Bicycle Lanes in Spadina Avenue and

Across the City of Toronto

The Urban Environment and Development Committee recommends that:

(1)the report (January 6, 1999) from the General Manager, Transportation Services be adopted subject to amending Recommendation (1) by adding the words Afrom Bloor Street to Queen=s Quay@ after the words ASpadina Avenue@, so as to read:

A(1)Transportation Services improve cycling conditions on Spadina Avenue from Bloor Street to Queen=s Quay by marking an edge line approximately 0.9 metres from the curb to guide motor vehicles away from the curb and create more space for cyclists;@

(2)appropriate signage be provided for cyclists; and

(3)the Police Chief be requested to bring the Police Force=s Accident Statistics back on- line within 6 months.

The Committee reports, for the information of Council, having:

(1)received an overhead presentation on this matter from Daniel Egan, Manager, Pedestrian and Cycling Infrastructure, Works and Emergency Services and Tom Mulligan, Director, Program, Policy and Planning;

(2)requested the Commissioner of Works and Emergency Services to report to the City Cycling Committee for subsequent submission to the Urban Environment and Development Committee:

(a)on extending the marking of an edge line for cyclists to Davenport Road or Dupont Street;

(b)on the impact of installing a bicycle lane on Spadina Avenue;

(c)with a detailed report on the implementation of a pilot project on a representative section of Spadina Avenue where car lanes would be reduced to 3 metres, parking to 3 metres and the establishment of a designated bicycle lane, such report to also examine the issue of whether the bike lanes could be moved to the passenger side rather than the driver side;

(3)requested the Commissioner of Works and Emergency Services to consult with the City Cycling Committee, through its Chair, in designing an edge line on Spadina Avenue for cyclists and report further to the Urban Environment and Development Committee

(4)forwarded the article titled AWhen Cities Take Bicyclists Seriously@ referred to by Councillor McConnell to the Commissioner of Works and Emergency Services with a request that he report further on how the City can, in future, look at implementing more sustainable transportation methods.

The Urban Environment and Development Committee submits the following report (January 6, 1999) from the General Manager, Transportation Services:

Recommendations:

It is recommended that:

(1)Transportation Services improve cycling conditions on Spadina Avenue by marking an edge line approximately 0.9 metres from the curb to guide motor vehicles away from the curb and create more space for cyclists;

(2)Staff investigate the provision of dedicated north-south bicycle lanes on Peter Street, Blue Jays Way, Bremner Boulevard and Rees Street and report back to Committee; and

(3)Works and Emergency Services and Urban Planning and Development Services report jointly to the Toronto Cycling Committee in February, 1999 on a strategy regarding the implementation of the recommendations contained in the Coroner=s report, AA Report on Cycling Fatalities in Toronto 1986 - 1996".

Background:

At its meeting of October 27, 1998, the Toronto Cycling Committee recommended to the Urban Environment and Development Committee that the September, 1992 Revised Design Option 2 for Spadina Avenue be implemented as described in a communication from Ms. Joan Doiron regarding ADesignated Bicycle Lanes On a >Green= Spadina Avenue@. A communication dated November 7, 1998 from the Advocacy for Respect for Cyclists (ARC) has also been forwarded to the Urban Environment and Development Committee. In this communication, ARC has requested that the City of Toronto improve Spadina Avenue for cyclists in direct response to the death of a cyclist on Spadina Avenue in August, 1998.

At its meeting of October 27, 1998, the Toronto Cycling Committee also had before it a copy of the final AReport on Cycling Fatalities in Toronto 1986 - 1996 -- Recommendations for Reducing Cycling Injuries and Death (July 1, 1998)@, prepared by Dr. William J. Lucas, Regional Coroner for Toronto. This report is the result of a two year consultation process following the death of two cyclists in a ten day period in July 1996. The Toronto Cycling Committee recommended that staff report in February, 1999 on a strategy regarding the implementation of the recommendations contained in the Coroner=s Report.

In response to the broader issue of improved cycling safety in the City of Toronto, staff from the Works and Emergency Services and Urban Planning and Development Services will be reporting jointly to the Toronto Cycling Committee in February 1999 with respect to a strategy for implementing the recommendations contained in the Coroner=s Report on cycling fatalities in Toronto. The Coroner=s report outlines 15 recommendations with a view to improving bicycle safety and reducing injury and death. The report to the February meeting will deal specifically with the recommendations regarding expert review of bicycle collisions and collisions data (recommendations #4 and #5), collision prevention- education (recommendation #6), and road design/facilities (recommendations #13 and #14).

