Alteration of Queens Quay West and Bathurst Street

(Trinity-Niagara and Downtown - Wards 20 & 24)

The Urban Environment and Development Committee recommends that:

1. a by-law in the form of the following draft by-law be enacted, and that authority be granted for the introduction of the necessary bill in Council to give effect thereto; and

2. the Commissioner of Works and Emergency Services be requested to work with the deputants who appeared before the Urban Environment and Development Committee to resolve any outstanding issues.

The Committee reports, for the information of Council, that pursuant to Clause 3 of Report No. 5 of the Urban Environment and Development Committee, titled "Realignment and Widening of the Pavements on Bathurst Street and Queens Quay in connection with the Waterfront West Light Rail Transit Extension (Trinity-Niagara and Downtown - Wards 20 & 24)" which was adopted by City Council at its meeting held on April 13, 14 and 15, 1999, notice with respect to the proposed enactment of the draft by-law was advertised in a daily newspaper on April 29, May 3, 10 and 16, 1999, and the following persons addressed the Committee in connection with this matter:

-Charles D. Parmelee, Metro Toronto Condominium Corporation No. 781; and

-Claudio Covelli, Dillon Consulting Limited.

The Committee submits the draft by-law:

Bill No.

BY-LAW No. - 1999

To further amend former City of Toronto By-law No. 602-89, being "A By-law To authorize the construction, widening, narrowing, alteration and repair of sidewalks, pavements and curbs at various locations.", respecting the alteration of Queens Quay West by the widening and realignment of the pavement from Lower Portland Street to Bathurst Street and the alteration of Bathurst Street by the widening and realignment of the pavement between Queens Quay West and approximately 120 metres north of Lake Shore Boulevard West as part of the Waterfront West Light Rail Transit Extension.

WHEREAS notice of a proposed By-law regarding the proposed alteration was published in a daily newspaper on , , , and ,1999 and interested persons were given an opportunity to be heard at a public meeting held on May 17, 1999 and it is appropriate to amend the by-law to permit the alteration;

The Council of the City of Toronto HEREBY ENACTS as follows:

1.Former City of Toronto By-law No. 602-89, being "A By-law To authorize the construction, widening, narrowing, alteration and repair of sidewalks, pavements and curbs at various locations", is amended:

(1)by inserting in Columns 1, 2, 3, 4, 5 and 6, respectively, of Schedule "B-2" (Pavement Widening) the following:

(Column 1(Column 2(Column 3(Column 4(Column 5(Column 6

Drawing

Street)Side)Width)From)To)No./Date)

Queens from: 14 m - Lower BathurstR7-3-G-1A

Quay West20.5 m to: PortlandStreetMarch 15, 1999

20.5m - 22 mStreet

Bathurst from: 19.6 m -Queensapprox. R7-3-G-1A

Street20 m to: 20 mQuay120 m northand

- 23 mWestof Lake ShoreR7-3-G-1B

Boulevard Westdated

March 15, 1999

ENACTED AND PASSED this day of, A.D..

MayorCity Clerk

The Urban Environment and Development Committee also submits Clause 3 embodied in Report No. 5 of the Urban Environment and Development Committee titled, "Realignment and Widening of the Pavements on Bathurst Street and Queens Quay West in connection with the Waterfront West Light Rail Transit Extension (Trinity-Niagara & Downtown - Wards 20 & 24)", as adopted without amendment, by the Council of the City of Toronto at its meeting held on April 13, 14 and 15, 1999:

The Urban Environment and Development Committee recommends the adoption of the reports (March 16, 1999) from the General Manager, Transportation Services and (March24, 1999) from the General Manager, Toronto Transit Commission.

The Urban Environment and Development Committee submits the following report (March 16, 1999) from the General Manager, Transportation Services:

Purpose:

To authorize the realignment and widening of portions of the pavements on Queens Quay West and Bathurst Street to facilitate the construction of the Waterfront West LRT extension .

Funding Sources, Financial Implications and Impact Statement:

Funds to cover the cost of the pavement widenings and realignments including related adjustments to parks facilities and utilities will be borne by the Toronto Transit Commission, as will costs related to the streetcar line construction.

Recommendations:

1.That approval be given to widen and realign the pavements on Queens Quay West and Bathurst Street, described as follows:

a)"The widening and realignment of the pavement on the south side of Queens Quay West, from a width varying from 20.5 metres to 14.0 metres to a width varying from 20.5metres to 22.0 metres (including track allowance) between Lower Portland Street and Bathurst Street as shown on the attached print of TTC Drawing No. R7-3-G-1A dated March 15, 1999"; and

b)"The widening and realignment of the pavement on both sides of Bathurst Street, from a width varying from 19.6 metres to 20 metres to a width varying from 20.0 to 23.0metres (including track allowance) between Queens Quay West and a point approximately 120 metres north of Lake Shore Boulevard West as shown on the attached prints of TTC Drawing Nos. R7-3-G-1A and R7-3-G-1B dated March15, 1999."

2.That the appropriate City Officials be requested to take whatever action is necessary to give effect thereto including the introduction in Council of any Bills that are required.

