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HomeMy WebLinkAboutINS-14-066 - Margaret Avenue Bridge Replacement REPORT TO: Council DATE OF MEETING: June 30, 2014 SUBMITTED BY: Steve Allen P.Eng, Manager, Engineering Design and Approvals, (519)742- 2200 x7584 PREPARED BY: Shailesh Shah P.Eng, Design Engineer (519)742- 2200 x7144 Steve Allen P.Eng, Manager, Engineering Design and Approvals, (519)742- 2200 x7584 WARD(S) INVOLVED: Ward 10 DATE OF REPORT: June 24, 2014 REPORT NO.: INS-14-066 SUBJECT: Margaret Avenue Bridge Replacement ___________________________________________________________________________ RECOMMENDATION: That staff be directed to proceed with Alternative 1 as outlined in Community and Infrastructure Services Report INS-14-066. BACKGROUND: The Margaret Avenue Bridge has been closed since June 2013 following the receipt of a structural engineers’ report recommending it be closed immediately. A Peer Review of the initial recommendation was undertaken which supported the original findings. A consultant was retained to evaluate short and long term alternatives and costs for this bridge and their report was received on August 23, 2013. This information was presented to Council on September 9, 2013, and staff was directed to proceed with demolition of the existing structure and initiate the design of a replacement bridge as outlined in Community and Infrastructure Services Department report INS 13-076. Subsequently, the bridge structure was removed in fall of 2013 and a consultant was retained to design a replacement bridge. Design is essentially complete and tendering of the new bridge is anticipated to begin mid July 2014. The current design is to provide a bridge opening sufficient to span 2 rail tracks as directed by Council. This opening is consistent with information received to-date from the major stakeholders, and similar to the previous structure. 5 - 1 Recently, several announcements on the future of passenger rail service between Kitchener and Toronto have prompted numerous discussions regarding the suitability of a bridge spanning 2 tracks. It is essential to review alternatives that meet the long-term future needs. REPORT: The Margaret Avenue Bridge currently spans 2 tracks. One is the mainline track and the other (north) track is used as a siding. The current proposed new bridge design accommodates an opening sufficient for the 2 existing tracks based on Transport Canada and CN Rail Design guidelines. All Railway authorities including CN, Genesee & Wyoming (parent company of Goderich Exeter Railway), VIA and GO Transit were contacted in February 2014. As of June 2014, all stakeholders have concurred with the City’s proposed cross section accommodating 2 tracks. GO Transit has also confirmed that the 2-track opening is sufficient to meet all GO Transit future plans including those for two-way all-day, seven day service. Design and tendering of the new bridge is currently underway with an anticipated opening in spring 2015. Over the last several months, various political announcements on future passenger rail service between Kitchener and Toronto, coupled with high-level commentary from senior officials have led to further review of the suitability of a 2-track opening. Future plans for GO train expansion considered in conjunction with other users of the railway (CN, VIA, G&W) presents a compelling case for a third track in the vicinity of the Margaret Avenue Bridge. There are currently two rail tracks under the structure. The addition of a third track would require an increased length for the new bridge. Notwithstanding GO Transit’s responses to-date confirming that the proposed 2-track envelope meets their requirements, it is in the City’s interest to once again review this issue which is driven by the following recent developments; The originally tabled provincial budget included funding for two-way, all-day GO train service between Kitchener and Toronto. Based on the outcome of the provincial election, the same budget may be brought forward. Two-way GO service is an important regional priority that supports other long term priorities for the City (intensification, innovation district, economic development strategy, improved multi-modal options) and is supported by the cities of Waterloo, Guelph, Townships of Woolwich and Wilmot and the Region of Waterloo. The province has indicated that this would be implemented within 5 years. GO Transit’s Vice President of Operations was reported as saying that a double-track along the Toronto-Kitchener will be required in order to provide efficient service. In the area of the Margaret Avenue bridge, there are freight operations that will compromise the ability of the 2 tracks to be used efficiently for passenger rail service. In May 2014 Ontario’s Transportation Minister proposed 2-way all day electrified high speed rail service between London-Kitchener-Toronto and indicated that it could be completed within 10 years. High speed rail would require a dedicated track that could not be used for freight. Therefore, at least two dedicated tracks would be required to accommodate the high-speed rail and the freight lines under the bridge. 