Submission Public For DECISION No. 2018-P150 To Board of Directors Date 2018-04-19/20 Subject/Title Portage Bridge – Roadway Surface Repairs Summary To seek the Board of Directors’ authorization of budget for implementation of bridge repairs and cycle track improvements. Risk Summary • Meeting public expectations as a result of pedestrian and vehicular traffic restrictions during construction. • Meeting public and stakeholder expectations of the proposed cycle track improvements. • Low to medium probability of exceeding project budget. • Medium probability of schedule delay. Recommendation That the Board of Directors approve a total budget of $9.162 million for the Portage Bridge repairs and cycle track improvements. Submitted by: Submitted by: Daniel Champagne, Executive Director, Capital Planning Branch Gary Lacey, Executive Director, Capital Stewardship Branch _____________________________________________ Signature _____________________________________________ Signature Submission: 2018-P150 Page 1 of 11 Submission Public 1. Strategic Priorities Corporate priority 6 to demonstrate corporate excellence such that the NCC is recognized as an exemplary federal Crown corporation and steward of federal lands and assets by undertaking priority capital investments and rehabilitation projects identified in the MultiYear Capital Program to address aging infrastructure, life cycle management, and health and safety issues. 2. Authority NCC By-laws, paragraph 3.2.5 3. Context The Portage Bridge is a major transportation route over the Ottawa River for interprovincial travel between Ontario and Quebec. The traffic on the bridge includes motorized vehicles, buses, bicycles and pedestrians. The volume of traffic on the bridge is high and steady throughout the week during business hours and moderate at all other times. The crossing carries six lanes of vehicular traffic, three in each direction (northbound and southbound). The curb lane in the northbound direction and the median lane in the southbound direction operate as High Occupancy Vehicle (HOV) lanes, used primarily for buses, taxis and motorized vehicles with 3 or more occupants. Pedestrian sidewalks are provided along the entire crossing on both sides of the roadway. A bidirectional cycle track is provided on the east side of the crossing adjacent to the HOV lane. The sidewalks and cycle track are connected to the Ottawa River and Voyageurs pathways on both sides of the river. Currently, the pavement over the entire crossing is in poor condition with numerous cracks, deep rutting and numerous localized repairs. The underside of the bridge requires repairs to the concrete soffit and bridge bearings. The project is split into two phases. Phase 1 is proposed to be implemented in 2018/19, which includes rehabilitation of the asphalt surface and drainage of the bridge crossing. Phase 2 is to be implemented in 2019/20, which includes repairs to the underside of the bridge. These repairs form part of the life cycle management plan to reduce the risk to public safety, improve user comfort and maintain the bridge service life until major reconstruction in 10 to 25 years from now. 4. Options Analysis Three implementation alternatives were considered in addressing the poor condition of the surface of the crossing: 1. Do nothing; 2. Delay resurfacing and carry out minor interim repairs; and 3. Resurface the entire crossing. In the do nothing approach, the crossing would continue to deteriorate and the risk to user comfort and safety would increase such that serious injury to users would be imminent. Considering user safety as paramount, the do nothing approach is the least desirable. Submission: 2018-P150 Page 2 of 11 Submission Public In the approach to delay resurfacing and carry out minor interim repairs, the maintenance costs would increase annually in order to maintain the current condition of the crossing. It was determined that the continuous maintenance of the asphalt and concrete apron along the sidewalks and median is no longer sustainable as the deterioration is not only unsightly, but began affecting the operation of buses in the HOV lane as well as some degree of increased risk to user comfort and safety. Given the increased maintenance cost and the increased risk to user comfort and safety, this approach is not desirable. It is anticipated that resurfacing the entire crossing would have a service life for most areas until the major reconstruction of the bridge surface and superstructure in 10 to 25 years. Based on performance, maintenance effort and drainage