King Streets, and the associated overhead wires. A portion of the eastbound track on Adelaide Street between SpadinaAvenue and Charlotte Street, would also be reconstructed as part of this project. The net cost to construct the loop is estimated to be $250,000.00.

Peter Street is one block east of Charlotte Street -- further from Spadina Avenue -- and the additional track reconstruction required on Adelaide Street would increase the cost for that loop by roughly $200,000.00, compared to the Charlotte Street option, for a total net additional cost of $450,000.00.

The Clarence Square option would require new streetcar tracks on that roadway, and cost roughly $250,000.00 to $350,000.00 more than a loop via Charlotte Street, for a total net cost of $500,000.00 to $600,000.00. Given the width of, and traffic volumes on, Spadina Avenue at this point, traffic signals would be required on Spadina Avenue at both the entrance to, and exit from, Clarence Square to ensure safe turning operation for the streetcars. The traffic signals would add upwards of $200,000.00 to the construction cost of this loop, and result in an unacceptably short traffic signal spacing in this area. For this reason, the Clarence Square option is not viable.

Operating Cost Savings - Peter Street versus Charlotte Street:

Streetcars operating on a loop via Charlotte Street would require eight minutes less running time than the current short-turn looping via Spadina-Queen's Quay. This would result in two fewer streetcars in the morning and afternoon peak periods, and one less in the midday and on weekends. This translates into an annual operating cost savings of approximately $300,000.00.

Streetcars operating on a loop via Peter Street would typically require about three minutes more running time, relative to a Charlotte Street loop, because of the longer distance involved, and because streetcars on Peter Street would be subject to increased delays from the significantly greater traffic volumes on that roadway. This would allow a saving of a single streetcar inthemorning and afternoon peak periods and during the midday and weekends. Hence, the annual operating cost savings associated with a short-turn via Peter Street would be about $200,000.00.

Conclusions:

A loop via Charlotte Street represents the lowest capital cost and provides the greatest annual cost savings. A southbound streetcar track can be constructed near the centre of the street in a southbound traffic lane, with sufficient width for southbound autos to travel on the right. A northbound traffic lane would be provided. Parking in the northbound lane would be prohibited at all times but, given that parking is already prohibited on that side of the road between 8:00 a.m. and 6:00 p.m., and since there is only space for about five cars when parking is allowed, this impact would be relatively minor. In addition, southbound traffic volumes are very light. Nonetheless, southbound autos would be prohibited from turning left onto King Street throughout the day to minimize any delays to streetcars making the right-turn onto King Street.

Public Consultation:

In order to ensure that property owners and occupants adjacent to Charlotte Street have had the opportunity to fully understand the proposed new streetcar track, TTC staff distributed the attached notice (Exhibit 2), dated January 26, 1998, to owners of property adjacent to the planned loop, on Adelaide, Charlotte, and King Streets. TTC staff have met on different occasions with property owners to discuss any concerns which they have about the project.

Five written responses were received in response to this public notification. One response listed an additional 11 companies which are opposed to the construction, two of which also submitted separate responses. All of the responses expressed concern about, or opposition to, the proposed streetcar loop, primarily with respect to its noise and vibration effects on their property.

On February 16, 1998, staff met separately with Mr. E. Title, the owner of the parking lot on the southwest corner of the Adelaide/Charlotte intersection, and with Mr. J. Mimran, President of ClubMonaco, whose main office is on the northwest corner of the intersection of KingStreet and Charlotte Street, to discuss their specific concerns in greater detail, and committed to examine measures to mitigate any noise and vibration resulting from streetcars on Charlotte Street.

TTC staff held meetings with members of the public on June 1, 1998, and June 3, 1998. In total, there were ten business/property owners represented at these two meetings. All but two voiced strong opposition to the construction of a streetcar track on Charlotte Street. A key concern was the noise and vibration which would be caused by streetcar operations on Charlotte Street and which would be a detriment to their business interests in terms of reduced property values, and reduced rental rates for their buildings. There was also a strong concern that the frequency, or volume, of streetcars which would be operating on this short-turn loop would cause an increase in congestion on Charlotte Street, and would impede access to buildings, off-street loading bays, and to the parking lots on the street.

A sample of the correspondence between various property owners and the TTC regarding this project is attached to this report as Appendix A.

The concerns expressed by the various property owners, regarding noise and vibration of streetcars, must be viewed in context. Charlotte Street is adjacent to two existing high-frequency streetcar routes -- 504 King and 510 Spadina -- and three heavily-travelled city streets -- Adelaide Street, King Street, and Spadina Avenue. It is in the heart of the downtown core, and close to the busy and noisy John Street-centred club and recreation district. Therefore, while the concerns expressed by the property owners are real and legitimate, it must be recognized that these properties are not located in a peaceful or tranquil area of the city.

The property owners advised of their intention to retain a consultant to allow them to conduct an independent assessment of the potential impacts associated with this loop. They advised that there is not sufficient time to conduct their review in advance of the Commission meeting on June 17, 1998. For this reason, staff have proposed a process which would allow deputations on this matter at the Commission meeting on July 15, 1998, as described below.

