TABLE OF CONTENTS
REPORTS OF THE STANDING COMMITTEES
AND OTHER COMMITTEES
As Considered by
The Council of the City of Toronto
on May 11 and 12, 1999
URBAN ENVIRONMENT AND DEVELOPMENT COMMITTEE
REPORT No. 6
1 Snow Management Plan
City of Toronto
REPORT No. 6
OF THE URBAN ENVIRONMENT AND DEVELOPMENT COMMITTEE
(from its meeting on March 31, 1999,
submitted by Councillor Joe Pantalone, Chair)
As Considered by
The Council of the City of Toronto
on May 11 and 12, 1999
1
Snow Management Plan
(City Council on May 11 and 12, 1999, amended this Clause by inserting in Recommendation No. (3) of the Urban
Environment and Development Committee, after the word "schools", the words "child care centres, retirement homes
and/or nursing homes", so that such recommendation shall now read as follows:
"(3) ensuring that streets where schools, child care centres, retirement homes and/or nursing homes are located are given
high priority for snow removal.")
The Urban Environment and Development Committee recommends that the report (March 24, 1999) from the
General Manager, Transportation Services be adopted subject to:
(1) amending Recommendation (4) by adding the words "and provide for a clean-up of these sites in the Spring";
(2) amending Recommendation (10) by adding the following words:
"and that a 24 hour telephone service to be answered by staff and not a machine, be made available to Councillors
and that a plan be developed to address constituents concerns;" and
(3) ensuring that streets where schools are located, are given high priority for snow removal.
The Committee reports having:
(1) requested that its recommendations in this respect be forwarded to Council's Special Meeting on April 26 and 27, 1999
for consideration with the recommendations emanating from the joint Urban Environment and Development and Works and
Utilities Committees which met on March 16, 1999; and
(2) requested the Commissioner, Works and Emergency Services to report to the Urban Environment and Development
Committee on:
(a) a process for ensuring that snow is cleared from City-owned buildings within 12 hours of a snowfall, and how this
process can be maintained;
(b) a comprehensive tracking system of complaints.
The Urban Environment and Development Committee submits the following report (March 24, 1999) from the
General Manager, Transportation Services:
Purpose:
This report defines harmonized processes and by-laws for snow emergencies, tagging and towing of vehicles obstructing
snow removal operations on local streets, sidewalk clearing and moving snow from private properties onto public streets.
The report addresses road de-icing and ploughing operations, as part of the winter maintenance program. In addition, this
report covers the communication and coordination requirements which should be in place on a regular basis every winter, as
well as those that should exist on a contingency basis, for activation during extraordinary weather events, as those
experienced in January of this year.
Source of funds:
The financial implications of harmonizing and improving winter operations were dealt with in the March 11, 1999, Report
to the Special Joint Meeting of the Urban Environment and Development Committee and Works and Utilities Committee.
Recommendations:
It is recommended that:
(1) road sanding/salting winter operations standards be based on the guidelines for road conditions specified in Table 2 of
this report;
(2) road ploughing winter operations standards be based on the guidelines for start snow conditions and route completion
times specified in Table 2 of this report;
(3) prior to the initiation of any wide scale snow removal operation on local streets identified as "Yellow Routes" (no
boulevards or other space to store snow and/or long term on-street parking is permitted), the Commissioner of Works and
Emergency Services meet jointly with the Mayor and the Chairs of the Community Councils; further, the policy would be
that snow is removed from both sides of these streets as conditions may dictate;
(4) Council acknowledges that strategically placed, City controlled snow disposal sites with a combined capacity of at least
150,000 loads are critical to the provision of a large scale snow removal operation to the levels of service set out in Table 3
of this report and staff be directed to report back, through the Urban Environment and Development Committee, with a
terms of reference for a consultant study to identify and secure the necessary snow disposal sites and appropriate
methodologies;
(5) a new consolidated city-wide Snow Emergency By-law, generally in the form provided in Appendix A, be approved and
the City Solicitor be requested, in consultation with the Commissioner of Works and Emergency Services, to prepare the
necessary Bills and make application to the Chief Regional Judge or any other body for approval of the set fines and
wording. The by-law would be consolidated and amended to include the following amendments:
(a) designation of several new routes (details of these will be reported to an upcoming meeting of the Urban Environment
and Development Committee);
(b) a provision to exempt cleared locations once snow is removed prior to the termination of the snow emergency period;
(c) a new provision setting out a more severe infraction and fine of $150.00 for vehicles illegally stopped in a manner
which blocks the passage of streetcars during a snow emergency;
(6) Council endorse the principle of deputizing Toronto Transit Commission inspectors to act as temporary parking
enforcement officers during snow emergencies with the authority to ticket and tow vehicles which are blocking TTC
vehicles, and the City Solicitor, in consultation with the appropriate City staff, TTC and police officials implement the
necessary steps to achieve this;
(7) Council endorse a policy of facilitating the moving of vehicles through the enforcement of Highway Traffic Act
provisions established for this purpose, accompanied by a $40.00 fine, and a "friendly tow" of vehicles to nearby locations,
to provide efficient snow removal on local streets and other streets not encompassed under the Snow Emergency By-law;
(8) a new city-wide by-law for temporarily prohibiting parking on local streets to facilitate snow removal generally in the
form provided in Appendix B be approved, and the City Solicitor be requested, in consultation with the Commissioner of
Works and Emergency Services, to prepare the necessary Bills and make application as necessary to the Chief Regional
Judge or any other body for approval of the set fines and wording;
(9) a new consolidated city-wide Snow and Ice Removal By-law generally in the form provided in Appendix C be approved
