10 takeaways from the Ottawa LRT inquiry final report
CTVNewsOttawa.ca looks at ten key takeaways from the Ottawa Light Rail Transit Public Inquiry final report released on Wednesday.
Political pressure to launch the O-Train
The report concludes "considerable" political pressure to begin operation of the Confederation Line caused the city to "rush the system into public service".
Justice William Hourigan, commissioner of the inquiry, says the city agreed to consider the system as having met the Project Agreement's definition of substantial completion, even though significant operating issues remained. He notes that when the city agreed that substantial completion was achieved in 2019, it deferred the resolution of ongoing known problems with the system.
"In my view, the City's decision to agree that substantial completion was achieved was made because the City was intent on moving the project into trial running, whether it was ready or not," the report says.
"The practical result was that the parties pushed out resolving known problems into the period of system operation."
City Manager misleads Council
Commissioner Hourigan says there was a "deliberate effort" by former City Manager Steve Kanellakos to mislead Council on the decision to lower the criteria during testing of the Confederation Line in the summer of 2019.
"As public pressure grew to get the system open for public service, the City and RTG changed the testing criteria to make it easier to pass. That change was covered up when Kanellakos deliberately mislead council in his (Aug. 23, 2019) memorandum," the report said.
"This is not only a serious finding regarding OLRT1, but it also has broader significance for other projects undertaken by the City. Without changes to the information-sharing process and a fundamental shift in the approach of senior City staff, the statutory oversight function of Council will be irreparably compromised."
Hourigan also noted former Mayor Jim Watson did not provide information on the changes to the testing criteria during the trial running to members of council.
"The Mayor's failure to inform Council prevented Council from exercising effective oversight."
Commissioner Hourigan concluded the city "elected to gamble with unproven technology" with the decision to select Alstom's Citadis Spirit Model as the vehicle of choice for the LRT project.
In the report, Hourigan notes the city received advice at the start of the project to use vehicles that had been used successfully in other cities with "similar needs and climatic conditions", which would reduce the "risk of design flaws, delays, and malfunctions, and would minimize the changes of service interruptions."
"Despite this advice and the requirements of the Project Agreement, the City chose to proceed with unproven technology. The vehicle used, Alstom’s Citadis Spirit model, included existing components from other train models but was actually a new custom-built vehicle for this project," the report notes.
"Further, the City’s demands for the vehicle, including a low floor and performance requirements that made the use of an automatic train control system with aggressive acceleration and deceleration rates necessary, among other performance capabilities, pushed the limits of performance for an LRT."
Hourigan says the delivery model chosen by the city, which relied on the private sector to build and maintain the Confederation Line, "left the city with little control over RTG's work."
The report states the P3 model, "resulted in the city avoiding significant financial liability during the construction phase, but it also led to a situation where the parties' attention was diverted to protecting their legal rights instead of opening a reliable LRT."
RTG and Ottawa Light Rail Transit Constructors "knowingly provide inaccurate information"
Commissioner Hourigan says Rideau Transit Group "failed to provide" the city with a reliable LRT system in a timely manner.
"While delays are understandable on any project, what is inexplicable was RTG and OLRT-C's insistence on providing RSA dates to the city that had no realistic hope of achieving," the report notes. "When the city announced these dates, it caused confusion and frustration for the residents of Ottawa, which, in turn, created pressure to open the system."
Hourigan says construction delays are a "strong possibility" in a project of the size and complexity of Ottawa's light rail transit system.
The report notes the most significant delay for the project was the Rideau Street sinkhole in 2016, but also pointed to the Ottawa Light Rail Transit Constructors "failure to integrate its many components and systems" and the Ontario government's rules established in 2008 that require specified amounts of Canadian content in the vehicles, including material and labour.
"While some of these factors were outside the parties' control, it was unconscionable that RTG and OLRT-C would knowingly provide inaccurate information to the City about when the OLRT1 system would be ready for operation."
City reduced number of trains required to launch O-Train
The report says the city "lessened requirements for accepting the system at the Revenue Service Availability" in the summer of 2019.
While the Project Agreement requirement for RSA was having 17 double-cars available for use, the city agreed to amend the agreement to reduce the requirements to 13 double cars. During the inquiry, city of Ottawa witnesses said the decision was based on a September 2018 analysis that showed the anticipated ridership levels did not require the full complement of 17 trains.
"The Commission does not accept that the City’s insistence on 17 double cars available for use changed because of a belief that suddenly formed in August 2019 that the September 2018 analysis had been correct," Hourigan writes.
"Other witnesses from both the City and RTG acknowledged that the change was made because RTG was struggling to get the full 15 trains (plus 2 spares, for a total of 17) on the line.
"The bottom line is that the City reduced the minimum number of double cars because it was intent on getting the system opened."