5 - 2 Metrolinx has an agreement in principle to purchase 53km of the CN line between Georgetown and Kitchener which will provide increased flexibility and efficiency. This includes the corridor running under the Margaret Avenue bridge. The provincial government has also committed to electrifying the entire GO rail system. More detailed analysis was completed to determine the cost to construct a new 3-track bridge span. Construction of a longer span that is sufficient for a 3-track opening will cost approximately 20%, or $1.2M more. This is considered a moderate increase. If the shorter span is built now and is replaced in the future with a 3-span bridge, the future cost will include demolition of the 2-span bridge, construction of a 3-span bridge and traffic and pedestrian interruption for approximately 1 year. The future cost is estimated at $8.0M (2014 dollars) There are three alternatives available to the City: ALTERNATIVE - 1 PAUSE PROJECT UNTIL THERE IS MORE CLARITY ON THE LONG-TERM BRIDGE OPENING REQUIREMENTS: This alternative is a short-term option until there is more clarity on the long-term bridge opening requirements. To mitigate the impacts of the delay, a temporary pedestrian bridge could be installed. The City would continue to engage the stakeholders in discussions about the most appropriate bridge opening, which would include cost-sharing discussions on a larger opening. Staff considers this option the best alternative. Pros: Provide temporary pedestrian bridge in the short term Provides time for provincial plans to advance Cons: A delay in the current schedule and a large uncertainty on when a permanent bridge would be built Cost incurred for a pedestrian crossing will be a throw-away cost and will be additional to a new crossing, increasing the overall cost of the replacement The Weber Street grade separation is currently under construction and will be fully open this fall. This accommodates 4 lanes of traffic as opposed to the original 2. The completion of this grade separation will alleviate some of the traffic concerns regarding the continued closure of the Margaret Avenue crossing. The initial cost for installing a rental pedestrian bridge is anticipated to be $150K for 1-year and $80K per year thereafter for continuing rental and maintenance. (Class C estimate) Installation of a pedestrian bridge could be completed September-October 2014. 5 - 3 ALTERNATIVE - 2 LONGER BRIDGE SINGLE SPAN (23m) ACCOMMODATING 3 TRACKS This alternative sees building a longer single span bridge accommodating space for 3 tracks now. This will be a proactive option that will meet any future requirements for track expansion within the 75-year lifespan of the structure. The Weber Street grade separation also has rd provision for a 3 track to be added at a later date. This was funded by Metrolinx / GO Transit. Staff considers this option to be the second-best of the three options. Pros Cost to build a longer single span not significantly more expensive (additional $1.2M) when compared to a rebuild later Unlikely that any future modification to the bridge will be required for the anticipated lifespan of the bridge Cons Higher upfront cost with uncertainty on whether the enlarged opening will ever be required Would result in delay in construction by 3 months due to change in design Risk that the City will have to pay for the incremental cost Selection of this alternative will change the scope of the original project and will result in 3 months delay and cost increase. The current Purchase Order issued for the design of the new bridge would need to be extended by Council resolution. The cost for building this longer span bridgeaccommodating three tracks is estimated to be $7.5M Construction would start in November 2014 with completion by July 2015. This alternative will add about 3 months of additional design plus an Environmental Approval process. ALTERNATIVE - 3 SINGLE SPAN BRIDGE ACCOMMODATING TWO TRACKS (CURRENT DESIGN) This alternative accommodates an opening sufficient for the 2 existing tracks (currently one mainline and one siding). This option relies on GO Transit’s statements to-date that the proposed 2-track envelope is sufficientfor the future levels of GO Transit service including those plans envisioned in recent announcements. In order to accommodate GO service expansion, the siding track would be converted to a second mainline track by Metrolinx/GO Transit when that capacity is required. Staff considers this option to be the least preferred of the three options available. The lifespan of the proposed structure is approximately 75 years. The perceived shortcoming of this option is that if a third track is required within the lifespan of the bridge, the structure will need to be completely rebuilt with associated loss of service for approximately one year for construction. 