Infrastructure Ontario issues quarterly updates about the projects it is managing for P3 procurement, and I have been tracking the transportation items on this site. Their April 2021 Market Update came out on April 8, but I have been waiting for clarification of some issues before posting here.
Here is a spreadsheet tracking changes in project status since these updates began.
Items highlighted in yellow have changed since the last update.
Note that this report only covers the procurement portions of Metrolinx projects that are undertaken through Infrastructure Ontario. Contracts that are in construction, or are directly tendered and managed through Metrolinx outside of the P3 model, do not appear here.
Ontario Line, Line 1 North Extension (Richmond Hill Subway), Line 4 Sheppard East Subway
There are no changes to these projects in this update.
Line 2 East Extension (Scarborough Subway)
As previously announced, the tunneling contract gets underway this spring. The contract for the remainder of the project (stations etc.) enters the Request for Qualifications (RFQ) stage this spring/summer, but contract execution is not expected until spring 2023.
Note that vehicles for the extension will be procured as part of a TTC order for fleet expansion and renewal that does not show up in the IO updates.
Line 5 Eglinton West Extension
As previously announced, the tunneling contract gets underway this spring. There is no date yet for the remainder of the project to enter the RFQ stage.
GO Expansion Projects
Metrolinx came up with a new term for procurement, the “alliance” model where more responsibility for the project is shifted back onto Metrolinx as owner rather than expecting bidders to take on a substantial project risk. This showed up in the Union Station platform expansion project early in 2020.
In this round of updates, things appear to have gone a step further. Three projects (Lake Shore East and West Corridors, and the Milton Corridor) are reduced in dollar value. I asked Infrastructure Ontario about this, and they replied:
Since the previous Market Update (Dec 2020), there have been some changes in scope of work for these projects. Items which have been descoped may be carried out by Metrolinx in the future under separate, traditionally-procured contracts. The intent is to better manage risks and costs with respect to the GO Expansion program.
As these projects remain in procurement, we will provide further updates this spring/summer.
Email from Ian McConachie, IO Media Relations, April 9, 2021
Specific changes by corridor:
Change (per Infrastructure Ontario)
Descoping of Exhibition Station in-corridor enhancement works and track improvements, Clarkson Station and Bronte Station in-corridor enhancement works.
Descoping of Scarboro Golf Club Works and 2.5km of grading (previously part of LSE-E) and deferral of Highland Creek Expansion
Descoping of Station Operations West Facility and replacing the pedestrian tunnel with a pedestrian bridge.
The project formerly called “Milton Corridor” is now called “Milton Station”.
A separate project line, Lakeshore East-West Corridor, dropped off of the IO Update in mid-2020. The project was transferred to Metrolinx for delivery as a non-P3 contract.
The comment about “better manage risks and costs” is telling here, and it implies that the P3 model has not worked out as favourably as hoped for all of Metrolinx’ work. In some cases it is simpler and cheaper to just go out and buy/build something yourself than to set up elaborate machinery for others to do this for you.
Notably the $10B GO “ON-Corr” project which entails a complete restructuring of GO including future operation, maintenance and electrification has not changed status in a year. With GO’s ridership uncertain in the near term, projecting just what Metrolinx might ask a P3 to undertake, let alone contracting for it, is like peering into a very cloudy crystal ball.
I reviewed the first report in The Siren Song of Regional Fare Integration and will not duplicate my comments on the Board of Trade’s fare proposals beyond the level needed to explain how the scheme in Getting on the Right Track dovetails with this.
From the title of the article, one can easily guess that I was not entranced with the Board’s proposal, and I should make clear why right at the outset.
First: Although the plan includes a very robust regional network with frequent service on all GO corridors, there is too much talk of how everything will work when it is finished, and not enough about how we actually get from here to there.
Second: As with so much regional planning that comes out of Metrolinx, there is no discussion of last mile costs and service, nor of the burden local municipalities would face in providing them. Yes, a “last mile” report is in the offing, but this could range anywhere from massive increases in publicly funded local transit to an embrace of ride sharing services. The report contains not even a hint of how the vastly improved service will get riders to and from its stations.
Third: The focus is very strongly on Toronto (the 416) where there is an established transit system that can provide frequent service at connection points, but less on how this would scale outward into the 905 and beyond.
Fourth: The Invisible Line report and its fare-by-distance proposal is assumed as a pre-requisite even though there is no agreement that this is how fares should and will be calculated. In particular, its gerrymandering of fare zone boundaries and the tariff has not been subject to critical review outside of venues such as this blog.
Many proposals in Getting on the Right Track are good and provide a level of background we have not seen from the nominal regional planner Metrolinx, an agency that prefers to save proposals for Ministerial photo ops and routinely hides details under confidentiality provisions.
To give Metrolinx their due, a key shortcoming in the Board of Trade’s report is that it does not clarify which parts of its proposal are works already in the Metrolinx pipeline, and which are net additions to the scheme. Indeed, maps purporting to show regional networks and travel times do not even acknowledge rapid transit lines planned and under construction that will open within the timeframe of the Board’s proposal.