This report provides for the information of the Committee an overview of existing cycling activities in the amalgamated City, outlines a work plan for 1999 to develop a Cycling Master Plan and responds to the issues raised by the Toronto Cycling Committee and ARC on Spadina Avenue.

Discussion:

(1)Existing Cycling Activities

With approximately 25,000 daily bicycle commuter trips in the Central area and many recreational cyclists using the many waterfront and park trails, cycling has become a popular activity across the City. In response to this activity, municipal staff have developed and are continuing to implement programs and infrastructure to support cycling.

The City of Toronto provides an extensive program for promoting safe bicycle use. The annual Bike Week celebration in the first week of June focuses attention on bicycle commuting and kicks off an active summer of bicycle safety promotion. For the past few summers a team of Cycling Ambassadors, working in cooperation with Toronto Cycling Committee volunteers and the Toronto Police=s Bike Patrol, has promoted bicycle safety at schools, recreation centres and hundreds of community events across the City. The Ambassadors also provide CAN-BIKE cyclists training courses for all ages in an effort to improve the skills of cyclists on the road. These safety programs address four goals identified by the Cycling Committee: to decrease the number and severity of cycling injuries and fatalities; to increase compliance with traffic laws; to promote safe use of bicycles and increase acceptance of bicycles by all road users and; to protect and preserve environmentally sensitive areas by promoting responsible trail use.

To support and provide a safe environment for cycling, the development and implementation of a network of bicycle lanes and routes continues as part of the transportation network of the City. With nearly 5 percent of vehicles on the streets in the Central area being bicycles, the former City of Toronto took a lead in creating an on-road bicycle network to meet the needs of cyclists. Their bicycle lane program has resulted in over 50 lane kilometres of exclusive bicycle lanes being designated on the road network in the former City of Toronto (see Map No. 1). These lanes include:

North-South

-Sherbourne Street - Queens Quay Avenue to Elm Avenue

-Beverley Street/St. George Street - Queen Street to Lowther Avenue

-Bay Street - Cumberland Street to Davenport Road

-Elizabeth Street - Gerrard Street to College Street

-St. George Street - Prince Arthur Avenue to Dupont Street (southbound)

-Bedford Road - Prince Arthur Avenue to Davenport Road (northbound)

-Poplar Plains Road - Davenport Road to St. Clair Avenue West (northbound)

-Russell Hill Road - Poplar Plains Road to St. Clair Avenue West (southbound)

-Grace Street - Harbord Street to Bloor Street (southbound)

-Colborne Lodge Drive - Lakeshore Boulevard to The Queensway

-Colborne Lodge Drive - West Road to Bloor Street

-West Road - Bloor Street to Colborne Lodge Drive

East-West

-Davenport Road - Bay Street to Old Weston Road

-Hoskin Avenue/Harbord Street - Queen= s Park Crescent to Spadina Avenue

-Harbord Street - Borden Street to Grace Street

-College Street - Bay Street to Manning Avenue

-Gerrard Street East - Don Jail Roadway to River Street

- Berkely Street to Elizabeth Street

-Wellington Street - Bathurst Street to Niagara Street

-Queens Quay- Parliament Street to Yonge Street

- Spadina Avenue to Stadium Road

-Strathcona Avenue - Blake Street to Carlaw Avenue (contra flow)

-Prince Arthur Avenue - St. George Street to Bedford Road

In addition to these facilities, the former Metro Transportation Department implemented approximately 16 lane kilometres of exclusive bicycle lanes on the arterial road network. These lanes include Lake Shore Boulevard west from the Humber River and through the Long Branch area, Bloor Street from Sherbourne Street east to Broadview Avenue, Steeles Avenue west of the Pickering Town Line, across the Bayview Avenue bridge at Lawrence Avenue and across the Millwood Road bridge at Overlea Boulevard. The former City of Etobicoke also implemented approximately 6 lane kilometres of bicycle lanes on Rathburn Road from Martin Grove to the East Mall and on Royal York Road from Ashley Park Road to Eglinton Avenue West. In total across the City, over 72 lane kilometres of the exclusive bicycle lanes are now in operation.