Comments:

The Waterfront West Light Rail Transit project westerly to Exhibition Place received Environmental Assessment (EA) approval from the Ministry of Environment and Energy in August 1995. The approved project contemplated the line on Queens Quay West to Lower Portland Street, then northerly to Lake Shore Boulevard West. TTC staff are securing an amendment to the EA approval to allow the line to extend westerly on Queens Quay West as far as Bathurst Street, before heading north to the existing tracks on Fleet Street. It is anticipated that a report from the Toronto Transit Commission on the amendment will be before your Committee at its March 31,1999 meeting and considered by City Council at its meeting scheduled for April13, 14 and 15, 1999.

Construction of the extension is scheduled by the TTC to commence in the Spring of this year. The installation of the track bed involves a number of changes to the pavement alignments on portions of Queens Quay West and Bathurst Street and it is now in order to secure approval of the widenings as described in Recommendation No. (1) above to accommodate the transit work.

The widening of the pavements on Queens Quay West and Bathurst Street constitute alterations to a public highway pursuant to the provisions of the Municipal Act. This matter is being reported to your Committee at this time in order that the statutory requirements set out in the Act (advertising Council's intent to enact the by-law, public deputation hearing) can commence in the early Spring to permit final approval and construction commencement in accordance with the TTC's current schedule. Any required modifications or issues arising out of the detailed design or public consultation processes as well as associated changes to traffic and parking regulations can be reported to a subsequent meeting of the Toronto Community Council, Urban Environment and Development Committee or City Council, if required.

Contact Name and Telephone Number:

Mr. John Niedra, Manager

Infrastructure Assets Management and Programming

Transportation Services Division (392-5348)

Insert Table/Map No. 1

Queen's Quay Streetcar Connections

Insert Table/Map No. 2

Queen's Quay Streetcar Connections

The Urban Environment and Development Committee also submits the following report (March 24, 1999) from the General Secretary, Toronto Transit Commission:

At its meeting on Tuesday, March 23, 1999, the Commission considered the attached report entitled, "Queens Quay Streetcar Connection - Modification To Environmental Assessment."

Recommendations:

That the City of Toronto:

1)endorse the modification to the Environmental Assessment for the Queens Quay Streetcar Connection (originally prepared for the Waterfront West Light Rail Transit Line), to allow the construction of the streetcar connection via Queens Quay and Bathurst Street, as described in the attached report;

2)request that the Ministry of the Environment allow the modification to the Environmental Assessment for this project, as described in the attached report; and

3)request that the Ministry of the Environment allow a minor extension of Fort York Boulevard, between Fleet Street and Lake Shore Boulevard, in association with this modification, as described in the attached report;

Background:

The Commission approved the Recommendation contained in the above report, as listed below:

"It is recommended that the Commission:

1.Request the City of Toronto to:

a)endorse the modification to the Environmental Assessment for the Queens Quay Streetcar Connection (originally prepared for the Waterfront West Light Rail Transit Line), to allow the construction of the streetcar connection via Queens Quay and Bathurst Street, as described in the attached report;

b)request that the Ministry of the Environment allow the modification to the Environmental Assessment for this project, as described in the attached report;

c)request that the Ministry of the Environment allow a minor extension of Fort York Boulevard, between Fleet Street and Lake Shore Boulevard, in association with this modification, as described in the attached report;

2.Note that the modification to the Environmental Assessment for the Queens Quay Streetcar Connection is consistent with the alignment which:

a)has been documented in all TTC staff reports on this subject since January 1997;

b)is the best means of making transit service more convenient and attractive to the continually-growing Queens Quay, Bathurst Quay, Exhibition Place, Ontario Place, and Toronto City Centre Airport areas;

c)the Commission has approved during the review process;

d)has been presented to the public at all public and Commission meetings on this subject since January 1997;

e)is supported by the City of Toronto Transportation Services Division, and documentation to that effect, from the General Manager of Transportation Services, is attached;

f)is endorsed by the local City Councillors for the area through which the service will operate;

g)has been approved in principle by the Metro Toronto Planning and Transportation Committee and the Council of the City of Toronto during their previous reviews of the TTC reports on this project; and

3.Forward this report to the Urban Environment and Development Committee, Councillors Chow, Rae, Pantalone and Silva, and to the City of Toronto Transportation Services and Planning Divisions."

The foregoing is forwarded to the Urban Environment and Development Committee and City of Toronto Council for consideration of the Commission's request as it relates to Recommendation #1 noted above.

--------

(Toronto Transit Commission Report No. 25 from their

meeting on March 23, 1999, titled "Queens Quay Streetcar Connection -

Modification to Environmental Assessment)

Recommendations:

It is recommended that the Commission:

1.Request the City of Toronto to:

a)endorse the modification to the Environmental Assessment for the Queens Quay Streetcar Connection (originally prepared for the Waterfront West Light Rail Transit line), to allow the construction of the streetcar connection via Queens Quay and Bathurst Street, as described in the attached report;

b)request that the Ministry of the Environment allow the modification to the Environmental Assessment for this project, as described in the attached report;

c)request that the Ministry of the Environment allow a minor extension of Fort York Boulevard, between Fleet Street and Lake Shore Boulevard, in association with this modification, as described in the attached report;