and the City Solicitor be requested, in consultation with the Commissioner of Works and Emergency Services, to prepare
the necessary Bills and make application as necessary to the Chief Regional Judge or any other body for approval of the set
fines and wording. The by-law would be consolidated and amended to include the following amendments;
(a) a requirement on property owners to keep sidewalks, adjacent to their properties, clear of snow and ice accumulation,
(applicable to all locations unless the City offers such a service);
(b) a requirement to clear sidewalks within 12 hours of the end of a snowfall, with a set fine of $105.00, for failure to do
so; and
(c) maintain the provisions prohibiting the deposit of snow from private properties onto roads, sidewalks and laneways,
amend the provisions to make both property owners and their agents or contractors liable for penalties; and increase the set
fine for infractions to $300.00 up to a maximum of $5,000.00;
(10) the Communications and Coordination Plan for winter operations described in this report, be adopted for
implementation and integration with other City emergency plans being developed; and
(11) winter maintenance for streets with on-street bicycle lanes comprise the following elements:
(a) salting of bicycle lanes in conjunction with regular roadway salting coupled with extra salting when field conditions
dictate it to be necessary;
(b) ploughing of snow to the curb in the normal snow ploughing manner and removal of snow from bicycle lanes when the
clear bicycle lane is less than 1m in width; and
(c) increasing patrols by winter services staff to minimize the winter hazards on bicycle lanes.
Background:
The Urban Environment and Development Committee, at its meeting of February 8, 1999, received a report (January 25,
1999), from the Commissioner of Works and Emergency Services and requested the Commissioner to report further
recommending a comprehensive winter maintenance plan for the City, for consideration at a special joint meeting of the
Urban Environment and Development Committee and the Works and Utilities Committee.
At their joint meeting of March 16, 1999, the Urban Environment and Development Committee and the Works and Utilities
Committee considered a report from the General Manager of Transportation Services, dated March 11, 1999, which
proposed common snow removal levels of service for those winter maintenance activities where wide discrepancies
currently exist. The key programs addressed in that report, were the clearing of sidewalks and the clearing of snow
windrows from the end of driveways. The Committees also considered other fundamental winter activities where consistent
levels of service should be followed. An approach for snow removal and adjustments to sanding/salting and ploughing
operations in District 1, (comprising the East York, Toronto and York communities), were recommended by the
Committees.
This report builds upon the service level strategies and addresses by-laws and enforcement activities that impact the snow
removal standards that were proposed in the March 11, 1999, report to the joint Committees. These include the snow
emergency by-law, parked vehicles on local streets, sidewalk clearing and the removal of snow from private properties onto
public streets.
The report also proposes consistent City-wide levels of service for the other principal operations that form the overall winter
maintenance program, namely, de-icing and ploughing and, as was the case with the recommendations on snow removal
operations, it is based on the coordination of the practices that were in effect in the previous municipal winter operations, as
well as the experience that was gained during the initial weeks of January 1999.
The winter sanding/salting and ploughing operations proposed in this report will achieve common levels of service for
similar types of roads throughout the municipality and clarify for its residents, the types and duration of winter operations
than can be anticipated.
In addition this report covers communication and coordination requirements which should be in place on a regular basis
every winter, as well as those that should exist on a contingency basis, for activation during extraordinary weather events, as
those experienced in January of this year.
A compendium of comments and suggestions on the recent winter operations and activities, submitted by members of
Council to the Mayor, were forwarded to staff for review and inclusion in the preparation of new winter strategies and
policies. The comments provided covered the entire range of the winter operations conducted in January of this year, such
as the need for improved communications with Councillors and the public during snow emergencies, the length of time that
it should take to clear certain types of roads, the need to coordinate the service levels across the various districts, etc. These
comments were considered in the harmonization of services, definition of standards and other activities, which are
summarized in the recommendations put forward in the March 11, 1999, and this report.
Also, at its meeting on February 8, 1999, the Urban Environment and Development Committee approved a motion from
Mayor Lastman requesting staff to explore the feasibility of creating a winter storm resource-sharing arrangement with the
Greater Toronto Services Board. Cursory discussions have taken place with a number of GTA member municipalities and,
although the opportunities may be limited by the fact that in many instances all GTA member municipalities will be faced
with fighting the same winter storm at the same time, there may be ways of assisting each other with snow removal and
thereby saving on collective costs. Staff will pursue this initiative and report back.
The Urban Environment and Development Committee and the Works and Utilities Committee had a request from
Councillor David Shiner, for comments on the feasibility of leasing ten snow blowers versus the proposed purchase of this
equipment, as had been recommended by staff. This matter is addressed in a separate report to this Committee.
Discussion:
1. Winter Operations
The maintenance of a safe and reliable municipal transportation system, is based on three main elements: de-icing,
ploughing and snow removal. The selection of the most appropriate method of dealing with a particular winter storm, is
principally based on the amount of accumulated snow fall. Based on this factor, the selected method offers a balance
between the clearing and removal of the accumulated snow and ice at an appropriately determined pace in a fiscally
responsible manner. As indicated above, snow removal operations were addressed in significant detail, in the March 11,
1999, report to the joint meeting of the Committees.
