The Corporation of Delta COUNCIL REPORT Regular Meeting F.09

To: Mayor and Council

From: Office of the Chief Administrative Officer

Date: September 27,2017

George Massey Tunnel: Ensuring the Safety of First Responders

• RECOMMENDATIONS:

A. THAT a letter be sent to the Honourable Claire Trevena, Minister of Transportation & Infrastructure urging the Provincial government to: • undertake a comprehensive review of the immediate safety concerns of the George Massey Tunnel, including consultation and site visits with Delta Fire & Emergency Services, Delta Police, Richmond Fire-Rescue and the RCMP (Traffic Division); and • take immediate steps to address any deficiencies that may compromise the health or safety of emergency responders attending 911 calls at the George Massey Tunnel.

B. THAT copies of this report be provided to:

• Premier • Dr. Andrew Weaver, MLA and Leader of the BC Green Party • , MLA and Interim Leader of the Official Opposition • , MLA Delta-North , [. • , MLA Delta-South !. • Jas Johal, MLA Richmond-Queensborough • , MLA • , MLA • , MLA Richmond-Steveston • Mayor Malcolm Brodie and Richmond Council • Ashok Bhatti, Regional Director, South Coast Region, BC Ministry of Transportation & Infrastructure • Chief Dan Copeland, Delta Fire & Emergency Services • Chief Constable Neil Dubord, Delta Police t.i • Chief John McGowan, Richmond Fire-Rescue • Supt. Davis Wendell, RCMP Traffic Services, "E" Division Page 2 of 3

George Massey Tunnel: Ensuring the Safety of First Responders September 27, 2017

,II PURPOSE:

The purpose of this report is to seek Council approval to request that the Provincial government work with emergency first responders and take immediate steps to address any deficiencies that may compromise the safety of first responders attending to calls in the George Massey Tunnel.

• BACKGROUND:

At the August 14, 2017 Regular meeting, Delta Council endorsed a report entitled 'Provincial Review of the George Massey Tunnel Replacement Project', which urged the Provincial government to undertake a comprehensive review of the tunnel replacement project before making an informed decision regarding the project. On September 6,2017, the Province announced that an independent technical review would be undertaken to determine the next steps to address congestion along the Highway 99 corridor.

While Delta is supportive of the independent review process, the Province has yet to respond to Delta's additional request "to review recent Ministry of Transportation & Infrastructure inspection reports of the tunnel and determine a plan of action to address current safety concerns and ensure the tunnel continues to function safely as long as it is in use".

• DISCUSSION:

Opened in 1958, the George Massey Tunnelis inevitably showing signs of wear and tear. BC Ministry of Transportation & Infrastructure inspection reports from 1995 to 2.016 (summarized in Attachment 'A') highlight some concerns related to the deterioration of the concrete, including extensive cracking and spalls which have exposed rebar in parts of the tunnel. Netting has been installed in the worst areas to prevent concrete pieces from falling onto the roadway. There are also issues with the electrical, lighting, ventilation, and alarm systems:

• The original electrical equipment, which has a 30 year design life, is still in use after 59 years. The system shows signs of ageing, may fail without warning and spare parts are difficult or impossible to obtain. • Although the lighting was replaced in 2005, the system does not meet current North American lighting standards. • There needs to be a better warning system for over-height vehicles following numerous instances of damage to the fire sprinkler system from over-height trucks. • The ageing ventilation system causes extremely poor air quality inside the tunnel.

As noted in previous reports and briefings (see Attachment 'B'), conditions for first responders dealing with incidents in the tunnel are already extremely challenging, so any deficiencies with the lighting, ventilation or sprinkler systems will only serve to exacerbate the situation and potentially put first responders at risk.