2.Note that the modification to the Environmental Assessment for the Queens Quay Streetcar Connection is consistent with the alignment which:

a)has been documented in all TTC staff reports on this subject since January 1997;

b)is the best means of making transit service more convenient and attractive to the continually-growing Queens Quay, Bathurst Quay, Exhibition Place, Ontario Place, and Toronto City Centre Airport areas;

c)the Commission has approved during the review process;

d)has been presented to the public at all public and Commission meetings on this subject since January 1997;

e)is supported by the City of Toronto Transportation Services Division, and documentation to that effect, from the General Manager of Transportation Services, is attached;

f)is endorsed by the local City councillors for the area through which the service will operate;

g)has been approved in principle by the Metro Toronto Planning and Transportation Committee and the Council of the City of Toronto during their previous reviews of the TTC reports on this project; and

3.Forward this report to the Urban Environment and Development Committee, Councillors Chow, Rae, Pantalone, and Silva, and to the City of Toronto Transportation Services and Planning Divisions.

Funding:

Sufficient funds for this project are included in the Queens Quay Streetcar Connection project budget, City Project No. 378, as set out on pages 631 to 636 in the TTC 1999-2003 Capital Program, as approved by the Council of the City of Toronto at its meeting of March 2, 1999.

Background:

At its meeting on June 24, 1997, in considering the report, Analysis of Costs and Benefits of a Streetcar Connection on Queens Quay, between Spadina Avenue and Bathurst Street, the Commission approved that "staff undertake all the necessary steps, as expeditiously as possible, to construct the streetcar connection on Queens Quay between Spadina Avenue and Bathurst Street using Alignment 2 [via Queens Quay and Bathurst Street]; and further that this line be built as economically as possible." Later, at its meeting of July 15, 1997, the Commission granted project approval for the streetcar connection. On July 29, 1997, the Planning and Transportation Committee of Metro Toronto approved the streetcar connection. Most recently, on March 2, 1999, as part of its approval of the TTC's 1998-2002 Capital Budget, the Council of the City of Toronto approved the construction and funding of the streetcar connection. These previous actions constitute approval, by the TTC and by the City of Toronto, of the construction and operation of the Queens Quay Streetcar Connection, on Queens Quay and Bathurst Street, between Lower Spadina Avenue and Fleet Street/Lake Shore Boulevard. The only remaining task, prior to final construction, is a modification to the Environmental Assessment for this project.

Discussion:

Part of the proposed alignment differs from the originally-approved Environmental Assessment (EA) for this project, which was originally prepared for the Waterfront West LRT (WWLRT) project in 1995. Before construction of the track on the revised alignment can begin, a modification to the EA, justifying the change in alignment, must be submitted to the Ministry of the Environment (MOE).

The purpose of this covering report and the attached detailed report is to officially document and convey the proposed EA modification to the MOE, and to request the MOE to allow this modification.

--------

(Queens Quay Streetcar Connection !

Modification To Environmental Assessment - March 1999)

Background:

At its meeting on June 24, 1997, in considering the report, Analysis of Costs and Benefits of a Streetcar Connection on Queens Quay, between Spadina Avenue and Bathurst Street, the Commission approved that "staff undertake all the necessary steps, as expeditiously as possible, to construct the streetcar connection on Queens Quay between Spadina Avenue and Bathurst Street using Alignment 2 [via Queens Quay and Bathurst Street]; and further that this line be built as economically as possible." Later, at its meeting of July 15, 1997, the Commission granted project approval for the streetcar connection. On July 29, 1997, the Planning and Transportation Committee of Metro Toronto approved the streetcar connection. Most recently, on March 2, 1999, as part of its approval of the TTC's 1998-2002 Capital Budget, the Council of the City of Toronto approved the construction and funding of the streetcar connection.

These previous actions constitute approval, by the TTC and by the City of Toronto, of the construction and operation of the Queens Quay Streetcar Connection, on Queens Quay and Bathurst Street, between Lower Spadina Avenue and Fleet Street/Lake Shore Boulevard. Part of the proposed alignment differs from the originally-approved Environmental Assessment (EA) for this project, which was originally prepared for the Waterfront West LRT (WWLRT) project in 1995. Before construction of the track on the revised alignment can begin, a modification to the EA, justifying the change in alignment, must be allowed by the Ministry of the Environment (MOE). This report discusses and documents the need for the modification, the alternatives considered, the environmental effects, the consultation process which has taken place, and how concerns raised during consultation have been addressed. The main purpose of this report is to officially document and convey the proposed EA modification to the MOE, and to request the MOE to allow this modification.

Discussion:

1.0 A recap of the streetcar connection project

This streetcar connection is intended as a simple, no-frills extension to the existing streetcar network, by constructing approximately 850 metres of new double track on Queens Quay between Lower Spadina Avenue and Bathurst Street, and on Bathurst Street between Queens Quay and Fleet Street/Lake Shore Boulevard. Exhibit A (Drawing No. 11375), attached, shows this missing link in the streetcar network. This new track would connect with the existing streetcar network, and once the track is built, a new 509 Harbourfront streetcar route would be operated between Union Station and Exhibition Place, via Queens Quay, Bathurst Street, and Fleet Street. The new track would be built in the centre of the existing roadways, would be reserved for the use of transit vehicles only, and would be separated from the rest of the roadway by small landscaped medians and passenger platforms. The new streetcar route would replace the service to the area which is currently provided by the 121Front-Esplanade bus route, and the 521 Exhibition East special-event streetcar route. Exhibit B (Drawing No. 11241), attached, shows the route network which would be operated when the streetcar connection is complete.

