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HomeMy WebLinkAboutINS-12-024 - Huron Road Bridge Rehabilitation - Class EA1 Staff Report KI~rCx~.~T~R Infras~rucrure 5ervrces nepari°ment www.kifthenerca REPORT TO: Infrastructure Services Committee DATE OF MEETING: May 28, 2012 SUBMITTED BY: Steve Allen, Manager, Engineering Design & Approvals 519-741-2584 PREPARED BY: Kevin Mick, Design & Approvals Engineer 519-741-2884 WARD(S) INVOLVED: 3 & 4 DATE OF REPORT: May 18, 2012 REPORT NO.: INS 12-024 SUBJECT: Huron Road Bridge Rehabilitation -Class Environmental Assessment RECOMMENDATION: THAT the Huron Road Bridge Rehabilitation Class Environmental Assessment Report prepared by AECOM, dated May 2012 be received; and That the Huron Road Bridge Rehabilitation Class Environmental Assessment Report be filed with the Ontario Ministry of the Environment for the mandatory thirty (30) day review period as required by the Environmental Assessment Act; and further; That staff be directed to commence the implementation of the recommendations of the Class EA, following the thirty (30) day mandatory review period and Ontario Ministry of the Environment acceptance of the study, through the Capital Budget. BACKGROUND: In 2011, AECOM was retained by the City to undertake a Schedule B Class Environmental Assessment (EA) study to explore alternatives to rehabilitate Huron Road Bridge. An EA is required for a bridge when the "reconstruction or alteration of a structure or the grading adjacent to it when the structure is over 40 years old, which after appropriate evaluation is found to have cultural heritage value." The bridge is situated in both Ward 3 and 4 located on Huron Road, just east of Homer Watson Boulevard. The Huron Road Bridge structure is a 9.6 metre single span, concrete on steel beam girder bridge over the Schneider Creek. The bridge was constructed in approximately 1930, and has been modified and rehabilitated several times since. Originally constructed with six steel girders, five more girders were added at an unknown date. The bridge was rehabilitated in 2000; the rehabilitation work included deck repairs and a concrete overlay, the replacement of two original girders and two replacement girders, and the replacement of a section of the original railing. The bridge received a Mike Wagner Heritage Award for the repair work completed to the bridge in 2001. Full depth deck repairs were again required in of 2010. 13- 1 The Huron Road bridge is identified in the Region of Waterloo's "Spanning the Generations: A Study of Old Bridges in Waterloo Region" as having heritage value as it is the earliest example of a bridge in Waterloo Region with a visible I-beam A structural investigation on the bridge structure, undertaken in the Fall of 2011, has found the deck to be in uniformly poor condition. The result is that the deck cannot be repaired and deck replacement is required. In order to replace the bridge deck, the railings must be removed. Installation of the new deck will require new railings to be installed. The investigation also indicated that the existing girders are in fair condition and can be rehabilitated. In order to maintain the bridge in safe operating condition, the bridge requires rehabilitation. Improvements to the Huron Road Bridge are expected to commence in late Summer of 2012 and will take approximately 2 to 3 months to complete. REPORT: The City initiated a Class Environmental Assessment study to explore alternatives to rehabilitate Huron Road Bridge in a manner that complies with