The timeline for completion of the BC government's independent review of the Highway 99 crossing corridor is not known; however, it is clear that a replacement crossing is at least five years away. During that time, the Provincial government must take steps to identify any critical ---I

Page 3 of 3

George Massey Tunnel: Ensuring the Safety of First Responders September 27, 2017

structural, mechanical and electrical deficiencies in the tunnel that may compromise the health or safety of emergency responders and implement corrective measures to ensure their protection. l~ I It is crucial that first responders from both Delta and Richmond are involved in this process and it is recommended that the BC government work with Delta Fire & Emergency Services, Delta Police, Richmond Fire-Rescue and the RCMP (Traffic Division) on this issue including a joint inspection of the George Massey Tunnel.

Implications:

Financial Implications - there are no financial implications to Delta.

• CONCLUSION:

The Provincial government is being urged to undertake a comprehensive review of the safety concerns of the George Massey Tunnel, including consultation and joint inspections with Delta Fire & Emergency Services, Delta Police, Richmond Fire-Rescue and the RCMP (Traffic Division), and to take immediate steps to address any deficiencies that may compromise the health or safety of emergency responders attending 911 calls in the tunnel.

George V. Harvie Chief Administrative Officer

Department submission prepared by: Bernita Iversen, Manager of Corporate Policy F:\Bernita\Tunnel\2017\Oct CR\CR.docx

ATTACHMENTS:

A - George Massey Tunnel Condition Reports (summary) B - George Massey Tunnel Replacement Project - Safety Benefits from an Emergency Response Perspective Attachment A 1 of 2

Netting has been installed on the cross beams at the tunnel portals (installed July 2010) to prevent spalling concrete from falling into traffic Referenced on pages 12 and 17 of the Bridge Maintenance Inspection Reports, Ministry of Transportation and Infrastructure (1995-2016)

Delamination of exposed reinforcing steel is occurring in the cross beams where concrete has spa lied Referenced on pages 17,21,25,29 and 33 of the Bridge Maintenance Inspection Reports, Ministry of Transportation and Infrastructure (1995-2016)

An alkali silica reaction in the concrete used to construct parts of the tunnel has led to pattern cracking and premature degradation Referenced on pages 3, 4, 8, 13, 14, 18, 22, 26, 30, 24, 37, 40, 41, 42 and 43 of the Bridge Maintenance Inspection Reports, Ministry of Transportation and Infrastructure (1995-2016) Referenced in Appendix C of the "George Massey Tunnel No. 1509 Seismic Safety Retrofit and Rehabilitation - Assessment Phase Seismic Retrofit Strategy Report Volume 2 of 2", Buckland & Taylor Ltd Bridge Engineering (March 2001)

Is seismically vulnerable for events greater than 1:275 Referenced on page 16 of the "Prediction of Tunnel Performance with No Ground Improvement", Buckland & Taylor Report (January 2009)

Moves up and down with the tide Referenced on page ii of the "Geotechnical Data Report - Static Load Test George Massey Tunnel Replacement Project", Golder Associates (October 2016)

Roadway geometries are substandard including vertical clearance, lane widths, shoulder widths and access for emergency service responders For example, the Tunnel clearance is 4.15 metres, where the current minimum vertical clearance to a bridge structure is 5.0 metres

Alligator cracking is occurring in the pavement running surface Referenced on pages 4 and 9 of the Bridge Maintenance Inspection Reports, Ministry of Transportation and Infrastructure (1995-2016)

Water seeps through approach structures and up on to the pavement running surface Referenced on page 35 of the Bridge Maintenance Inspection Reports, Ministry of Transportation and Infrastructure (1995-2016) Referenced in Appendix C of the "George Massey Tunnel No. 1509 Seismic Safety Retrofit and Rehabilitation - Assessment Phase Seismic Retrofit Strategy Report Volume 2 of 2", Buckland & Taylor Ltd Bridge Engineering (March 2001)

High voltage system Original Equipment is still being used {55+ years oldL design life is 30 years "Substation high and low voltage equipment is beyond its specified life span, may fail without warning, shows signs of aging, is unreliable, spare parts are difficult or impossible to obtain, requires extensive maintenance." Estimated cost to replace is up to $3.5 million depending on the opHons selected Attachment A 2 of 2