De-icing
The application of de-icing agents is the first level of snow removal from pavements. De-icing products, such as salt, are
spread on roads for light snowfalls and during the initial stages of significant storms. When temperatures are not extremely
cold, de-icing is the most inexpensive method of addressing the removal of snow. The melting of the snow is achieved
when vehicle tires mix the snow with the salt on the roadway. Where necessary, due to ice conditions, traction-providing
agents such as sand are spread on the pavement to achieve safe and passable conditions.
Ploughing
When snow accumulations exceed 5 to 8 cm, the application of de-icing agents to maintain safe traction conditions on the
pavement becomes ineffective. It is generally at those levels of snow fall, that ploughing is started. This operation moves
the snow from the travelled portion of the roadway and deposits it on the side of the road. The initiation of snow ploughing
is dependent on the category of roadway. For example, snow ploughing is initiated first on expressways and arterial roads,
as these provide necessary city-wide linkages for emergency and transit vehicles.
Road Categories
To address the varying winter maintenance requirements of the different road types in the City, these have been divided
into a number of categories and were defined in the March 11, 1999, report as indicated in Table 1.
Based on these categories, it is possible to define the level of service that should be provided for each road category in each
of the elements of winter operations. The table also details the total kilometres or numbers for each of the noted categories.
Storm Types
The definition of levels of service for winter de-icing and ploughing operations is wholly dependent on the type and
magnitude of storm. It is therefore necessary to define winter maintenance standards for these operations, based on the types
of storms that are anticipated. Table 2 identifies the types of storms that have been taken into consideration in this report.
Planning for the deployment of equipment and staff, is therefore based on the forecast of the type of storm and the
anticipated snowfall.
1.1 Sanding and Salting Operations
A review of the current methods of sanding and de-icing, has determined that similar approaches are employed across the
Districts to address the initial stages of snow accumulation. The objective of this operation is to maintain pavement
conditions at the initial stages of a storm, that are commensurate with the traffic levels and the function of the road. Table 3
outlines the standard that is sought through sanding and salting of roads. Current sanding/salting operations in all Districts
generally address the objectives specified above. Salting and sanding are conducted in a manner to ensure that the minimum
amount of salt is spread on the roads which ensures the safe passage of vehicles.
1.2 Snow Ploughing Operations
Snow plows are activated when it is evident that de-icing agents can no longer address a continuously falling amount of
snow. Decisions on the timing and location of initial plough deployment are determined on actual observations in the field,
which in turn, are based on specified guidelines. The level of service for snow ploughing defines the extent of snow
accumulation that will result in snow plough activation, as well as the length of time that operators generally have to
complete a ploughing route.
Table 2, also shows the guidelines for the conditions that will result in the initiation of ploughing operations. These are
based on averages of ploughing operations in the former municipalities, which were generally similar. The table also shows
guidelines for the length of time allotted for the completion of snow ploughing routes after the end of a storm. Table 2
specifies these snow route completion times based on general averages of ploughing operations in the former municipalities.
1.3 Seniors Sidewalk Clearing
A departmental report, (February 5, 1999), provided background with respect to the various programmes providing
sidewalk and/or driveway windrow clearing to senior citizens. The former municipalities offered a range of programmes,
some delivered by city staff or contractors and others by community agencies receiving subsidy from the City. In some
cases, residents were charged a fee. In considering a previous Works report (October 15, 1998), on harmonizing service
levels, Council, at its meeting of November 25, 26 and 27, 1998, directed that the City provide a free sidewalk and window
clearing service to all senior citizens.
The joint Urban Environment and Development and Works and Utilities Committee at its meeting of March 16, 1999, had
before it, a communication from Councillor Bill Saundercook, proposing that the "snow-Link" model used in the York
community be considered as a cost-effective model for seniors snow clearing. Staff have begun to assess the appropriate
delivery model for this service and will continue to work with community groups. It is noted that during the January storms,
both the York and East York programmes run by community groups, were unable to absorb the increased demand for the
service, and new applicants were added to the City lists. Once the general policy for sidewalk snow clearing is established
by Council, we will be in a better position to determine the parameters of the seniors programme. A report will be submitted
to Committee with a recommended approach at a later date.
1.4 Winter Maintenance for Bicycle Lanes
There are presently over 60km of on-street bicycle lanes in the City. Most are concentrated in District 1.
In 1996 the former City of Toronto adopted a snow clearing procedure for streets with bicycle lanes which provides a
reasonable level of service for cyclists. It is recommended that a similar programme for winter road maintenance of bicycle
lanes be considered for all areas of the city.
This winter maintenance programme includes three basic elements:
(a) Salt is applied to bicycle lanes at the same time as the roadways are salted. In cases of extreme icing or at other times
when it is necessary, additional salt is applied specifically on the bicycle lanes.
(b) Snow is ploughed to the curbs in the normal snow ploughing manner with a goal of keeping at least 1.0 metres of the
lane clear (bicycle lanes range in width from 1.5 - 2.0 metres). When the accumulation of snow at the curb is such that the
clear bicycle lane is less than 1.0 metre in width, the snow is removed from the curb along the bicycle lanes.
(c) As part of the regular duties of the winter services foreperson, additional patrols of the bicycle routes are undertaken.
