March 27, 1998

To:Urban Environment and Development Committee

From:Interim Functional Lead, Transportation

Subject:Designation of Loading Areas and On-Street Parking Spaces in Downtown Toronto For Use By Motor Coaches

Downtown: Councillors Olivia Chow, Kyle Rae

Midtown: Councillors John Adams, Ila Bossons

Don River: Councillors Jack Layton, Pam McConnell

Purpose:

The purpose of this proposal is to implement a programme which will assist in organizing the loading/unloading and mitigate the impacts of on-street parking activity by motor coaches in the downtown area of the City of Toronto. In total, about 60 loading spaces would be delineated while about 70 longer stay bus parking spaces would be provided at various locations on City streets.

Funding Sources:

The funds associated with the implementation of the proposed plan (approximately $17,000.00) are contained in the 1998 Current Budget estimates.

Recommendations:

It is recommended that in order to provide positive guidance to the operators of motor coaches:

(1)on-street loading areas and parking areas should be defined by appropriate signage;

(2)the parking and/or stopping regulations on the sections of Adelaide Street West, Richmond Street West, Jarvis Street and University Avenue (former Metropolitan roadways) identified in Appendix 1 of this report be rescinded;

(3)the parking, standing, stopping and/or parking meter regulations on the sections of Adelaide Street West, Richmond Street West, Jarvis Street and University Avenue (former Metropolitan roadways) identified in Appendix 2 of this report be adopted;  (4)the loading, parking and/or parking meter regulations on the sections of Asquith Avenue, Bay Street, Commissioners Street, Front Street East/West, Queen Street West, Victoria Street and Wellesley Street West (former City of Toronto roadways) identified in Appendix 3 of this report be rescinded;

(5)the parking, standing and/or parking meter/machine regulations on the sections of Asquith Avenue, Bay Street, Commissioners Street, Front Street East/West, Queen Street West, Victoria Street and Wellesley Street West (former City of Toronto roadways) identified in Appendix 4 of this report be adopted;

(6)the appropriate City Officials be requested to take whatever action is necessary to give effect to the foregoing, including the introduction in Council of any Bills that are required to provide the legal mechanism and to amend the appropriate Sections/Schedules of the uniform Traffic By-law and the City of Toronto Municipal Code; and

(7)this report be forwarded to the Toronto Community Council for their information.

Background:

Based on the findings of a consultants report prepared in 1996, an estimated 200 buses daily are generated by hotels and entertainment venues in downtown Toronto with each tour or charter bus group injecting between $7,000.00 and $11,000.00 daily into the local economy. Nevertheless, the motor coach industry maintains that Toronto is one of the most restrictive municipalities in North America when it comes to on-street parking and loading operations by tour buses and that more accommodating measures should be implemented to enhance these operations, encourage continued patronage to Toronto and ensure a growth in the tourism industry in the City.

With this in mind, in September, 1997, an ad hoc committee comprised of representatives from the Metro Chairman's Office, the Toronto Police Service, the Transportation Department, Toronto Works Services, Tourism Toronto, the motor coach industry, and the hotel association started a series of meetings to review motor coach activities in downtown Toronto. The mandate of the committee was to recommend a strategy which would facilitate on-street motor coach loading/unloading activities and on-street parking, and to have this strategy in place for the 1998 tourist season. This strategy was requested by the various affected industry associations to provide positive guidance to motor coach operators, to further promote the tourist industry in Toronto, and to provide a simple and fair enforcement policy. This report details a strategy which addresses the loading/unloading and on-street parking needs of the motor coach industry in downtown Toronto. (A similar process is underway to devise an integrated off-street parking strategy for motor coaches, with an expected completion date of early 1999.)

Discussion:

The objectives of the motor coach strategy are:

(1)to identify suitable locations in downtown Toronto to allow loading/unloading of motor coaches; and

(2)to identify suitable locations in other distinct areas for on-street parking of motor coaches.

The work plan used to develop this strategy included a detailed site inventory of current motor coach loading/unloading and parking activity; existing parking controls; analysis of road and traffic data; identification of conflicting demands for curb-side space; and the solicitation of comments from affected stakeholders including the use of a questionnaire which was mailed to about 50 hotels and entertainment venues.

It should be noted that this report does not amend the current by-law which prohibits the idling of motor coaches. The proposed loading and parking programme will not encourage the idling of these vehicles. Rather the designation of loading and parking spaces is expected to assist in the control of bus activity and may result in a reduction to illegal idling of motor coaches.

