October 20, 1999

To: Works Committee

From: Barry H. Gutteridge, Commissioner, Works and Emergency Services

Subject: Use of Road Salt on City Roads and Sidewalks

Purpose:

Works Committee requested a report be submitted on the policies for the use of road salt in the former municipalities and how salt can be reduced in lanes, selected neighbourhoods, and sidewalks.

Financial Implications and Impact Statement:

None.

Recommendations:

This report has been prepared for the information of Committee.

Background:

At its meeting on June 9, 10 and 11, 1999, Council directed that Clause No. 17 of Report No. 8 of the Urban Environment and Development Committee entitled "Road Salt Environmental Impact Study and Reduction of Road Salt Use", be struck out and referred to Works Committee for further consideration and the hearing of deputations. On September 8, 1999, Works Committee:

(1) recommended to Council the adoption of the aforementioned report;

(2) requested the Commissioner of Works and Emergency Services to report to the Committee on:

(i) the policies and criteria for the use of road salt and sand in the former municipalities, such report to be submitted to the next meeting of the Committee, scheduled to be held on October 6, 1999;

(ii) a comparison of the use of road salt on arterial roads and residential roads during the winters of 1997-1998, 1998-1999 and 1999-2000, such report to be submitted in spring of 2000;

(iii) the training of casual staff and the qualifications of the staff being hired;

(iv) reversing the policy presently in practice in the Toronto community requiring that lanes simply be salted; and

(v) the impact on departmental operations if resident associations or neighbourhoods "opt out" of salting (except in serious icing conditions); and

(6) further requested that the Commissioner of Works and Emergency Services review the use of salt along sidewalks adjacent to parks and other City-owned properties and that the practice be amended so that it is reduced to a minimum.

Comments:

Prior to amalgamation, the former municipalities all had either policies or procedures for the use of road salt. The use of salt on main roads was relatively consistent but the use on local roads varied. The following is a synopsis of the policies/procedures used for each former municipality:

(1) Metropolitan Toronto

The goals approved by the former Metro Council relating to the use of salt on former Metro roads were to maintain all arterial pavements in a safe and bare condition throughout the heavy travel period from 7:00 a.m. to 7:00 p.m., Monday to Friday. A lower level of service was used during off-peak hours from 7:00 p.m. to 7:00 a.m., Monday to Friday and on weekends.

(2) East York

Former East York Council adopted a policy which had salting done on all roads based on 3 priorities:

(a) First Priority - Main arteries, bus routes, sharp curves, and steep hills;

(b) Second Priority - Hills, curves, school areas, streets with no sidewalks; and

(c) Third Priority - Remaining Borough streets at intersections and lanes

(4) Etobicoke

A standard procedure was used that salt was applied on a regular basis during snow storms to streets in the following categories:

(a) Priority One

(i) Bus Routes;

(ii) Arterial and Collector roadways;

(iii) Industrial roadways;

(iv) Roads with potentially hazardous physical characteristics such as steep inclines;

(v) Roads adjacent to parks, schools, etc.;

(f) Priority Two

A 50/50 mix of salt and sand on local streets to allow access to main roads.

(g) Priority Three

Selected subdivision streets to only receive an application of de-icing when they posed a hazard to traffic or pedestrians.

(4) North York

Former North Council approved a policy whereby salt was applied as follows:

(a) First Priority

(i) arterial roads

(ii) bus routes

(iii) collector roads

(iv) roads with steep grades

(e) Second Priority

(i) less travelled collector roads

(ii) moderate grades, etc.

(c) Third Priority

(i) designated local roads plus additional roads requested by two thirds of the affected property owners to a maximum cost of $2400/km.

The remainder of the roads were to be sanded when necessary.

(2) Scarborough

A standard procedure was used for salting and sanding as follows:

(a) Priority One

(i) main roads

(ii) hills, etc.

(iii) problem areas

(d) Priority Two

(i) collector roads

(ii) industrial roads

(iii) Selected local streets

(d) Priority Three

(i) remaining roads were to be sanded

(6) Toronto

A winter services policy was adopted by former City of Toronto Council directing:

(a) salt to be applied to all emergency primary routes, residential roads, intersections, bridges, brick pavements, grades, curves, and roads adjacent to schools until 5 cm's of snow fall accumulation. Ploughing to commence if accumulation was greater than 5 cm's; and

(b) all improved lanes to have pavements made safe by salt for all levels of snow fall.