The patrolling staff are equipped to deal immediately with potentially hazardous conditions on the bicycle lanes such as
black ice or snow that has been shoveled onto the bicycle lane from the adjacent properties.
2. Snow Disposal
The achievement of the proposed levels of service for snow removal identified in the March 11 report, is dependent, not
only on staff and equipment resources, but as importantly, on the ability to store the snow being removed from City streets.
The snow removal levels of service which were proposed in that report, are attached as Table 3.
It is critical that adequate snow disposal sites be available to deal with the vast quantities generated. The former City of
Toronto policy for winter services acknowledged this, noting that snow be disposed of at strategically placed sites under the
City's control which are capable of handling 120,000 loads per winter season. In reality, access to snow dumping sites has
been diminishing substantially for many years as a result of environmental and aesthetic concerns, to the point where the
limited number of authorized locations have nowhere near the necessary capacity (about 10 percent of the original
requirement). During the January storms, it was only through the activation of sites which were previously closed to this
activity and the generous donation of sites by several private landowners, that we were able to create the necessary capacity
for the major operations.
Despite this, the operation was severely stressed on a number of occasions during the January storms due to inadequate soil
conditions, restricted access to the sites, proximity to residential areas, ability to manoeuvre large vehicles in the sites, etc.
Snow disposal in Lake Ontario has not taken place for environmental reasons since 1979. While the Ministry of the
Environment was contacted during the storms of last January, it is clear that approval to dump snow in Lake Ontario would
only be granted under the most strenuous emergency situations.
It is therefore necessary to establish designated areas as snow dumps to ensure adequate facilities, should the need arise.
Consideration should be given to the establishment of large sites designated specifically as snow dumps. Other options such
as large stationary melters should also be explored. The establishment of any permanent snow disposal site or operation
would be a major and costly undertaking. Environmental Assessment would be mandatory. In view of the complexities, it is
recommended that staff prepare and submit for Council approval, terms of reference for a consultant study to determine
appropriate snow disposal methods and locations. We estimate that a total capacity to accommodate 150,000 loads is
required to provide the snow removal level of service proposed in the March 11, 1999, report.
3. Parked Vehicles - Impact on Snow Removal Operations
A number of older areas of the City have narrow streets with no opportunity for off-street parking and are thus, highly
dependent on street parking. Approximately 61,000 overnight permits are issued to accommodate on-street parking.
Similarly, many commercial strip areas along main streets, often with streetcar tracks, rely on street metered parking to
serve their customers. These conditions lead to problems where snow accumulations of greater than 25 to 30 cm occur, as
parked vehicles hinder ploughing and removal operations. Because of the unique characteristics and needs between the
residential and commercial parking, these components are addressed separately.
3.1 Snow Emergency By-law - Commercial and Main Arterial Streets
There has been some misconception about what the Snow Emergency By-law entails and what it is intended to accomplish.
It is geared toward facilitating snow operations on designated main arterial and commercial streets. Streetcar routes are a
key element. An exception is a handful of local routes which serve bus turning loops. Otherwise the By-law currently has no
general application to local residential routes.
Three former municipalities had such by-laws in place; Metropolitan Toronto, East York and Toronto. These by-laws had
essentially the same stipulations: the Mayor may declare that an emergency condition exists on any of the highways
specified when such a significant amount of snow has fallen that clearing is impeded by traffic and parking (Metro and East
York provided that at least 8 cm must have fallen in an 8 hour period). Upon declaration of a snow emergency, parking and
standing of vehicles is prohibited on the listed streets, where proper signage is in place. The emergency condition would
continue for 72 hours. There were no provisions to extend this time limit. A recent staff report (January 8, 1999), was
adopted by Council at its February 2nd meeting which provided greater flexibility in the implementation and duration of a
snow emergency. Reference to specific quantities of snow fall were deleted and the emergency period can be extended as
necessary to clear snow (Clause No. 8 in Report No. 2 of The Urban Environment and Development Committee).
Through the series of storms in January, two particular problems related to parked vehicles were noted. The first was the
surprising frequency vehicles stopped, with drivers knowingly blocking streetcar tracks. Unfortunately, by the time the
transit operator contacted dispatch, police were sent and tow trucks deployed, the offending vehicle was usually moved, but
not before it created havoc in the 5 to 10 minute period it was left. This type of infraction should be dealt with severely, but
due to the nature of the offence, it is often difficult to impose the necessary enforcement.
The second aspect was vehicles parked along the specified arterial routes, either in contravention of the snow emergency
parking prohibition, or after the 72 hours had elapsed, in a manner that hampered snow removal operations. These situations
were somewhat easier to deal with since police enforcement and towing could be more readily applied. Nonetheless, even
with the regulations in place, and enforcement provided, drivers who insisted on parking despite the restrictions caused
delays to the operation.
Expansion of the Snow Emergency Route Network
As noted above, only three of the former municipalities had enacted snow emergency by-laws. In reviewing what these
by-laws are intended to accomplish, in light of the variety of physical development patterns found in the City and
underlying parking regulations in effect, we have concluded that some additional routes should be added to the Snow
Emergency By-law, but wide scale changes are not necessary to enable efficient snow removal operations.