In order to allow for greater lateral clearance and safety for cyclists, wide curb lanes (4.0 metres minimum) were also implemented where road reconstruction or resurfacing opportunities allowed. Examples of wide curb lane locations are:

-Bathurst Street - Sheppard Avenue to Steeles Avenue

-Brown=s Line - Horner Avenue to Evans Avenue

-Victoria Park Avenue - Danforth Avenue to Dawes Avenue

-The Queensway - Kipling Avenue to the East Mall

-Sheppard Avenue - Bathurst Street to Wilson Height=s Boulevard

-Finch Avenue - Yonge Street to Bathurst Street

-Lawrence Avenue - Bathurst Street to Allen Road

-York Mills Road -Don Mills Road to Leslie Street

Other on street cycling initiatives include the implementation of the AShare the Road@ bicycle logo and the provision of an edge line 0.8 to 1.3 metres from the curb on various sections of the arterial road system. These treatments are among a variety of measures currently being evaluated in the context of a larger speed reduction study. The final recommendations of this study have not yet been finalized.

To support Aoff-road@ cycling activity, the Parks and Recreation Departments of the former municipalities have developed a system of multi-use trails (approximately 150 km) across the City of Toronto. The trail system will continue to grow under the stewardship of Economic Development Culture and Tourism Services as new opportunities are identified. A study completed in 1998, AInventory of Cycling Trail Opportunities in Rail and Hydro Corridors@ identified 46 candidate trail projects in both rail and hydro corridors, representing approximately 204 km of new trail opportunities. The candidate trail projects are fairly evenly distributed across the City and could connect with many of the existing open space trails. Combined with the traditional open space trails, the rail and hydro corridors provide a tremendous opportunity for developing a much more extensive network of trails for commuter and recreational cyclists, in-line skaters and pedestrians.

(2)1999 Cycling Work Plan

Prior to amalgamation, cycling in the seven former municipalities was dealt with in varying degrees both at an administrative level and at a citizen participation level. The former City of Toronto had the most extensive cycling program with its City Cycling Committee supported by three full-time staff in Urban Development Services dedicated exclusively to cycling issues. In addition, staff in the City Works Services and Community Services were involved in implementing cycling infrastructure. At the former Metropolitan Toronto, the Metropolitan Cycling and Pedestrian Committee was supported by staff from the Clerks, Planning, Parks and Transportation Departments as part of their overall responsibilities. At the other former municipalities, citizen participation committees were started in Etobicoke and North York with limited staff support from the Works and Transportation Departments. In East York, Scarborough and York, no formal cycling committees were formed, however staff from the Planning and Parks Departments worked on cycling issues in these municipalities.

In recognition of the need to maintain and expand the cycling programs and infrastructure that has earned the former City of Toronto the reputation as the best city for cycling in North America, the Pedestrian and Cycling Infrastructure Unit has been established as part of the new structure of the Works and Emergency Services Department. This unit, which falls under the Programming and Policy Section, will be responsible for the implementation of cycling and pedestrian facilities across the entire City and will work closely with the City Planning Division in the development of policies, plans and programs which are cycling related.

The first step in establishing the appropriate policies, plans and programs for the new City is the development of a comprehensive Cycling Master Plan by staff of the City Planning and Transportation Services Divisions. This plan would include a number of elements such as an ultimate on-street and off-street route network, objectives/time lines, input to the Official Plan and education programs. The former Toronto City Cycling Committee has established a framework for this Master Plan with the development of their vision statement ABicycle City 2001". In their report, adopted by the former Toronto City Council in April 1996, the goals for cycling in Toronto as well as the vision for building the social, physical and economic infrastructure to support bicycle use was clearly outlined. In 1999, funds have been allocated in the budgets of the two divisions to produce the Cycling Master Plan.

In addition, as part of the 1999 Works and Emergency Services Capital Budget, funds have been allocated for new traffic calming and bicycle lane initiatives. Implementation of bicycle lanes in 1999 will come from the approximate 30 lane kilometres of exclusive bike lanes and approximately 12 kilometres of bike routes currently being investigated. The sections of roadway under review include:

(3)Bike Lanes On Spadina Avenue

In response to the death of a cyclist on Spadina Avenue south of King Street in August of 1998, as well as in response to the motion being brought forward to the UEDC regarding >Designated Bicycle Lanes on a AGreen@ Spadina Avenue=, the Transportation Division has again reviewed the section of Spadina Avenue from King Street south to Queens Quay to determine whether dedicated cycling facilities can be provided.

The issue of dedicated bicycle lanes on Spadina Avenue was dealt with by the former Metropolitan Toronto Council during the final deliberations on the Environmental Assessment for the Spadina LRT. Due to the need to provide dedicated space for the LRT right-of-way, sufficient traffic lanes to meet existing traffic and parking demands and to minimize the impacts on existing sidewalk areas, there is insufficient space to provide dedicated bicycle lanes on Spadina Avenue between Front Street and Bloor Street. The former Metro Council examined this question and directed that wider curb lanes be provided on Spadina Avenue to provide for increased lateral clearances between motor vehicles and bicyclists.