The project would be the initial phase of the Waterfront West LRT project, a project from the Let's Move/Rapid Transit Expansion Program of the early 1990s. An Environmental Assessment report was prepared for the WWLRT, and was approved by the Ministry of the Environment in August 1995. The present Queens Quay Streetcar Connection project is limited in scope to a connection between Spadina Avenue and Bathurst Street only, but is consistent with, and does not preclude, the eventual construction of the WWLRT. There are no plans at this time to construct that larger project.

Part of the routing of the Queens Quay Streetcar Connection, on Queens Quay between Lower Spadina Avenue and Portland Street, follows the recommended routing in the approved WWLRT EA. Construction began on this segment in October 1998, and no further approvals are required. The remainder of the recommended routing, on Queens Quay between Portland Street and Bathurst Street, and on Bathurst Street between Queens Quay and Lake Shore Boulevard/Fleet Street, is different than the routing in the originally-approved EA, which was via Queens Quay, Portland Street, and along a consolidated Lake Shore Boulevard and Fleet Street. Exhibit C (Drawing No. 11374), attached, shows an overall view of both the routing in the approved EA and of the now-recommended routing. Exhibit D (Drawing No. R7-3-G-1A and -1B), attached, is a detailed drawing of the recommended Queens Quay/Bathurst alignment, showing the track location, streetcar stop locations, and required roadway modifications.

2.0 Justification for the requested modification

The modification to the routing set out in the originally-approved EA is necessary in order to better serve transit customers, and to reduce the costs of building the streetcar connection.

The recommended routing via Queens Quay and Bathurst Street would better serve transit customers travelling to or from the Bathurst Street and Queens Quay area, including the Bathurst Quay residential area, the Waterfront Public School and Community Centre, the Toronto City Centre Airport, and other recreational and residential developments planned for the Queens Quay/Bathurst area. The recommended routing would bring transit service closer to these areas than the Portland/Lake Shore routing, and would have streetcar stops which would be more-conveniently located for transit customers.

The currently-proposed streetcar alignment along Queens Quay and Bathurst Street would be an integral part of the neighbourhood, would be more-visible to potential transit customers than the Portland/Lake Shore alignment, and would more-closely follow the main roads in the area, and thus better replicate the present travel patterns of people in the neighbourhood, whether they now travel by automobile, bus, bicycle, or as a pedestrian. The Portland/Lake Shore alignment would turn away from Queens Quay, Harbourfront, and the attraction of the lake, to operate in the shadows at the rear of buildings, and in the centre of Lake Shore Boulevard. By building the streetcar connection along Queens Quay and Bathurst, transit customers would be carried through the heart of the community, closer to the attractions in the neighbourhood. A prominent, visible presence for an important transit service is compatible with the city's goals for linking and drawing together the waterfront community, and to re-establish the importance of the city's waterfront.

The improved transit service to the neighbourhood as a result of the Queens Quay/Bathurst routing would result in higher ridership on the new streetcar service, compared to the Portland/Lake Shore routing. Many of the customer-trips which are projected to be made on the new streetcar line between Portland Street and Fleet Street are destined to or from the area west of Bathurst Street and south of Lake Shore Boulevard. These customer-trips would be better served by the Queens Quay/Bathurst routing, because of the proximity of the streetcar service. If the streetcar line were to be built on the Portland/Lake Shore routing, the service would be less-convenient and attractive, because of the longer walking distance to the nearest streetcar stops, and the disincentive to customers of having to walk to, and wait for, a streetcar in the middle of the heavily-travelled Lake Shore Boulevard.

The recommended Queens Quay/Bathurst routing would cost substantially less to construct than the Portland/Lake Shore routing. The estimated cost to the TTC of constructing the Bathurst/Queens Quay routing is 35 percent lower than the estimated cost of constructing the Portland/Lake Shore routing. The cost difference is principally because of the shorter distance of new track which needs to be built for the Queens Quay/Bathurst routing. The Portland/Lake Shore routing would include a realignment of existing tracks on Fleet Street for some 350 metres west of Bathurst Street, as a result of the required consolidation of the Fleet Street and Lake Shore Boulevard roadways. The WWLRT EA study recommended that roadway consolidation, which would further increase the cost of the Portland/Lake Shore alignment, in order to support the City's urban design objectives and to allow streetcars to satisfactorily operate from Portland Street to Fleet Street through the complex Bathurst/Fleet/Lake Shore intersection.

The budgeted amount for the Queens Quay Streetcar Connection project in the TTC's 1999-2003 Capital Budget includes sufficient funds to build only the lower-cost Queens Quay/Bathurst routing.

3.0 Alternatives to the requested modification

Two alternatives to the requested routing modification were considered:

1)Do nothing; do not introduce new streetcar service between Union Station and Exhibition Place, and continue service on the 121 Front-Esplanade bus route; or

2)Construct the streetcar connection on the originally-approved routing via Portland and Lake Shore.

