Prevention of Suicides on the Bloor Street Viaduct.

The Urban Environment and Development Committee recommends:

(1) the adoption of the report (February 12, 1998) from Councillor Jack Layton, Don River, subject to amending Recommendation No. (6) by striking out the words "the Commissioner of Urban Planning and Development Services" and inserting in lieu thereof the words "the Interim Functional Lead, Transportation"; so that such Recommendation shall now read as follows:

"(6) the Interim Functional Lead, Transportation, be requested to consider the advisability of entering into a modest contract with the Bridge Committee of the Schizophrenia Society of Ontario in order to draw upon its expertise in the conduct of these investigations and in the preparation of the report (estimate: one day/week for 12 weeks of report preparation at $400.00/day = $4,800.00)."; and

(2) that the Chief of Police be requested to place under special attention the Bloor Street Viaduct and any other high-profile locations for potential suicides.

The Urban Environment and Development Committee reports, for the information of Council, having:

(a) requested the Interim Functional Lead, Transportation, to consult with the Bridge Society of the Schizophrenia Society of Ontario and submit a report directly to Council, for consideration with this matter on April 16, 1998, on any progress that has been made with respect to this matter and, specifically, on any short-term initiatives that can be implemented immediately;

(b) requested the Commissioner of Community and Neighbourhood Services, in consultation with the appropriate City officials, to submit a report to the next meeting of the Urban Environment and Development Committee, scheduled to be held on April 20, 1998, regarding:

(i) a public education program which would set out the actions that should be taken by members of the public if confronted with a potential suicide situation; and

(ii) improved services which can be implemented in an effort to prevent suicides; and

(c) referred the following motions by Councillor Moscoe to the Interim Functional Lead, Transportation, with a request that he submit a report thereon to the next meeting of the Urban Environment and Development Committee, scheduled to be held on April 20, 1998:

"That the Urban Environment and Development Committee recommend that Council:

(a) support, in principle, the concept of barriers or safety netting to avert suicides on the Bloor Street Viaduct;

(b) refer the design of the barriers or safety netting to the Toronto Historical Board, the Interim Functional Lead, Transportation, and the Interim Functional Lead, Culture, Arts and Heritage, with a request that the design process be in accordance with the City's policies and that an artist be included on the design team; and

(c) that this process be fast-tracked.".

The Urban Environment and Development Committee submits the following report (February 12, 1998) from Councillor Jack Layton, Don River:

The recent tragic suicides of Martin Kruze and Kenneth Au Yeung have brought to light a disturbing fact: the Bloor viaduct is a contributing factor in a large number of suicides in Toronto. As you will see in the attached material, over 37 deaths have resulted from people jumping from the viaduct since 1990. This is half of all bridge deaths in Toronto during that period. Clearly, some actions should be taken.

After discussions with Mr. Al Birney and Mr. Michael McCamus, two representatives of the Bridge Committee of the Schizophrenia Society of Ontario, the Transportation Department as well as other Councillors, I would recommend that the following actions be taken:

Recommendations:

(1) That the appropriate staff be requested to meet with the Schizophrenia Society and the local Councillors, as well as the Historical Board, to develop an options analysis with recommendations to be submitted to the Urban Environment and Development Committee within 90 days;

(2) that the Chief Coroner of Ontario be requested to assist by providing detailed data on suicide deaths from bridges in Toronto, specifically at the Bloor Viaduct;

(3) that the report consider options in use elsewhere in the world; for example, the netting and emergency phone service provided at the Golden Gate Bridge, fencing as provided in New York state, and other options;

(4) that the report consider both immediate measures and long-term strategies;

(5) that funding source possibilities be investigated; and

(6) that the Commissioner of Urban Planning and Development Services be requested to consider the advisability of entering into a modest contract with the Bridge Committee of the Schizophrenia Society of Ontario in order to draw upon its expertise in the conduct of these investigations and in the preparation of the report (estimate: one day/week for 12 weeks of report preparation at $400.00/day = $4,800.00).

Thanks for your assistance.

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The Urban Environment and Development Committee reports, for the information of Council, also having had before it the following communications:

(i) (February 12, 1998) from Mr. J. A. (Al) Birney, President, East York Chapter and Chairman, Bridge Committee, Schizophrenia Society of Ontario, advising that this letter and the attached documentation will demonstrate that:

(1) deaths from Toronto's Bloor Street Viaduct are an alarming, yet preventable, public concern;

(2) the Schizophrenia Society of Ontario's advocacy of safety measures to deter bridge suicide has precents in other large municipalities; and

(3) Toronto City Council could demonstrate pioneering leadership, and win favour from families of the mentally ill, by taking concerted and public action against bridge suicides;

and stating that the time has come to erect safety fences along the Bloor Street Viaduct, and to install crisis/hot line telephones on each of the bridge's sidewalks.