Ontario's Environmental Assessment Act. The planning and design of municipal infrastructure projects must meet the requirements of the Environmental Assessment Act, which is a provincially legislated document that governs all public undertakings that have the potential to affect the environment. In this sense, the term "environment" is broadly applied to include the natural, social, cultural, constructed and economic environments. The Environmental Assessment Act essentially defines a planning and design process that proponents of projects must follow to ensure that all environmental impacts are considered, and any effects appropriately mitigated, before their project is implemented. A project team was formed and comprised of City staff, Region of Waterloo Staff, a member of Heritage Kitchener and Consultant staff with expertise in different fields, such that the project could be evaluated from multiple standpoints. The Municipal Class Environmental Assessment Document (June 2000, as amended in 2007 & 2011) provides a framework for evaluating alternatives. The key elements are: • Consideration of the effects of each alternative on all aspects of the environment • Systematic evaluation • Traceable decision making • Public and review agency input in the evaluation The Municipal Class Environmental Assessment Document (June 2000, as amended in 2007 & 2011) defines "alternative solutions" as: "feasible alternative ways of solving an identified problem (deficiency) or addressing an opportunity, from which a preferred solution is selected". Based on the opportunities and constraints analysis, alternative solutions were identified and evaluated on project-specific evaluation criteria which covered four criteria categories as follows: Technical environment Natural environment 13-2 Social environment Economic/Financial environments The main objective of the study is to determine a preferred option for the structure with respect to rehabilitation, while taking into account: • Natural and physical components of the environment • Impact to public safety • Impacts to private property • Costs • Ability to implement • Impact to heritage Bridge Safety Considerations In order to replace the bridge deck, the railings must be removed and will be unsalvageable. Installation of the new deck will require new railings to be installed. In accordance with the Canadian Highway Bridge Design Code (CHBDC), bridge railings need to withstand crash testing for specific performance levels in accordance with American Association of State Highway and Transportation Officials (AASHTO) requirements. In Ontario there are a handful of designs accepted by the Ontario Ministry of Transportation (MTO) which are typically used for most bridges. However, bridge railings have been crash tested across North America which meet the requirements of the CHBDC. Crash testing for railings is a time consuming and expensive endeavour. The Huron Road Bridge requires railings which meet the Performance Level 1 (PL-1) which is the lowest performance level accepted in Canada. In addition to requiring untested railing designs to be crash tested, different requirements are specified by the CHBDC depending on the road usage. On Huron Road it is expected that pedestrians, cyclists and vehicular traffic will continue to use the bridge. As a result the CHBDC indicates that the railing is required to meet the standards of a combination railing for crash testing, height, and openings between railing elements. The code requirements are established to protect the safety