Scarborough Subway Extension Project Assessment - Draft Terms of Reference

SCARBOROUGH SUBWAY EXTENSION

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Scarborough Subway Extension

Draft Terms of Reference


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1.0 Introduction and Background1.1 Introduction

Toronto City Council recently confirmed support for an extension of the Bloor-Danforth Subway fromKennedy Station to Scarborough Centre and Sheppard Avenue. This subway extension will replace theaging Scarborough Rapid Transit (SRT) line. The City of Toronto with support from the Toronto TransitCommission (TTC) is undertaking the Scarborough Subway Extension Project Assessment (SSEPA) todetermine key aspects of this rapid transit project such as route alignment, station locations, constructionmethods, maximizing benefits to local communities and strategies for mitigating adverse impacts. Arecommended alignment and station locations will be presented to the TTC Board and Council for approvalat the conclusion of this study.

A Transit Project Assessment Process (TPAP) is required before the City and TTC may proceed withimplementation and construction. The TPAP is a streamlined self-assessment process for transit projectsto satisfy the requirements of the Environmental Assessment Act; which is administered by the Ministry ofthe Environment and Climate Change. The TPAP is a final project review which will assess potentialenvironmental impacts and identify proposed mitigation strategies to be employed during the design, construction and operation of the project.

1.2 Project Background

The SRT line opened for service in 1985 and it operates between Kennedy Station on the Bloor-Danforth Subway and McCowan Station. After almost 30 years of continuous operation, the SRT’svehicles are reaching the end of their normal lifespan. The SRT would need significant rehabilitation,new vehicles, and updated technology in order to support existing and future transit service needs andaddress the problems associated with the aging SRT Line.

There has been considerable study and discussion in recent years about the preferred manner in which toaddress the problems on the aging SRT line. In 2006, the TTC evaluated options to upgrade orreplace the SRT; completing the SRT Strategic Plan – a comprehensive study of options for replacingthe aging and decreasingly-reliable vehicles, upgrading the system’s infrastructure as necessary, andpotentially expanding the line. The initial recommendation was to purchase larger, new generation SRTvehicles, and make the physical modifications at SRT stations that were necessary to accommodate thenew, longer vehicles.

In 2007, one year after the SRT Strategic Plan – the Transit City Light Rail Plan was introduced, whichcalled for the implementation of seven light rail lines throughout the City of Toronto. In that context, it wasrecommended that the SRT rehabilitation adopt light-rail technology in order to take advantage of theeconomies-of-scale cost savings which would result from the acquisition of a large fleet of light-railvehicles to operate on the proposed City-wide network.

An Environmental Assessment (EA) for the replacement of the SRT with light rail vehicles, including acomplete rehabilitation / reconstruction of the existing elevated structure, was completed in 2010. Theproposal was to extend the new line beyond its current terminus – at McCowan Station – to CentennialCollege and then north to Sheppard Avenue. The EA also addressed a second, future extension north ofSheppard Avenue, to the Malvern Town Centre.


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Most recently, in 2013, the TTC Board, and subsequently, City Council, confirmed support for replacing the SRT with an extension of the Bloor-Danforth Subway, with stations at Lawrence Avenue,Scarborough Centre and at Sheppard Avenue – where the subway would interconnect with the futureSheppard East LRT line. Council’s decision to extend the Bloor-Danforth subway north and east intoScarborough is based on the following benefits:

• Higher speed;• Most-reliable, highest-quality rapid transit service; • Elimination of the transfer at Kennedy Station; Higher ridership; and• Consideration of alignments other than the existing SRT routing, which would then not

require shutting down the SRT during construction of a subway extension.

All decisions relating to the alignment and station locations are subject to a further EA.

The SRT service has been very successful in attracting ridership and has been operating over-capacity for a decade. For many years its peak-period passenger volumes have been maxed-out at 4,000passengers per hour, with no ability to improve the capacity because of the limited number of vehicles inthe fleet and limited station size. Analysis to date has shown if the SRT were replaced by a continuation and extension of the Bloor-Danforth Subway north to Sheppard Avenue, it would carry passengersvolumes of upwards of 9,500 passengers per hour per direction (pphpd) in the busiest hour of travel. The additional ridership results from the higher operating speeds between the key points of Sheppard Avenue, the Scarborough Centre and Kennedy Road. The elimination of the existing SRT / subway transfer at Kennedy Road and also contributes to increased passenger convenience which in turns increases trip attractiveness and ridership.