This discussion is divided into four sections: A - loading/unloading activity; B - on-street parking; C - fee structure; and D - promotion.

A - Loading/Unloading:

Generally speaking, loading/unloading occurs within close proximity to an attraction and is usually of short-term duration (e.g. 15 minutes). This activity is permitted under the current "No Standing" and "No Parking" regulations. However, these parking regulations also permit the shared curb-side use by private and other commercial vehicles engaged in similar activities.

Of the locations inventoried, the vast majority do not experience significant loading/unloading problems. Motor coach drivers successfully gain access to the curb to perform loading/unloading activities while competing with other curb-side demands at these locations. Therefore, we do not require changes to the curb-side regulations at these non-problematic locations. However, to reinforce the expectation that motor coach loading will take place at these locations, and to provide positive guidance to motor coach operators, special signs will be installed to identify the area for motor coach loading activity.

Motor coaches were found to have significant loading difficulties at five locations. These locations are:

(i)Toronto City Hall, the Queen Street West frontage;

(ii)Sutton Place Hotel, the Bay Street frontage at Wellesley Street West;

(iii)Primrose Hotel, the Carlton Street frontage at Jarvis Street;

(iv)Sheraton Centre, the Richmond Street West frontage at York Street; and

(v)Hilton Hotel, the Richmond Street West frontage at University Avenue.

These problematic locations are characterized in part by an insufficient supply of available loading/unloading zones, and the presence of Toronto Transit Commission (TTC) facilities, bicycle lanes, metered parking spaces, taxi stands, and/or competing use of curb-side space by vendors.

There are measures available to mitigate the difficulties motor coach operators experience at these locations.

Toronto City Hall

On the north side of Queen Street West, west of Bay Street, the existing "School Bus Loading Zone" installed several years ago as a temporary measure to provide a passenger loading/unloading area is no longer an appropriate means of dealing with bus operations in the vicinity of City Hall. In place thereof a "No Standing" regulation should be implemented and appropriate signs should be installed to identify a motor coach loading/unloading zone. Approximately eight buses can be accommodated in this area (from 39.6 metres west of Bay Street to 121.9 metres west thereof).

Sutton Place Hotel

 It is possible to create a motor coach loading/unloading zone on the north side of Wellesley Street West (from 49 metres east of Bay Street to 16.5 metres further east thereof). The installation of the loading/unloading zone will require the removal of one metered parking space on Wellesley Street West, east of Bay Street, and the designation of a "No Standing" zone.

Primrose Hotel

Motor coach loading/unloading can occur on the west side of Jarvis Street, south of Carlton Street (from 30.5 metres south of Carlton Street to 26 metres south thereof). This loading/unloading zone can also serve the needs of the Clarion Hotel, which is located on the west side of Jarvis Street, south of Carlton Street. Three metered parking spaces on Jarvis Street, south of Carlton Street, will be removed, and designated as a "No Standing" zone.

The southbound curb lane of Jarvis Street approaching Carlton Street operates as a defacto right-turn lane. Therefore, the proposed designation of a ANo Standing@ zone will allow on-street motor coach loading/unloading activities to occur at all times of the day without resulting in significant impacts to the flow of traffic on Jarvis Street.

Sheraton Centre

The Richmond Street West frontage, east of York Street, is presently used to facilitate motor coach loading/unloading activities at the Sheraton Centre. The designation of a "No Standing" zone (from 53 metres east of York Street to 36 metres east thereof) is feasible at this location because Richmond Street West is four lanes wide. Delays to traffic will be minimal because these activities will be limited to short durations.

Hilton Hotel

Motor coach operators experience difficulties for loading/unloading activities at the Hilton Hotel because of conflicts associated with taxis parked on the south side of Richmond Street West, east of University Avenue. The designation of a loading/unloading zone on the east side of University Avenue, immediately south of Richmond Street West, will alleviate this difficulty for motor coach operators. The impact to northbound traffic is expected to be minimal if a "No Standing" zone for motor coach loading/unloading is designated on University Avenue (from 30.5 metres south of Richmond Street West to 45 metres south thereof) at the Hilton Hotel.

Since the tourist, convention and motor coach industry is dynamic, and seasonal demands are difficult to predict, the process to identify additional problematic locations will be on-going and staff will report further if and when additional motor coach loading problems are identified.