No soft launch
The commission finds the city "failed to follow best practices" by not implementing a soft launch for the opening of the Confederation Line in September 2019, which would have allowed RTG and OC Transpo to "shake out" the bugs.
OC Transpo ran a parallel bus service for three weeks, and then it ended.
"This resulted in a situation where start-up issues were being worked out during the initial operations period."
"Inadequate maintenance resources"
Hourigan says Rideau Transit Group and its subcontractors "provided inadequate maintenance resources" following the launch of the Confederation Line.
"There were ongoing problems with the system that caused service delays and general system unreliability," the report says.
"The city contributed to this problem by filing hundreds of work orders in the first weeks of operation, many of which were categorized as urgent, to respond to minor issues that would have been largely resolved through regular maintenance."
RTG and OLRT-C work at "cross-purposes"
The report says Rideau Transit Group and the Ottawa Light Rail Transit Contractors "failed to ensure the integration of roles, responsibilities and deliverables" through the construction.
"Further, the arrangements for subcontractors on this project were complex and uncoordinated. At times subcontractors, which had overlapping ownership interests, were working at cross-purposes, which contributed to an overall lack of integration," Hourigan wrote.
Everything was new with the $2.1 billion system
The commission finds the city of Ottawa, Rideau Transit Group and its subcontractors "failed to appreciate and plan" for the delays and reliability issues" associated with a new system with new technology.
"The OLRT1 project was characterized by new relationships, new designs, new facilities and infrastructure, and new undertakings that affected nearly every aspect of the project."
Hourigan notes the city had no experience with an LRT project of "this complexity, or with using a P3 model to deliver a project like this, Alstom had never worked with the Canadian content requirement, and OC Transpo had never previously operated a complex LRT system.
"I do not criticize any of the parties involved in this project for attempting to do something they had not done before. However, the participants fell short in not appreciating the extent to which they were entering uncharted waters and anticipating the issues that would likely arise as a result," Hourigan said.
"They should have planned better for lengthy delays (and informed the public accordingly), understood that reliability problems would arise (and staffed accordingly), and allowed sufficient time for testing and trial running in the context of an unproven vehicle, unproven relationships, and inexperience."
City should retain outside safety advisors
The commission concludes there is still an "ongoing issue with the wheel and track interface that is continuing to cause problems", and the city should retain a safety advisor to report to council.
Kanellakos hired TRA from Philadelphia following the second derailment in September 2021 to oversee Rideau Transit Maintenance and the return-to-service plan. TRA provides safety consulting to transit agencies across North America.
"The Commission recommends that TRA or another competent, independent third party continue monitoring the safety issues and any remedial actions undertaken by the parties to ensure the continued safe operation of the system," Hourigan writes.
"Given the previous failures of senior City staff to honestly communicate critical information to Council, it is recommended that the third party report directly to Council or the Ottawa Transit Commission. At this juncture, nothing less will suffice to regain the public's trust in the OLRT1 system."
- Ottawa LRT report: Read the conclusion of the executive summary
EXTREME COLD WARNING
CTVNews.ca Top Stories
With the anniversary of Ukraine's invasion by Russia around the corner, CTV News sat down with a Russian warfare expert to discuss how he sees the conflict playing out and what happens next.
According to Environment and Climate Change Canada, as of Thursday morning there were extreme cold or winter storm warnings active from coast to coast, with the harshest extreme cold warnings stretching from northern Alberta all the way to Nova Scotia.
Would you pay $300 a year for quick access to a nurse? Dealing with demand, Ontario doctors get creative
Paid subscriptions to on-demand care are among the many strategies primary health-care providers in Ontario are adopting in order to meet increased demand for access to doctors in the past year, while also managing staffing shortages.
Nestle Canada says it is winding down its frozen meals and pizza business in Canada over the next six months. The four brands that will no longer be sold in the freezer aisle at Canadian grocery stores are Delissio, Stouffer's, Lean Cuisine and Life Cuisine.
A paramedic signing off for duty for the last time got choked up and teary-eyed during his final radio call to colleagues.
Hundreds of customers who scan QR codes for restaurant menus across Canada are being surprised by secret menus instead, revealing the hidden costs behind the food they eat.
One of Saskatchewan’s oldest hockey rinks has garnered national attention for its unique features and unusual design.
The U.S. is tracking a suspected Chinese surveillance balloon that has been spotted over U.S. airspace for a couple days, but the Pentagon decided not to shoot it down due to risks of harm for people on the ground, officials said Thursday.
Will we see six more weeks of winter, or an early spring? Here’s what some of the groundhogs (and one human) have predicted so far, from coast-to-coast.
On the day that Shubenacadie Sam predicted six more weeks of winter, there are extreme cold warnings cautioning that the coldest air of the season is about to arrive in the Maritimes.
Police in Sackville, N.B., are investigating after seven children ingested cannabis edibles at a middle school on Wednesday.