Generally, four criteria should be considered in determining where it is necessary to apply the snow removal by-law:
(i) commercial/arterial streets with streetcar tracks or other significant transit routes;
(ii) streets where there is little or no storage space for ploughed snow (for example, the sidewalk is immediately adjacent to
the pavement and there is no boulevard);
(iii) streets where parking is otherwise permitted at all or certain times; and/or
(iv) local routes used for transit operations or emergency access.
In the case of many of the suburban arterials such as Finch Avenue, Kennedy Road, portions of Eglinton Avenue, etc.,
which have snow storage space and where parking is not permitted at any time, application of the snow emergency by-law
would be redundant. Accordingly, these types of streets would not be recommended for inclusion.
Initiation and Duration of a Snow Emergency
Changes enacted to the three existing snow emergency by-laws, as a result of Council approval at its February 2nd, 1999,
meeting have provided sufficient flexibility in terms of the Mayor declaring a snow emergency. An emergency can now be
declared when such a significant amount of snow has fallen that clearing is impeded by traffic and parking. There is no
longer a specified amount of snowfall within a particular time frame necessary to initiate an emergency.
The February 2nd amendments also eliminated the 72 hour limit during which an emergency would apply. The new
provisions stipulate that the emergency can be extended by the Mayor for any further period of time required for clearing or
removal of snow. No further changes are required in this regard.
One aspect of the snow emergency by-law that we feel should be refined is its application after a particular route has been
cleared. It is recognized that those locations where the by-law must be applied due to lack of storage and the interference
that parked cars create for removal operations are also the same locations that rely on street parking to sustain business. If
snow is removed from a street early in a snow emergency, there would be no need for the enhanced parking restrictions to
continue to apply throughout the remaining duration. Therefore, we recommend that a new provision be added to the by-law
which sets out that notwithstanding the declaration of a snow emergency, if snow removal from a particular route has been
completed, the rules governing parking would revert to underlying regulations.
Fine Structure
As noted above, there are two types of infractions that should be addressed by the Snow Emergency By-law; the blockage
of streetcar tracks and the obstruction of snow removal operations. Currently, no distinction is made between the two. A
supplementary report (January 21, 1999), from the Commissioner of Works and Emergency Services to Council at its
February 2nd meeting addressed the issue of fines associated with the snow emergency by-laws. Vehicles in contravention
of the "No Parking/No Standing" provisions are subject to tagging and towing in the normal manner. The initial fine is
$40.00, escalating to a maximum of $80.00 if not paid promptly. In addition, a towed vehicle is subject to a $40.00 to
$80.00 towing fee, pound storage fee of up to $16.00 per 24 hour period and potentially a drop charge of 50 percent of the
tow fee. This is generally satisfactory to deal with obstruction of snow removal operations.
However, as noted above, the penalties for disrupting transit service should be more severe. In this regard, it is
recommended that the offence of parking/standing a vehicle over streetcar tracks or inhibiting transit operations should be
established; with a fine of $150.00 escalating to $200.00 after 7 days for this infraction. In this regard, the City Solicitor
should be requested to make application to the Chief Regional Judge for approval of the set fine and wording upon Council
enacting the by-law. This process could take over a year. Therefore, the existing by-laws should be amended to reflect the
new provisions and repealed only at such time as the new set fines and wording for the consolidated by-law have been
obtained.
As also noted, the timeliness of enforcement and removal of the offending vehicle is critical in minimizing the delay to
streetcar operations. City Council, at its February 2, 1999, meeting in considering the interim amendments to the snow
emergency by-laws also requested the Commissioner of Works and Emergency Services to report on the concept of seeking
authority to deputize Toronto Transit Commission drivers and/or inspectors during snow emergency situations, in order to
allow them to act as temporary parking enforcement officers with the authority to ticket and tow vehicles which are
blocking TTC vehicles.
In principle, we believe the concept of granting TTC inspectors the ability to enforce this proposed aspect of a snow
emergency by-law, as it relates to the blockage of streetcar tracks is sound. It is proposed that City Works and Legal staff
explore with TTC officials, in consultation with the police, the mechanisms which would allow this to be implemented. As
well, municipal staff should also assume these expanded powers. This aspect is dealt with in more detail in the following
section.
Summary - Consolidated Snow Emergency By-law
Appendix A attached is a proposed form of a consolidation of a new Snow Emergency By-law. It is generally consistent
with the existing three by-laws with three notable amendments:
(i) several new routes are designated;
(ii) a new clause to exempt areas after snow is cleared; and
(iii) a new provision setting out specifically a more severe infraction (accompanied by a $200.00 fine) for vehicles illegally
stopped in a manner which blocks passage of streetcars during a snow emergency.
It is recommended that the City Solicitor be requested to draft the Bill to generally reflect the provisions noted, in
consultation with the Commissioner of Works and Emergency Services.
3.2 Residential and Other Local Streets
When developing an appropriate approach to deal with parked cars in residential areas in a snow emergency, consideration
must be given to the local conditions and expectations of the public. With respect to the first factor, it is not possible to
implement a general parking prohibition due to the fact that alternatives are not available to accommodate the simultaneous
storage of approximately 61,000 permitted vehicles. Alternatively, other methods must be explored. The second element to
keep in mind is the rarity of embarking on a major snow removal operation in local areas. In researching various practices in
other municipalities, it is apparent that much more stringent regulations requiring the moving of parked vehicles can be
imposed. In Montreal for example, vehicles must be moved from residential streets when special snow removal parking
prohibition signs are temporarily posted. Any vehicle not moved will receive a "friendly tow" and a $92.00 fine. However,
in Montreal, due to the snowfall patterns, an average of 6 removal operations per year are undertaken. The public, therefore,
would be used to this routine. In Toronto, a large snow removal operation from local streets takes place very infrequently
(last occurrence was at least 15 years ago, and nowhere near the scope of the January effort). Accordingly, residents would
not be accustomed to this activity and a severe fine may be seen as unjust.