of the general public. The existing railing has a substandard height, wider than maximum allowable gaps between railings and does not meet the minimum requirements for vehicle impacts. The minimum vehicle, pedestrian and cyclist railing heights, as well as maximum gaps are indicated in Figure 1 (All dimensions are in mm). PosT RAiuNc ~ ~ RAiuN~ z Q W r o~ c~ ~ ~ ~ o r ~ U m ~5 o z o ~ ~ ~ w ~n w z PEDESTRIAN BICYCLE o ~_ ~ o ° ~ ~ x = ~ TOP OF CURB o w o ~ C° w ~ z TOP OF DECK ~ ~ z Figure 1: Existing Railing and Code Requirements 13-3 Risk and Liability Considerations As discussed above, the code requirements are established to protect the safety of the general public. The existence of a bridge element that does not meet code requirements reduces the safety to the general public and represents a liability to the City by not following code. Bridge Heritage Considerations Constructed in approximately 1930 the Huron Road Bridge was reviewed as a part of the Region of Waterloo 2004 study "Spanning the Generations, A study of old bridges in Waterloo Region Phase 1 Inventory". The bridge was identified as the earliest example of a bridge with a visible I-Beam in Waterloo Region. The heritage assessment gave the bridge a score of 60. According to Phase 2 of this report heritage bridges usually achieve a score in the range of 50 to 80 points. The Ontario Ministry of Transportation Heritage Bridge Guidelines (HBG) for Provincially Owned Bridges suggests conservation options for bridges such as the Huron Road Bridge. The eight conservation options from the HBG are listed in order of least intervention. Option 1 is to be shown as non-viable before Option 2 is considered and so on. The eight conservation options are: 1. Retention of existing bridge with no major modifications. 2. Restoration of missing or deteriorated elements where physical documentation exists. 3. Retention of existing bridge with sympathetic modification. 4. Retention of existing bridge with sympathetically designed new structure in proximity. 5. Retention of existing bridge adapted for new use. 6. Retention of bridge as a heritage monument only. 7. Relocation of bridge. 8. Bridge removal and replacement with sympathetically designed structure (salvage elements, undertake full recording and documentation of existing structure). The HBG guidelines recommend demonstrating that prior to replacing abridge/element one of the following conditions be demonstrated: 1. The safety of the existing bridge or element is compromised and cannot be rehabilitated. 2. The cost of rehabilitation is prohibitive compared to replacement (by more than 10%). 3. The bridge has been severely altered from its original form. 4. Replacement is required to meet demand requirements that are not achievable through rehabilitation or upgrading. The Canadian Highway Bridge Design Code (CHBDC) recognizes the value of the aesthetics of abridge, and recommends that bridge structures be designed so that they are perceived to be an enhancement to the natural surroundings. The Ontario Ministry of Transportation's Structure 13-4 Rehabilitation Manual (SRM) further emphasizes the importance of preserving the integrity and original appearance of a heritage bridge wherever possible. Alternatives Solutions The following alternative solutions were identified as being feasible ways of addressing the structural deterioration issues associated with this bridge. Alternative 1 - Do Nothing As part of the Class EA process, the "Do Nothing" alternative solution must be considered. In this