An untutored reader might think that almost nothing is underway, that the Board has returned from the mountaintop with the one true word on regional transit.
Finally, and particularly toward the end of the report, elements creep in which feel like pet rail projects with only minimal evaluation. They are included either because the Board sought to curry favour with politicians in the affected areas, or because someone had too many crayons to play with. I leave it to the dedicated reader to peruse those parts of the report.
There is a sense throughout that what might have been a reasonable proposal for Metrolinx to aim higher in its plans evolved into a design exercise that substitutes detail and volume for practicality.
“Organization Before Technology Before Concrete”
On page 20, the Board makes a key observation, if only by implication, about how transit is planned in the GTHA by citing a practice elsewhere:
The German-speaking world has propounded the planning and engineering doctrine of “organization before technology before concrete.” The highest priority is to resolve issues of organization, which includes factors like fare and service integration between agencies. Then, technology, such as better signalling systems and rolling stock, should be improved. The last priority is the building of new infrastructure, like additional tracks and grade separations on corridors. This prioritization provides the most economically efficient means of improving service and capacity on a network.
Getting on the Right Track, p. 20
This is one of several cases where there is an implicit, if not explicit observation that the way “we” do business is out of step with good practices elsewhere, or even just common sense here. However, the Board has violated its own principle by driving through an entire network design exercise without clearly figuring out goals, not to mention the basic question of how much we might be prepared to spend on this transit network.
“We” is a tricky term here because there are three levels of government each of which prefers to fund only certain types of service and infrastructure, and each has significant blind spots in the financing and funding of public transit.
In this article, I will not attempt an exhaustive review because even my readers have limits to their patience. Moreover, there are points where one must peer very deeply into the crystal ball, make too many assumptions about actual future circumstances. If our current situation teaches anything, it is that the future will change.
This section is buried down on page 21, and yet it is absolutely key to the entire discussion. It is so important that I will include its text here.
Drawing from international best practices, it is possible to demonstrate five guiding principles that form part of successful implementations of regional rail. Based on these principles, it is possible to design a network and operations plan for the Toronto Region.
Two-way, All-day Service
The majority of trips in any region – even work trips – do not involve the downtown core and do not take place at rush hour. A service plan that provides service all day, every day is essential if a regional rail system is to become a core part of the regional transit network.
High Frequency (turn up and go)
Research by Transport for London indicates that riders on routes with a frequency of 12 minutes or less will not need to consult a schedule and can instead simply “turn up and go.”
This level of service has been demonstrated to drive major increases in ridership. Frequency is even more important when making connections because wait times can multiply when a trip involves several connecting segments, and a missed connection could result in an unacceptable delay.
Seamless Integration with Local Transit
On a busy commuter rail service like GO Transit, park-and-ride lots fill up early in the morning. That makes them effectively useless for mid-day travellers. For two-way, all-day service, there needs to be another way to access the station. Transit-oriented development can play a role – and provides a major opportunity for recovery of regional rail investment – but as the TTC subway demonstrates, the most effective way to deliver large numbers of riders is by seamlessly integrating rail with local bus and streetcar services. That means fully integrated fares – a transfer is an inconvenience, so you should not have to pay more for it. It also means having bus routes designed to connect with stations, additional rail stations to connect with busy surface corridors, and schedules with timed transfers where necessary. The objective is to create the equivalent of a subway backbone for the whole region, serving local trips as much as long-haul. By being a backbone of a broader transit network, regional rail does not just serve residents of neighbourhoods adjacent to stations – it serves everyone in the region.
Focus on Equity
Planning should intend to prioritize improved access to employment opportunities and services for equity-seeking communities. This means reducing travel times, locating additional stations where they would serve communities like the City of Toronto’s Neighbourhood Improvement Areas, and ensuring that fares are not prohibitively expensive. Transit must function as an integrated network, particularly for those who rely on it for all their trips so it is imperative that no transit mode be deemed “premium.”
Integration with Regional Planning
With its region-wide extent and high level of service, regional rail should become a centrepiece of regional planning. In Copenhagen, for example, all substantial office developments must be located within walking distance of a rail station. This would not be possible today in Toronto, given the limited size of the existing rapid transit network, but it could be possible with regional rail. Greenfield suburban developments could be designed around rail stations, creating “15-minute communities” oriented to walking and cycling, rather than following the traditional auto-oriented pattern centred on concession road blocks. Regional rail is the most feasible path to a truly transit-oriented region.
These are key principles not just for a regional rail network, but for transit in general. They run counter to so much of what would-be transit riders are fobbed off with.
“High frequency” really does mean frequent service, not a train now and then when it is convenient to run one. This requires a commitment to both capital and operating costs for the rail network.
“Seamless integration” means an end to assuming that parking will solve all access problems, and that the rail system’s revenue stream is sacrosanct. The concept of a “premium” service as a justification to charge higher fares on part of the network simply does not work if the rail lines are the key, backbone component of a whole. This is an example of how looking at only one aspect – fare revenue – distracts from the larger picture of the potential contribution and value of the rail network for mobility.
