HomeMy WebLinkAboutPD 45-08
Cit'f 01
REPORT TO
EXECUTIVE COMMITTEE
I' J
139
Report Number: PO 45-08
Date: November 10, 2008
From:
Neil Carroll
Director, Planning & Development
Subject:
Draft Regional Transportation Plan (September 2008)
Draft Investment Strategy (September 2008)
Metrolinx
EBR Registry Number: 010-4717
File: 07010-001
Recommendation:
1. That Report PO 45-08 of the Director, Planning & Development, regarding the
Draft Regional Transportation Plan (RTP) and Draft Investment Strategy (IS),
both dated September 2008 and released by Metrolinx, be received;
2. That Metrolinx be requested to revise the Draft Regional Transportation Plan:
The Big Move: Transforming Transportation in the Greater Toronto and Hamilton
Area, dated September 2008, as follows: '
(a) implement the vision for Seaton as a "transit first" community by adding
the following to the 15-Year Plan (2024):
(i) resolution of the Steeles- Taunton traffic bottleneck as a priority;
(ii) identify a new east-west rapid transit connection on the
Steeles-Taunton Corridor to Brock Road on Figure 4;
(iii) prioritize passenger rail service on the C.P. Bellville Rail Line to
Brock Road as one of the "Top 15 Priorities";
(iv) widen and improve Highway 7 west of Brock Road to four lanes
through Seaton to support development and transit service;
(v) extend the Brock Road rapid transit line (Other Rapid Transit
(BRT/LRT/AGT) line) through Seaton to Highway 407 on Figure 4;
(b) support and invest in developing Transportation Master Plans (TMPs)
addressing all modes of transportation and identifying policies and a
course of action for implementing the RTP, as well as other critical
transportation infrastructure within Pickering's Urban Growth Centre by
establishing an Eastern GTA Anchor Mobility Hub, including:
(i) the City's planned pedestrian bridge over Highway 401;
(ii) a full Highway 401 interchange at Liverpool Road; and
(iii) a shared vehicle parking structure serving commuters and
downtown visitors;
Report PO 45-08
November 10, 2008
Subject: Draft RTP and Draft IS
Page 2
1 40
. .
(c) support the easterly extension of Highway 407, its links and transitway oy:
(i) identifying the easterly extension of Highway 407 to Highway
35/115 by 2013 and transitway within the first 15 years in Figure 4
of the RTP;
(ii) identifying the easterly extension of Highway 407 and its links and
transitway as completed on Figure 5 (the 25-Year Plan) of the RTP;
(iii) revising the text referring to the Highway 407 east extension on
page 75 of the Draft RTP to reflect the Province's commitment to
complete the highway and its links by 2013;
(d) correct Figures 4 and 5 by:
(i) revising mapping of 'built-up' area for Pickering to reflect the
approved Provincial built boundary;
3. That Metrolinx be requested to revise the Draft Investment Strategy: A Plan for
Implementation Action, September 2008, by:
(a) developing an operating cost model for new infrastructure proposed under
the RTP;
(b) considering the broader relative benefits of investments in key road
infrastructure versus investments in improved transit operations;
(c) developing a financing plan for the operating, rehabilitation and capital
infrastructure needs of the RTP, in consultation with municipalities; and
4. Further, that a copy of Report PO 45-08 be forwarded to Metrolinx, the EBR, the
Ministry of Energy and Infrastructure, the Ministry of Transportation, the Ministry
of Municipal Affairs and Housing, the Regional Municipality of Durham, and
Durham Area Municipalities.
Executive Summary: In June 2006, the Province created the Greater Toronto
Transportation Authority (GTTA) to develop and implement a Regional Transportation
Plan (RTP) for the Greater Toronto and Hamilton Area (GTHA).
In early 2008, a series of Green Papers were released as a first step to developing the
RTP. The Green Papers addressed such topics as sustainable transportation, mobility
hubs, transportation demand management, moving goods and delivering services,
highways and roads, and transit. In May 2008, Metrolinx released two White Papers.
The vision, goals, objectives and possible indicators contained in White Paper 1
provided direction to developing the RTP. White Paper 2 presented programs and
policies to address the issues identified in the Green Papers and fulfill the goals and
objectives listed in White Paper 1.
In September 2008, Metrolinx released its Draft Regional Transportation Plan entitled
The Big Move: Transforming Transportation in the Greater Toronto and Hamilton Areas
and Draft Investment Strategy (IS) entitled A Plan for Implementation Action: Linking
People to Places. The Draft RTP addresses all forms of transportation, implementation
and the requirements of sustainable, long-term funding.
Report PO 45-08
November 10,2008
s'lb4eft:
Draft RTP and Draft IS
Page 3
The Draft IS provides a high level estimate of the capital, rehabilitation and operating
costs, and future long-term funding mechanisms to implement the RTP.
City staff supports a regional transportation plan that will guide transportation
infrastructure investment in the GTHA over the long-term. The Draft RTP is
comprehensive and provides directions and sets priorities for decision-making in the
GTHA. However, in the review of the documents, it became apparent that critical
transportation and transit infrastructure investment in Pickering was lacking in the first
15 years of the RTP, especially with respect to, supporting Seaton as a "transit first"
community.
As such, staff is recommending that Metrolinx commit to the early provision of regional
road and transit improvements in the first 15 years by: resolving the impasse of the
Steeles-Taunton traffic bottleneck as a priority; identifying a new east-west rapid transit
connection on the Steeles-Taunton Corridor to Brock Road; prioritizing passenger rail
service on the C.P. Bellville Rail Line; and extending the "Other Rapid Transit
(BRT/LRT/AGT)" line from the Seaton Mobility Hub to the 407 employment areas and to
York Region via Highway 407. The easterly extension of Highway 407 from Brock
Road is shown as "Transportation Corridor Under Study" in both the 15- Year and
25-Year Plans. An earlier time frame for this extension should be shown in the RTP in
accordance with the Province's commitment to construct and complete Highway 407
and its links by 2013.
Staff continues to support the identification of an Anchor Mobility Hub in Pickering's
urban growth centre. This is consistent with the City's desire to build a sustainable
downtown that encourages higher transit use by intensifying development within a new
emerging centre. In keeping with the City's vision, it is recommended that Metrolinx
further identify this hub as the Eastern GTA Anchor Mobility Hub including the City's
planned pedestrian bridge over Highway 401, a full Highway 401 interchange at
Liverpool Road, and a shared vehicle parking structure serving commuters and
downtown visitors. Funding from Metrolinx is critical for supporting the required
transportation infrastructure improvements identified by the City.
Financial Implications: None to adopt the recommendations of this Report to
Council.
Sustainability Implications: Metrolinx is preparing a long-term plan for an effective,
integrated multi-modal regional transportation system for the GTHA. Metrolinx is basing
the plan on three sustainable lenses: people, environment and economy. This initiative
is consistent with the City's five sustainable objectives of a healthy environment, healthy
society, healthy economy, responsible development and responsible consumption.
Report PD 45-08
November 10, 2008
Subject: Draft RTP and Draft IS
Page 4 '1 4 2
1.0 Background:
1.1 The Province created the Greater Toronto Transportation Authority (GTTA)
in June 2006
In June 2006, the Province created the GTTA to develop and implement a
Regional Transportation Plan (RTP) for the Greater Toronto and Hamilton Area
(GTHA). The GTHA encompasses the City of Toronto, four surrounding regional
municipalities of Durham, Halton, Peel and York and the City of Hamilton. The
GTTA has adopted Metrolinx as its name to reflect its mandate to coordinate
transportation planning and delivery across all levels of government, private
sector, and stakeholders in the GTHA with a major responsibility of implementing
the RTP.
