Windsor Street Exchange Redevelopment project

Project overview

The Windsor Street Exchange Redevelopment project involves the redesign of the intersection of Bedford Highway, Windsor Street and Lady Hammond Road. As one of five roadway access points to the Halifax Peninsula and the downtown core, approximately 48,000 vehicles per day travel through the Windsor Street intersection, with 92,000 to 110,000 vehicles per day through the project area. The Windsor Street Exchange is currently operating above its available capacity during peak travel periods.

The goals of the project are to add active transportation connections and transit priority measures through the intersection, improve the movement of vehicles and goods through the area, and improve the safety for all road users.

The Windsor Street Exchange project is being delivered using a progressive design-build approach, which brings design and construction together under one team. This method allows the project to move faster and more efficiently by aligning design decisions with construction sequencing and timelines. In late 2024, the municipality awarded a contract to a design-build team led by Dexter Construction Limited.

Project status

Since being awarded the contract, the design-build team has been reviewing the approved 30% functional design and moving into detailed design. Engineering has been organized into work sections to allow some construction to begin in select areas in 2025, ahead of full project construction.

Regional Council approval

In January 2025, following earlier Council direction to explore potential upgrades to enhance the transit and active transportation design within the project area, staff returned with an updated design approach. At that meeting, a motion to proceed was defeated and the project was temporarily paused.

In February 2025, staff returned to Council with additional information and an alternative recommendation—to proceed with the Windsor Street Exchange project and begin planning the second phase of the project to provide additional dedicated transit lanes and separated pedestrian and cycling infrastructure. Regional Council approved this motion, and the project resumed.

Future dedicated transit options workshop

A planning workshop to explore the second phase is scheduled for spring 2025, with an update to Regional Council expected in summer 2025.

Background

A brief history of this project

Two design options were developed for the project based on an assessment of the existing conditions, expected future transportation and land uses in the area, feedback from public and key partner engagement, and overall project objectives. Phase 1 of public engagement was held in April/May 2021 (report available here) and Phase 2 was held in October/November 2021 (report available here).

This is a very challenging and unique project with several important objectives that the project intends to achieve and significant physical and operational constraints that influence how these objectives can be met. The project team determined that a value engineering study to evaluate the design options and assess potential design alternatives should be completed before selecting a final functional design. This study was conducted in early 2023 and the recommendations resulting from the study were incorporated into the updated design where appropriate.

The project team presented a final functional design to Regional Council in June 2024, which incorporated previously gathered feedback, recommendations from the value engineering study, and further assessment and evaluation of alternate design options.

Regional Council approved the advancement of the functional design, requesting that the design-build phase of the project consider upgraded active transportation facilities, inclusion of dedicated transit lanes, and assessment of potential future impacts due to other nearby projects and increased travel demand.

National Trade Corridors Fund application

The municipality, in partnership with the Province of Nova Scotia and the Port of Halifax, submitted a proposal to redevelop the Windsor Street Exchange to the National Trade Corridors Fund (NTCF). Transport Canada evaluated projects on specific trade-related criteria, as well as the extent to which a project would add capacity or address bottlenecks near major ports, airports, or along road and rail corridors in Canada that contribute to generating or increasing overseas trade.

A concept for the Windsor Street Exchange redevelopment was submitted to Transport Canada in May 2019. The concept confirmed that a reconfiguration of the transportation network could meet the goals of the NTCF program, and on June 2, 2019, the Minister for Transport announced that the Windsor Street Exchange project, along with a complementary project by the Port of Halifax, had been approved.

Budget and funding sources 

The approved total budget for this project is $104 million. Transport Canada is contributing $23.5 million via the National Trade Corridor Fund, the Province of Nova Scotia is contributing $10.75 million, and the Port of Halifax is contributing $2 million. The remainder of the project budget will be funded by Halifax Regional Municipality and Halifax Water through their respective capital budgets.

The project budget is expected to evolve as the design is developed by the design-build team, with the overall budget being finalized prior to the construction contract being awarded.

Past public participation

Phase 1 - Conducted in spring 2021. The feedback heard during this engagement was used to develop two design concepts.

• Watch the recorded virtual Open House.
• Read the ‘What We Heard’ Report.

Phase 2 - Conducted October and November 2021. The project team shared concept design options and gathered feedback that will be used in making design decisions.

• Watch a video sharing the project background and concept design options.
• Watch the recorded virtual open house.
• Read the ’What We Heard’ Report.

Community Benefits

• On August 13, 2019, when authorizing the contribution agreement with Transport Canada, Regional Council directed staff to explore whether community benefits could be part of the selection of a preferred concept.
• Due to the proximity of the project to the historic Africville community, the project team have met with the Africville community to identify concerns and opportunities associated with the project and will continue to work with the community through the Africville Visioning Process.
• The Mi'kmaq are the founding people of Nova Scotia, and meetings will be held with the Mi’kmaq and Urban Indigenous communities to identify opportunities with the project.