As for regional rail and planning, this is a fascinating position for the Board of Trade because it implies that we would dictate where development could and could not occur. Will we also consider network effects of overbuilding at selected “hot” development nodes, and the implications for road congestion and pollution of allowing growth away from transit stations?
The Trillium Network
Yes, it’s a branding exercise, and the Board makes no bones about this. It has a nice sound, and it uses the provincial flower. The name and logo might even survive a change of government. There is a spiffy map.
The key point in this design is that services are through-routed at Union Station and arranged in a manner to avoid conflict between four main corridors: Lake Shore, Kitchener-Don-Richmond Hill, Barrie-Don and Milton-Lincolnville. This is not new, and Metrolinx has talked about the need to reorganize its service in a similar way as part of its expansion program.
Services have route numbers all starting with “T” although the nomenclature could be confusing if a scheduler decides that trains will operate between some other pair of endpoints. The combined service through Union Station is impressive with the intent of a massive increase both in GO’s capacity and its usefulness as a regional and local carrier.
Updated March 27, 2021: The reference to third rail power pickup for the Ontario Line was incorrect and has been changed. According to the December 2020 Preliminary Design Business Case the line will use 1500V DC overhead power supply.
As originally announced, the Ontario Line was intended to run along the GO Lake Shore East corridor between the Don River and Gerrard Street with the new rapid transit tracks straddling the GO transit line as shown in the map below.
Discussions with the Riverside and Leslieville neighbourhood have been fraught with concerns about the combined effect of the two new Ontario Line tracks, the stations, the expanded four-track GO corridor and the infrastructure needed for electrification. This has been the subject of previous articles and I will not rehash the issues here.
At a community meeting on March 25, 2021, an unexpected piece of news was revealed not by Metrolinx staff, but by City Councillor Paula Fletcher: Metrolinx has changed the design so that the Ontario Line tracks will run on the west side of the GO corridor.
I asked Metrolinx for their comment, and here is their reply:
As part of our planning, we have been exploring alternatives that will allow us to incorporate some of the feedback from the community. The updated plans are not yet final so it is too early to provide details or images.
One thing we are looking at is shifting both Ontario Line tracks to the west side in the corridor, rather than on either side of the GO tracks.
Once finalized, we will be sharing the updated plans related to the configuration with the community in the coming weeks at a public consultation.
We are still conducting environmental assessments for the area, which include a Joint Corridor Early Works Report and an Environmental Impact Assessment Report for the whole line.
Email from Metrolinx Media Relations, March 26, 2021
This has many implications including the total space needed for the six-track corridor, the placement of electrification infrastructure, the effect of stations on their neighbourhoods, and transfer provisions at the key East Harbour Station.
From a construction point of view there are benefits to keeping the OL tracks together:
There is no longer any need to tunnel under the rail corridor so that the eastbound track can reach its position south-east of East Harbour Station, nor to tunnel again for the tracks to rejoin at Gerrard before heading up Pape.
Only a single shared bridge over the Don River will be needed.
The two directions of the OL can share a centre platform rather than requiring dedicated platforms, including access elements like escalators and elevators.
Structures for GO can be better separated from those for the OL which will now lie beside the GO tracks, not astride them.
Construction of the OL should have less effect on the adjacent GO operations.
The possible downsides or side-effects include:
The consolidated eastbound and westbound platforms and station structures are now all on one side of the GO corridor possibly affecting areas and buildings that were previously outside of the construction area.
The minimum clearances for GO electrification will have a greater effect on the east side of the corridor because the eastbound OL track will no longer provide some of the separation needed from nearby buildings and vegetation.
The claimed benefit of across-the-platform transfer between GO and OL services at East Harbour is now reduced. All transfers will have to go down to a concourse level to switch between trains.
At the March 25 Metrolinx Board meeting, management presented an overview of the Ontario Line and the benefits of above ground construction. This alignment change was not mentioned at all. Notable by its absence was any reference to the convenience of across-the-platform transfers, a major selling point for the OL as a potential way to offload demand from Union Station.
When originally announced, the Ontario Line would provide across-the-platform transfers with GO at both East Harbour and Exhibition Stations to redirect some GO traffic to the OL and offload Union Station. At Exhibition, this design has already proved to be impractical and the OL station will be entirely north of the rail corridor. We appear to be on the verge of seeing a comparable change at East Harbour. This was a major selling point for the OL design.
As I discussed in a previous article, aspects of that presentation put a better spin on Metrolinx plans than might actually be deserved. With the change in the track layout, a further issue pops up: the proximity of buildings or vegetation to the electrified GO trackage.
Here is a diagram showing the minimum clearances from adjacent vegetation (mainly trees) on an electrified GO corridor:
In a context where buildings are nearby, the diagram changes a bit, but the basics are similar.
These drawings show a two-track GO corridor, but Lake Shore East will have four tracks, plus the Ontario line tracks. If this view looked northeast, the OL tracks would be on the left side, probably to the left of the pole holding the overhead system.