1.2 Seven Green Papers were released as a first step to developing a RTP
Between December 2007 and March 2008, Metrolinx released a series of
Green Papers as a first step to developing a transportation plan for comment.
The Green Papers addressed such topics as sustainable transportation, mobility
hubs, transportation demand management, moving goods and delivering
services, highways and roads, and transit. In March 2008, staff comments were
provided to Metrolinx on their Green Papers. A memo to the Chief Administrative
Officer (CAO) containing an update on the Metrolinx process was provided to
Council as CAO correspondence in April 2008.
1.3 White Papers 1 and 2 were released as the second step to developing a RTP
In June 2008, Metrolinx released two White Papers building upon the foundation
established by the Green Papers. The first White Paper outlined a
transportation vision and a series of goals, objectives and indicators. The
second White Paper outlined a series of preliminary directions and related
actions as well as four conceptual transportation models for the GTHA. Report
PD 24-08 on the Metrolinx White Papers was received for information by City
Council in July 2008.
1.4 Area municipal and regional staffs met with Metrolinx staff in the summer
of 2008 to discuss elements of a Draft RTP
On July 4, 2008, area municipal and regional staffs met with Metrolinx staff.
Verbal comments were provided on the draft materials presented at the meeting.
Staff was not allowed to retain a copy of the maps of the draft transportation
system presented by Metrolinx. Further comments were provided by staff on the
transportation plan elements recommending the extension of the Bus Rapid
Transit (BRT) along Highway 7 from the Markham border to Brock Road, then
south on Brock Road to connect to the GO Station in south Pickering by 2015.
Report PD 45-08
November 10,2008
Subject: Draft RTP and Draft IS
'\ 43
Page 5
1.5 Metrolinx released its Draft RTP and Draft Investment Strategy (IS) that
contains a vision for the future in which transportation is seamless,
efficient, convenient, and equitable
In September 2008, Metrolinx released its Draft RTP entitled The Big Move:
Transforming Transportation in the Greater Toronto and Hamilton Areas and
Draft IS entitled A Plan for Implementation Action: Linking People to Places. The
Draft RTP addresses all forms of transportation, implementation and the
requirements of sustainable, long-term funding (see Attachment #1: Executive
Summary). The Draft IS provides a high level estimate of the capital,
rehabilitation, and operating costs and future long-term funding instruments.
Complete copies of the Draft RTP and Draft IS are available on the Metrolinx
website at www.metrolinx.com. Paper copies of the Draft RTP and Draft IS are
available for viewing at the Planning & Development Department.
1.6 On October 15, 2008, Durham Region Transit Commission adopted the
recommendations contained in Durham Region Transit Report No. 2008-DRT -30
Durham Region Transit prepared comments on the Draft RTP. The
recommendations in Report 2008-DRT-30 were adopted by Durham Region
Transit Commission in October 2008. The Report contained comments and
concerns on the Draft RTP and Draft IS, and requested additional infrastructure
improvements to support Seaton as a "transit first" community. The Report was
considered by the Region's Tri-Committee of Finance & Administration, Planning
and Works on October 21, 2008. A copy of Region's Report was distributed to
City Council and senior staff, and is also available from the Region's website at
www.reqion.durham.on.ca .
2.0 Summary of the Draft RTP
2.1 Section 1 of the Plan
Section 1 describes the history of the current GTHA transportation system, the
stress on the system, and the need to change. It also identifies issues and
future challenges that must be addressed.
2.2 Strategic Directions for the RTP
The Draft RTP contains 15 Strategic Directions that are needed to achieve an
effective, integrated multi-modal transportation for the GTHA. The directions are
organized into the following thematic categories:
. Reduce demands on the transportation system
. Increase choices for travel
. Meet the needs of the traveler first
. Build communities that make travelling easier
. Commit to continuous improvement
Report PD 45-08
. November 10, 2008
Subject: Draft RTP and Draft IS
Page 6
"1 44
2.3 Actions required to achieve Strategic Directions
Under each strategic direction, there is a list of actions that would help to achieve the
direction. Approximately 100 actions are proposed to support the transformation of
the transportation system. The actions range from infrastructure projects to
customer service improvement to legislative and policy changes. Eight of the
actions have been identified as "Big Moves" reflecting their potential to have the
largest impacts on the GTHA transportation system. The actions are as follows:
. A fast frequent regional transit network
. A complete walking and cycling network and bike sharing programs
. An information system for travelers
. A region-wide integrated fare system
. A system of connected mobility hubs
. Higher order transit connectivity to the Pearson airport district from all
directions
. A comprehensive strategy for goods movement
. An investment strategy to provide stable and predictable funding.
Figure 4 (see Attachment #2: 15-Year Plan) illustrates the transportation system
to be built in years 1 to 15 of the Plan. Figure 5 (see Attachment #3: 25-Year
Plan) adds the infrastructure components that would be built in the final 10 years
of the Draft RTP.
2.4 Expected Results of the RTP
Section 2.4 of the Plan outlines the expected results of the Plan in three time
frames: the first 15 years; in years 16 to 25; and beyond 25 years. It outlines
"Key Indicators of Success" (e.g. reduced commuting times, improved access to
transit, etc.). The section also describes the projects that are expected to be
completed in each time frame. The Quick Win projects funded in the 2008
Provincial budget are listed. In addition, the Top 15 Priorities for the first 15
years of the RTP are identified.
Three priority projects are listed for Durham Region. They include: express rail
on the Lakeshore Line from Hamilton to Oshawa; rapid transit along Highway 2
(Kingston Road); and improvements to existing GO rail service and extension of
GO rail service to Bowmanville.
2.5 Implementation of the RTP
Section 3.0 deals with implementation of the RTP. It outlines principles for
implementation and required legislative or policy changes, including the
possibility that the RTP become a provincial plan under the Planning Act. It also
describes the roles and responsibilities of Metrolinx, the provincial, federal and
municipal governments, transit authorities, as well as various private sector and
non-profit partners envisioned as helping to deliver the Plan.
Report PO 45-08
November 10,2008
Subject: Draft RTP and Draft IS
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145
The primary role outlined for municipalities is to support the implementation of
the RTP through their transportation master plans, mobility hub studies, Official
Plans and capital planning process.
3.0 Discussion on the Draft RTP
3.1 A regional transportation plan to guide long-term transportation
infrastructure investment in the GTHA is supported
City staff supports the role of Metrolinx to develop and implement a Regional
Transportation Plan that will guide transportation infrastructure investment in the
GTHA over the long-term. The Draft RTP is comprehensive, outlines transportation
infrastructure needs and sets priorities for decision-making in the GTHA.
However, in meetings and providing comments to Metrolinx, staff has and will
continue to stress three key points. The first is the importance of the Mobility Hub
in Downtown Pickering. The second is the early provision of GO service to
Seaton. The third is the need for reliable funding sources for major transportation
infrastructure, including but not limited to, active transportation such as walking
and cycling networks, and strategic improvements to the road and highway
networks and regional transit connections.
3.2 Completion of Highway 407 to Highway 35/115 by 2013 is an important structural
element for supporting Pickering and Durham Region's future growth
Figures 4 and 5 identify the easterly extension of Highway 407 as a "Transportation
Corridor Under Study" in the 15-Year and 25-Year Plans with no connection to
Highway 35/115. From a market perspective, the Provincially-owned
employment lands in Seaton are strategically located representing both an
eastern gateway to Toronto and western gateway into Durham Region.
However, major transportation and transit investments are required to maximize
the benefits generated by these lands. Staff recommends aligning the Draft RTP
to reflect the construction of Highway 407 easterly and its links by 2013, in
accordance with the Province's commitment. Further, staff recommends the
transitway be built concurrently saving construction time and cost.