condition, this approach may have a limited service life for the HOV lanes such that an additional resurfacing of the HOV lanes may be required prior to the major reconstruction. However, this option provides the most user comfort and safety and is therefore the preferred and recommended option for implementation in 2018/19. The project provided the opportunity to implement possible improvements to the cycle track for increased user comfort and safety. Following analysis, possible cycle track improvements include: • • Enhancements to the existing bidirectional cycle track; and Construction of a southbound cycle track on the west side. Based on these possible cycle track improvements, three options were developed: Option 1: Enhancements to the existing bidirectional cycle track through widening the area between the cycle track and motor vehicle lanes; Option 2: Enhancements to the existing bidirectional cycle track through the installation of a barrier between the cycle track and motor vehicle lanes; or Option 3: Construction of a southbound cycle track on the west side of the bridge, and conversion of the existing bidirectional cycle track to a northbound-only cycle track. Any changes to the cycle track are considered temporary until a full reconstruction of the bridge structure. During full bridge reconstruction, additional improvements to the cycle track and connections may be possible. Based on analysis and stakeholder consultation, the table found in Appendix C generalizes the results of the options. Option 3 estimated at $1,250,000 (excl. contingencies), improves the safety of cyclists and meets the standard width requirement. However, there is poor connectivity to existing and planned facilities therefore this option is the least desirable. Option 1 and Option 2 were determined to be the best options for implementation. Option 1 is relatively inexpensive ($900,000 excl. contingencies) compared to Option 2 ($2,200,000 excl. contingencies) and meets the standard width requirement. However, Option 2 provides better protection from cyclists falling into oncoming vehicular traffic. The snow removal operations under Option 1 would remain unchanged as the current practice is to store the ploughed snow on the cycle track. However, Option 2 requires additional effort to immediately remove ploughed snow that would be stored adjacent to the barrier on the roadway side. This additional effort will require additional annual funding Submission: 2018-P150 Page 3 of 11 Submission Public estimated at $50,000. The source of funding for this annual expense has not been identified. However it is noted that, by implementing the surface repair, the annual maintenance cost for localized repairs is reduced. The NCC is currently studying future pathway plans with the desire to maintain its cycle tracks during winter. If the NCC decides to maintain winter operation, Option 1 would not provide the required protection from cyclists falling into oncoming traffic especially under the slippery winter conditions. Considering public safety as paramount, the possible future pathway plans with the opportunity to implement safer winter operation of the cycle track and the consultant’s recommendation, Option 2 is the preferred and recommended option for implementation. 5. Financial Details Financial Summary Thousands Comments $8,772 Funding requested: Source of funding Total estimated project cost Funding from partner(s): NCC funding previously approved: $9,162 $0 $390 Reserved funding as per 2018-2019 Corporate Plan $9,162 Impact on future NCC operating costs: Net savings (costs) $0 Internal Rate of Return (IRR) Project payback (in years) N/A N/A Details are provided in Appendix D – Financial Details 6. Opportunities and Expected Results The goal of the project is to rehabilitate the asphalt surface of the crossing to minimize risk to public safety and maintain its service life until major rehabilitation of the bridge structure. The project offers the opportunity to replace the Bronson Channel northbound expansion joint, remove the deteriorating concrete aprons along curb and median, improve drainage and study, design and implement where possible, improvements to the bidirectional cycle track. The project will reduce the risk to public safety and improve user comfort for both vehicle operators and cyclists. Improvements to the cycle track will provide future opportunities to implement safer winter operation of the cycle track. Submission: 2018-P150 Page 4 of 11 Submission Public 7. Risks and Mitigation Measures Risk Meeting public expectations due