The approach to carrying out snow removal from interior streets will, in large measure, dictate the need for vehicle removal
and the corresponding enforcement strategy. There are essentially two fundamental possibilities:
(i) clear one side of the street; or
(ii) clear both sides of the street.
Option (i) - Clear One Side of Street
The approach taken in the January operation was generally this option. This is consistent with past practices, and, in fact,
was the approved Council policy in the former City of Toronto. The general pattern on the narrow streets in the inner
sections of the City where snow removal became necessary is parking on one side. The goal of the programme was to clear
the large snow banks from one side of the street and sidewalk to make these facilities passable. This was to ensure that all
streets in the confined areas, generally comprising District 1 (East York, York, Toronto) were served as quickly as possible.
In general, snow was ploughed away from the parked vehicles to the open side of the street so as not to block parked
vehicles. Even under heavy snow conditions, the removal of snow from the one side has been sufficient, but with the
extraordinary volumes of snow experienced through the January storms, large windrows built up on the parking side, taking
many permit parking spaces out of commission.
Upon completion of this major snow removal operation, a number of crews were kept on to deal with areas in the City
where streets are narrow and permit parking is in high demand. The main focus of this secondary operation was to remove
large mounds of snow that had built up on the parking sides of many streets as people dug out their cars or cleared
driveways and walks and deposited the snow onto the clear roadways.
Option (ii) - Clear Both Sides of Street
As noted above, if conditions are such that a snow removal operation must be initiated on interior streets (the "Yellow
Routes"), it may be necessary to only clear one side. However, under exceptional volumes of snow accumulation, removal
from both sides may be advisable. The main drawback to this approach is that the length of time to reach all streets would
be increased by at least 50 percent over the time frames established in the March 11, 1999, report. An alternative would be
increasing the equipment and personnel dedicated to the operation. It is estimated that 30 percent more equipment, and
hence cost, would result compared to the figures quoted to maintain the target time frames. In addition, a larger
establishment of by-law officers would be required to facilitate the moving of vehicles. Given the concern about permit
parking spaces being obstructed throughout the January storms, it is recommended that snow removal from both sides of
streets be adopted as the standard practice. Of course, the decision for each local removal operation will have to be
responsive to the circumstances being dealt with at the time, and may vary depending on any number of factors such as
accumulation, time of year, weather forecast for near term, probability of snow melt, etc.
Initiation of a Major Snow Removal Operation on Local Streets
The decision to initiate a large scale snow removal operation from interior streets ("Yellow Routes") has significant cost
and operational impacts. It is our opinion that given these considerable implications, a more formal mechanism to initiate
such an activity would be appropriate. Table 2 sets out the parameters and approach that staff feel should form the policy
and operating framework for wide scale snow removal on local streets. These would be the basis for conducting the actual
operation.
To achieve the necessary input and dialogue with elected officials, we recommend that the Commissioner of Works and
Emergency Services meet jointly with the Mayor and Chairs of the Community Councils, prior to embarking on a wide
scale snow removal from interiors. The Commissioner would report when the snow accumulation criteria described are met
regarding the course of action proposed. Since each storm requiring consideration of snow removal will be unique, the
report would address all pertinent factors such as anticipated further accumulation, time of year, probability of melt, etc.
The report would also confirm the advisability of the two-sided removal, as recommended later in this report, or whether
one side removal would be satisfactory under the circumstances.
It is proposed that this approval process be limited only to a large scale interior street operation. Removal of snow from
expressways, reds, blues, dead-ends and limited local, etc., should be an operational decision of the Commissioner.
By-law Provisions to Facilitate Snow Removal on Local Streets
At the present time, there are no provisions in any by-laws explicitly addressing the moving of vehicles from local streets to
facilitate snow removal. It is noted, however, that the power to tow any parked vehicle which is deemed to be interfering
with snow removal operations is granted under the Highway Traffic Act, Ontario, R.S.O. 1990, Chapter 8,
Sections 170(12), (13) and (15).
As noted above, in establishing a by-law provision for the moving of vehicles on a local street during snow removal, we
must be cognizant of the frequency this may occur. Accordingly, it is recommended that a fine for vehicles not moved by
their owner be established at $40.00 and that a "friendly tow" be provided. This fine is being suggested as a deterent to
encourage the moving of vehicles, although a "friendly tow" would be provided, there is a cost involved to carryout this
operation. The mechanism would be similar to that used in Montreal, where temporary "No Parking" signs are posted and
parking is prohibited from 7:00 a.m. to 7:00 p.m. or vice versa the signs would be posted for the daytime operation by 8:00
p.m. the night before and by 3:00 p.m. for the night-time operation. Cars would be towed to nearby locations. The signs
would be either posted on double side "sandwich" boards or on stakes, directly implanted into the snow windrow. In
keeping with the temporary nature of the signs, and bearing in mind the convention established by the province for
temporary construction signage, the signs would have an orange background with black lettering. Appendix B is a suggested
form of by-law for this purpose.