3.3 The early introduction of rail services to Seaton is required to support Seaton
as a "transit first community"
On Figures 4 and 5, Metrolinx is proposing to expand rail services to Seaton by
2024 (15-Year Plan). However, staff understands that GO Transit has no plans
to commit to a new rail line to Seaton. Rail-transitlrail-passenger service plays a
major role in accommodating travellers who choose transit for their planned trips
to avoid traffic congestion.
Report PO 45-08
November 10,2008
Subject: Draft RTP and Draft IS
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146
Staff supports the early introduction of rail services to Seaton and therefore,
recommends that Metrolinx support Seaton as one of the 'Top 15 Priorities" for
transportation investments necessary to realize the community objectives of the
Provincial Plan for Seaton, the Central Pickering Development Plan.
The Central Pickering Development Plan designates a future GO Transit Station in
Seaton. It is conceptually located on the north side of the C.P. Rail line, west of
Brock Road and south of Taunton Road. Staff supports Metrolinx in identifying the
Seaton GO Transit Station as a Gateway Hub that will be planned to accommodate
more intensive land use activities over time.
3.4 Critical transportation infrastructure investment is required to support
Pickering's Urban Growth Centre and Anchor Mobility Hub
Other transportation infrastructure investments in addition to the regional rapid
transit and highway improvements shown on Figures 4 and 5 of the Draft RTP
are required to support the Anchor Mobility Hub within Pickering's Urban Growth
Centre.
Although staff supports the identification of an Anchor Mobility Hub in the Draft
RTP, it is recommended that Metrolinx further identify this hub as the Eastern
GTA Anchor Mobility Hub. In keeping with this strategic hub location, the
existing GO Transit Station offers a redevelopment opportunity that will assist
the City in achieving the Growth Plan's intensification target of 200 people and
jobs per hectare, as well as focusing on enhanced local transit connections and
providing active transportation connections such as walking and biking to and
from the station. Also, there are adjacent Ministry of Transportation (MTO) lands
that provide significant opportunities to achieve the objectives of the Mobility
Hub.
It is critical therefore that Metrolinx and the Province work with the City to support
and invest in essential transportation infrastructure improvements to support the
Downtown Pickering Mobility Hub as follows:
· upgrade the Highway 401 intersection at Liverpool Road from a partial to
a full interchange to accommodate eastbound traffic while reducing
congestion on other eastbound ramps in Pickering;
· pursue the use of MTO-owned lands at the northwest corner of
Liverpool Road and Highway 401 for employment-generating uses ( staff
understands that the lands were identified earlier by MTO to support only
commuter/carpool parking); and
. invest in the City's planned enclosed pedestrian bridge crossing
Highway 401 and linking the Pickering GO Station to our downtown core;
Report PO 45-08
November 10, 2008
sUb1e~t7 Draft RTP and Draft IS
Page 9
3.5 Critical gaps in east-west connections need to be addressed in order to
support local and regional transportation networks and regional transit in
the first 15 years
Staff recognizes that there are gaps in the existing GTHA road system. Until GO
rail service to Seaton is provided, east-west connections to Toronto, York Region
and the rest of Durham must be protected and enhanced. For this reason, the
elimination of the 'bottleneck' at the west end of Taunton Road at the
DurhamfToronto boundary (i.e. Steeles AvenUe) is required in order to support
regional transit and a future LRT/BRT line. Staff recommends that Metrolinx to
resolve this bottleneck on the Taunton-Steeles corridor.
Similarly, there is a need to improve and widen Highway 7 through Seaton. The
Provincial Environmental Assessment was recently completed for widening
Highway 7 east from Brock Road to Brock Street in Whitby. The remaining two
lane section from the York-Durham line to Brock Road is inadequate to support
future transportation and transit demands from the Seaton community and
beyond. Staff supports the Region's position that improvements to the highway
west of Brock Road are urgently needed.
3.6 Extend the rapid transit line to support connectivity from the
Seaton Gateway Mobility Hub to the Highway 407 employment areas
and to York Region
The Central Pickering Development Plan establishes Seaton as a sustainable
community with a population of 70,000 people and 35,000 jobs by 2021. In
Figures 4 and 5, there is no rapid transit connection linking the Seaton Mobility
Hub to the Seaton employment areas and/or Markham Centre via Highway 407.
Staff recommends that the Brock Road rapid transit line (Other Rapid Transit
(BRT/LRT/AGT) line) be extended through Seaton to Highway 407 to support
connectivity of Seaton to the 407 employment areas and to York Region on
Figures 4 and 5 of the Draft RTP.
4.0 Summary of the Draft Investment Strategy
4.1 Total Capital Costs
The Draft IS estimates the total capital cost of the 25 year RTP will be $50 billion
(in today's dollars). The annual capital cost is estimated at $1.1 billion in 2009,
increasing to $2.5 billion by 2015 and beyond, until the capital expansion is
completed by 2033.
4.2 Operating Costs
There will be significant new operating costs resulting from the large scale capital
investments proposed in the Draft RTP. Metrolinx estimates that operating cost
will begin in 2009 at $18 million. As the major new transit projects are
implemented, this amount will steadily increase to $500 million by 2018 and
ultimately to $1.4 billion per year by 2033.
Report PO 45-08
November 10, 2008
Subiect: Draft RTP and Draft IS
Page 1 0
148
4~3 Finances
To finance the plan, the Draft IS proposes that the $11.5 billion in funding
announced for MoveOntario 2020 be used to fund project commitments from
2009 to 2015. This funding is stated to be sufficient to implement the proposed
Quick Win projects.
Should the Federal Government provide the $6 billion requested as part of the
MoveOntario 2020 Plan, then Metrolinx estimates that there is sufficient funding
for RTP projects to 2018. After 2018, Metrolinx advises that a significant funding
gap will need to be addressed though new and innovative financing measures.
Metrolinx proposes to undertake public and stakeholder consultation and
develop a detailed financing plan for Provincial approval in 2013. Some of the
potential financial tools to be examined include:
. Development Charges
. Land Value Taxation
. Tax Increment Financing
. Business Improvement Area Levies
. Mechanism to fund transit from a share of the proceeds from property
sales
. Joint Developments between Metrolinx, Municipalities and Private
Investors.
5.0 Discussion on the Draft Investment Strategy
Due to report deadlines, staff have not had the opportunity to review the Draft IS
in detail. However, the information contained in the Investment Strategy is very
high level and does not provide capital cost estimates for individual projects or by
municipal Jurisdiction (see Attachment #4: Draft IS). Staff supports the Region's
position on the Investment Strategy as follows:
. An operating cost model for new infrastructure proposed under the
RTP should be developed before the RTP is approved;
. The Investment Strategy should weigh the broader relative benefits of
investments in infrastructure versus investment in improved transit
operations; and
. Metrolinx should develop a financing plan for the operating, rehabilitation
and capital infrastructure needs of the RTP, in consultation with
municipalities.
Report PD 45-08
November 10, 2008
Subject: Draft RTP and Draft IS
-149
Page 11
6.0 Next Steps
6.1 Public Consultation Process
Metrolinx held a stakeholder meeting on October 21 st and a public meeting on
October 28th at the Heydenshore Pavilion in the Town of Whitby. City staff
attended both meetings. Following the consultation process, Metrolinx staff will
bring forward the finalized version of the Regional Transportation Plan and
Investment Strategy for approval by the Metrolinx Board at the November 2ylh
Board meeting. If approved by the Board, the final Plan and Strategy will be
forwarded to the Minister of Transportation for Provincial approval.