In that configuration, the “no vegetation” zone to the left (west/north) would be occupied by the OL itself which should have much less restrictive requirements for nearby growth because it uses overhead power at a much lower voltage than GO trains. However, on the right (east/south), the outermost GO track is now at the edge of the corridor and clearance requirements for electrification apply. [Corrected March 28/21 to reflect overhead rather than third rail power supply.]
An illustration of a park on the line must be seen in this light. This shows a mature tree immediately beside the sound wall and the overhead support poles. As shown, it is within the clear zone required for electrification.
In the management presentation, Metrolinx claimed that the Ontario Line will actually make the neighbourhood quieter, although they did not explicitly say “quieter than today”. This is something of a stretch because there will still be more GO trains, and many of them (thanks to the Bowmanville extension of GO service) may well be diesel.
This is an example of a fundamental problem with Metrolinx planning for this corridor: they conduct separate studies and community sessions for the Ontario Line and for the GO Expansion and Electrification program rather than producing a consolidated plan showing the effect of all three changes planned over the coming decade.
A further exaggeration, intended to show how all of this work has a beneficial end even though it might affect the community, lies in claims of environmental and congestion benefits of the project (regardless of its alignment).
All of the new transit riders on the Ontario Line are assumed to represent avoided auto trips complete with their congestion and pollution. There is no guarantee that fewer auto trips will be taken in the future due to a backlog of demand for road space, and due to population growth.
A common remark Metrolinx has made about The Big Move regional plan is that it will at best keep things from getting worse. In areas where there is already heavy traffic and congestion, it is not realistic to assume that the day the OL opens, roads will suddenly empty of cars. This is a bogus position, and Metrolinx should know better.
The original Ontario Line scheme was sold on its benefits for GO interchange and because it was claimed to fit within existing Metrolinx lands, more or less. Gradually these claims are coming unglued, although many of the underlying issues were clear the day the line was announced.
Postscript: An Alternate Alignment from the Don River to Carlaw
In my previous article, I alluded to a possible alignment that would splice the Ontario Line into the Relief Line’s alignment running up Carlaw from Eastern. From East Harbour, the OL would have travelled east parallel to Eastern Avenue and descended below grade, then veer north to hook into the Relief Line route at about Logan Avenue.
This scheme depended on the Ontario Line being entirely on the south/east side of the rail corridor at East Harbour rather than astride it (as in the original OL plan) or on the north/west side as in the revised plan.
With the proposed shift of the Ontario Line to be entirely on the north/west side of the rail corridor, this scheme is no longer feasible.
The Metrolinx Board meeting on March 25, 2021, brought two contrasting views of “good” rapid transit projects to the fore exposing inconsistencies in the “official story” about building above or below ground.
On the Capital Projects front, many works ranging from LRT lines to GO upgrades are on the surface although, of course, the central portion of the Eglinton line is underground. Progress on the surface LRT lines is swift thanks to the avoidance of underground work and complex tunnel structures.
But at the end of the presentation, the “big news” is that prime bidders for both the Scarborough Subway and Eglinton West LRT tunnels have been selected and negotiations are underway on contract details. Some early works such as construction of the tunnel boring launch site at Sheppard/McCowan Station will begin in April.
The long history of debates about Scarborough’s transit network do not bear repeating. Suffice it to say that the underground option is oft touted as the only way to provide good transit, albeit at substantial cost.
According to a Metrolinx Blog article, the line will be tunneled in one bore from Sheppard south and west to Kennedy Station rather than in two separate bores meeting at Lawrence East. This simplifies some of the construction staging and eliminates the potential for major upheaval for Scarborough General Hospital at Lawrence & McCowan. The line will be a single bore 10.7m diameter tunnel according to the Board presentation by Matt Clark.
On Eglinton West, despite the availability of land for a surface LRT right-of-way and demand projections well within the capacity of surface operations, the line will be buried from the Humber River westward as dictated by Premier Doug Ford in his transit plan.
In both cases there will be fewer stations that would have existed with surface LRT options, and on Eglinton ridership projections are lower as a result. (Scarborough is a more complex case because one subway has been substituted for two, if not three LRT lines in a network.) Access time between surface and subway routes – a key item Metrolinx always mentions about its surface alignments – is not mentioned when they enthuse about coming tunnel construction.
As originally proposed, SmartTrack looked like this. The line ran from Unionville to the Airport Corporate Centre with 22 stations, mostly new.
It was supposed to open this year (2021). That has been pushed back to 2026, and even that could be a soft date if GO’s expansion plans are delayed.
It would have worked hand-in-glove with GO Transit’s Regional Express Rail concept as former Metrolinx Chair Rob Prichard enthused in the project’s promotional literature:
The project contemplates making the GO train corridors virtual “surface subways” with service so frequent and fast that the trains became an irresistible substitute for driving, thus significantly mitigating traffic congestion. Imagine going to the GO station confident that the next train will be along soon, just like when we go to a subway station.
Robert Prichard: Transforming the Way We Move. Address to the Empire Club April 23, 2014. Cited in Surface Subways for Toronto from John Tory’s election website [since removed].