Enforcement Considerations
Although the main strategy for the January storms was to remove snow from one side of the street, the operation was able
to deal with both sides of about 1/3 of District 1 streets, largely on an ad-hoc basis. This was accomplished, in some cases,
through the organizational efforts of residents who were able to cooperate with neighbours and get the majority of cars
temporarily moved. By-law officers were also able to knock on doors in some sectors, but there was nowhere near the staff
necessary to accompany every snow removal crew. In total, ten teams of officers were available during the daytime and
three crews worked at nights. These officers also had to circulate to other areas when snow removal operations were
impeded by illegally parked cars, as well as provide traffic control. In total, 1300 cars received a "friendly tow" from
residential streets during the January operations.
The complement of enforcement officers is entirely dependent on the option approved for snow removal. If the one-side
clearing approach is continued, then the resources in this regard would not change substantially as the towing of vehicles
would not be carried out to any great extent. If, however, the two-sided removal option is adopted as recommended, more
officers would have to be enlisted to facilitate moving a large number of vehicles from the parked side of streets.
To accomplish snow removal on both sides of the street ("yellow routes") at least 80 operating crews are required.
Currently there are 39 by-law officers City-wide regulating by-laws/municipal codes within the City's right-of-way. Even
with the existing complement of staff, we would not be able to manage each operating crew, unless each by-law
enforcement team manages two operating crews.
In addition, certain by-law permitting and enforcement functions from Works and Emergency Services are being
transferred to Urban Planning and Development Services. This, of course, would further reduce the existing complement of
by-law enforcement staff.
Given that snow operations are seasonal usually from November 15 to April 15, it is not viable to increase the number of
by-law enforcement staff on a year round basis.
It is therefore recommended that during snow removal operations, by-law enforcement staff, as required, are drawn from
other areas such as Municipal Standards, Solid Waste and Parks to assist. Staff are working on procedures to facilitate the
engagement of personnel from the other Departments for this purpose when necessary.
4. By-laws for Clearing Sidewalks and Depositing Snow on Streets
Each of the former municipalities had various by-laws in effect to deal with abutting property owners' responsibilities
arising from snow accumulations. These generally relate to two aspects:
(1) the requirement to clear the public sidewalk adjacent to the property of snow and ice and keep it in a safe condition; and
(2) provisions prohibiting the deposit of snow and ice from the private property onto abutting public streets, sidewalks or
laneways.
The following table provides a summary of these provisions.
| Community |
By-laws/Policies Regulating
the Snow removal on public
sidewalks by property
owner/occupant |
Costs of sidewalk clearing
of snow/ice by City crews
under By-law Enforcement |
Penalties |
Penalties for depositing
snow from private property
onto the roadway |
| East York |
Apartment Buildings - within
3 hrs
Commercial/industrial/
institutional - within 5 hrs
Residential - within 12 hrs |
$ 6.50/ linear m for first
offence
$ 6.50/linear m + $2.00/linear
m for each additional offence |
residential/
commercial/
industrial/
institutional :
$ 28.00
Maximum $300.00 |
Maximum of
$5,000.00 |
| Etobicoke |
Property owners/occupants
shopping centres and service
stations - immediately
snow/ice to be removed from
building if dangerous to
public - within 12 hrs
vacant land - within 18 hrs |
1st occurrence - $3.00 linear.
m
2nd occurrence - $5.00/linear
m
3rd occurrence
$10.00/linear m |
Not less than $25.00 and not
more than $2,000.00 |
Not less than $25.00 and not
more than $2,000.00 |
| North York |
Snow/ice removed by City
crews |
N/A |
N/A |
maximum $5,000.00 |
| Scarborough |
snow/ice to be removed
within 24 hrs after snow
accumulation |
Residential ; $35/15 m
Commercial
$ 50.55 / 15 m |
No set fine maximum of
$1,000.00 |
Maximum $5,000.00 |
| Toronto |
snow/ice to be removed
within 12 hours after any
snow fall |
$5.50 per sq. m
$2.75 per sq. m salting |
$55.00
Maximum
$ 5,000.00 |
Set fine: $105.00
Maximum $5,000.00 |
| York |
Remove snow/ice before 12
midnight of the day after a
day on which any fall of snow
has ceased |
No system in place |
$53.00 maximum of
$1,000.00 |
$53.00 maximum of
$1,000.00 |
The principles underlying these snow clearing provisions remain valid. We are of the view that abutting owners should be
responsible for clearing the sidewalks in all locations unless the City offers such a service; for example, situations like the
current North York service, where a universal sidewalk clearing program is in place or clearing for seniors in other areas of
the City. Given the harmonization of the current by-laws which will be required based on the decision of the joint Urban
Environment and Development Committee and Works and Utilities Committee at their joint meeting of March 16, 1999, to
restrict sidewalk ploughing to seniors, City owned properties and properties with reversed frontages, it is suggested that the
new by-law require sidewalks to be cleared within 12 hours after the end of a snowfall and that if property owners fail to do
so, the City would carry out the work at the owner's expense.
Provisions prohibiting the deposit of snow from private properties into the streets, sidewalks and lanes should also be
continued. It is noted that this type of activity led to considerable problems during the January storms as snow ploughed out
from private lots and properties gave the impression that some streets had not been ploughed.