Attachments:
1. Draft Regional Transportation Plan - Executive Summary
2. Draft Regional Transportation Plan - Figure 4: 15-Year Plan for Regional Rapid
Transit and Highway Improvements
3. Draft Regional Transportation Plan - Figure 5: 25-Year Plan for Regional Rapid
Transit and Highway Improvements
4. Draft Investment Strategy
Report PD 45-08
November 10, 2008
Subject: Draft RTP and Draft IS
Page 12
150
Prepared By:
Approved/Endorsed By:
Neil Carr ,M , RPP
Director, Planning & Development
Kashif Shaikh, M.Eng.
Coordinator, Transportation Eng.
cat~~
Manager, Policy
Everett B tsm
Director, Operations & Emergency Services
S--~~ -:?
Gillis Paterson
Director, Corporate Services & Treasurer
GM:cs
J:\REPORTS\PLAN\2008\PD 45.08 GM. Metrolinx Draft & InvestmenlStrategy,doc
Copy: Chief Administrative Officer
Recommended for the consideration
of Pickering Cit :Co
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nEPORT I PO ~
'1 52
Executive Summary
The Greater Toronto and Hamilton Area's (GTHA) current transportation system
is inadequate. It is under capacity, underfunded, lacks coordination, and no
longer meets the needs of the citizens and the businesses in Canada's econ om ic
heartland. The symptoms of this impasse are evident in our congested roads
and highways, grid locked urban streets, unreliable and inconvenient transit,
and lack of safe bicycle paths and pedestrian pathways. Other symptoms - as
important, but less visible - include the economic disruption from congestion,
the hindrance of trade and the movement of goods, the increased number of
smog days, the toll on individuals and families from commutes that take too long
and transportation that costs too much. With an additional 2.6 million people
expected in the region by 2031, the situation will only worsen.
To address these issues, in 2006 the Government of Ontario created the Greater
Toronto Transportation Authority (now Metrolinx) and charged it with the task
of developing and implementing an integrated multi-modal transportation plan
for the GTHA. This is a draft of that plan. It builds on the considerable work and
consultation that Metrolinx has carried out to date.
The Draft Regional Transportation Plan (RTP) is based on the understanding
that incremental change will not get us where we need to be. We need to boldly
transform a transportation system that is no longer meeting our needs. The
Draft Plan is strategic, comprehensive and addresses all sectors of society.
It is multi-modal and addresses all forms of transportation - roads, transit,
cycling and walking. It seeks to get the most out of our existing investments in
infrastructure, as well as to identify new investments that are needed. The Draft
Plan is not just about infrastructure (the roads, rails, subways and bridges that
we need), but is also about changing behaviour - changing how, when, why and
whether we travel. It addresses both implementation and the requirements of
sustainable, long-term funding. It is practical, do-able, sustainable and timely.
The Draft Plan contains a vision for the future in which transportation in the
GTHA is seamless, efficient, convenient, equitable and user-centred. At its heart
are 15 Strategic Directions that are organized under the following imperatives:
. Reduce demands on the transportation system: minimizing unnecessary
travel, shortening the distance travelled, and making better use of the
options that we currently have.
. Increase choices for travel: providing a range of fully integrated, easily
accessible, attractive and sustainable transportation choices for GTHA
travellers and encouraging the use of options other than the automobile.
. Meet the needs of the traveller first: providing customers with the
tools, information and services they need to make travel easier and more
enjoyable.
Metro/inx . Draft Regional Transportation Plan
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: II ACHMENT # I TO
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. Build communities that make travelling easier: designing and building
communities to reduce travelling distances and facilitate walking, cycling
and transit use.
. Commit to continuous improvement: research to improve understanding
of transportation issues - such as the achievement of universal access,
the improvement of goods movement, and sustainable investment for
the system - and being able to respond to changing circumstances and
implement new initiatives as opportunities present themselves.
Nested under the Draft Plan's Strategic Directions are nearly 1 00 actions that will
be implemented over the course of the Plan's 25-year time horizon to transform
the GTHA transportation system into an effective, integrated and multi-modal
system. These are broad in scope and include actions by all levels of government
related to legislation, policies, programs, planning and funding.
While all of the recommended actions are important and will contribute to the
transformation of the GTHA transportation system, eight of them are considered
to be of particularly high priority. These Big Moves are those that will have the
largest, most transformational impacts on the GTHA transportation system. The
eight Big Moves are:
1. A fast, frequent and expanded regional rapid transit network.
2. A complete walking and cycling network with bike-sharing programs.
3. An information system for travellers, where and when they need it.
4. A region-wide integrated transit fare system.
5. A system of connected mobility hubs.
6. High-order transit connectivity to the Pearson Airport district from all
directions.
7. A comprehensive strategy for goods movement.
8. An Investment Strategy to provide stable and predictable funding.
The Draft RTP also addresses implementation, roles and responsibilities. It is
being released for public comment. The final RTP will be released later this fall.
Metrolinx . Draft Regional Transportation Plan
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31
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M~troHnx . Draft Regional Transportation Pfan
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33
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Table of Co.ntents
Message from the Chair
We're all in this together
Your voice matters
Investment that is reasonable
Move Ontario 2020
A Three-Step Plan for Implementation
Quick Wins
Proposed Investment Profile
Proposed Metrolinx Financial Plan
Metrolinx Leadership and Accountability
From Plans to Action
TECHNICAL BACKGROUNDERS
Five Proposed Investment Strategy Guiding Principles
Innovative Funding for Tomorrow
Land Value Capture
3
I ~'
158
It
"
'"
4
6
8
10
12
14
16
20
22
24
26
28
30
32
I" 1 5 9 ATTACHMENT#~TO"
A Message fromthe~Chair
September 2008
A regional transportation network that was ahead of its time played a
key role in the rise to prosperity of the Greater Toronto and Hamilton
area (GTHA).
With the release of its 25 year Draft Regional Transportation Plan (RTP) for the
Greater Toronto-Hamilton area (GTHA). Metrolinx is working to not only reclaim
our region's traditional transportation advantage, but also to protect our
environment and raise our quality of life too.
It won't be easy. We underinvested in the system over the last 25 years.
Everyday the region loses millions of dollars because our roads, trains, buses and
subways are congested, our air polluted and our nerves jangled.
With our population set to grow by 50 per cent in the next 25 years, playing catch
up is out of the question. We've got to get ahead of this challenge. The Metrolinx
Draft RTP is a bold and visionary plan to restore that winning combination of
mobility and prosperity that defined our region in the post-war era. It will put us
ahead of our competitors and closer to our families and communities.
Over the next 15 to 25 years we plan to triple the amount of rapid transit to 1,650
kilometers - and build more roads too. There'll be more car-free choices such as a
network of bike lanes, and more communities that support public transit and
encourage residents to walk, not drive, to a majority of the day's activities. And
public transit will be closer, faster, comfortable and easier to use than ever before.
All of this, as I say, won't be easy. And it won't come cheaply either.
In releasing this Draft Investment Strategy for public comment, Metrolinx IS,
taking an open and transparent approach on the size of the investment challenge
ahead of us. But we believe this challenge also offers an opportunity to lay a new
foundation for how the GTHA finances transportation projects.
4
tIT ACHMENT , q TO
REPORT I PO-=- Y S;::Q B
Preparing our Draft RTP, we came to the conclusion that modern day
transportation infrastructure systems are built as part of a network. And it is our
belief at Metrolinx that they must be funded that way too.
Ad hoc, episodic or one-off project funding rarely works. Success comes with a
consistent, reliable, long-term plan, supported on an on-going basis by all
governments and by reliable sources of funding for those investments.
You told us during consultations that nothing was more frustrating than watching
different levels of government and different transit agencies disagree over how
and where to invest.
You asked us to spend more time on co-operation and developing a common
vision, and for one agency to be responsible for delivering and financing this plan.
This plan proposes all that and more.