Planning Context

The planning framework for the Study Area is established under the Province’s Growth Plan for theGreater Golden Horseshoe, The Big Move regional transportation plan by Metrolinx and the TorontoOfficial Plan. Key growth areas within the Study Area include Scarborough Centre, sections of LawrenceAvenue and Sheppard Avenue, and existing and planned transit stations.

• Locally and provincially, Scarborough Centre is identified as a major focal point for growth. Itis a locally-designated Centre under the Toronto Official Plan, and a provincially-designated urban growth centre under the Growth Plan. Scarborough Centre is targeted toachieve a minimum density of 400 residents and jobs per hectare by 2031, and is subjectto a Secondary Plan and complementary precinct-level plans that provide direction forfuture development.

• Major transit station areas are also identified under the Growth Plan for the Greater Golden Horseshoe as important nodes where transit supportive development will be encouraged. The most important station areas are identified as Mobility Hubs under The Big Move. Within the study area, the area around Kennedy Station is identified as Gateway MobilityHub and Scarborough Centre as an Anchor Mobility Hub.

• Under the Toronto Official Plan, the designated Avenues in the Study Area are also intended to accommodate significant growth. These areas include sect ions of Lawrence Avenue and Sheppard Avenue East.


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1.3 Purpose of This Document

This Terms of Reference document has been prepared to publicly outline the framework for completingthis study. The Terms of Reference outlines the study purpose, objectives, and approach to the technical analysis and public involvement, as well as the work that the City of Toronto and TTC will undertakethe pre-planning work, leading to the preparation of the environmental assessment under the TPAP. Thisdocument outlines the Study Team’s approach to determine the recommended alignment and station locations for the Scarborough Subway Extension.

Enhancements and modifications to the process and work tasks will be confirmed as the studyprogresses to reflect new information, study findings and the consultation input received throughout thestudy.

1.4 Study Team Organization

A Study Team has been formed to direct and lead the project. The Study Team will be led by the City of Toronto's City Planning Division and the TTC, and will include key staff from both organizations. TheSSEPA is guided by the Transit Executive Committee, which is co-chaired by the City Manager and theTTC CEO. A team of external technical experts has been selected to provide advice and expertise to theCity and the TTC.

A Technical Advisory Committee (TAC) comprised of staff from relevant City Divisions and TTC groupswill advise the Study Team and ensure cross-Division cooperation leading to the successful completion ofthe planning phase of the project. The City will also work closely with Metrolinx and other agencies toensure the SSEPA achieves its objectives in a timely manner.

2.0 Project Description2.1 Purpose of the Study

The purpose of the SSEPA is to identify the preliminary design of the preferred alignment and stationlocations for the extension of the Bloor-Danforth Subway from Kennedy Station through ScarboroughCentre to Sheppard Avenue. The recommended subway extension will be documented in anEnvironmental Project Report, in accordance with the Province’s TPAP (Ontario Regulation 231/08).

2.2 Project Objectives

Specific objectives to guide the planning process in determining a recommended plan for the subway extension are:

1. Support the City-building principles outlined in the City’s Official Plan and Provincial Policy Statement:

A. Design and integrate subway stations to complement the existing and planned land uses.

B. Use high quality transit as a catalyst for intensification and new transit-supportive development in designated growth areas.

C. Encourage transit oriented development in the vicinity of all station sites.


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D. Improve the public realm at access points and within subway station areas.

2. Make transit as attractive a travel option as practically possible in this area of Scarborough:

A. Provide fast, efficient, reliable, safe and enjoyable subway service to address existing and future travel demands and enhance transit service.

B. Locate and design subway stations in a manner that improves access and integration with the existing and planned transportation network including local and regional bus services, and other rapid transit planned for the area.

C. Locate and design subway stations in a manner that promote seamless pedestrian connections (including below-ground, at surface, and/or above ground pedestrian connections).

D. Locate and design subway stations in a matter that promotes seamless connections for customers cycling to the stations.

3. Minimize Adverse Environmental Impacts:

A. Identify positive effects on or opportunities for the natural, socio-economic and cultural environments associated with the construction and operation of the project.

B. Identify and to the extent possible, mitigate, any adverse effects on the natural, socio-economic and cultural environments associated with the construction and operations of the project.

4. Achieve Cost-Effectiveness

A. Optimize cost effectiveness in terms of both capital and operating costs.

2.3 Study Area

The Study Area is illustrated in Figure 2-1. A wide range of reasonable alternatives to be considered willfall within this area.