The first alternative, to do nothing and continue the operation of the existing bus route, would provide fewer benefits for transit customers, and would attract fewer people to transit than if the streetcar connection were built. The present bus route provides slower and less-reliable service than would the new streetcar route. Travel time for customers over the route would be faster on the proposed streetcar route, compared to the existing bus route, largely because of the reserved right-of-way for streetcars. The streetcar service would also operate more reliably, because bus operation in mixed traffic is slower and subject to delays from auto and truck traffic, especially along the present bus route, which travels through some of the most-congested areas of downtown Toronto. Reductions in travel time, and increases in service reliability, have been consistently shown to increase transit ridership, and this would be the case in this area if this streetcar route is built.

In addition to the increase in customers because of the improvement in the speed and reliability of the service, more customers would use transit in the Queens Quay/Bathurst area if there were a new direct streetcar service, compared to an equivalent bus service. This ridership increase would occur because, all else being equal, customers prefer streetcars to buses. Streetcars offer a more-visible and permanent service, and one that is strongly woven into the fabric of the neighbourhood. Streetcar stops are more noticeable and identifiable than bus stops, thus giving public transit a more prominent place in the streetscape. This streetcar service would provide a better connection to the subway, with an easier, weather-protected, and prepaid transfer connection at Union Station, compared to the present outdoor on-street bus connection. Ridership increases have been seen before in this area as a result of the replacement of bus service with streetcar service, as in 1990 when the Harbourfront streetcar replaced the previous bus service, and in 1997, when the 510 Spadina streetcar replaced the 77 Spadina bus route on Spadina Avenue.

Because the do-nothing alternative would provide fewer benefits to transit customers and attract fewer new people to transit, it is not recommended.

The second alternative, to construct the new streetcar connection on the Portland/Lake Shore alignment, was discussed earlier in this report, in Section 2.0. This alternative would provide fewer benefits for transit customers than the recommended routing, because of the longer walk to the nearest streetcar stops, would attract fewer people to transit, would be less-visible, less-attractive, and less-convenient, would be more difficult and awkward to access, and would cost substantially more to construct. For these reasons, this alternative is not recommended.

4.0 Effects of the requested modification

In general terms, improving transit service has a beneficial environmental effect, through lower per-person energy use, and a reduction in automobile trips. A streetcar service is especially beneficial, because the vehicles emit no pollutants, and are generally quieter than vehicles powered with internal-combustion engines. The associated track and infrastructure, including the landscaped medians planned for this project, would add greenery in place of asphalt, would enhance the local streetscape, and would reduce the effective width of the roads, which would improve pedestrian access. Because the Queens Quay/Bathurst alignment would attract more customers to transit, and would serve a more-pedestrian-oriented area, than the Portland/Lake Shore route, the improvements it would make to the environment are greater.

Both alignment options, via Queens Quay/Bathurst and via Portland/Lake Shore, would be built through an urbanised, redeveloping, high-traffic area, within the right-of-way of existing roadways. The recommended alignment option, via Queens Quay/Bathurst, differs from the Portland/Lake Shore EA-approved alignment in the way in which the new streetcar service and infrastructure would affect other road users and nearby property owners.

TTC staff have worked closely with City of Toronto Transportation Services Division staff and traffic consultants to carefully analyse the effects that the Queens Quay/Bathurst streetcar alignment would have on motorists, pedestrians, cyclists, and other road users. A plan has been developed which would allow the streetcar service to operate along the Queens Quay/Bathurst alignment. With this plan, streetcars would operate satisfactorily through the Bathurst/Fleet/Lake Shore intersection. However, some of the current east-to-north left-turning motorists at this intersection would have to divert to other roads to make this turn. This reduction in turning capacity would be replaced when the City of Toronto constructs a nearby new road, Fort York Boulevard, from Bathurst Street to Lake Shore Boulevard. Staff from the City of Toronto Transportation Services Division support these conclusions, as noted in Exhibit E, attached.

The resolution of the Bathurst/Fleet/Lake Shore intersection issue, and the recommendation to proceed with the Bathurst/Queens Quay alignment, marks the satisfactory culmination of a major co-operative effort between TTC and City of Toronto staff. The previous WWLRT Environmental Assessment report recommended in favour of the Portland/Lake Shore alignment to support the City's urban design objectives, and because the Bathurst/Queens Quay streetcar alignment was judged to have unacceptably negative effects on other road users at the Bathurst/Fleet/Lake Shore intersection. However, the Portland/Lake Shore alignment was less-favourable to transit customers, and more-favourable to motorists. The recent reevaluation of the intersection design issues, and the resulting solutions to both transit and automotive capacity concerns, means that the new recommendation to proceed with the Bathurst/Queens Quay alignment is the best for transit customers, is acceptable to other road users, and can be built at the lowest possible cost.

4.1 Traffic effects ! Queens Quay/Bathurst alignment

The Queens Quay/Bathurst alignment would affect the operation of the Bathurst/Fleet/Lake Shore, Bathurst/Queens Quay, and Queens Quay/Portland intersections. The proposed streetcar alignment would eliminate the need for a new traffic signal on Lake Shore Boulevard at Portland Street, as would have been necessary with the Portland/Lake Shore alignment.

The consulting firm of Marshall Macklin Monaghan was retained to identify and evaluate design alternatives for the Bathurst/Fleet/Lake Shore intersection. An extensive analysis, based upon all future traffic volumes predicted for this area in the year 2011, resulted in the consensus design described below. Their report, entitled, Queens Quay Streetcar Project, Bathurst/Lake Shore/Fleet Traffic Assessment, is available on file at the TTC's General Secretary's office.