alternative, no work would be done to the bridge. The bridge will continue to have load restrictions and will gradually deteriorate until it can no longer carry traffic. The bridge will require regular inspection to monitor the continuing structural deterioration and to ensure safety of the public. The heritage components of the bridge will continue to deteriorate. There will be no opportunity to improve the safety of pedestrian, cyclist, and vehicle traffic through improvements to the roadway and the railing. Alternative 2 -Rehabilitate the Bridge (Preferred Alternative) In this alternative, repairs will be undertaken to the existing structure to rectify any deterioration, strengthen the bridge, and remove the load posting at the bridge. As the corrosion potential survey in 2011 indicated reinforcing steel corrosion over 80%, and the deck chloride contamination was identified as significant in the 2010 condition report, the deck will be replaced. The existing railings are located directly on top of the deteriorating deck and are integral with the deck. As a result the railings will be removed and replaced. Alternative 3 -Replace the Bridge on a New Alignment In this alternative, the existing bridge will remain and a new structure will be constructed on a new alignment. The existing structure will remain in place, but be closed to vehicular traffic. The new structure will be capable of carrying full highway loading, and will also be widened to comply with current design standards. This alternative has the highest construction cost and the greatest impact to the natural environment. The original heritage Huron Road Bridge would be protected from any modifications, but will no longer act in its intended capacity as a part of the roadway system, and will gradually deteriorate and lose its heritage features. Railing Options Within Alternative 2 (Preferred Alternative) above, there were several railing replacement options that were reviewed. The necessity to replace the bridge deck as part of the bridge rehabilitation means that the existing concrete railings also need to be replaced. The review of preliminary railing options including the development of criteria for a railing to be considered further: 1. The barrier should be constructed from concrete and include reveal details facing traffic to match the original construction material and reveal inset details of the existing rail; 2. Only railings which include heritage characteristics of the existing rail, such as potential for reveal details, posts, and concrete rails will be considered. Four railing replacement options which were evaluated are represented in Figure 2, Figure 3, Figure 4, and Figure 5 and were evaluated based on: 13-5 Impact to public safety Costs Impact to heritage *~: 4°... ,~~;~ ~_, ~7 Fails to Meet Requirements of CHBDC `,~.:k Meets All Requirements of CHBDC 13-6 Figure 2: Railing Option 1 (Reconstruction of Existing Railing) Figure 3: Railing Option 2 ~.~" ?~ ,~ ~'~rr xy ~~ ~ ~ ~~ ~~~, ~~~„ ~~ ~~ Figure 4: Railing Option 3 (Preferred Option) Meets All Requirements of CHBDC 4~, .:t`'' ~ , ~~ j ~~. ~~a ~ ~~~ T- r _~ `~~ 1 G i ~' I ~" Figure 5: Railing Option 4 Meets Some Requirements of CHBDC 13-7 The four proposed railing options vary significantly in their ability to meet the CHBDC safety requirements. A comparison of the ability of each railing option to meet the CHBDC safety requirements is included in Table 1. Table 1 -Comparison of Safety and Railing Replacement Options Option Comments Option 1 Does not meet crash