The SSEPA will consider all effects on the entire transit network. Potential impacts outside of the primaryStudy Area are also very important and will be examined as part of this study (where appropriate). Thefull suite of potential impacts that will be carefully considered by the SSPA, which include but are notlimited to: effects on the natural environment, existing and planned infrastructure, and built form andneighbourhoods within the Study Area.


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Figure 2-1: Scarborough Subway Extension Study Area [TO BE UPDATED]

Legend: Scarborough City Centre

South Study Area

North Study Area

2.4 Overall Study Approach

The SSEPA will be completed through the following four key study phases:

Phase 1 – Setting the Stage

Work to be completed in Phase 1 will include the following:

• Finalize the study purpose and objectives;• Identify the study area;• Finalize the study process including approach to consultation; • Establish the existing conditions and assumptions;

Figure 2-1: Scarborough Subway Extension Study Area


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• Determine the long list of reasonable alternatives; and • Identify the evaluation criteria.

Key elements for the public to provide comment and input on will include:

• Project objectives;• Study process including approach to consultation;• Existing conditions and assumptions; • Long list of reasonable alternatives; and• Evaluation criteria.

Following consultation on Phase 1, this document will be finalized and will guide the subsequent studyphases.

Phase 2 – Choosing the Corridor


• Finalize evaluation criteria;• Apply the evaluation criteria to reasonable options to select a preferred corridor; and• Within the preferred corridor:

− Develop alternative station location options− Develop a list of possible alignments


• Application of the evaluation criteria; and • Station location options and alternative alignments within the preferred corridor.

Phase 3 – Recommending the Alignment and Station Locations


• Apply evaluation criteria to select preferred station locations and alignment;• Create a functional design for the recommended alternative; and• Identify potential impacts and appropriate mitigation strategies associated with the

recommended design.


• Recommended station locations and alignment;• Functional design of stations; and• Potential impacts and proposed mitigation strategies.

At the end of Phase 3, a draft Environmental Project Report identifying the recommended station locationsand route will be prepared. Authority will be sought to commence the TPAP for final project review from the TTC Board and Toronto City Council at the end of Phase 3.


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Figure 2-2 below highlights the multi-phase approach that is being proposed by the study team to determine the alignment and station locations for the Scarborough Subway Extension.

FIGURE 2-2: Identification of Alignment and Station Locations Through Phases 1-3

Phase 4 – Final Project Review - Transit Project Assessment Process

Phase 4 of the project assessment will satisfy the requirements of the Environmental Assessment Act andTPAP:

• Summarize and review the analysis and decision-making of the project assessment;• Finalize the Environmental Project Report; and, • Seek authority to proceed with construction of the Scarborough Subway Extension from

Toronto City Council and the Province of Ontario.

It is anticipated that the TPAP will take place in early 2016. The process will provide opportunity for thepublic to review the work of the project assessment and provide any additional input. Based on thisfurther input, the Environmental Project Report will be finalized and a Statement of Completion will bepublished and submitted to the Minister of Environment and Climate Change. After a review period ofapproximately three months, the City will be able to proceed with implementation of the subway extensionas per direction of the Minister.

More information about Ontario's TPAP can be found by accessing the following links:

• Ontario Regulation 231/08• Guide to Environmental Assessment Requirements for Transit Projects


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2.5 Appropriate Timelines

The SSEPA is scheduled to be completed by mid-2016. Key consultation events will occur as part of eachproject phase (refer to Figure 2-3).

FIGURE 2-3: Key Consultation Events [ TO BE UPDATED]

2.6 Evaluation Approach and Criteria

The development of the Evaluation Criteria is based on the City’s list of 8 decision-making criteria that have been identified through the Official Plan review of transportation policies to guide Toronto’s decisions on transportation investments. The intent of adopting these factors for the evaluation of the Scarborough Subway Extension's alignment and station location options is to have an aligned vision and to employ similar criteria in making investment decisions about transportation projects.

The evaluation of alternatives will be comprehensive (relative to the City's 8 decision-making criteria, study objectives and Study Area), understandable, replicable, traceable and participatory (involving inputfrom interested and potentially affected stakeholders). The process of selecting the recommendedalignment will be based on the identification of the alternative that best serves the City's list of 8 decision-making criteria, project objectives and sub-objectives. In order to focus the analysis, specific measurablecriteria have been created to correspond to each objective.