5 - 4 Pros Can be completed within the existing budget Timing is consistent with public expectations to-date Current design is 90% complete Consistent with Council direction Cons Limits railway corridor to existing opening. No room for expansion. Future expansion will be expensive. It would cost the proponent approximately $8.0M (2014 dollars) to rebuild the bridge with a larger opening and the bridge will be out of service for about a year. Total cost to taxpayers would be approximately $14.3M (2014 dollars) when including the cost of building and removing the 2-track bridge. The cost for building this single span accommodating the existing 2 tacks is estimated as $6.3M. Funding for this alternative has been approved through the 2014 Budget Issue Paper Cap 05, report dated INS 14-048 Construction is anticipated to start by August 2014 with completion by spring 2015. ALIGNMENT WITH CITY OF KITCHENER STRATEGIC PLAN: The Alternative to replace the Margaret Avenue Bridge will continue to contribute to Quality of Life for residents in the City, by investing in infrastructure that will support our future growth. Expansion to a 3-track opening will ensure that the public investment in this infrastructure is realized over its intended 75-year lifespan. FINANCIAL IMPLICATIONS: Through the capital budget process, $6,268,000 has been approved for the removal and replacement of the Margaret Avenue bridge through the 2014 Budget Issue PaperCap 05 – Margaret Avenue Bridge Replacement as outlined in Infrastructure Services Department report dated INS 14-048. The following are the financial impacts of each alternative: Alternative 1 (Pause Project – Install Pedestrian Bridge) The installation of a pedestrian bridge would be funded from the existing approved funding. The remainder of the funding would remain in the capital account until such time as a decision is made with respect to the final bridge configuration. It is likely that the budget would need to be increased in the future due to cost escalation and the use of project funds for a pedestrian bridge. Alternative 2 (Longer Span) The adoption of Alternative 2 will result in an increase in total project cost of approximately $1.2M. The total cost will be mostly funded through the existing approved funding. The additional $1.2M would be financed through a loan from the Economic Development Reserve Fund given the strategic alignment of improved commuter rail service with the City’s Economic Development agenda. The loan would be repaid in the future through Building Canada Fund (BCF) grants and an associated City budget contribution for the City’s 1/3 share or, should the application be unsuccessful, from the increased Federal Gas Tax grant in subsequent budgets. 5 - 5 If Alternative 2 is preferred then the existing purchase order for the current design consultant should be extended by $274,703 (incl. HST) to complete the additional design work required for the larger bridge span. This amount is included in the $1.2M. Metrolinx/GO Transit’s official position on the required opening is that the current proposed 2- track configuration is sufficient to meet their needs in the foreseeable future. Therefore, any cost sharing on the enlarged opening is unlikely. Staff would continue to work with Metrolinx/GO Transit on potential cost sharing options. Alternative 3 (Single Span – Current Design) This alternative is what was identified during the 2014 budget process and is fully funded within the approved $6,268,000. If a longer span is required in the future, the entire bridge replacement cost would be the responsibility of the proponent which would be the owner or a user of the railway. COMMUNITY ENGAGEMENT: The Margaret Avenue Bridge Design Public Information Centre (PIC) was held on May 8, 2014. Many members of the public representing residents and developers attended and provided comments and concerns. To construct longer span bridge the project will undergo a Schedule B - EA process. Residents will be notified in advance and be given an opportunity to contact City staff with any questions or concerns. Public Information Centre will be planned in order to allow the public to participate in a public meetings. CONCLUSION: The design of the replacement Margaret Avenue bridge is essentially complete and construction is anticipated to begin in August 2014. Increased media attention regarding intensified passenger service within the Kitchener-Toronto corridor including GO Transit expansion and statements regarding high speed rail has led to a need to review the sufficiency of the 2-track opening being able to meet all users’ needs. These users includes GO Transit, VIA, and the freight operations that occur within this opening. rd In addition, the cost to increase the span to accommodate a 3 rail track is only moderately more than the construction of a 2-track span. While all users have indicated that the current proposed opening will meet their respective needs for the foreseeable future, all options regarding this issue need to be considered by Council before construction begins on a 2-track option. Staff have concluded that Alternative 1 which would see a pause in the project until there is more certainty regarding the span of the bridge, is the best option to adopt at this time. The second-best alternative is Alternative 2, to build a 3-track span now. The least preferred alternative is Alternative 3, building a 2-track span. ACKNOWLEDGED BY: Pauline Houston, Deputy CAO Infrastructure Services Department 5 - 6