Referenced on pages 8, 13, 23 and 26 of the "George Massey Tunnel High Voltage Upgrade Report", PBA Consulting Engineers (December 2010)

Fire Alarm and Carbon Monoxide detection System liThe original GMT fire alarm system was installed at the time of its construction in 1958 but has since been removed sometime in the early 1980's. There are still existing cabinets where the previously installed equipment was located as well as wiring entering the cabinets. This equipment is old and obsolete. The cables are a very large gauge size, have deteriorated insulation, and cannot be reused. It is not known if the sensors connected to these cables are still located inside the tunnel nor the exact type of sensors. Regardless, these sensors are obsolete and not recommended to be reused./I The sprinkler and ventilation systems were not assessed Proposal is to bring the tunnel Fire Safety Systems up to current standards at an estimated cost is $600k to $1.4 million for detection equipment (not including ancillary systems such as sprinklers and ventilation) Current sprinkler system is operated manually Referenced on pages 5 and 19 of the "George Massey Tunnel Fire Alarm and CO Detection Systems Upgrade", PBA Consulting Engineers (November 2011) Attachment B Page 1 of 4 Attachment B Page 2 of 4

_ GMTRP - An Emergency Response Perspective

George Massey Tunnel Replacement Project Safety Benefits from an .Emergency Response Perspective

The announcement by Premier in September 2013 of plans to replace the George Massey Tunnel with a new bridge has prompted some debate regarding the respective advantages and disadvantages of bridges and tunnels. Although the Province and Delta have provided considerable evidence in support of a bridge, it is important to highlight some additional considerations from an emergency response perspective.

ACCIDENTS IN TUNNELS ARE MORE FREQUENT AND MORE SEVERE:

Not only is there a higher than average accident rate for the George Massey Tunnel, vehicular accidents in tunnels also tend to be more severe and result in more significant injuries and deaths than accidents on open roads:

• The average accident rate for the George Massey Tunnel is 47% higher (0.44 collisions per million vehicle kilometres) than the provincial average of 0.30 collisions per million vehicle kilometres for a comparable highway classification. The average collision rate for northbound vehicles in this segment of Highway 99 is double the provincial average collision rate for this highway classification, 0.60 collisions per million vehicle kilometres (Deican, 2015).

• Many accidents occur on the approach to the tunnel since drivers tend to reduce speed and move away from the side wall when entering a confined space. In combination with merging lanes, high traffic volumes and vehicles in close proximity, there is a higher likelihood of an accident. This is especially problematic when contra-flow lanes are used during peak hours and traffic is going in both directions through a single tunnel.

• A review of ICBC crashes from 2009 to 2013 found an average of more than 300 collisions annually at the George Massey Tunnel and adjacent interchanges. Of these, approximately 40% resu lted in casualties (injury or death).

• Studies indicate that a bridge would reduce collision rates by more than 35% compared with the tunnel (based on traffic data at the new (BC MoTI,.2015)).

Th e Corporation of Delta 4500 Clarence Taylor Crescent Delta, BC V4K 3E2 604.946.4141 www.delta.ca Attachment B Page 3 of 4 _ GMTRP - An Emergency Response Perspective

EMERGENCY RESPONSE - DELAYS AND HAZARDS:

The heavy traffic congestion and lack of a shoulder lane for emergency vehicles make it difficult for first responders to reach and clear accidents, both within the tunnel itself and the entrance and exit areas. This presents a significant safety concern as there may be delayed emergency response times and provision of critical care.