STUDY PROCESS

CHOOSING THE CORRIDOR

PREPARE DOCUMENTATION

Q3 Q4 Q1 Q22014 2015 2016

Q3 Q4 Q1

PIC #1

Q2

PHASE 4

SETTING THE STAGE

PHASE 1 PHASE 2 PHASE 3

PIC #4

PIC #2

PIC #3

TRANSIT PROJECT ASSESSMENT PROCESS

RECOMMENDING THE ALIGNMENT

AND STATION LOCATIONS

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2.5 Appropriate Timelines

The SSEPA is scheduled to be completed by mid-2016. Key consultation events will occur as part of eachproject phase (refer to Figure 2-3).

FIGURE 2-3: Key Consultation Events [ TO BE UPDATED]

2.6 Evaluation Approach and Criteria

The development of the Evaluation Criteria is based on the City’s list of 8 decision-making criteria that have been identified through the Official Plan review of transportation policies to guide Toronto’s decisions on transportation investments. The intent of adopting these factors for the evaluation of the Scarborough Subway Extension's alignment and station location options is to have an aligned vision and to employ similar criteria in making investment decisions about transportation projects.

The evaluation of alternatives will be comprehensive (relative to the City's 8 decision-making criteria, study objectives and Study Area), understandable, replicable, traceable and participatory (involving inputfrom interested and potentially affected stakeholders). The process of selecting the recommendedalignment will be based on the identification of the alternative that best serves the City's list of 8 decision-making criteria, project objectives and sub-objectives. In order to focus the analysis, specific measurablecriteria have been created to correspond to each objective.

STUDY PROCESS

CHOOSING THE CORRIDOR

PREPARE DOCUMENTATION

Q3 Q4 Q1 Q22014 2015 2016

Q3 Q4 Q1

PIC #1

Q2

PHASE 4

SETTING THE STAGE

PHASE 1 PHASE 2 PHASE 3

PIC #4

PIC #2

PIC #3

TRANSIT PROJECT ASSESSMENT PROCESS

RECOMMENDING THE ALIGNMENT

AND STATION LOCATIONS

FIGURE 2-3: Key Consultation Events


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3.0 Public Consultation 3.1 Public Consultation Guiding Principles

The goal of the project’s proposed public consultation program is to generate broad participation and solicit input from community leaders, stakeholders and the public. Participation by those with local, city-wide and regional interests will strengthen the project and lead to the successful implementation of the subway extension.

The public consultation will be guided by the following principles:

Inclusiveness.......engage the widest possible audience through multipleconsultation opportunities;

Timeliness............offer early and ongoing opportunities for participation well beforedecisions are made;

Transparency.......participation will be widely communicated through multiplecommunications channels;

Balance ................provide opportunities for a diversity of perspectives and opinions tobe raised and considered;

Flexibility..............adapt as required to meet the needs of participants; and

Traceability ..........demonstrate the impact of participant input on decision making.

3.2 Public Consultation Plan

A draft Public Consultation Plan will be developed to outline the engagement methods and approach thatwill be used in all phases of the SSEPA. The plan will be finalized after receiving input from the publicduring Phase 1.

The City will design a community engagement program that will work collaboratively with thecommunity, local businesses, agencies and other affected stakeholders to seek input throughout theproject assessment and the TPAP. While the proposed public consultation process follows a structuredapproach, it will also allow for flexibility in engaging stakeholders and encouraging dialogue with thepublic around key issues related to the project.

In each phase of the project, engagement will consist of four main communication approaches:

• information sharing;• online consultation;• live events; and• community outreach.

1. Information SharingThe City will share information about the project throughout the study process. Regular updateswill be shared through the project email list, City social media accounts and print material such asproject briefs. The project website will be regularly updated and will act as the hub for information


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about the project. Key documents produced will also be made available through the project website.The Study Team will look to translate key documents when appropriate throughout the study.

2. Online ConsultationThe City will solicit comments and feedback on key decisions during each phase of the project through the website. Online consultation will be one of the primary foci of consultation because it hasthe ability to engage a large number of people from many different areas in a short period of time.

3. Live EventsOpen houses, public meetings, Stakeholder Advisory Group meetings and workshops will be heldat various key points in the study for interested stakeholders and residents throughout the City tolearn and provide their input into key decisions of the project.

4. Community OutreachThe City will host community group meetings to proactively educate and solicit feedback fromthe community. Community outreach will focus on the local areas where the Scarborough Subway Extension will be located.

Scarborough Subway Extension Project Assessment - Draft Terms of Reference

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