An extreme cold warning has been issued across the region, with some saying the arctic air could break record-low temperatures in the Maritimes.
'We win or it’s free' paralegal bribed court clerk in traffic ticket fixing scheme: testimony alleges
A paralegal firm whose tagline is “we win or it’s free” bribed a Toronto traffic court clerk to change legal records to make it look like they had won, said the clerk in the first time he has testified publicly about the case.
Toronto and most of Ontario are in for a frigid bout of winter weather, according to Environment Canada.
A group of Ontario Greens have put together a counteroffer for Liberals trying to poach their leader.
After an extremely mild month of January, the province is bracing for a blast of arctic air that will move in tonight and last until Saturday. Environment and Climate Change Canada has issued extreme cold warnings that covers most of the province with wind chills expected to be between -38 and -42 across the South and -50 across Northern Quebec.
A beloved man who was a fixture on the streets of Montreal's Notre-Dame-de-Grace neighbourhood died last year from a combination of street drugs in his system, including fentanyl, a coroner has ruled.
Medicago's parent company has announced that the Quebec City-based biopharmaceutical company, which developed a vaccine against COVID-19, will cease operations.
An argument between two young children playing outside together escalated to violence when a parent got involved, a North Bay mom says.
The Ontario Lottery and Gaming Corp. is holding a big reveal Friday morning: the winner of a $48 million Lotto 6/49 Gold Ball draw.
The past few weeks have been a bit of a roller coaster for 16-year-old Ra'Jah Mohamed, a student at Lo-Ellen Park Secondary School.
One person has died and four others were sent to hospital after a two-vehicle crash in south London Wednesday night. She has since ben identified by her former cheerleading coach as 19-year-old Chloe Mackenzie.
Two-year-old Ella Crosset loved to dance and celebrate Halloween. Her smile lit up a room, and brought joy to so many people. But Ella passed away after a pool accident, and the pain of that loss was incomprehensible — through tragedy however, comes hope.
Environment Canada has lifted a snow squall warning for the London region Thursday evening, but a cold weather alert from the Middlesex-London Health Unit remains in effect. In addition, Grey-Bruce and Huron-Perth remain under snow squall and extreme cold warnings.
New documents show what led to a couple handing out cannabis-infused gummies to children in Winnipeg - and what happened in the hours directly after.
Ducks Unlimited Canada is celebrating World Wetlands Day by highlighting a success story in Niverville, Man.
A mobile home owner could potentially be out thousands of dollars after learning her home might not be insurable.
Police say they’ve arrested multiple people and one person was taken to hospital following reports of an armed robbery at Conestoga Mall on Thursday.
'Time to move on': Reaction as Udo Haan found not criminally responsible for wife’s death, house explosion
A Kitchener man, who was charged with killing his wife and then blowing up their home in 2018, has been found not criminally responsible.
A blast of cold Arctic air is expected to reach southern Ontario Thursday night paired with possible heavy blowing snow, according to Environment Canada.
Calgary police are investigating after a carjacking at a northeast dealership on Thursday afternoon.
Calgary's Alexandria Loutitt did it again Thursday afternoon, winning gold at the FIS Nordic Jr World Ski Championships in Whistler.
A Calgary pro wrestling legend has passed away.
Aaron Benneweis, 46, has been charged by Saskatoon Police with sexual assault and sexual exploitation of a minor while in a position of trust or authority.
Brian Hodgkinson always knew there was benzene in natural gas — after all, he spent 40 years working with it for SaskPower, then SaskEnergy.
A report written and reviewed by Saskatoon Water is calling on the city to create a warning system, in particular for drivers, when roadways become “dangerously flooded” due to heavy rain.
If EPS, sheriffs try a hard crackdown on inner-city Edmonton it could make things worse: criminologist
A former Edmonton Police Service officer believes bringing Alberta Sheriffs into downtown Edmonton is a risky plan that has the potential to backfire if not done properly.
The Operation Friendship Seniors Society (OFSS) announced Wednesday that it would be shutting down services at the McCauley Seniors drop-in facility.
Three more Albertans died from influenza in a one-week period, according to the latest data from health officials, while newly reported cases decreased for the 10th week in a row since the peak in mid-November.
A man was found fatally shot in a vehicle on a residential street in Burnaby Thursday afternoon, and homicide investigators have been called to the scene.
Strong winds are expected to arrive Friday afternoon and last until the evening.
Hidden along old logging roads and tucked in near rivers and waterways, are campers who have made Crown land near the Chilliwack River their homes.
One of Saskatchewan’s oldest hockey rinks has garnered national attention for its unique features and unusual design.
The final details are being chiselled into place at the REAL District in preparation for the second annual Frost Festival taking place Feb. 3 to 12.
The Farmer and Rancher Mental Health (FARMh) Initiative has launched a mental wellness network along with a virtual toolbox full of mental health resources for the agriculture community.