to traffic restrictions and/or vehicular or cycle lane closures during construction. Meeting public expectations due to construction activity. Meeting public expectations of cycle track improvements. Meeting public expectations from other simultaneous construction projects in the immediate area (Bronson Pulp Mill Ruins, Richmond Landing). Single lane closures Likelihood Impact Planned Response Med-high Moderate • Inform the public by preparing and implementing pro-active communications plan. • Provide alternative access. • Restrict lane closures to off peak hours. Med-high Moderate • Inform the public by preparing and implementing pro-active communications plan. • Restrict lane closures to off peak hours. • Restrict construction activity to weekends and/or evenings Medium Moderate • Inform the public by preparing and implementing pro-active communications plan. • Develop advanced responses to possible questions. Med-high Moderate • Inform the public by preparing and implementing pro-active communications plan. • Coordinate construction activity with other projects to minimize disruptions to traffic. High Major • Communicate lane closures with municipalities, transit authorities, fire, police and paramedics. • Coordinate lane closures with municipalities and possibly police. • Minimize duration of lane closures 8. Consultations and Communications Consultations The NCC presented to the planning and operations staff of the two municipalities (Ottawa, Gatineau), OC Transpo, Gatineau police, Ottawa police and community interest groups an overview of the project scope, study context within the existing cycling network, existing conditions, alternative development and analysis, other discussion items, and next steps in order to solicit feedback on the cycle track improvement options. In addition, an on-line Submission: 2018-P150 Page 5 of 11 Submission Public public survey was conducted. The results of the consultations facilitated the analysis and results of the various cycle track improvement options in order to determine a preferred option. A consultation report is being developed and following its completion it will be posted on the NCC website for public viewing. Communications The project manager will provide project status reports to project team members and management. A public advisory and social media messaging will be prepared before construction work begins to advise pedestrians and cyclists of the proposed development and its construction impacts. Updated web content and social media messages will also be prepared throughout the work to raise awareness of the new development, its key functions and the construction/ pathway closure impacts. NCC Public Affairs and NCC Intergovernmental Relations will also inform community stakeholders and elected officials of the work to come. 9. Next Steps • • • • If required, phased Federal Land Use and Design Approval (FLUDA); Call construction tenders in May-June 2018; Award construction contract to lowest qualified bidder on June 29, 2018; Substantially complete construction work before end of August 2018. 10. List of Appendices Appendix A – Existing Conditions Appendix B – Existing and Planned Connections Appendix C – Cycle Track Improvement Options Appendix D – Financial Details 11. Authors of the Submission Daniel Champagne, Executive Director, Capital Planning Branch Gary Lacey, Executive Director, Capital Stewardship Branch Pierre Vaillancourt, Director, Design and Construction, Capital Planning Branch Marc Corriveau, Director, ULT, Capital Stewardship Branch Greg Kehoe, Chief Engineering, Design and Construction, Capital Planning Branch Marc-Antoine Poitras, A/Land Manager, Capital Stewardship Branch Michael Moroz, Project Manager, Design and Construction, Capital Planning Branch Submission: 2018-P150 Page 6 of 11 Submission Public Appendix A – Existing Conditions Cross Section Cycle Track The Portage Bridge currently includes a 2.5m wide concrete bidirectional (2-way) cycle track on the east side of the Bridge and forms part of Confederation Boulevard with a number of connections to existing and planned cycling facilities. Submission: 2018-P150 Page 7 of 11 Submission Public Appendix B – Existing and Planned Connections Surrounding Cycling Network A bicycle sensor on the Portage Bridge (installed in 2012) has counted over 300,000 cyclists every year since 2014. Between 2014 and 2017 the number of cyclists has increased by 4% each year. On an hourly basis, during the morning and afternoon commutes, the number of cyclists is over 400 in an hour. A large number of