(ii) (March 10, 1998) from Ms. Alison Licht, Chairperson, Council on Suicide Prevention (COSP), advising that, with respect to the public concern regarding the Bloor Viaduct, COSP requested Dr. Issac Sakinofsky of the Clarke Institute of Psychiatry to conduct a comprehensive review of the current research literature and statistical information available on bridge suicides; summarizing some very early conclusions that have arisen from the review, in part:

(1) There is no doubt that certain landmarks become favoured spots for suicide. Publicity from the media undoubtedly enhances the popularity of such suicide points, especially if the initial victims are perceived as celebrities or can be identified with...;

(2) accessibility undoubtedly facilitates choice of suicide method. Thus, any measure that impedes accessibility to the bridge will lower the suicide incidence on that bridge. This has been shown at bridges such as the Duke Ellington Bridge in Washington, D.C.;

(3) there is absolutely no evidence available that closing off access to suicide from the Bloor Viaduct will lower the overall suicide incidence in Toronto... Equally, there is no evidence that suicides will increase at others of the many bridges in Toronto if steps are taken at the Bloor...; and

(4) we recommend that alternative measures to high barriers be considered since we note also the public concern about cutting off visibility and defacing a loved landmark. Safety nets alongside the bridge to catch jumpers may provide such a compromise. Dedicated telephone lines (as are being considered) will likely prove useful for those who become ambivalent at the last minute and opt to seek help, but in themselves would not prevent suicide from those who actually jump, whereas safety nets would do so. Safety nets would also protect motorists and pedestrians down below from jumpers--an important consideration.

The following persons appeared before the Urban Environment and Development Committee in connection with the foregoing matter:

- Dr. Isaac Sakinofsky, Psychiatrist, Clarke Institute of Psychiatry, and Professor of Suicide Studies, York University, who made an overhead presentation, entitled "A Rationale for Preventing Suicide on the Prince Edward (Bloor) Viaduct", and filed a copy of his presentation material;

- Mr. Michael McCamus, Spokesperson of the Bridge Committee, Schizophrenic Society of Ontario, and displayed posters of bridges with safety fencing and/or netting and telephones;

- Superintendent Aidan Maher, Toronto Police, No. 55 Division; and filed a copy of an internal report from himself to Staff Superintendent R. Molyneaux, No. 5 District Headquarters, expressing concern regarding the potential of innocent lives being lost as a result of individuals jumping to their deaths from the Bloor Street Viaduct and landing either on the Don Valley Parkway or the Bayview Extension; and again recommending that anti-suicide fencing be placed over both roadways;

- Mr. Michael Hrecico, Toronto;

- Councillor Jack Layton, Don River; and

- Councillor Chris Korwin-Kuczynski, High Park.

(A copy of the following attachments to the foregoing communication dated February 12, 1998, from Mr. J. A. (Al) Birney, President, East York Chapter and Chairman, Bridge Committee, Schizophrenia Society of Ontario, has been forwarded to all Members of Council, and a copy thereof is on file in the office of the Metropolitan Clerk:

- letter (February 17, 1993) addressed to Ms. Ruth A. Mallory, Toronto, from Mr. Joseph W. Kelly, Regional Traffic Engineer, Department of Transportation, State of New York;

- article, entitled "Bridge of Troubled Souls - Fence Bloor Viaduct for Safety, Group Says", from the Toronto Star of December 9, 1997;

- article, entitled "Anti-Suicide Fencing Urged on Viaduct", from the Toronto Sun of December 12, 1997;

- photographs of the Glen Street Bridge, Glens Falls, New York;

- photographs of more "pedestrian fencing" on bridges in New York;

- letter (February 9, 1998) from Dr. Robin R. Richards, Head of Orthopaedics, St. Michael's Hospital, Toronto;

- letter (February 19, 1998) from Dr. Paul S. Links, Arthur Sommer Rotenberg Chair in Suicide Studies and Professor in Psychiatry, University of Toronto, and St. Michael's/Wellesley Hospital;

- letter (February 27, 1998) from Mr. H. Kent Jackson, Chairman, The Monarchist League of Canada;

- two letters (January 26, 1998) from Deputy Mayor Case Ootes addressed to the Interim Functional Lead, Water/Sewer, City of Toronto, and the Chief Coroner of Ontario;

- article, entitled "'Bridge of Death' a Magnet for Jumpers", from the Globe and Mail of February 23, 1998; and

- brochure from the East York Chapter of the Schizophrenia Society of Ontario.)