Many parts fell off of this plan including:
The proposed Eglinton West branch to the Airport would have required a mainline rail corridor from Mount Dennis to the Airport. This was not technically practical, and plans for this area reverted to the western extension of the Crosstown LRT.
Instead of being a dedicated service with its own fare structure, SmartTrack stations will now be served as part of the GO network using whatever fare arrangements are in place by the time service begins.
The City’s plan now includes only four stations on the Weston-Scarborough corridor, plus one on the Barrie corridor that had previously been part of GO’s plans.
The most recently deleted stations were at Lawrence East and at Gerrard as these locations will be served by the Scarborough Subway Extension and the Ontario Line respectively. Bloor-Lansdowne has become a “City” station while Spadina-Front remains a “GO” station.
Park Lawn and Woodbine, also shown in the map below, are “GO” stations that are not part of the SmartTrack plan.
Of the stations that remain in the project, their viability deserves reconsideration:
Three of the stations (Finch-Kennedy, St. Clair-Old Weston and Bloor-Lansdowne) are projected to have little walk-in trade.
Transfer traffic at two stations (Finch-Kennedy and Bloor-Lansdowne) may be limited by competing nearby services including the Scarborough Subway terminal at Sheppard-McCowan and the subway-GO connection at Dundas West.
The original SmartTrack plan projected very high all-day demand:
The SmartTrack line will have a conservatively estimated ridership of 200,000 per day. This is the equivalent of about half the daily ridership of the existing Bloor-Danforth line.
Source: The SmartTrack Line from John Tory’s election website [since removed].
To put this in context, this is about two-thirds of the entire GO Transit network, pre-pandemic. That is simply not possible with trains running every 15 minutes that must also carry riders from other GO stops.
The demand projection depended on a level of service and fare structure that will not be part of whatever “SmartTrack” is by the time service finally operates to the new stations. When SmartTrack was “sold” to Council, a different service level, station count and fare structure were cited than now appears to be likely.
Indeed, Metrolinx had already change its future service plans and announced their miraculous discovery (a mix of local and express trains) at a Toronto Region Board of Trade event. Frequent service at SmartTrack stations would not be possible if the express trains did not stop there.
The report makes clear a change in service planned for the SmartTrack stations that Metrolinx watchers had suspected for years, namely that the frequent “subway like” service touted for SmartTrack had been replaced with much less frequent GO service.
From the main report:
Program service levels will be 6-10 minutes during peak periods and 15 minutes during off-peak periods.
Program service levels will be the same as the planned GO Expansion-level service for the corridors in which the Stations reside, with a minimum service level of two-way, 15-minute frequency commencing upon full implementation of GO Expansion service, with more frequent service to be determined on a market-led basis and subject to ridership demand.
Updated January 22, 2021:
I posed questions about service levels to the City of Toronto. Here are the responses from the Transit Expansion Office.
Q: What service frequency was assumed for peak and off peak service?
A: Program service levels will be the same as the planned GO Expansion-level service for the corridors in which the Stations reside, with a minimum service level of two-way, 15-minute frequency commencing upon full implementation of GO Expansion service, with more frequent service to be determined on a market led basis and subject to ridership demand. [This is the same text as in the report Executive Committee.]
Q: What stops (other than the new ST stations) would trains on this route also serve? In other words, do the ST trains make all local stops including the new stations?
A: All GO stations (e.g. Agincourt, Kennedy/Eglinton, Scarborough Jct., Danforth)? Stouffville trains will call at all stations, one note we haven’t made this mandatory at Danforth, which is currently on the LSE service group.
Q: Is it assumed that the “SmartTrack” service will be through-routed at Union Station as in the original proposal so that a rider originating on the western leg can ride through Union to East Harbour without changing trains?
A: We have mandated trains to run through Union station to East Harbour from KL St Clair etc – we have left a degree of flexibility whether the trains terminate on Stouffville or LSE.
Q: Was the model capacity constrained (e.g. by size and number of trains)?
A: The model wasn’t capacity constrained. Below is the forecasted service frequency.
Contra Pk Hr
Off Pk Hr
Contra Pk Hr
Off Pk Hr
St. Clair W
1.4 tph (2.5 tph avg)
In brief, the opening day service at all stations except East Harbour will be half-hourly growing to at least quarter-hourly at an unspecified future date. This is a far cry from “subway like” service claimed in SmartTrack promotional literature. These service levels will deter transfers between frequent TTC service and less-frequent GO/SmartTrack service.
As for fares, the whole idea that somehow riders on trains in GO corridors could pay via two different tariffs with free transfers to/from TTC service was always hard to believe. It is now clear that a “TTC” fare will be achieved by forcing everything, including local TTC service, into a regionally integrated system that, judging by Metrolinx’ long-held preferences, will be based on distance travelled.
Updated January 22, 2021:
I asked the City about fare levels:
Q: What fares were assumed, especially any provisions for transfers to/from connecting TTC routes?
A: Fare setting for the Program will be considered in the broader context of regional fare integration.