As we debate both the Draft RTP and how to finance it, let's never lose sight of
what drove the creation of Metrolinx in the first place: The need to create a new
transportation network that would drive our region's economy, sustain our
environment and promote our quality of life.
We are excited by our progress to date. We have a plan to build, fund and
maintain an integrated transportation network for the six million residents of the
GTHA, and the three million more that will arrive over the next 25 years. The next
step is up to you, through your feedback, thoughts and concerns. Working
together, let's seize this chance to keep our region moving - and moving forward.
Rob Macisaac
Chair
Metrolinx
160
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ET
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It ACHMENT iJ-troJo
1 6 1 :PORl fJ PD,_, -0
We're all in this together
Metrolinx is the Greater Toronto and
Hamilton Area's regional transportation
authority. Our focus is linking people to places. Our
mandate is to create a coordinated, efficient, equitable and
customer-centred transportation system in the GTHA - a
transportation system that will enhance prosperity and quality of life in
our metropolitan region.
We aim to get people home from work quickly, so they can spend more time
with their families. We also envisage a future where transit investment is
predictable, reliable, and sustainable. Transit must be a more attractive and
competitive option to connect us with learning, recreational and cultural opportunities and
the full range of essential services throughout our large and fast-growing metropolitan region.
The mandate to create a Regional Transportation Plan (RTP) is embodied in the Greater Toronto
Transportation Authority Act, 2006 which established Metrolinx and directed it to create a long-
term strategic plan for an integrated, multi-modal, regional transportation system. As defined
by the Act, this is to be transportation plan that:
" takes into account all modes of transportation;
.. makes use of intelligent transportation systems;
.. promotes the integration of local transit systems in the regional transportation area with
each other and with the GO Transit system;
.. works toward easing congestion and commute times, and reducing transportation-
related emissions of smog precursors and greenhouse gases; and
.. promotes transit-supportive development and the viability and optimization of transit
infrastructure.
The RTP is the blueprint for a more sustainable transportation future. It reaches out twenty-five
years into the future to guide and direct decision-making. It sets out priorities, policies and
programs for a future of complete mobility.
To fulfill this ultimate plan, Metrolinx and all levels of government must work together to set
the stage for long-term, reliable and sustainable transportation funding.
In order to pay for the projects within the Draft RTP. we have developed and are putting
forward an achievable action-oriented Draft Investment Strategy for government, public and
stakeholder consideration. The draft strategy contains an early practical implementation focus,
aimed at achieving the first wave of major construction groundbreaking starting in 2009, with
customer in-service dates following in 2015 and beyond.
G
, HACHMENT 11_ Lf 10
'VIRl f1 po" I.{ ~ -Old ,'..__
162
"
Metrolinx
In and
" . $50 billion 0 5
" Equivalent to billion
dollars plus inflation
for major investment
expansion:
~
r today 's
Metrofinx has a key
provide
with be mobility
tral objective:
the
more
'1
i
'163
ilACHMENT tI~ TO
,iiEPORT , po...:::!l~B
Your voice matters
One of the foundations of Metrolinx is putting the traveller first. In building our
Investment Strategy, we will continue to seek the input of people from across the entire GTHA -
from the City of Hamilton to Durham Region, and from the shores of Lake Ontario to Lake Simcoe.
What we heard so far is that transportation issues are at the top of people's minds. There is
widespread frustration with congestion and gridlock, and the impact on lost productivity and lost
time with families. People are clearly demanding a comprehensive and transformational
transportation improvement plan that can move forward immediately.
Across the GTHA, most people's daily lives routinely take them across local municipal boundaries,
so our Draft Investment Strategy, future projects and services must reflect that regional
"metropolitan" reality.
Metrolinx is the regional body that is responsible for developing, funding, and implementing a new
transformational plan. We propose to do so in a manner that reflects what people are telling us so
far - that by following efficient and internationally recognized best practices we can invest public
monies for lasting, measurable returns. We will monitor the investments on a regular basis, and
publish our progress reports in an open and transparent manner.
People in the GTHA told us they expect to see direct value for their investment. First and
foremost, people are tired of hearing about project commitments and re-announcements. They
want to see action and results - beginning now and throughout the next decade, they want to see
evidence of construction beginning and major new transit services being provided.
We believe that the government's MoveOntario 2020 commitment provides Metrolinx with the
necessary financial foundation to develop and build new projects immediately. By flowing the
MoveOntario 2020 commitment, or providing Metrolinx with a dedicated funding stream in an
amount sufficient to support the MoveOntario 2020 plan, people, stakeholders and business can
have confidence that transportation investment in our region has been placed on a reliable and
sustainable footing.
By working collaboratively, our metropolitan region can recover from decades of transportation
under-investment, and reclaim our reputation as a world leader in transit.
.~ ; ,'\GHIVIEin tf --,~----~\o.~.
ii_PORT # PD_ ~ .
focused
lea ~lIhat people want
w we can respond.,.
What we heard so far...
People are worried about the state of the
transportation system in the GTHA, both
today and for future generations.
People want a long term, comprehensive
improvement plan that isn't about "minor
tinkering" but about getting the "bigger
picture right".
People want to see results, and they want
a single point of coordination for regional
cooperation between the federal,
provincial and municipal governments.
People told us loud and clear that the time
has come for action, accountability and
results that provide lasting value for the
entire GTHA region.
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Investment that
is reasonable
blO
. .. u\CHMEI\IT tl--ri . -d ~
d:POR1' PD_.L,,"U~
Value for
small price
Our research shows that on average, people in the GTHA are
spending a little more than $70 dollars per week on transportation.
Many households spend a lot more. That doesn't even include larger costs like
vehicles and insurance. People are expressing frustration with commute times,
with transit services, and especially with road congestion.
Metrolinx's primary purpose is to address this challenge and to help make
people's transportation experience better. The Draft RTP sets out a blueprint for
doing this. Implementing the Draft RTP will require significant investment from
everyone. But the investment might not be as high as you might think. When we
all act together, the amount that anyone of us will have to pay is relatively small.
The Draft RTP sets forth an investment program that will deliver early measurable
improvements to the regional transportation system. The province's MoveOntario
2020 commitment will support the initial major transit projects which is equivalent
to less than $155 per year per person in the GTHA. In other words, for about 42
cents a day, or less than the cost of a daily newspaper, we can begin to invest in
projects that will help to prevent longer commute times - providing greater
choice and flexibility in people's transportation options, and helping to stop the
negative impact that transportation congestion has on our economy, environment
and quality of life.
This investment will grow over time as the system itself expands, and reaches
$470 per year per person by 2033. In today's terms, this means an investment of
approximately $50 billion dollars, for the equivalent of no more than $1.30 per day
- about the cost of a cup of coffee or a bottle of water.
That's a relatively small price to pay to secure a long-term, sustainable
transportation future.
10
\ i"TACHMENT # q\... .~
',[PORT I PD_ ':L~~~(J.
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We should lea from the
n oytation
tment rlences of other
successful international metropolitan regions,
to support Ontario vision to be the best place
in the world to live and do business.
11
t.
167
MoveOntario 2020:
The Foundation Investment
for Implementation Action
,;,...,.l.l~.. '~'._' ..... ......0.
~~~~....
~"'-~
The Draft Metrolinx RTP sets .out a bold and visionary blueprint for
the largest coordinated investment in public transportation
infrastructure in Ontario in 50 years.
But we also have an obligation to make sure that this investment is made in an
economically responsible and accountable way. To fulfill this goal. Metrolinx
proposes to strengthen our collaboration with our many partners: the Province,
municipalities, transit authorities, business, labour, the Federal Government and,
most importantly, the people who Metrolinx serves.