testing, height or maximum opening requirements Option 2 Meets all requirements Option 3 (Preferred Option) Meets all requirements Option 4 Does not meet overall height requirement for cyclists Every detail added above the typically constructed railings will result in additional labour, material and effort on the part of the contractor which will result in additional costs. However, when considering the cost of the railings with the overall cost of the rehabilitation improvements such as deck replacement and girder restoration, the variation in railing options represents a low percentage of overall construction cost. A barrier designed in accordance with the CHBDC has a lower the risk of incurring service life costs over the next 40 years, such as railing reconstruction due to vehicle impacts, snow plow damage, etc. Cultural heritage contributes significantly to what makes a community unique. Heritage bridges form an integral link between local heritage and the utilitarian purpose they were created to serve. The heritage value of a structure is based on several key criteria including Design/Physical value, Contextual value, and Historic/ Associative value. The railing option which has the greatest value to the heritage of the bridge is the railing which retains the most heritage character of the original railing. FINANCIAL IMPLICATIONS: Work completed to date on the Class EA has been accommodated in the Road Bridge Repairs account. The estimated cost of implementing recommendations of the study is $565,000 and has been accommodated in the project's capital budget account. This amount includes construction costs and staff time. COMMUNITY ENGAGEMENT: A Notice of Commencement was published in the KW Record and was sent to a mailing list of interested individuals. Two Public Information Centres (PIC) were held as part of this project. The first PIC was held in March 2012 and the second in May 2012. The PIC's were advertised through the newspaper and invitations were delivered to area residents. Signboards were also place at the bridge to advertise both PIC's. 13-8 In addition to the PIC's, the project team also presented this Committee in January 2012 and May 2012. A member of th and Regional Heritage staff also participated on the study team. CONCLUSION: study to the Heritage Kitchener e Heritage Kitchener Committee The completion of the Huron Road Bridge Rehabilitation Class Environmental Assessment study has established a preferred alternative to address the deterioration of the structure. A total of three alternatives, including four railing options, were evaluated against technical, economic, environmental and social criteria. The preferred alternative is identified as Alternative 2 -Rehabilitate the bridge with Railing Option 3. The main features of this alternative are the installation of a new bridge deck and railing. The railing consists of a replica of the existing railing built on top of a crash approved, concrete parapet wall. This railing meets all requirements of the Canadian Highway Bridge Design Code which increases public safety, while eliminating liability, with respect to replaced elements, to the City and also complements the heritage character of the bridge and surrounding area. The existing girders can be restored and reinstalled. Timing for the implementation of the recommendations will commence upon completion of the thirty (30) day mandatory review period and Ontario Ministry of the Environment acceptance of the study. Improvements to the Huron Road Bridge are expected to commence in late Summer of 2012 and will take approximately 2 to 3 months to complete. ACKNOWLEDGED BY: Pauline Houston, Deputy CAO Infrastructure Services Department 13-9 r ~, -~ _.. ~:,~ +~ _~ _ ~ ~ L ~ ~"~ Z N U w N °' ~ ~ ~ ~ ~ w N ~ ~ ~a ~ - ~ O ~ C~ DC ~ ~ ~ ~ ~ `~ N a~ ~ ~ ~ ~ - ~, - ~ o W ~ ~ '- N ~o ~ ~ o '> C~ °° - ~ N DC ~ m W ~' O ~ N ~' C~ o U ~ ~ a_ ~ ~ o~ ~c ~ 00 U Z ~ ~ .