4.1.1 Bathurst/Fleet/Lake Shore intersection traffic effects

Streetcars on the new 509 Harbourfront route would travel through the intersection via a north-to-west left turn from Bathurst Street to Fleet Street, and an east-to-south right turn from Fleet Street to Bathurst Street. All other traffic is now, and would continue to be, prohibited from making either of these turns.

The consultants evaluated thirteen alternative designs for this intersection. The selected final design is illustrated in Exhibit D. Streetcar turns would be incorporated into the intersection by making the following modifications:

-509 Harbourfront streetcars would proceed on an exclusive transit-only signal phase, similar to the signal phases for streetcars currently used on Queens Quay, east of Spadina Avenue;

-The number of east-to-north left turn lanes for motorists on Fleet Street at Bathurst would be reduced from two to one in order to provide one lane for streetcars and one lane for automobiles on the eastbound approach; and

-The number of southbound lanes on Bathurst Street, approaching the intersection, would increase from two to three, with one lane for left-turning automobiles, one lane for right-turning streetcars and through automobiles, and one lane for right-turning automobiles, instead of the current shared-lane arrangement between through and left-turning automobiles and right-turning streetcars.

The first two changes would result in the Bathurst/Fleet/Lake Shore intersection being unable to accommodate all of the morning peak east-to-north left-turning automobiles, both for opening day of the streetcar service and at the future scenario date, 2011. On opening day, approximately 300 of the 1200 automobiles which make this turn during the busiest hour of the morning peak period would have to use an alternative routing. By 2011, this would increase to over 500 automobiles in the morning peak hour which would have to use an alternative routing. This left-turning capacity issue is addressed in the following section of this report.

The technical evaluation included a variation on the selected final design which would maintain two eastbound left-turn lanes for motorists on Fleet Street, in addition to the streetcar lane, and would provide sufficient capacity to accommodate the present and future left turns from Fleet Street onto Bathurst Street. However, this would be more costly to build, would require three left-turn lanes from Fleet onto Bathurst, and would not be desirable in an area that is becoming much more pedestrian-oriented as a result of the extensive residential developments which are both planned and under construction.

4.1.2 Mitigation of capacity constraints at the Bathurst/Fleet/Lake Shore intersection

Additional left-turn capacity for eastbound motorists on Lake Shore Boulevard who now turn north on Bathurst Street from Fleet Street would be available when a new road, Fort York Boulevard, is constructed west of Bathurst Street, through to Lake Shore Boulevard. This proposed road is shown in Exhibit F. The first section of this new road, from Bathurst Street to Fleet Street, has been approved, subject to the necessary funding approvals. A 90-metre extension of this road, from Fleet Street to Lake Shore Boulevard, has been proposed by the City of Toronto. An Official Plan Amendment for this extension is now in process at the City of Toronto.

The Fort York Boulevard connection to Lake Shore Boulevard, when completed by the City, will provide the most-convenient alternative route for those east-to-north turning motorists who would no longer be accommodated at the Fleet/Bathurst intersection. Because the new roadway will eliminate the identified capacity reduction for left-turning motorists resulting from the construction of the streetcar connection, it is recommended that the Ministry of the Environment be requested to allow this minor extension of Fort York Boulevard, between Fleet Street and Lake Shore Boulevard, in association with the modification to the Environmental Assessment for the Queens Quay Streetcar Connection.

4.1.3 Bathurst/Queens Quay intersection traffic effects

The proposed 509 Harbourfront streetcar service would travel through this intersection via a south-to-east left turn from Bathurst Street to Queens Quay, and a west-to-north right turn from Queens Quay to Bathurst Street.

Streetcars would proceed during the existing southbound flashing advanced green phase. At those times when the signal cycle lengths are relatively long, a second signal opportunity would be given to streetcars during an exclusive transit-only signal phase. During peak periods, the transit-only phase would be provided between five and ten times per hour.

This intersection operates well below capacity today. The streetcar operation would result in minor delay increases to some motorists, when the transit-only phase is provided but, overall, would have negligible effects on this intersection.

4.1.4 Queens Quay/Portland intersection traffic effects

This intersection would be signalised as part of this initiative, as was also planned for the originally-approved streetcar alignment via Portland Street and Lake Shore Boulevard. Therefore, there would be no change to the operation of the intersection for motorists as a result of the construction of the Queens Quay/Bathurst alignment, compared to the Portland/Lake Shore alignment. The 509Harbourfront streetcars would proceed east and west through the intersection during an exclusive transit-only phase, identical to those on Queens Quay east of Spadina Avenue.

4.2 Effects on cyclists

The current roadway configuration on Queens Quay from Portland Street to Bathurst Street includes eastbound and westbound bicycle lanes. These lanes would be retained in the new roadway design.

Southbound cyclists through the Bathurst/Fleet/Lake Shore intersection would be required to cross an additional set of streetcar tracks at a skewed angle. City of Toronto staff are considering various ways of designating the curb lane as a shared right-turn/bicycle lane to enable cyclists to cross the tracks at a better angle.