Our Draft Investment Strategy defines how we will help ensure that people
receive the highest transportation value we can create for the region - for today
and tomQrrow. We set out an achievable plan that leverages the Ontario
Government's MoveOntario 2020 commitment in order to accomplish early
implementation action and results.
Announced by the Premier of Ontario in June 2007, MoveOntario 2020 is a bold
step to improve the economic competitiveness and quality of life in the GTHA
through major rapid transit expansion. It will be one of the largest single transit
investments in Canadian history. The Ontario government will pay 65 percent of
the cost - $11.5 billion - out of existing provincial revenue streams.
Ontario is asking the federal government to pay 35 percent or $6 billion of the
total of $17.5 billion. This level of support is consistent with other infrastructure
projects of national economic and environmental importance - and typical
practice of federal or national governments in the rest of the developed and
developing world
Backed by the MoveOntario 2020 commitment, the Draft Investment Strategy
proposes to achieve a head start by beginning to deliver the initial wave of
significant transit projects, before opening the pubic dialogue about new revenue
and financial options to pay for the balance of the 25-year Metrolinx vision for
transportation in the GTHA.
12
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'1 6 9 i I ACHMENT ti f TO
. .1EPORT # po..2l - 0 B
A Three-Step Plan for
Implementation
The Draft Investment Strategy is
cover mc!)or
The first phase focuses on what we have already begun - our
Quick Win projects approved in the spring 2008 Ontario Budget.
The second phase begins immediately in 2009, by
focusing on significant new transformational investments.
During 'this phase, the MoveOntario 2020 foundation
commitment will support the large-scale transit projects that
some of the best engineers and planners in the world have
told us will deliver the highest level of benefit to the people
of the GTHA.
After the MoveOntario 2020 phase is over, and
people are beginning to enjoy the benefits of new transit
options, shorter commute times and a more environmentally
friendly transportation infrastructure, there will still be more
long-term investment required. In fact estimates show that
the population of the GTHA is expected to grow from 6.2
million people today to nearly 9 million people by 2031. This
implies considerable pressure to expand, modernize and
maintain our regional transportation system for generations
to come.
To support the expected long-term growth in our population
and economy, we must eventually consider new and
innovative ways to fund the regional transportation system.
Working directly with our government partners, business,
the public and other stakeholders, and by considering leading
international best practices, Metrolinx proposes to report
back to the Province in 2013 with recommendations to close
the 2016 - 2033 investment gap and to implement the
balance of the 25-year vision set out in the Draft RTP.
IIACHMENT # V ~O
;EPORT # PD_~
170
c
15
, I '1 7 1
Quick Wins
l~_~ii
We're
Ireadyon our way
In late 2007, Metrolinx and its Board dispelled the skepticism of many that a
cross-section of municipal leadership from across the GTHA would not be able to
agree on a priority-based and technically supportable set of "Quick Win" transit
investment priorities. In fact. using Metrolinx as the forum for those decisions,
the GTHA municipalities demonstrated that a balanced consensus can present a
powerful case for implementation action on shared regional priorities.
The approximately $750 million of Metrolinx Quick Win projects approved in
the 2008 Provincial Budget may be 'quick' in timing, but they represented a
significant advancement in regional transportation focus. Metrolinx is proud to
be driving this new focus for the GTHA.
We are also proud that these initial project priorities will deliver tangible
benefits for the people of the GTHA within the next five years or less. Our
Quick Win projects represent a meaningful investment balance across the
entire GTHA region, and they are the precursors of larger, and even more
transformational, projects.
l~-Q~--~-
1-7 2
~)
o
173
. -
Quick Wins
Metrolinx
uic/< in
Projects
Inter-Regional
Hamilton
Halton
Peel
York
Toronto
Durham
'I~:O~O
Based on the consensus recommendations of the
Metrolinx Board, the Ontario Government
demonstrated its continuing and substantial financial
support by funding the following projects in the 2008
Provincial Budget:
'" GO Transit Rail Fleet Expansion: 20 additional bi-Ievel
passenger coaches for the GO Lakeshore Corridor
.. GO Transit Double-Decker Buses: 10 new double-decker
commuter buses for the Highway 407-403 Corridor, and
to York University
.. GO Track Expansion: New passing-track sections for the
GO Bradford and GO Stouffville corridors
.. Bicycle Expansion: New bicycle-carrying devices on
municipal transit vehicles and bicycle-storage spaces at
stations across the GO Transit network
" B-Line Improvements, King-Main Corridor
.. A-Line Improvements, James-Upper James Corridor with
service to Hamilton International Airport
.. James Street North GONIA Station Gateway to Niagara
.. Early Phase Dundas Street Bus Rapid Transit Spine
.. Dundas and Hurontario Higher-Order Transit Corridor
Development
.. Mississauga Transitway Hub, Airport-Renforth Gateway
.. Bolton GO Transit Improvements
.. Early Phase VIVA on Highway 7 and Yonge Street, and
the Cornell Terminal
.. HC Transit City Light Rail Transit (LRT) Head Start
.. Yonge Subway Capacity Improvements
" Yonge Finch-Steeles Bus Rapid Transit
.. Early Phase Highway 2 Bus Rapid Transit Spine
ArrACHM.ENT'~. .. ... T..O.
~FPORT /! P/)~~
-.----.
...
174
'"
Metrolinx Priori Investments:
e ext 1 5 Years
'"
The MoveOntario 2020 foundation commitment, coupled with previously announced project
funding announcements, will enable us to proceed with the major new transformational projects
that will positively shape how we travel, and how we grow and develop our metropolitan region.
Over the next year, Metrolinx is committed to exploring with the province, municipalities and
other partners, the potential strategies to "capture" and dedicate the land value uplift that is
created by the advent of new rapid transit corridors and hubs. These revenues could potentially
be reinvested back into transit infrastructure improvements. The implementation of higher-
order, rapid transit services could also be a catalyst for transit-supportive commercial and
residential development, and larger transit ridership and revenues. Please refer to the technical
backgrounder for more details on potential Land Value Capture tools.
The following are the fifteen major priority projects to be implemented in the first 15 years of the RTP.
Top 1 5 Priorities
.. VIVA Highway 7 and Yonge Street through York Region
.. Brampton's Queen Street Acceleride
.. Spadina subway extension to Vaughan Corporate Centre
" Yonge subway extension to Richmond Hill and capacity improvements
" Eglinton rapid transit from Pearson Airport to Scarborough Centre
.. Upgrade and extension of the Scarborough Rapid Transit line
.. Finch/Sheppard rapid transit from Pearson Airport to Scarborough Centre and Meadowvale
" Express Rail on the Lakeshore Line from Hamilton to Oshawa
" Rapid transit in downtown Hamilton from McMaster University to Centennial Parkway
.. Hurontario rapid transit from Port Credit to Downtown Brampton
.. 403 Transitway from Mississauga City Centre to the Renforth Gateway
.. Rail link between Union Station and Pearson Airport
" Rapid transit service along Highway 2 in Durham
.. Improvements to existing GO rail services and extension of GO rail service to
Bowmanville
.. Early phases of BRT service on Dundas Street in Halton and Peel
19
. -- AnAcHMENT#~
1 7 5 RFPORT /I PI) __'I ~lt
Proposed Investment-Profile
The Draft RTP Capital and Operating Program will be one
of the largest of its kind in Canadian transportation history.
Total cost of the 25-year transit plan capital expansion
component alone is estimated at approximately $50 billion in today's
dollars (see Graph 1). On a year-by-year basis, capital expenditures will
increase from $1.1 billion in 2009 to $2.5 billion in 2015. The Capital Program
will be completed by 2033.