Council and Torontonians were misled as they have been on more than one transit project.
A related problem, considering the size of the investment, is that the lion’s share of ST riders will not be net-new to transit, but rather will be diverted onto ST trains by the lure of a faster, and possibly less-crowded journey.
In total, the five stations are projected to attract a combined 24,000 boardings and alightings during the average weekday peak hour. Taken together, the five new stations are projected to attract 3,400 new daily riders to Toronto’s transit system by 2041 every weekday. Ridership would likely be higher with full fare integration between the TTC and GO Transit.
Source: Technical Update, p. 3
Note that by counting both boardings and alightings, these figures double the number of trips because anyone who “boards” must eventually “alight” somewhere. This will count everyone who makes a trip on GO twice for the network as a whole.
Time savings were illustrated by a “SmartTracker” website (still active as of January 20, 2021 at 3:00 pm) to demonstrate how one might make a faster journey with ST in place. The calculated ST travel times did not include any wait time for the train because service was assumed to be very frequent.
Projected values are in the Technical Update for each station, but they do not show the network as a whole. “Person Minutes Saved” are calculated by multiplying the riders for a station by the extra time they would have required to make the same trip if the ST station did not exist. For a station that is off of the beaten path like East Harbour, this translates into a large total saving.
It is not clear which lines were in the “base network” without the ST stations, and in the particular case of East Harbour, whether the Ontario Line was there or not. In other words, what is the extra riding and time saving due to SmartTrack as opposed to the Ontario Line? We don’t know because this information is not in the report. Another key missing piece of information is the service level assumed in the model.
Peak Hour Boardings & Alightings
Person Minutes Saved
Demand primarily from bus transfers
> 1 million
Major development node and transfer point with Ontario Line
Major residential neighbourhood
St. Clair-Old Weston
Limited demand, but some development possible. Project will include road reconfiguration between Keele and Old Weston Road.
Connection to subway poor
Source: Technical Update / (*) The Finch-Kennedy value is not in the report, but is derived from 24K total cited above less published values for other stations.
How Much Will “SmartTrack” Cost?
The City’s original budget for SmartTrack was $1.463 billion of which $585 million would be from the pool of Federal infrastructure funding. The project is now smaller because there is, net, one fewer station and some elements originally included have been deferred to a “phase 2” (and a separate budget line). However, the total is unchanged probably due to inclusion of other options in the design such as the City-initiated Keele-St. Clair project.
Cost estimates for specific stations have not been released yet, only the totals: $1.195b is for base station infra and $268 is for city initiated station requirements. That’s a cost/station of over $200 million, rather substantial for a line that is not underground.
Metrolinx will carry the operating and maintenance cost of the stations which they will own, and they will get to dictate the service level. Fare revenue will flow to Metrolinx who will set the tariff.
How this would interact with City policies on reduced fares for low-income riders is difficult to say, but the higher GO fares could work against any benefit for low-income areas the new stations might otherwise provide.
In response to the steep decline in demand on their rail services, Metrolinx announced substantial changes to off-peak services on January 14.
Service now begins at 4:55 am every day and continues until 1:00 am every half-hour. This will change:
On weekends, the first train will leave Union at 6:00 am.
The last train will leave Union at 10:00 pm every day.
Half-hourly service will be provided only during these periods:
Weekdays 5:30 to 9:00 am, and 3:00 to 8:00 pm
Weekends 9:00 am to 7:00 pm
Hourly service will operate at other times.
All weekend and evening train service on the Kitchener, Barrie and Stouffville corridors will be replaced by buses operating from the new Union Station bus terminal. The changeover will begin on Friday, January 22 for Stouffville trains in the evening due to planned construction on the line that weekend.
The Effect of Covid-19 on GO/UPX Ridership
In recent years, Metrolinx has been proud to show strong growth on its network, and was starting to think in terms beyond peak-period, peak-direction commuting to downtown Toronto. With the work-from-home shift in the business core, this demand has collapsed.
The map below shows the growth in ridership for the period April-December 2019 compared with the 2018 figures. The size of the dot at each station is scaled to the change in demand. (Click on the images below for larger versions.)
Covid-19 changed everything, and ridership in April-September 2020 is only a fraction of former levels.
The decline in demand has been severe, and no corridor is carrying even 10 per cent of its former demand. This is much worse than the situation on the TTC network where demand, although down from 2019, ranges up to 50 per cent of former levels thanks to continued strong ridership by essential workers and by those for whom car travel is not an option.
At a corridor level, the best performance is on Lakeshore East at 9.4 per cent of former demand, while Richmond Hill brings up the rear at 1.5 per cent, or 87 riders per day.
At a station level, the best performance is at Oshawa at 11.6 per cent of former demand, or 418 riders per day. Some stations are below 10 per day.
A tabular version of the station-by-station values is available here:
Weekday train service to Niagara Falls was suspended earlier in GO Transit’s covid-era schedules, and the weekend service was dropped on Saturday, January 9. GO hopes to resume weekend service in spring 2021.
