August 17, 1998
To:Urban Environment and Development Committee
From:General Manager, Transportation Services
Subject:Flashing Orange Hand Display at Signalized Intersections
Purpose:
To report on the feasibility of replacing the flashing orange hand pedestrian display at signalized intersections with a
flashing orange walking person display.
Funding Sources, Financial Implications and Impact Statement:
No financial implications are proposed.
Recommendation:
It is recommended that this report be received for information.
Background:
At its meeting on June 15 and 16, 1998, the Urban Environment and Development Committee received the report from the
Interim Function Lead, Transportation regarding pedestrian signal timing at the intersection of Eglinton Avenue West and
Ennerdale Road and requested the General Manager, Transportation Services, to review the "flashing don't walk" display at
signalized intersections and submit a report to the Urban Environment and Development Committee on the feasibility of
replacing it with a "flashing orange walking-person" display.
Discussion:
Replacing the flashing orange hand display used for pedestrian clearance with a flashing orange walking person display is
not recommended due to:
(i)non-compliance with provincial legislation;
(ii)non-compliance with widely accepted practices applied throughout North America;
(iii)the importance of reinforcing the message to pedestrians that sufficient crossing time will not be available if they leave
the curb/sidewalk during the pedestrian clearance display; and
(iv)the significant cost associated with converting existing pedestrian signal displays.
The following provides an elaboration on each of these key points.
(i) Compliance with Provincial Legislation
The existing pedestrian signal displays used within the City of Toronto are based on provincial legislation contained in the
Ontario Highway Traffic Act (HTA). These regulations are in place to provide uniformity in displays used at traffic control
signals in the Province of Ontario.
The HTA Section 144 (sub-sections 23 to 27) and Ontario Regulation 626 (items 7 and 8) define the current use of
pedestrian signal displays in the Province of Ontario. The relevant sections of this legislation are attached. In order to
implement changes to the pedestrian signal displays currently in use, a revision to the HTA would be required. Revisions to
the HTA require a lengthy review and consultation process. Therefore, approaching the province with proposed revisions to
the HTA is not typically done without evidence and substantive study into justification for the proposed changes.
(ii) Consistency with North American Practice
The current pedestrian signal displays used within the City of Toronto, as well as other municipal jurisdictions throughout
North America, consist of a solid white walking person display, followed by a flashing orange hand display and then a solid
orange hand display sequence. The flashing orange hand display is a pedestrian clearance phase which follows the solid
white walking person display. This signal display is a North America wide industry standard and is used to inform
pedestrians that their crossing phase is nearing completion. The purpose of the flashing orange hand display is to
discourage situations where pedestrians would enter an intersection prior to a vehicle amber display, without sufficient time
to cross safely at a comfortable walking speed. In this case, pedestrians risk being stranded in the intersection when
conflicting traffic receives a green signal. The flashing orange hand display also indicates to pedestrians that started their
crossing during the walk signal that sufficient time is still available for them to comfortably complete their crossing.
(iii) Reinforcing Public Understanding
Although the solid white walking person, flashing orange hand and solid orange hand signal display sequence is
commonplace throughout North America, the meaning of these displays is not always well understood. The less informed
pedestrian who starts their crossing during the walk signal may be more cautious during the orange flashing hand display.
Alternatively, using a flashing orange walking person display may encourage less informed pedestrians to begin their
crossings during the pedestrian clearance phase when it is not safe for them to do so. Therefore, the existing practice of
using the orange flashing hand as the pedestrian clearance display is more conservative on the side of increased pedestrian
safety.
In Toronto, Transportation Services installs Pedestrian Signal Information signs on traffic control signal poles located
adjacent to pedestrian crosswalks and distributes Pedestrian Signal Information brochures as a means to educate the public
on the meaning and use of pedestrian signal displays. The intention of this public education program is to increase public
awareness of the meaning and use of pedestrian signal displays. It is our experience that once the public understands the
meaning of the three displays, the concerns related to insufficient pedestrian crossing time are often dispelled.
(iv) Cost of Conversion
The cost associated with converting the existing pedestrian signal displays from the current configuration to the solid white
walking person display, followed by a flashing orange walking person display, and then a solid orange hand display
sequence would be prohibitive at this time. In order to implement the proposed operation, all of the existing pedestrian
signal heads throughout Toronto would require modifications or replacement.
Conclusion:
It is not recommended to replace the currently used flashing orange hand display with a flashing orange walking person
display for pedestrian signal operations at signalized intersections.
Contact Name:
John Greenough, Manager
Traffic Signal Control Section
(416) 397-5767
David C. Kaufman
General Manager, Transportation Services
Barry H. Gutteridge
Commissioner, Works and Emergency Services
sdk/jcg/bs/wo