The estimated cost for City staff to fabricate and install appropriate signs at the 5 proposed locations outlined above, and at the other locations where the placement of signs would enhance motorists awareness of bus loading activity occurring, is approximately $7,500.00.

B - On-Street Parking:

One of the key elements of the proposed strategy is to provide appropriate curb-side locations for motor coach operators to park once they have completed their unloading activities. In some cases, motor coach operators require on-street parking for a short period of time, especially in the downtown area near attractions. In some cases they require longer on-street parking, including overnight. In determining appropriate areas for parking, it is necessary to weigh public concern into our evaluation. Many complaints about bus operations and their impact on environmental issues such as noise and fumes and neighbourhood aesthetics are received annually by City staff. Therefore, these concerns had to be considered at the locations selected.

Representatives of the motor coach industry have advised us that the time limits for on-street parking must range from a 3 hour to a 24 hour maximum, including overnight, to accommodate their wide range of needs.

Staff suggest that on-street motor coach parking be provided on roadway segments which are currently regulated by a "No Parking" prohibition. In this way, the likelihood of replacing other valuable parking needs with motor coach parking is minimized.

We evaluated several roadways in downtown Toronto and immediately adjacent to the downtown. The criteria used to identify locations where on-street parking could be allowed includes roadway geometry, adjacent land use, proximity to TTC routes for motor coach operators, proximity to attractions, and minimal access conflicts. The majority of downtown routes would not be appropriate for on-street motor coach parking because of competing demands for curb-side space and the high daytime traffic volumes.

There are three different motor coach parking facilities being proposed:

(a) any time of the day, evening and weekends in the Central Business District;

(b) evening and weekends in the Central Business District; and

(c) long term outside the Central Business District.

(a) Motor Coach Parking - Any Time Of The Day - Central Business District

On-street motor coach parking can be provided at all times at the following downtown locations where competition for curb-side space is minimal:

(i)on the west side of Bay Street at Toronto City Hall, north of Queen Street West;

(ii)on the west side of Victoria Street, north of Queen Street East; and

(iii)on the south side of Asquith Avenue, east of Yonge Street.

Bay Street

As noted in the loading/unloading section of this report, Toronto City Hall is a significant generator of motor coach volumes. The measures suggested on Queen Street West to provide an area where passengers can be loaded/unloaded addresses one need of tour operators. The other, which is where to park their bus, can be rectified to some degree by identifying a parking area for two buses on the west side of Bay Street, in the lay-by north of Queen Street West.

Victoria Street

Parking meters were removed several years ago on the west side of Victoria Street north of Queen Street East to enable the delivery and storage of materials/equipment during the refurbishing of the Elgin/Winter Garden Theatre. These parking meters were never reinstalled. Two motor coach parking spaces can be delineated in this area at the rear of the Elgin/Winter Garden Theatre without affecting traffic operations on this street.

Asquith Avenue

Motor coaches unload tour groups for shopping excursions in the Yonge/Bloor/Yorkville area. Based on our assessment a parking space for one bus can be provided relatively close by on the south side of Asquith Avenue, between Yonge Street and Park Road.

In order to promote turnover during daytime hours, the maximum duration between 7:30 a.m. and 6:30 p.m. will be three consecutive hours at these three locations. However, motor coaches can be parked continually during evenings and overnight from 6:30 p.m. to 7:30 a.m. at these locations.

(b)Motor Coach Parking - Evenings and Weekends - Central Business District

On-street motor coach parking can be provided after 6:30 p.m. on weekdays and all day on weekends at the following locations:

(i)on the north side of Richmond Street West, between York Street and Bay Street;

(ii)on the north side of Richmond Street West, between Bay Street and Yonge Street;

(iii)on the south side of Adelaide Street West, between Bay Street and Yonge Street; and

(iv)on the south side of Front Street, between Bathurst Street and Spadina Avenue.

Generally speaking, traffic volumes start to decline on some downtown streets after 6:30 p.m. On Richmond Street West and Adelaide Street West, which are one-way multi-lane streets, there are three locations where motor coaches can park without significantly interfering with traffic operations and retail establishments. There will not be a significant impact on roadway capacity between 6:30 p.m. and 7:30 a.m. on weekdays and all day on weekends. Motor coach parking can be provided on the north side of Richmond Street West, between York Street and Yonge Street, and on the south side of Adelaide Street West, between Bay and Yonge Streets. Similarly, on the south side of Front Street, between Bathurst Street and Spadina Avenue, a motor coach parking zone can be established for the same time periods. These three locations are within close proximity to entertainment and sports venues in downtown Toronto and can be easily accessed.