Longer term, the challenge for Metrolinx will be the pace of demand recovery on its network given its strong commuter orientation. The program to expand GO capacity and, eventually, to electrify parts of the network now depends on assumptions about future levels of service and demand including when or if these will be achieved.
As on the TTC, it would be easy for budget hawks to claim that big spending on transit is a waste, but this is entirely the wrong time to make such a call. We do not know what the situation will be even a year from now, let alone further out, and what course the pandemic era will follow. This is not the moment to give up on transit much as road-building advocates might prefer to kick the competition while it is down.
There is a more subtle, but important point about GO Transit’s situation. If their service and policy focus shifted away from downtown commuting to all-day, everywhere service, this could bring a truly “regional” outlook.
Governments of both the Conservative and Liberal stripe at Queen’s Park have no interest in “local” transit service beyond funding provided to municipalities via the gas tax. The tax amounts just announced are for the fiscal year 2020-21 and are already baked into local budgets, and are separate from any covid-specific relief. They are not “new money”.
Ontario suffers from a combination of limited local transit and even less intercity service thanks to the disappearance of private sector carriers. A few new services have appeared, but there is no sense of a network approach let alone provincial funding to build ridership. With the core GO Transit network at historically low ridership, an expanded role for GO buses is the last thing on anyone’s mind. The problem is compounded by a political orthodoxy that somehow the private sector will fill the gap, ideally without any public funding.
Metrolinx and Queen’s Park are happy to focus on transit megaprojects, but the benefits are confined to specific corridors, some at great cost, and are years in the future. Meanwhile, we wait and hope for transit demand to recover and restore GO Transit’s relevance.
There is an interactive map of locations where changes are proposed, although it can be tedious to navigate because the default map does not have street names. (You can change this by selecting a different base map from the options in the upper right of the display.)
This map shows roughly the location of the Ontario Line corridor, but gives no detail about extra space, although the map is not to be taken as definitive. Nothing is shown of potential stations for the OL, and there is no information at all in the map for the several proposed SmartTrack stations.
This means that the scope of the project review and the combined effect GO Expansion will have with other projects is not known. Moreover, it would be foolish to approve a project based on a spec that did not include two major additions that are somewhere in the Metrolinx pipeline.
Stations, be they for the Ontario Line or for GO/SmartTrack require platforms and circulation elements (stairs, elevators, roads) but there is no hint of the space these will take.
An ongoing problem for anyone attempting to work with Metrolinx on their projects is the lack of transparency, the fog through which details emerge, if at all, on what they actually propose to do.
Distrust of Metrolinx to deal fairly and honestly with communities and their political representatives led to widely-supported motions when Council considered two reports regarding Metrolinx projects on October 1, 2020:
Sept 26, 2020: Revised to include the change in financing method for the OnCorr GO Corridor project.
Is The P3 Model Falling Apart?
Two revisions in the large GO project procurement model involve a change from private sector financing to traditional government borrowing.
This suggests that the market willingness to finance projects on behalf of the government, or at least to do so at rates competitive with direct government borrowing, may be on the wane. That implies that the “P3” model may be coming unglued.
At its heart, this was always seen as an accounting mechanism to shift debt off of the government’s books, and without this shell game, a major argument for P3s could vanish.
The Future of Electrification
The change in financing model could shift any decision on propulsion technology back to the government.
Metrolinx had pushed this off its plate by saying that the bidders who were going to design and operate a future GO network would make that choice. This punted the knotty political problem of hydrogen trains touted former Premier McGuinty out of Metrolinx itself.
Will Ontario be willing to finance the large up-front capital costs of electrification itself with so many other pressures on financial resources, or is electrification about to fall out of consideration while spending focuses on service expansion?
The project is in three sections of which the last will be the “Northern Civil, Stations and Tunnel” which includes the portion of the line east of the Don River and north to Eglinton, but not the Maintenance Facility which is included with the “South Civil” portion as it is needed relatively early in the project.
Some of the work on the North section between the Don River and Gerrard Station might be undertaken as part of the GO Corridor improvements, but exactly what this might entail has not been made public.
Since the last update, there are three changes for the North section:
The date for RFQ (Request for Qualifications) issue has been changed from Winter to Spring 2022.
The RFP (Request for Proposals) issue has been changed from Spring 2022 to Fall 2022.
The Financial Close (in effect, the contract signing) has been changed from Fall 2023 to Spring 2024.
The remaining portions of the line are on the same timeline as before.
The timelines for this project, with financial close for the first two portions in fall 2022 and for the third in spring 2024 puts this beyond the next provincial election expected in mid 2022, the four-year anniversary of the Ford government’s election. Who will be in place to make final decisions, and what the government’s financial position will be by then, remain to be seen.
Line 2 East Extension (Scarborough Subway)
This project is now shown with two portions: one for the tunnel, and the other for the stations, railway and systems.
There is no change in the tunnel portion of the project, but the remaining portion has reverted to the dates shown for the overall project in the Winter 2020 update.
GO Expansion Lakeshore West Corridor
The financial close for this project has been changed from Winter 2021 to Spring 2021.