- O- ~ ~ O ~ ~~ ~ U = s Cn v a '~ „ . ,r - , ,,~ ~` - - ~ ~ '- ~ f - ~ 7 _ a ' i~ ~ ~ .1 ~~__~~ _ __,, ~~ ~ - J ~~ w 0 m D Q O z 0 z z W W ~~ ~ ~.' ,'~ ;~ ~ ~t ~~ ~~~ a N r O N 00 N A {_ t -_ ~~ .~~, ~ - -- J ~: .~ rvn/ v / U L • ^~ ~/ V, ~n' W U ~^' •W^ •v•^^, V, V, W .~ ~~ }~ U ~ .~ O O L ^ ~ ~ / N L L~ 0 0 U O .~ N O N L~ 0 N U ,~ ~'_ ~, ~~ a Y' q ~ ^~p .Y ~ ~+ "~ w U 0 L Q W _~ U ~a ~ N '~ ~ C~ ~ G ~ ~ ~ ~ (~ O ~ m ~ N ~ ~ ~ L U ~ (n ~, N ~ ~ U ~ U ~ ~ ~ ~ ~--~ fA _~ ~ ~ .~ o~ U }' ~ ~ ~ ~ ~~ ~ L~ •~ ~ >, O L Q O V ~ ~~ ~ ~ a ~' 0 U ~.+ ~ ~ V L 0 ~ ~ +.+ ~ ~ ~ V) i C a~ ~ ~ ~ ~+r~~>+O i ~ ~ 7 ~ N d O W Q ~ fA a ~ N ~>+ N ~' ~' ~ ~ v G1 ~ i ~ ~ d ~= . 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E E Q~ 0 C ~ N ~ ~ ~ ~~ O •~ o L(~ O ,~ O N ~ N ~ .-. o ° ~ ~ ~ o o ~ o ~ .-. o ~ o U ~ E~ N ~ +J U a ~ o ~ ~ 0 ~~ ~ S O U ~ c0 N U o ~ ~ ~ ~ ~ ° ~ ~ d co W N N ~ co ~ ~ ~' ~ 0 ~ ~ co > - ~ H N N ~ N L ~ ~ ~ ~• \° U Lf') o ~ ~ O "~'' ; CV ~ L ; ~ N to r ~ N ~ > ~ p ~ ~ ~ ~ ~ ~ ~_ ~ o ~ ~ Q ~' o u, U ~ ~- ~ O U ~ U ~ m _ ~ i ~ ~ a~ ~ ~ U ~ > ~° o ~ v ' O ,~ ~ o > O o .~ ~ cn ~ ~ ~ ~ ~ ~ ° ~ ~ a o ~ ~ Q U ~ V ~ ~ ~ o ~ ~ O ~ ' c~ d H >, ~ 2 ca ~ d W O U N U W O U~ fA ~ d N 2 N L y--~ Q N L L ~~ .~~, ~ - J ^' W > •- L .. ^' W ~ O •- ^' • - VJ L L •- ^ ' W ~n~' L X11 O ~ O ~ ~ .-. ~ ~ V ~ ~ ~ Q O E M N ~ N O ~ ~ +~ (~ ~ ~ N ~ ~ ~ ~ N (~ O ~ L ~ ~ ~ Q ~ ~ 0 ~ ~ O U ~ O ~ N 0 0 ~ ! N ?~ ~O ~ p ~ ~ (~ ~ v ~ to N ~ }, U = 0 +~ ~ ~ ~ Q ~ ~ ~ 'X N O U (~ ~ ~ ~ N ~ ~ ~ ~ j L ~ ~ ~ L ~ ~ . U ~ L ~ v • O U N L U U ~ •~ ~ O X ~ +~ . O N E p 0 ~ ~ ~ N N ~ U ~ o ~ ~ ~ > c~ ~ ~ c~ \- / . O ~^^ ~.L O ~~ .~ ~, ~ - ~~~I q_ - g ~~ ~~. ~ - J ~: „~ ~--+ O U O ~--+ U ~, J 0 U L ~ > ~ ~~ U L .~ O ~ ~ ~ ~ O O O O O to O ~ O N M ~ Q ~ f~ ~ 0 (~ N ~ ~ O ~ }, N L • - to Q~ ~ Uj ~ ~ ~ N ~ O ~ ~ ~ .O ~ - ~ ~ ~ _ O ~(~ ~ ~ O ~ ~ ~ ~ L ~ ~ ~ ~ ~ ~ ' L `~ O O Q ~ U ~ ~ N ~ ~ _ N ~ O U ~ ~ ~ `~ ~ O U Q ~ ~ ~ ~ L N ~ U ~ +~ L N ~_ . ~ ~ ~ ~ U ~ ~ ~ ~ o ~ ~ ~ ~ ~ O ~ O ~ ~ ~ ~ ~ ~ ~ a~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ _ ~ ca o }' (~ ~ ~ ~ m W .~ ~ .~ ~ N i . _ ~ i z ~~~ f ~ ~ , t r ~ - ~ i~ ~' ~ ~~ ~~. ~ - J ~: „~ ~ / ~~ (^'~`J W \W O L O ^ ~ ~+ Q V/ n` W ~[~ `/ ~\ `// V, L .~ .~ ~ O O L ~ (~ ~ ~ ~ ~ .~ O i fA (~ N ~ ~ _ }' O N L ~ ~ (~ Q O ~ ~ ~ .~ L .L ~ 0 O . O O O 0 ~ U ~ ~ N 0 .- ~ ~ ~ ~ • ~ ~ ~ ~ ~ ~ ~ ~ ~ N • to to ^ W _ ~ ~ ~ ~ L •~ ~ ~ L 0 Q ~ ~ 0 ``^ VJ ~ ~ ~ ~ ~ Q • • • • • y~ r`\ 4 ~. s~ Y ~~ I~ I _ ~ I I I i4 ~~ ~~ 41Y ~a p~ 1 ~1 ~~ _ Z V 4a° ~~~ I ~ ~~ i ~ h~ i I ~~ i li ili ~~ ii ~ i i i I ~1 ~~ Y ~,~ I ~~ , I- ! III ~~ ~~. ~ - J ~~ .~ ~--+ C~ 0 U .U ~, 4 ~ , ,~ • .~ ~--+ C~ _--+ U .U _~ U .~ 0 O U ~4 7" ~` ~3~ y L Q N N v~ 0 c~a Z U 0 a c~a Q W L 0 N U ~ N ~ o ~ ~ ~ ~ ~~ ~_ ~ o ~ ~ '> ~ ~ I o a~ ~ N ~ U ~ ~' ~~ ca can ~_ ~ L U ~ O . ~ .~ . ; N N .~ 0 U .~ Q .~ N L 2 O 0 Q W 0 N 'o U L _~ N N U 0 I N U 0 0 U L 0 N O N c~a v~ ca N .~ N 0 0 N N N ~l ~. ++ ~ ~~ I ~~+ {_. } -_ ~~ ~~. ~ - J ;_ „~ ~--+ ~--+ z 0 L .~ 0 . L O 0 ~ '~ ~ N ~ Q O +~ ~ ~ ~ N O .~ •~ O U ~ ~ ~ ~ ~ ~ L O O M ~ L O 0 N ~ ~ ~ ~ ~ ~ O ~ ~> LL W ~~ ,. `~' .~r ~; ~ ,~~ ~,.~+ r N O N N ~ ~ ~ ~ .~ N ~ ~ ~ ~U N '~ ~ N ~ ~ O `1 U ~ L N ~ O ~ U ~~: ~ _ . ~g R= ~ _ -.