The maximum time period for each of these overnight and weekend locations will be 13 hours in order to prevent a few operators from monopolizing spaces.

(c)Motor Coach Parking - Long Term - Up to 24 Hours - Outside Central Business District

To satisfy the longer term parking needs, on-street motor coach parking can be provided on local streets in the Cherry/Don River area (former Ataritiri site), specifically:

(i)on the south side of Front Street East between Cherry Street and Overend Street;

(ii)on the west side of Overend Street between Front Street East and Mill Street; and

(iii)on the north side of Mill Street between Overend Street and Cherry Street.

Additional longer term parking can be provided in the eastern port lands area, specifically:

(iv)on the north side of the north branch of Villiers Street between Don Roadway and Munition Street;

(v)on both sides of Cherry Street between Unwin Street and the Ship Channel; and

(vi)on the north side of Commissioners Street between Don Roadway and Munition Street.

Parking is currently allowed for a maximum period of three hours at any time on each of these sections of roadway, with the exception of Front Street East where parking is restricted to one hour from 8:00 a.m. to 6:00 p.m., Monday to Friday.

Our examination of these locations has revealed that parking by motorists occurs infrequently and that these streets can accommodate longer term parking (up to 24 hours) by a significant number of buses while maintaining parking for other road users. Traffic volumes are relatively light during all periods of the day and each location is conveniently located a short distance from downtown and with easy access to public transit service. We consider these sites to be the most appropriate for longer term motor coach parking, particularly during weekdays.

To provide positive guidance to motor coach operators, special signs will be installed to identify and control these parking areas. The estimated cost to install motor coach parking signs at these proposed locations is approximately $6,000.00.

C - Fee Structure

There will be no fee for the use of the loading/unloading zones.

At the specially signed on-street parking locations within the Central Business District, motor coach operators will pay for their parking at a rate of $2.00 per hour. At two of these locations, specifically Bay Street and Asquith Avenue, specially identified parking meters will be installed. This rate is competitive and would promote turnover in the on-street motor coach parking areas.

At locations where several bus parking spaces are provided such as Front Street West, Richmond Street West, Adelaide Street West and Victoria Street, parking will be regulated by a "Pay and Display" system which will require the motor coach operator to purchase a ticket from a parking machine and display the ticket in the windshield of their bus. City Works Services currently has six parking machines in storage which can be used for this purpose.

In order to encourage motor coach operators to use the on-street parking areas outside the Central Business District, these parking spaces will be provided free of charge.

The estimated cost of installing the parking machines and purchasing and installing the three parking meters is about $3,000.00. The annual revenue that may be generated by the proposed parking program is estimated to be $175,000.00

D - Promotion

A communications plan to inform the motor coach industry and the attractions of the loading/unloading and on-street parking areas is being developed. This process includes the preparation of a brochure which would be distributed through Tourism Toronto, the hotel associations and other interested parties. Also, notification would occur in newsletters of various professional associations. Furthermore, this information would be communicated through the appropriate Internet Web-Site.

Conclusions:

The above-mentioned strategy for the control of on-street curb-side space for motor coach loading/unloading and parking is intended to address the need of the motor coach operators. There will be a minimal impact to existing on-street parking and to downtown traffic operations as a result of this plan. In total, approximately 70 full and part-time on-street spaces will be provided for motor coaches. Although this plan is unlikely to solve the entire problem, it will provide positive guidance to motor coach operators, promote the tourist industry in Toronto, and provide a simple and fair enforcement policy.

Staff have consulted at length on these issues with representatives of the affected stakeholders and have assured them that we will continue to monitor the motor coach loading/unloading and parking operations in the summer of 1998. Further adjustments may be necessary because of the dynamic nature of the tourist industry.

Contact Names:

Peter Hillier, Senior Manager

Traffic Regions

(416) 392-5348

Stephen Benjamin, Manager

Transportation Operations

(416) 392-7773

D. P. Floyd

Interim Functional Lead, Transportation

Reviewed by Barry Gutteridge

Commissioner, Works and Emergency Services

VJS/RJH/cag;fc;jr

Attach.

(Copies of the attachments mentioned in the foregoing report are on file in the office of the City Clerk.)