East-to-north left-turning cyclists from Fleet Street to Bathurst Street would be required to cross two sets of streetcar tracks at a skewed angle.

Cyclists travelling westbound or northbound through the Bathurst/Queens Quay intersection would be required to cross two sets of streetcar tracks at a skewed angle. This manoeuvre is similar to one currently required westbound at the Spadina/Queens Quay intersection.

At these locations, as elsewhere in the city, bicyclists would have to exercise extra caution when crossing the streetcar tracks, to avoid having their wheels getting stuck in the groove formed by the track.

4.3 Effects on pedestrians

Due to the road widening across the east leg of the Bathurst/Queens Quay intersection, the time that it takes a pedestrian to walk across the street would increase by five seconds at this location. However, pedestrians would be able to use the streetcar loading platform as a mid-point "refuge", if they wish to take more time to cross Queens Quay.

There would be no change for pedestrians as a result of the signalisation of the Queens Quay/Portland intersection, as this intersection would also have been signalised as part of the originally-approved Portland/Lake Shore streetcar alignment.

5.0 Capital costs

The TTC approved funding for the construction of the Queens Quay Streetcar Connection, as City Project No. 378, in the total estimated amount of $12.95 million. The estimate reflects a low-cost transit system based on a simplified track and right-of-way design which would meet the TTC's basic minimum requirements for quick, efficient streetcar operations along the line. The Council of the City of Toronto has also approved this capital expenditure, and recognise it as the most cost-effective design for this transit improvement.

6.0 Public consultation

The revised streetcar alignment was first discussed publicly at the Commission meeting on January21, 1997, when the Commission considered the staff report, Opportunities for New Streetcar Routes, which identified the Queens Quay/Bathurst routing as a possible candidate for a no-frills Queens Quay streetcar connection. The Commission asked for further information on the Queens Quay/Bathurst routing, and at its meeting of April 1, 1997, the staff report, Time Required to Construct Streetcar Tracks on Queens Quay between Spadina Avenue and Bathurst Street was considered. As a result of that report, the Commission directed that an analysis of the costs and benefits of the streetcar connection be prepared, and that was presented to the Commission at its public meeting on June 24, 1997. The issue was further addressed at the Commission meeting on July 15, 1997. Public reports were prepared and presented at all four of these meetings, and members of the public were present. Further public consideration of the revised streetcar connection took place at the meeting of the Metro Toronto Planning and Transportation Committee on July 29, 1997. At the Planning and Transportation Committee meeting, members of the public spoke about their desire to see the originally-proposed landscape and streetscape design carried forward as part of the current project.

The streetcar connection project, and the revised alignment, have received coverage in the newspapers on a number of occasions, particularly after the initial Commission approval, in June, 1997, and after City of Toronto approval of the Capital Budget funding for the line, initially in April, 1998. The streetcar connection has also been mentioned in ward newsletters mailed to constituents by the councillors for the area.

In 1998, a further public consultation process was developed to obtain feedback regarding the revised alignment, and input into the design process. A public meeting was conducted in the Bathurst/Queens Quay neighbourhood on December 15, 1998, and was attended by approximately 40 people. Over 1500 notices were issued by several Canada Post postal walks to all residents and businesses in the area.

The public meeting was divided into two distinct parts. The first was an open-house format with staff from TTC and the local councillor's office available for discussion. The one-on-one contact allowed concerned citizens to get answers to specific questions they might have. The second part of the meeting was a presentation by TTC staff outlining the history of the project and the alignments which were considered in the approved WWLRT EA. The presentation also outlined the benefits and disadvantages of the Queens Quay/Bathurst and Portland/Lake Shore alignments. Comment sheets were available at the meeting for those in attendance to make written comments, and the comment sheets which were returned after the meeting are attached to this report. The main topics of discussion were:

-Design, alignment, and service details of the new streetcar service

-Effects of the streetcar relative to:

-Reduced traffic capacity along Queens Quay

-Access/egress to/from residential properties

-Pedestrian and child safety

-Noise and vibration

-General comments relating to ridership projections, the fixed link to the Toronto City Centre Airport, and design details of the streetcar line and roadway.

The majority of opinions expressed at the meeting were supportive of the revised alignment and the streetcar service in general. All of the written comments returned at the meeting (copies attached, in Appendix A) were in favour of the streetcar line. Opposing comments to the proposal, particularly about the perceived reduction in capacity for motorists, were stated by one attendee, and related follow-up correspondence on that issue, including responses to the concerns which were raised, are attached in Appendix A.

In addition to the public meeting, several presentations were made to various working committees and public agencies to provide them the opportunity to comment on the revised alignment and design details. TTC staff met with the principal of the Waterfront Public School, and with staff from the Toronto Harbour Commission (THC) and the Toronto City Centre Airport (TCCA). At the meeting between TTC and THC staff, it was determined that the streetcar connection and the airport fixed link project are compatible with each other, that there are no outstanding issues regarding the inter-relation of the two projects, and that the proximity of a direct streetcar connection to the downtown could be a significant attraction for airport travellers.

A record of all comments, minutes of meetings, and correspondence, including TTC responses to specific concerns, is included in Appendix A

7.0 Mitigation of noise and vibration effects

Noise from streetcar operations includes squeal resulting from wheel/rail contact, noise caused by streetcars operating over switches and crossings in the rail, and noise from streetcar acceleration, deceleration, idling and coasting.