Mitigating Measures Which the TTC Can Take to Address Public Concerns:

Streetcars operating on Charlotte Street would be turning around and, therefore, would be operating at a relatively slow rate of speed. However, in order to mitigate any noise or vibration resulting from this operation, the new section of track is being designed to incorporate a new rubber-insulated rail design which reduces the amount of vibration transmitted away from the track itself. This type of rail construction was used on the 510 Spadina streetcar line, in order to reduce vibration to properties adjacent to the streetcar tracks. Since the streetcar line opened in July, 1997, the TTC has received no complaints regarding vibration.

The track on Charlotte Street is also being designed to include a water lubrication system on the curved track which would lead from Adelaide Street to Charlotte Street, and on the curved track from Charlotte Street to King Street. This would keep to a minimum any noise which streetcars might generate.

The combination of these two mitigating measures would significantly reduce any noise or vibration which slow-moving streetcars might generate on Charlotte Street.

Approvals and Construction Schedule:

The planned schedule for the construction of the single streetcar track on Charlotte Street is illustrated in Exhibit 3, attached.

It is necessary that a report be filed with the Ministry of the Environment in order to explain why the TTC wants to build such a track, to confirm that this track would constitute a minor amendment to the Environmental Assessment for the Spadina streetcar line, and to discuss any concerns which local property owners have regarding the streetcar line and the mitigating measures which the TTC will take in order to address those concerns. At its meeting of June3, 4 and 5, 1998, City of Toronto Council approved delegating its authority, regarding the submission of such a report, to the TTC. The Commission can, therefore, now forward this report to the Ministry of Environment to serve as the TTC's and the City of Toronto's submission to the Ministry pertaining to the minor amendment to the Environmental Assessment for the Spadina streetcar line, in accordance with the Environmental Assessment Act. This Ministry process allows the public 30 days to file any complaints or concerns it has, following which the Ministry will consider these concerns and try to facilitate a resolution. If any concerns remain unresolved to the satisfaction of the Minister, then the Minister can require a more detailed Environmental Assessment of this streetcar track. Under the current schedule, this report would be forwarded to the Ministry of Environment by June19, 1998, and the 30-day filing period would end around July 20, 1998, with Ministry follow-up actions, if required, taking place immediately thereafter.

The current report would proceed to the City's Urban Environment and Development Committee on July 13, 1998, for information. This would allow the Committee to comment on the matter at that time. Staff would resubmit this same report to the Commission meeting of July 15, 1998, with the additional recommendation that City of Toronto Council be requested to approve construction of a single streetcar track on Charlotte Street, between Adelaide Street and King Street, providing that the Commission, after hearing deputations at that time, continues to support proceeding with this project. This request would have to be submitted directly to City of Toronto Council at its meeting of July 29, 1998; otherwise, staff would be unable to construct this loop this year. At that meeting, Council would be asked to approve the construction of this section of streetcar track.

Justification:

The construction of a new single streetcar track on Charlotte Street, and the operation of a scheduled Spadina Station-King Street short-turn would allow an appropriate level of service to be offered on the 510 Spadina streetcar route, to meet the observed level of customer demand, while allowing annual operating cost savings of approximately $300,000.00. The track will be constructed in a way which ensures that streetcars operating on Charlotte Street are environmentally compatible with the surrounding area.

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The Urban Environment and Development Committee reports, for the information of Council, also having had before it a communication (July 10, 1998) from Mr. Michael S. Steinberg, Robins, Appleby & Taub, Barristers and Solicitors, advising that his firm represents the owners and tenants of properties along AdelaideStreet West, CharlotteStreet and King Street which are in the immediate vicinity of the proposed CharlotteStreet streetcar loop; setting out a number of concerns of the affected property owners and tenants; requesting that the Urban Environment and Development Committee either not forward this matter to City Council for its consideration, or else recommend that Council deny the proposal by the Toronto Transit Commission; alternatively, requesting that the Committee recommend that this matter be sent back to all appropriate civic departments for further consideration of the issues outlined in this communication.

Mr. Harry Glicksman, Capitol Building, appeared before the Urban Environment and Development Committee in connection with the foregoing matter.

(A copy of each of the following attachments is on file in the office of the City Clerk:

(a)(i)communication dated June 17, 1998, addressed to the Toronto Transit Commission from Mr.MichaelSteinberg, Robins, Appleby and Taub, Barristers and Solicitors;

(ii)communication dated June 29, 1998, addressed to Mr. Steinberg from the Chief General Manager, Toronto Transit Commission; and

(iii)communication dated June 29, 1998, addressed to the Ministry of the Environment from the Chief General Manager, Toronto Transit Commission;

referred to in the foregoing Toronto Transit Commission Report dated July 15, 1998, entitled "Approval to Construct Streetcar Track on Charlotte Street"; and

(b)Exhibits 2 and 3 and Appendix A, referred to in the foregoing Toronto Transit Commission Report No. 24 dated June 17, 1998, entitled "Construction of Streetcar Track on CharlotteStreet".)