these cyclists are using the bridge to connect to the pathways in Ottawa and Gatineau. Submission: 2018-P150 Page 8 of 11 Submission Public Appendix C – Cycle Track Improvement Options OPTION 1 – WIDENED TWO WAY CYCLE TRACK This alternative widens the existing bidirectional cycle track from 2.5m to 3.0m and provides an additional 0.5m buffer between the cycle track and the vehicle lanes. The space for this widened facility is gained by narrowing the existing northbound vehicle lanes from 3.4m to 3.0m, and narrowing the existing HOV / Bus lane from 3.5m to 3.3m. Bidirectional Cycle Track Widened to 3.0m with 0.5m Buffer ANALYSIS HIGHLIGHTS • • • • • • Bidirectional cycle track meets minimum desired width of 3.0m. Northbound motorized vehicle lanes and HOV / bus lane narrowed with no impact to vehicle or transit capacity. 3.0m cycle track provides opportunities for passing manoeuvres (in opposing cycling lane when clear). Southbound cyclists heading towards Ottawa often don’t cross through the Portage/Wellington intersection and cycle the wrong way on the north sidewalk on Wellington Street. Consistent with City of Ottawa and City of Gatineau plans to provide a bidirectional cycling loop as part of Confederation Boulevard, including City of Ottawa’s ‘Downtown Moves’, the future Cross-Town Bikeway #1 on Wellington Street, and the future cycling facility on Laurier Street (Gatineau). Low cost $900,000. Submission: 2018-P150 Page 9 of 11 Submission Public OPTION 2 – PHYSICAL BARRIER BETWEEN CYCLE TRACK AND MOTORIZED VEHICLES This alternative widens the existing bidirectional cycle track from 2.5m to 2.6m and provides an additional 0.25m wide vertical barrier between the cycle track and the motorized vehicle lanes. The cycle track is raised to the same level as the sidewalk with tactile delineation to separate cyclists and pedestrians. The existing northbound vehicle lanes are narrowed from 3.4m to 3.2m, and the existing HOV / Bus lane is narrowed from 3.5m to 3.3m with a 0.5m shoulder provided between the HOV / bus lane and the new barrier. Bidirectional Cycle Track Widened to 2.6m with 0.25m Barrier and 0.5m Shoulder ANALYSIS HIGHLIGHTS • • • • • • • Bidirectional cycle track is below minimum desired width of 3.0m. Northbound motorized vehicle lanes and HOV / bus lane narrowed with no impact to vehicle or transit capacity. Additional protection to cyclists and pedestrians provided by new crash-rated barrier between cycle track and motorized vehicle lanes. 2.6m cycle track provides opportunities for passing manoeuvres. Southbound cyclists heading towards Ottawa often don’t cross through the Portage/Wellington intersection and cycle the wrong way on the north sidewalk on Wellington Street. Consistent with City of Ottawa and City of Gatineau plans to provide a bidirectional cycling loop as part of Confederation Boulevard, including City of Ottawa’s ‘Downtown Moves’, the future Cross-Town Bikeway #1 on Wellington Street, and the future cycling facility on Laurier Street (Gatineau). High cost $2,200,000. Submission: 2018-P150 Page 10 of 11 Submission Public OPTION 3 – UNIDIRECTIONAL CYCLE TRACKS ON EITHER SIDE OF THE BRIDGE This alternative modifies the existing bidirectional cycle track to a 2.0m wide northbound facility with a 0.5m buffer. Southbound cyclists will travel on the west side of the Portage Bridge in a new 1.9m wide southbound cycle track with a 0.3m buffer. The new southbound cycle track is at sidewalk level with tactile delineation separating pedestrians and cyclists. Space for the new southbound cycle track is from narrowing the existing southbound vehicle lanes from 3.5m / 4.2m to 3.2m, and narrowing the existing HOV / Bus lane from 3.5m to 3.3m. Unidirectional Cycle Tracks ANALYSIS HIGHLIGHTS • • • • • • Unidirectional cycle tracks meet minimum desired width of 1.8m. Southbound motorized vehicle lanes and HOV / bus lane narrowed with no impact to vehicle or transit capacity. Unidirectional cycle track width provides limited opportunities for passing manoeuvers. Poor connections to bidirectional pathways in both Gatineau and Ottawa will likely result in southbound cyclists using the east sidewalk or traveling the wrong-way in the northbound cycle track. Inconsistent with City of Ottawa and City of Gatineau plans to provide a bidirectional cycling loop as part of Confederation Boulevard, including City of Ottawa’s ‘Downtown Moves’, the future Cross-Town Bikeway #1 on Wellington Street, and the future cycling facility on Laurier Street (Gatineau). Median cost $1,250,000. Submission: 2018-P150 Page 11 of 11