The upfront capital expenditures of the RTP are assumed to be financed by long-term
debt in order to spread the costs over the life of the i;:lssets. Debt to support Metrolinx
investments is assumed to be arranged through the Ontario Financing Authority. The
province could also consider assigning a dedicated revenue stream to Metrolinx, from existing
revenues, to support debt service payments.,
Graph 1
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RTP CAPITAL EXPENDITURES-x
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'RTP costs include transit, policy and programs costs only.
Asset rehabilitation is projected to start in 2020, five years after the completion of the first RTP expansion
projects (see Graph 2). Rehabilitation costs will increase with the completion of more projects. Once the
RTP Capital Program is completed, rehabilitation expenditures are estimated to continue at $1.8 billion
per year, to ensure we are adequately reinvesting in these long-lasting assets to safeguard optimum
operating efficiency and public safety.
G
h 2
RTP REHAB EXPENDITURES*
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AnflCHJVkiH. # .... V .j,U
P.~POPT I' pn~_l{ S"-o\:; _ f 76
Operating expenditures of the Draft RTP projects are estimated at $18 million in 2009 "
for initial Draft RTP policy and program costs. The operating cost impacts of the first
completed major new transit projects are expected to commence in 2015. Total
operating expenditures will increase to $1.4 billion in 2033 upon the completion of all
Draft RTP projects (see Graph 3).
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"'
c:
.9 $2,000
~
~
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00 ~ 00 M
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RTP OPERATING EXPENDITURES*
(Today's Dollars)
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*RTP costs Include transit. policy and programs costs only.
Under the current division of responsibility for transit operations in the GTHA, the ongoing
operating cost of new regional commuter rail and express rail services will be mainly the
responsibility of the Province, while municipalities are assumed to be mainly responsible for
subway, aut9mated guided transit (AGT). light rail transit (LRT) and bus rapid transit (BRT)
operating costs.
Metrolinx proposes to develop options for long-term, sustainable GTHA transit operating funding,
as part of our report on potential dedicated revenue tools and instruments to fund the balance of
the Draft RTP projects to 2033, for Province of Ontario review and consideration in 2013.
The total expenditure profile to deliver the ultimate 25-year Draft RTP vision is substantial (see Graph
4). Combined capital, rehabilitation, and operating expenditures on a cash basis (before debt
financing) are approximately $3 billion per year for most years during the life of the 25-year Draft RTP.
Craph 4
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00 (") 00
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a a a
N N N
RTP TOTAL EXPENDITURESx,
(Today's Dollars)
(")
N
a
N
00
N
a
N
(")
(")
a
N
00
(")
a
N
(")
....
a
N
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....
a
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a
N
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LO
a
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. Capex
III! Rehab Costs
mOperating Costs
*RTP costs include transit. policy and programs costs only.
21
'177
ATI.AC. HMENT#<__~. ~H
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Proposed Metrolinx
Financial Plan
Metrolinx is proposing to fund the first series of large transformational
transit projects through the Province's $11.5 billion MoveOntario 2020
foundation commitment. Our financial projections suggest the provincial share
of MoveOntario 2020 will be sufficient to sustain Draft RTP project commitments
from 2009 to 2015. This means people across the GTHA will be able to see and
experience the benefits of major transit expansion early in the Metrolinx mandate.
Ontario's outstanding request for a $6 billion federal contribution to MoveOntario 2020
is critical to achieve more sustained funding. The combined provincial and federal
MoveOntario commitments should be sufficient to meet Draft RTP costs to 2018.
Following public and stakeholder consultations, and more detailed analysis, Metrolinx
proposes to report back to the Ontario government in 2013 with strategic advice,
guidance and options to close the GTHA transportation investment gap beyond 2015.
Key Characteristics and Assumptions of the
Financial Plan
Subject to Province of Ontario consideration and review:
.. Each RTP project should be implemented utilizing a procurement model that
maximizes the ability for Metrolinx to implement projects quickly, but also by
limiting exposure to project risks. It is assumed that in each case private sector
involvement in project design, construction, and financing should be considered,
where appropriate. According to the Province of Ontario and the federal
government all large transit capital project proposals must be submitted for
Alternative Financing and Procurement (AFP) evaluation.
.. The Financial Plan is focl,Jsed on the capital expansion costs of the Draft RTP.
Options for long-term sustainable funding of transit operating and rehabilitation
costs should be addressed in the Metrolinx Investment Strategy report to the
Ontario government in 2013.
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.. All new rapid transit Capital Assets should be under the title of the Province or Metrolinx,
and the capital cost should be amortized over the life of the assets similar to a home
owner's mortgage, for example, over 15, 25, or even 40 years depending on the type of
asset This also reflects the benefits that accrue to future generations that would benefit
from the assets,
.. All project capital costs are assumed to be financed through debt, repayable against an
amortization period covering the standard useful life-cycle of the asset The average useful
life for assets in the Draft RTP is assumed to be 25 years,
" Debt service payments are assumed to commence as debt is issued to pay for capital costs,
However, arrangements for construction period financing could be considered at the individual
project decision-making level, based on the selected procurement and delivery model.
.. Capital assets should be maintained over their life-cycle using internationally-recognized
sound asset management principles, This means that assets should be maintained to an
agreed standard through continuous investments in asset rehabilitation, Rehabili,tation
expenditures are assumed to be covered through contributions equivalent 4% of total
capital costs on an annualized basis, commencing five years after project completion.
Financial Cap Post-20 1 5
The MoveOntario 2020 foundation commitment is the cornerstone for the immediate, responsible
initiation of the RTP.
Based on the currently contemplated funding, the provincial share of MoveOntario 2020
commitment is expected to meet transit capital expansion funding requirements, as set out in the
Draft RTP, to 2015. Together with the requested one-third federal share of the MoveOntario 2020
commitment, capital expansion funding requirements can be met to 2018.
To address the capital expansion and rehabilitation funding gap beyond 2015 (or beyond 2018, if
Ontario is successful in securing the federal funding share), new long-term revenue and funding
instruments will be required. This long-term investment challenge includes capital expansion, life-
cycle rehabilitation and ongoing net operating costs.
Metrolinx proposes to consult with the public and stakeholders, and report back to the Ontario
government on the potential suite of long-term financial tools to fund and sustain the complete
25-year Draft RTP vision, in 2013.
. .1.7 9 ATTACHMENT # TO
Meirolinx Leadersrllp -an
Accountability
Time is of the essence in generating the benefits of regional
transportation investment. The Draft Investment Strategy is based on a
set of complementary assumptions on Metrolinx empowerment, all subject to
Province of Ontario review and consideration:
.. Leadership and Cooperation - Metrolinx proposes to playa leadership
role in delivering the new transit and other transportation projects
identified in the Draft RTP, and we understand the necessity of
cooperating with all regional stakeholders, including municipalities, the
Province and the federal government. We are committed to working with
our municipal and transit agency partners to ensure the projects are
delivered on time and on budget. MoveOntario 2020 funding, coupled
with proposed amendments to the Greater Toronto Transportation
Authority Act, should be introduced in 2009 to allow Metrolinx to enter
into long-term, performance-based agreements with project partners for
capital project leadership and implementation.
.. Funding - To be effective leaders, Metrolinx proposes to be financially
enabled. This means that we would have the ability to draw on sustained
financial resources and the flexibility to deploy those resources as
needed. Similar funding models already exist in other regional Canadian
jurisdictions, such as TransLink in Greater Vancouver, and the Montreal
Transit Authority (AMT) in Greater Montreal.
.. Communication - Metrolinx proposes to post progress milestone
reports or a regular basis, and to provide real-time project updates on our
website.
This single-point accountability approach, paired with funding and
implementation responsibility for the initial phase of an integrated regional
transit and transportation network, is the basis for Metrolinx, as a new regional
authority, to build early Implementation credibility and to get results for the
GTHA and Province of Ontario.