Frequently asked questions

Who is involved in this project?

The Halifax Regional Municipality has partnered with Transport Canada through funding under the National Trade Corridors Fund (NCTF), as well as the Province of Nova Scotia and the Port of Halifax. Funding was announced in June 2019. The municipality is leading the project and Halifax Water is partnering to complete capital work in the project area as well.

What is the National Trade Corridors Fund?

Transport Canada launched the National Trade Corridors Fund (NCTF) in July 2017. The fund provides $2 billion over 11 years towards projects that support the flow of goods and passengers by reducing bottlenecks, addressing capacity issues, and helping transportation systems withstand the effects of climate change. The NTCF will contribute $23.5 million to the Windsor Street Exchange Redevelopment project. Funding for this project will also be provided by the Halifax Regional Municipality, the Port of Halifax, the Province of Nova Scotia and Halifax Water.

What are community benefits?

Community benefits are a way to increase the social impact of a municipal capital project. Benefits that could be included as part of infrastructure projects vary for each project based on the scope of the project, the impact of the project, and the opportunities identified through community consultation. They could include community improvements through design, such as active transportation connections and infrastructure upgrades, social procurement and environmental improvements.

When will construction begin?

The design-build team is beginning detailed design work, which includes the development of a design and construction phasing plan. An update on this plan is expected in spring 2025, which will share expected construction start dates and durations. Further details on construction timing and impacts will be shared on this project page on a regular basis.

How will these changes benefit residents and motorists in the municipality?

These upgrades will improve the safety, efficiency and reliability of primary transportation routes, and most importantly – alleviate a longstanding bottleneck in the transportation network. 
 
The project will also further the municipality’s Integrated Mobility Plan’s goals of reducing port-related trucks traffic and traffic-related noise, improving safety, transit service, active transportation connectivity, and reducing greenhouse gas (GHG) emissions.

What environmental impacts will this project have?

This project will reduce congestion at this long-standing bottle neck, lowering greenhouse gas (GHG) emissions, and provide improved sustainable modes of transportation (active transportation and transit) through the area. A climate change risk-assessment has been completed for the project which has provided recommendations to integrate into the design and construction process.

How does the Windsor Street Exchange Redevelopment project impact other transportation projects in the area?

The Windsor Street Exchange Redevelopment project is coordinating with the Bedford Highway 60% Design project, and will consider the completed Bedford Highway Functional Plan throughout the design process. The designs for both projects will intersect west of the Fairview Overpass.

The Africville Active Transportation project is exploring options for an active transportation connection to Africville Museum and Africville Park from North End Halifax. The Windsor Street Exchange public engagement will be integrated with the Africville Active Transportation Connection project, as well as through consultation with the Africville community on the project scope and potential community benefits.

How does the Rapid Transit Strategy fit into the project?

The Rapid Transit Strategy, approved by Regional Council in May 2020, includes the “Green Line” through the Windsor Street Exchange. How transit moves through the area has been considered when evaluating design options for the Windsor Street Exchange Redevelopment project.

Will road safety be reviewed as part of the study?

Collision history has been reviewed and analyzed as part of the study to improve access, connectivity and comfort for all users. Opportunities to improve safety through design and operational changes will be identified during the design process as the project progresses.

How will this impact how I travel by vehicle in the area?

Assessing impacts to vehicles travelling in the area through functional design options of the corridor is part of the project. The team has modelled existing vehicle conditions and any impacts related to the proposed changes, as well as modelling options for redesign of the Windsor Street Exchange and the impact to the overall transportation network.

Impacts to travel during construction are expected, and more information will be shared by the project team as the detailed design and construction phasing plans are developed.

What does Complete Streets mean?

Complete Streets are planned, designed, and maintained to make travel safe, convenient, and comfortable for people of all ages and abilities and using all transportation modes. The Windsor Street Exchange is an important link for all modes of transportation (active transportation, transit, vehicle traffic and goods movement), and the redesign will improve the people moving capacity of the intersection. 

What is value engineering?

Value engineering is an approach that is used to analyze and improve projects and has been used to evaluate design options for major infrastructure projects across North America. These studies have been successful in other jurisdictions to improve project outcomes, reduce construction costs, and deliver overall value for money. A value engineering study is conducted by a team of experts, and includes pre-workshop review and preparation, a workshop which identifies and evaluates potential alternatives, and review of which alternatives will be implemented on the project.

The value engineering study for the Windsor Street Exchange Redevelopment project:

• evaluated the work that was done so far and the design options that were being considered;
• considered input we have received from the project stakeholders and the public;
• evaluated potential alternative design options; and
• provided recommendations to improve the efficiency, safety, impact, constructability and cost of the project. 

The value engineering team evaluated the developed design options and any design alternatives that were identified during the study. They provided recommendations that have been incorporated into the functional design.