(3) York

A standard procedure for salting was used as follows:

(a) Priority One

(i) 143 kms of roads

(b) Priority Two

(i) 68 kms of basically residential roads

For the coming winter season, staff are proposing to give priority for salting to the higher level of roads based on the snow management report adopted by Council on May 11 and 12, 1999. In addition, known trouble spots such as hills, curves, etc. would be also given priority. In some areas, the local roads will be salted whereas in other Districts, some of the local roads will be sanded primarily based on what has been done previously. Staff will be monitoring the use of salt and sand on local roads to determine if adjustments are required for operational, environmental and safety needs.

A number of years ago, there was a tendency to place too much salt on the roadways to ensure the snow and ice was properly melted. This led to, on many occasions, a waste of salt, and complaints from residents, etc. In the past several years, the salt spreading equipment has improved, the understanding of how much salt is needed has increased, and a more thorough training of the operators has been put in place. The salt spreading equipment we are now specifying in our contracts and replacing in the city fleet, makes it easier for the operator to know how much is spread and also record how much salt has been spread. This equipment controls the rate of material to be delivered and controls the speed of the spinner to ensure the salt is spread on the roadway, not on the edge of the roadway. Information from the spreader units can be down loaded into a computer to assist a supervisor monitoring the amount of salt spread per route per application.

Through continuous research and analysis by the transportation and environmental communities, supervisory staff are able to determine the minimum rate of salt to be spread on a roadway to meet the snowfall and temperature conditions while maintaining appropriate safety levels. The procedure for this winter will require a city supervisor to specify the rate to be used by each operator to ensure salt is spread effectively and is not wasted.

Prior to each winter season, training sessions are held with city staff and contractor staff on the operation of the salt spreading equipment. Operators are instructed in the safe operation of their equipment and the need to provide safe road conditions. Operators are also instructed in the proper use of their equipment, the environmental concerns regarding salt, and what are appropriate rates of salt to be applied. Written procedures and route maps are also provided to each operator. Operators hired to drive vehicles must process certain licence requirements, be knowledgeable and capable of operating equipment properly.

As noted earlier in the report, laneways in the Toronto community are salted for safe vehicle passage. This has been the practice for many years. Staff are proposing this year to try different combinations of salt and sand on a selected number of laneways in order to address concerns about the over-use of salt in laneways. Since most lanes can not be properly ploughed, salt has historically been used to melt the accumulated snow. The use of a salt/sand mix may slow down the snow melting process but should be able to provide for safe vehicle driving conditions. Additional spring clean-up will be required on lanes where sand has been used. It is proposed a report be sent to Committee after this winter on the result of this trial, and trial of laneway ploughing techniques.

Salting and sanding of neighbourhoods has not been consistent across the City. It ranges from some areas where only intersections are salted, to areas where local roads are sanded, to other areas where neighbourhood roads are all salted. Over the years, certain neighbourhoods requested all roads to be salted while in other areas residents preferred sand instead. The mandate for the City is to ensure all roads are safe and passable. If a neighbourhood would like to "opt out" of salting, city staff would need to determine if there were certain roads which had hills, curves, schools, and high traffic. These types of roads would likely still need to be salted. In addition, in areas where most of the adjacent roads require salting, it may be impractical and costly for the City to consider sanding. Each request for sanding should be considered on an individual basis to determine if it would be a desirable method to be used. It should be noted that sanding instead of salting increases road grit and dust which has to be swept up every spring. Safety remains the prime determination of the type of roadway service.

With respect to sidewalks, the use of salt and sand has varied across the City. In some areas, only salt is used and in other areas a mix of salt and sand with as much as 75% sand has been used. Staff have reviewed these practices and are intending to use a mixture of either 50/50 salt and sand or 75% sand, 25% salt. The type of mixture would depend on the location, exposure conditions, amount of pedestrian traffic, etc. The intent is to make sidewalks maintained by the City safe and passable and not always to have bare concrete exposed.

Conclusion:

The use of salt on City roads and sidewalks has varied significantly in the past. Staff have attempted to harmonize its use with the goal of using the minimum required to provide safe driving and walking conditions. The use of better equipment, trained supervisors, and knowledgeable operators will assist the city in achieving its goal.

Contact:

Gary H. Welsh, P.Eng.

Director, District 4

Transportation Services

Telephone: 396-7842

Fax: 396-5681

E-Mail: welsh@toronto.ca

David C. Kaufman

General Manager, Transportation Services

Barry H. Gutteridge

Commissioner, Works and Emergency Services

GHW:ef

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