Based on a review of existing pavements widths for the section of Spadina Avenue south of King Street, the provision of exclusive bicycle lanes cannot be provided without reducing the number of traffic lanes. However, recognizing that the curb lanes in this section are wider, it is possible to narrow the curb lane by painting an edge line approximately 0.9 metres out from the curb. While a dedicated bicycle lane cannot be provided in this section of Spadina Avenue, this 0.9 metre Abuffer@ should provide an improved environment for cyclists by guiding motor vehicles further from the curb area. This treatment has been tried on Lawrence Avenue East with some success as part of the Speed Compliance on Arterial Roads review currently underway.

ARC has requested that an emergency bicycle lane be provided on Spadina Avenue from King Street to Queens Quay. Given the turning and weaving conflicts on Spadina Avenue south of Bremner Boulevard in the vicinity of the ramps to/from the F.G. Gardiner Expressway, the edge line treatment is only recommended from King Street south to Bremner Boulevard. Access for cyclists further south to/from Queens Quay would be directed from Spadina Avenue east on Bremner Boulevard to Rees Street where a protected crossing of Lake Shore Boulevard is possible.

We recognize that the above proposal does not meet the objectives of providing a fully dedicated north-south bicycle lane on Spadina Avenue. We feel that other routes may provide a superior opportunity to provide fully dedicated bicycle lanes from Queens Quay northerly into the City. North-south bicycle lanes currently exist just east of Spadina Avenue between Queen Street and St. Clair Avenue West, on Beverley Street/St. George Street and Russell Hill Road/Poplar Plains Road. Staff are investigating bicycle lanes on Peter Street/Blue Jays Way/Bremner Boulevard and Rees Street that could ultimately provide dedicated bicycle lanes from Queens Quay to St. Clair Avenue West with connections to the Davenport Road and Queens Quay bicycle lanes. The further review of this proposal will also investigate alternative north-south connections between the waterfront and the City. This would include an assessment of providing bicycle facilities on Bathurst Street.

Although we are optimistic that improved bicycle conditions can be provided on Spadina Avenue, new pavement markings cannot be installed until weather permits in the spring of 1999. In the meantime, we will be continuing to consult with the Toronto Cycling Committee on the final design of any proposed changes to Spadina Avenue and potential alternative routes to the waterfront.

Contact Name and Telephone Number:

Daniel Egan

Manager,

Pedestrian and Cycling Infrastructure

392-1143

________

The Urban Environment and Development Committee reports, for the information of Council, also having had before it during consideration of the foregoing matter the following material:

-Copy of overhead presentation titled ABrief Overview - Cycling in the City@, conducted by staff;

-(November 23, 1998) from the City Clerk, City of Toronto;

-36 submissions from persons in support of a bicycle lane on Spadina Avenue;

-(November 9, 1998) from Miriam M. Abileah;

-(January 5, 1999) from Anne Hansen;

-(January 6, 1999) from Charles-Antoine Rouyer;

-(January 7, 1999) from Tim Gladney;

-(January 6, 1999) from Paula Tiberius & the staff of Canuck Creations Inc.;

-(January 7, 1999) from Gerald Lazare;

-(January 7, 1999) from Andrew Schulz;

-(January 4, 1999) from Silvia Langer, Greenest City;

-(January 7, 1999) from H-JEH Becker, Chair, Network Planning and Facilities Sub-Committee and Public Co-Chair, Toronto Cycling Committee;

-(Undated) from Phillip Piltch;

-(January 7, 1999) from Avery Burdett, Chairman, Ontario Coalition for Better Cycling;

-(January 6, 1999) from Denis Gagne;

-(January 8, 1999) from Mark and Mona Coulavin; and

-(January 10, 1999) from Hamish Wilson.

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

-Beth McMillan;

-Joan Doiron, obo Toronto Pedestrian Committee;

-Jake Allderdice;

-Derek Chadbourne;

-Crawford Murphy;

-Hamish Wilson;

-Doug Carroll;

-Ben Smithlea;

-Sally Mckay;

-Alison Field;

-Shannon Thompson;

-Pat McKendry, Kensington Market Working Group;

-Andrew Schutz;

-Wayne Scott;

-Councillor Chow; and

-Councillor Layton.

Insert Table/Map No. 1

Designated Bicycle Lanes - 1998