• Delta firefighters responded to an accident inside the tunnel during the morning peak rush hour. The fire truck was unable to enter the tunnel due to traffic so two emergency responders proceeded on foot to the accident scene and provided medical assistance to the injured. Richmond Emergency Services was unable to enter the tunnel from the north side until traffic had been cleared . • There was an early morning accident south-bound involving 5 vehicles. Emergency responders had to wait until the counterflow had been shut down in order to enter the tunnel and get to the accident. • There was a north-bound head-on collision between a bus and SUV. The fire engine was unable to get close to the accident so the jaws of life and power unit were carried to the incident scene where one person was extracted from a vehicle. • Three people were trapped in a car north-bound in the tunnel. The tunnel was full of vehicles so firefighters walked to the accident until access for the fire truck could be cleared . • A peak-hour two-car collision heading north into the tunnel involved three children in one vehicle. Emergency responders had to wait on Highway 17 until access to the scene could be secured. • Three peak-hour morning accidents, involving 2 vehicles north-bound in the slow lane, 4 vehicles north-bound in the counterflow lane, and an accident south-bound, effectively closed the tunnel completely. • A fatal collision involving a car explosion filled the tunnel with smoke. Responding police officers could not breathe due to the smoke, resulting in delays andhealth concerns for officers. • There are issues with communication in the tunnel, including radio systems which do not work.

Where a fire is involved in a tunnel incident, there are health and safety concerns for emergency personnel entering a confined space filled with smoke, as well as potential impacts on the people trapped in the tunnel. For example, a vehicle fire occurred north-bound in the tunnel and heavy black smoke was coming out of the tunnel entrance. A person was reported to be trapped inside a burning car. There was delayed emergency response due to traffic congestion. Two firefighters were sent into the tunnel with self-contained breathing apparatus (SCBA) and an extinguisher.

ECONOMIC IMPACT OF ACCIDENTS:

In addition to the costs associated with vehicle collisions, accidents in or near the tunnel often result in the closure of one, or even both, tunnels. The economic impacts of tunnel closures, even brief closures,

The Corporation of Delta 4500 Clarence Taylor Crescent Delta, BC V4K 3E2 I 604.946.4141 www.de lta.ca Attachment B Page 4 of 4 _ GMTRP - An Emergency Response Perspective

are considerable. Accidents on multi-lane bridges are less likely to result in complete closure since there are alternative routes around the scene of the accident.

DISASTER MANAGEMENT IMPLICATIONS:

The George Massey Tunnel has approximately ten yea rs left before major components, such as lighting, ventilation and pumping systems, need to be replaced. Seismic upgrades were completed in the early 2000s which will withstand smaller earthquakes; however, the tunnel will not withstand a major earthquake, and it is not feasible to upgrade it to 'modern seismic standards. A 1-in-275 year seismic event would lead to tunnel failure, which is far below current design standards of 1-in-2475 years (MOTI, 2015) .

CONCLUSIONS:

The replacement of the George Massey Tunnel with a bridge wil l result in improved emergency response capabilities and faster response times for fire, police and ambulance. A bridge, with extra lanes and shoulder lanes, would provide improved emergency vehicle access to accidents and allow vehicles to turn around and cross-over lanes in emergency situations. Furthermore, complete closure of the bridge is far less likely than tunnel closure. There are significant advantages of a bridge over a tunnel from an emergency response perspective .

References:

BC MOTI (2015). George Massey Tunnel Replacement Project: Project Definition Report. Retrieved from: https://engage.gov.be.ca/masseytunnel/files/2015/12/G MT -P ro ject -Defi n ition -Report -Dec-2 015 .pdf

Delcan. (2015) . George Massey Tunnel Replacement Project: Collision Data Analysis. Retrieved from: https://engage.gov.bc.ca/masseytunnel/files/2015/12/Collision-Data-Analysis-2015 .pdf

ICBe. (2016) Crashes. Retrieved from: http://www.icbc.com/about- icb c/ newsroom/P ages/Lower -M ai n la nd -Crash- M a p.aspx

1• :•1 ~

Chief• Dan Copeland, Chief Neil Dubord Delta Fire & Emergency Delta Police Department

www.delta.ca