GO Expansion Lakeshore East-West Corridor
This was originally to have been a “Build-Finance” project, but it is now “Design-Bid-Build”, a change that was made in August 2020 according to the IO report.
GO OnCorr Projects
[Added to this article on September 26, 2020]
This is a very large project including future operation of GO Transit and possible changes in the propulsion technology.
The procurement model has been changed from “DBOFM” (Design-Build-Operate-Finance-Maintain) to “DBOM”. The proponent will no longer finance the project which has a projected value of over $10 billion.
Updated June 23, 2020 at 1:50 pm: The table of projects has been updated to include anticipated events, notably “financial close” dates, that were included in various project announcements by Infrastructure Ontario. Also Union Station Platform Expansion was described in the original version of this article as closing sooner than originally projected. This has been corrected to show a delay of roughly nine months.
Infrastructure Ontario recently released its Spring 2020 Update for P3 projects under its control including several Metrolinx projects. To date there have been three of these updates:
These updates include information on the project status, the type of procurement model, and the expected progress of each project through the procurement process. This provides “one stop shopping” compared to Metrolinx’ own site. As a convenience to readers, I have consolidated the three updates as they relate to transit projects to allow easy comparison between versions.
Some projects have evolved since the first version, and in particular the delivery dates for a few projects have moved further into the future. The “financial close” dates for some projects, in effect the point at which a contract is signed and real work can begin, has moved beyond the date of the next Provincial election. Whatever government is in power after summer 2022 will have a final say on whether these projects go ahead.
The Ontario Line was previously reported as a single project with a price tag of over $10 billion. In the Fall 2019 update, the intent was to have the financial close in Winter/Spring 2022 ahead of the election. In the Winter 2020 update, this changed to Spring 2022.
In the Spring 2020 update, the project has been split into separate parts to reflect industry feedback about the original scope.
GO Corridor from Don River to Gerrard
South Tunnels, Civil Works and Stations CNE to Don River
Rolling Stock, System Operations & Maintenance
North Tunnels, Civil Works and Stations
The GO corridor work will be done as a conventional procurement by Metrolinx and will be bundled with upgrades to GO Transit trackage.
The financial close for items 2 and 3 above is now Fall 2022, and for item 4 it is Fall 2023.
This means that an actual sign-on-the-dotted-line commitment to the project will not be within the current government’s mandate. Even the so-called “early works” comprising the southern portion of the route from Exhibition to the Don River is not scheduled to close until Fall 2022. The northern portion, from Gerrard to Eglinton will close in Fall 2023. This contract is being held back pending results for the south contract to determine the industry’s appetite for the work.
The southern portion, with a long tunnel through downtown and stations in congested street locations would start first. However, the line cannot actually open without the northern portion because this provides the link to the maintenance facility which is included as part of item 3 above although the actual access connection would be built as part of item 4.
An issue linking all of these projects is the choice of technology which, in turn drives decisions such as tunnel and station sizes, power supply, signalling and maintenance facility design. When the Ontario Line was a single project, Metrolinx could say that this choice was up to the bidders, but now there must be some co-ordination to ensure that what is built can actually be used to operate the selected technology. It is hardly a secret that Metrolinx is promoting a SkyTrain like technology, although which propulsion scheme (LIM vs rotary motors) is not clear. There are well-known problems with LIMs and the power pickup technology used on the SRT, and this would also be a consideration for the outdoor portions of the Ontario Line.
Scarborough Subway Extension
Like the Ontario Line, the Scarborough Extension has been split into two pieces. The first will be the tunnel contract from Kennedy Station to McCowan. This is now in the procurement phase, and financial close is projected for Spring 2021.
The remainder of the project previously had a projected closing date of “Winter/Spring 2023”, but this is now just “2023”. With the tunnel hived off into a separate contract, it is reasonable that the remainder would have a later start date because the tunnel is a key component that must be in place first.
Metrolinx recently published a Preliminary Business Case for this extension. It includes the following text:
Kennedy Station Pocket Track/Transition Section
The Kennedy transition section extends roughly 550 metres from the east side of the GO Transit Stouffville rail corridor to Commonwealth Avenue and will include special track work and a pocket track to enable every second subway train to short turn to suit ridership demand and minimize fleet requirements, as well as lower operating costs. [p 24]
This turnback has been an on-again, off-again part of the project but it is now clearly included as a cost saving measure. With only every second train running to Sheppard/McCowan, the fleet required (as well as storage) would be within the system’s current capacity. This ties in with the timing of the T1 fleet replacement on Line 2 as there are enough T1s to run alternate, but not full service to Sheppard. This would be similar to the arrangement now used on the TYSSE where only half of the AM peak service runs north of Glencairn Station to Vaughan.
Richmond Hill Subway Extension
The Ontario government recently signed an agreement with York Region for the extension of the Yonge line from Finch to Richmond Hill. The status of this project is unchanged with an RFQ to be issued in Fall 2021, an RFP in Spring 2022 and financial close in Fall 2023.