An environmental noise and vibration assessment was conducted by S.S. Wilson Associates, Consulting Engineers, in October, 1998 to assess potential noise and vibration effects of streetcar operations in this area. The report, entitled, Vibration Assessment - Queens Quay Streetcar Connection, is available on file at the TTC's General Secretary's office. The assessment covered the part of the approved EA alignment from Lower Spadina Avenue to Portland Street, and the proposed revised alignment west of Portland Street, along Queens Quay to the Bathurst/Fleet/Lake Shore intersection. The assessment was carried out in accordance with the sound level criteria adopted in the approved MOE/TTC Protocol for Noise and Vibration Assessment for the proposed Waterfront West Light Rapid Transit Line.

The environmental noise and vibration assessment was filed with the MOE on October 26, 1998. Confirmation, dated November 9, 1998, was received from the Ministry stating that the assessment satisfied the requirements of the terms and conditions of the approval of the EA for the Queens Quay part of the Waterfront West LRT.

Based on the analysis of the environmental noise and vibration assessment, the study concluded that the overall acoustic energy due to streetcar operations in the Queens Quay/Bathurst area would be considerably lower than the existing ambient sound levels in that area. The assessment also reported that ground-borne vibration levels would be well within the recommended criteria.

Although the projected noise and vibration levels from this streetcar operation would be well within acceptable levels, the TTC would take the following noise and vibration attenuation measures to further reduce these effects:

-Continuous welded rail would be used, thereby eliminating noise due to streetcars passing over joints in the rail.

-Curved track sections would be designed with the maximum possible radii, to minimise wheel/rail squeal.

-Provision would be included for water lubrication systems to be used along curved track sections through intersections, to further reduce noise.

-The rails would be encased in a special rubber "boot", which will isolate the rail from the crossties and surrounding concrete. This rubber boot system would be used on all track sections except in the track switch areas, where it is not feasible due to the geometry of the track switches.

-Steel crossties would be used, embedded in concrete and isolated with neoprene bearing pads, to further reduce any ground-borne vibration.

These measures have been used successfully elsewhere by the TTC and have been found to significantly reduce noise and vibration. The rubber boot and steel crossties, in particular, result in significant reductions in ground-borne vibration levels, when compared to older track designs with wood crossties, jointed rail, and rock ballast.

8.0 Road widening

In order to accommodate a dedicated streetcar right-of-way in the centre of Queens Quay, it is necessary to widen the south side of Queens Quay, east of the Queens Quay/Bathurst intersection, by six metres. Minor road adjustments are also required at the Queens Quay/Bathurst intersection to maintain a bicycle lane, and to improve traffic flow through the intersection. Minor road re-alignment is required on the south leg of Bathurst Street to minimise the amount of curved track, and for the necessary lane configurations. An additional southbound lane is required on Bathurst Street, north of Lake Shore Boulevard, to allow the Bathurst/Fleet/Lake Shore intersection to operate efficiently, and to minimise delays to both automobiles and streetcars. This road widening was also recommended as part of the secondary plan for re-development of this area.

The road widening on Queens Quay would eliminate on-street parking on the south side of the road, adjacent to the school and community centre.

8.1 Streetscape mitigation

The TTC has retained a landscape architect to address streetscape issues along those sections of Queens Quay which are being widened. As a result of this process, compatible streetscape design and measures will be applied at any such affected areas.

9.0 Residential/commercial access

The dedicated streetcar right-of-way in the centre of Queens Quay and Bathurst Street would restrict access into, and exits from, driveways fronting on Queens Quay and Bathurst Street. The medians would allow only right-in and right-out movements. Approximately four driveways would be affected in this way.

Lane configurations at intersections along Queens Quay would allow for U-turns. The road network configuration in the immediate area allows for convenient right-in/right-out access to properties.

10.0 Approvals and construction schedule

Construction of the trackbed has commenced for the approved part of the alignment, between Lower Spadina Avenue and Portland Street. Construction of the balance of the revised alignment would commence immediately after MOE approval. The streetcar service is scheduled to open on July 23, 2000.

11.0 Conclusion

The Queens Quay Streetcar Connection recommended routing via Queens Quay and Bathurst Street is the routing which best serves transit customers and reduces construction costs. The recommended routing includes features which mitigate against negative effects for others. The discussion documented in this report is intended to provide the Ministry of the Environment with the information it needs in order to assess allowing a modification to the approved Environmental Assessment for the Waterfront West LRT.

--------

The Urban Environment and Development Committee also had before it Exhibits A to F and Appendix A (Record of comments, minutes of meetings and correspondence) appended to Report No. 25 dated March 23, 1999 from the Toronto Transit Commission,which were forwarded to all Members of Council with the agenda of the Urban Environment and Development Committee for its meeting of March 31, 1999, and copies thereof are on file in the office of the City Clerk.

--------

The Urban Environment and Development Committee reports, for the information of Council, also having had before it during consideration of the foregoing matter a communication (May 14, 1999) from Charles D. Parmelee, President, obo Board of Directors, MTCC No. 781 requesting that the Committee defer consideration of the proposed by-law and refer this matter back for fruitful community discussion, and a copy thereof is on file in the office of the City Clerk.