ATTACHMENT' ~-~O
REPORT I PD~
180
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From Plans to Action
The people of the GTHA are about to witness and participate in one
of the largest investments in transportation infrastructure in
Canada's history. You have told us that you want this investment to address
issues like congestion, to provide people with choices in their travel options, and
to focus on getting projects completed on time and on budget.
Metrolinx has developed a Draft RTP. based on extensive consultation and input,
that requires an investment commitment to support economic growth and
prosperity, to help reduce the negative impact of transportation on the environment,
and most importantly, to improve the quality of people's lives in our region.
We are presenting, for your review and consideration, a practical and staged Draft
Investment Strategy that is affordable, and allbws a decisive start on large;
transformational transit project priorities as early as 2009.
Metrolinx is proud to be leading a new transportation vision for the GTHA.
Together, we are on the brink of establishing a legacy of transportation benefits
for generations to come.
The Metrolinx motto is 'linking people to places'. Our vision is for one of the best
transportation systems in the entire world. Our pledge to you is that with your
support, we are ready, willing and able to transition our vision and plans to
implementation.
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183
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Technical Backgrounders
Five Propos d Investment
Strategy Guiding Principle
Metrolinx is proposing five principles to shape all of our future
investment decisions. We are committed to each of them, and believe they
can provide investment leadership, predictability and accountability for the people
of the GTHA.
Principle 1 - Regional or "Metropolitan" Focus - Metrolinx investments should
enhance regional transportation and mobility. This means that our funding sources
will also be linked and dedicated to regional benefits. Local municipalities should
maintain their key roles in local transportation, but when it comes to regional
transportation issues, Metrolinx will be the authority focusing on 'linking people
to places' across the GTHA.
We need a Regional Transportation Plan and Investment Strategy that reflect the
way most of us live our lives and perform business - where we routinely cross
local community and municipal boundaries to support a dynamic regional
economy, labour market, and institutional and social networks across the GTHA.
We live in a "metropolitan" context - whether its air quality, the built urban form,
media markets, goods delivery or family interactions - and our travel patterns
reflect that regional reality. So shoul(:J our transportation investment plans.
Principle 2 - Invest where it Matters Most - all Metrolinx investments should
be aligned with the RTP and subject to a fair, easy-to-understand and rigourous
"Benefits Case" screening process where ~conomic, environmental and social
needs and impacts are taken into direct account. People want a transportation
system that moves them where they want to go, and when they want to get
there. Metrolinx should focus on how to maximize the value of our regional
investments, taking a regional perspective.
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Principle 3 - Prudent Financial Management - We believe that the investments should be
affordable and that a financial plan should be in place to show how the investments will be funded,
Since the investments in the transportation system will generate benefits for the GTHA residents
over many years, we believe that the use of debt financing is appropriate and the debt should be
amortized over the useful life of the assets, similar to a home mortgage,
Principle 4 - A System that Works and is Accountable - Metrolinx is a regional authority, and
we will be directly accountable to all people in the GTHA. Our pledge is to post regular reports on
exactly how we are progressing towards achieving our plans, A system that works is one where
clear targets for construction and implementation are set, performance is managed, and people
can trust that their interests are being served,
Principle 5 - Risk Management and Project Implementation Discipline - people are tired of
construction projects that take longer than they should and cost more than promised. Metrollnx
will introduce sound, recognized disciplines in project delivery and management by adopting the
best practices domestically and internationally, We will not make a single investment until we are
satisfied that risks will be managed, projects will be delivered on time and on budget, and there
will be no 'surprises',
Metrolinx will set ambitious objectives and performance expectations - while leaving it to the
creativity, expertise and technical skills of local authorities and professionals to meet those
standards,
E
tl
185
~~-DB
Innovative Funding
for Tomorrow
Looking Beyo d 201
Metrolinx is committed to a full public dialogue about future long-
term funding instruments. We are proposing to initiate a thorough public
examination and report-back to government decision-makers in 2013, based on a
public consultation and options report that we will post at that stage. Our
assessment process of long-term investment needs has really only just begun, but
we will be working hard to put forward strategic advice and options that reflect an
equitable and responsible way to fund the future growth of the GTHA
transportation system.
In working with the public and our stakeholders, Metrolinx will be exploring the
issue of introducing innovative funding instruments from multiple perspectives.
There will be trade-ofts that need to be made, and we will need to work together,
to ensure that trade-offs reflect a thorough examination of each dimension and
impact of the future funding choice. Metrolinx will at all times pay rigorous
attention to existing practices and system inefficiencies, so we only ask the
traveler for more financial support after we demonstrate that they are getting
good value for money on their existing taxes and contributions. The important
dimensions to be considered include:
.. Technical feasibility to ensure that tools can be implemented effectively;
.. Magnitude of the revenue opportunities are sufficient to cover
requirements;
.. Sustainability in both economic and environmental terms;
.. Fairness for people who will be asked to pay;
'" Transportation impact to positively deliver the Draft RTP policy objectives;
'" Administrative costs that are not too high; and
.. Public acceptability such that a majority of people understand and accept
the initiative.
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To build the future will require real
innovation in how we fund our
transportation system...
... etroli WI rch out ese
innovative methods and provide
people with real choice.
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ATTACHMENT' ~ TO
1 8 7 REPORT # PO l{ <:,_D B
Land Value Capture
Metrolinx is pursuing innovative ways of funding the growth
and expansion of regional transportation infrastructure. As
one example, we are looking for ways to add increased value for citizens
in the GTHA from private sector developers. The region is growing, and
as a centre piece of the RTP we are encouraging new mobility hubs and
urban growth centers.
Private land owners and developers should not be the only ones to
benefit financially from such growth centers. By entering into innovative
property development arrangements - for example having private
investors provide funding for schools, transit stations and public libraries
- Metrolinx will be doing more than just help provide stronger
transportation infrastructure, we will be helping to provide stronger
communities.
Land Value Capture and enhancement revenue sources refer to
strategies aimed at recovering some of the increased value in land and
property development that results from transportation investment.
Following the practices of Canadian and international jurisdictions such as
Vancouver, Washington D.C., Los Angeles, Hong Kong and Amsterdam,
Metrolinx is looking at ways to make sure that land owners and
developers pay a fair share of the benefits they will receive. Specifically,
we are looking at a range of potential tools in the near term:
" Development Charges that reflect the real value of land
development, particularly in the Metrolinx investment corridors and
in the areas surrounding Mobility Hubs and Urban Growth Centers;
.. Land Value Taxation to capture the value enhancement due to
transportation improvements - this may be implemented as an
annual tax or a levy payable on the sale or zoning of the land;
"
> 188
ATTACHMENT # ~ _ (5. ~o
m:pOR1 fI PO I.(
o
" Tax Increment Financing that uses the increase in future property tax revenues to support
present investment;
· Business Improvement Area levies from local business and property owners to support
improvements to the designated area;
· Mechanisms whereby property owners would pay a share of proceeds from property sales
where value increases are tied to Metrolinx transportation investments; and
" Opportunities for joint developments between Metrolinx, municipalities, and private
investors to offset the costs of transportation assets and/or provide long-term revenue
stream to support transportation operations.
Metrolinx is already working in cooperation with GTHA municipalities, and the Ontario Realty
Corporation to explore the specifics of land value opportunities associated with the draft Regional
Transportation Plan. We will report back with a Land Value Capture implementation strategy
in 2009.
Metrolinx will assume responsibility for working
in partnership with pri te velope so that
the Ja d value created by the RTP inves t
to s r com all.
ET
189
ATTACHMENT # ~ JP
C'c~ORTJ PO. ... ~... Lf S;::::Ot;