As a reminder, every year the City forwards letters to Landscaping and Snow Removal Contractors, to solicit their
cooperation in ensuring that any snow removed during snow clearing operations is stored on private property.
By-law enforcement staff monitor the areas where this activity is reported and charges are laid as staff witness the
ploughing of snow from private property to public property. The set fine for this offence varies from $25.00 to $105.00, up
to a maximum of $5,000.00. However, there is nothing in the present by-laws to permit the Commissioner of Works and
Emergency Services to enforce the law onto the property owner for permitting the moving of snow from private property
onto the public highway. In order to ensure that the property owner, as well as the party actually moving the snow, is held
accountable, it is recommended that the City Solicitor make an application to the Chief Regional Judge for approval of a set
fine and wording for "permitting the moving of snow (or ice) from private property onto public highway", to a set fine of
$300.00 to a maximum of $5,000.00 and to increase the set fine for "moving snow (or ice) onto public highway" from
$300.00 to a maximum of $5,000.00.
Appendix 'C' of this report is a proposed form of a consolidation of a new by-law to deal with snow and ice removal from
sidewalks and the deposit of snow and ice from private properties onto public streets, sidewalks and laneways.
5. Winter Operations: Communications and Coordination
During the January storms, the importance of timely communications with elected officials, staff, media and the general
public was evident. City staff were being inundated with telephone calls relating to the winter maintenance operations. A
number of initiatives were put in place to help to deal with these calls (i.e. daily press releases, advertised telephone
numbers for snow complaints, etc.). However, city staff and elected officials could not respond properly to the thousands of
phone calls. In many cases, residents could not get their calls answered, or the information they were inquiring about was
not to their satisfaction. Many frustrated residents then placed phone calls to the Mayor's office and Councillors seeking a
response to their inquiries or concerns.
Residents want to be able to receive information and have staff respond to the calls in a timely manner. The media requires
information relating to what has been done, what work is planned, plus any pertinent information relating to the winter
maintenance operations.
In order to respond to these needs, there must be sufficient staff and resources to receive inquiries and complaints from the
public. In addition, city staff should take a pro-active approach in providing information on the status of the operations.
Appropriate staff must also be accessible to respond to emergency calls, Councillor inquiries, or media requests for
information. This could be served by the implementation of a winter operations communications plan. The plan would
consist of the following general components:
- Telephone Answering Service
- Coordination Centres
- Mayor and Councillor Information
- Internet Access
- Media Updates
5.1 Telephone Answering Service
The public should have to phone only one number for anything relating to winter operations. The number could be
338-SNOW (338-7669) which has already been reserved for this purpose.
At the present time, there are seven different telephone numbers for the public to call and these relate to each of the former
municipal governments. Many residents are not sure of what existing number to phone and frequently telephone the wrong
number.
The use of a single telephone number (338-SNOW) would reduce the confusion and be easier to publicize for the entire
city. Although there would be a single telephone number, arrangements could be made to have as many telephone lines
available as appropriate.
Staff answering this number could be centrally located in one location. Alternatively, staff could be allocated in district
offices depending on space requirements and staff availability. Telephone answering staff could be temporarily assigned
during snow storms and be trained to provide information and to prioritize calls relating to emergencies, complaints, or
inquiries requiring follow-up.
Operations staff would provide regular updates of the winter maintenance operations to enable the telephone answering
staff to answer most of the inquiries.
An information only voice mailbox should also be established which would have constant updates on the status of the
winter operations. The voice mail box could be accessed by residents in order to get general information and could be
accessed by the 338-SNOW telephone number. In many cases, the public are phoning the city to inquire about general
winter maintenance information and need only to listen to a mail box to receive the information they are seeking. This, in
turn, could free up staff to respond to telephone calls requiring follow-up.
5.2 Coordination Centres
Coordination centres need to be established in each district to assist in coordinating the winter storm operations and acting
as a communication link.
The coordination centres would operate as required during the ploughing and snow removal operations to provide
information and respond to inquiries from councillors, senior management, and city communications staff. Each district
coordination centre would log the status of work completed on maps. It is hoped in the next year or two these maps could be
maintained electronically and the information would be available on the Internet.
A Central Coordination Centre would also be activated during a level 4 snow storm. The central coordination centre would
coordinate the overall city winter maintenance operations. It would also coordinate the assignment of crews between
districts. The Central Coordination Centre would consist of senior management staff, technical support staff, clerical staff,
TTC staff, communication staff and staff from emergency services.
5.3 Mayor and Councillor Information
In order to provide a strong communication link with the Mayor, Councillors and their assistants, a number of
recommendations are proposed:
(a) Daily district summary reports on the status and proposed work would continue to be provided each morning.
(b) A detailed district report on which streets have been ploughed or had snow removed would be provided by noon of each
day of a storm clean-up. In the future, when resources are available, this information would be provided electronically on
ward maps.
(c) Elected officials would be able to contact management staff at district coordination centres, or the Central Coordination
Centre, if applicable, during a snow storm or during clean-up operations. There would be designated telephone lines which
would be available to elected officials to contact the coordination centres.
(d) During major storms, there would be daily councillor briefings at City Hall if required.
(e) Outside regular office hours, a telephone mail box would be available so the Mayor and Councillors can retrieve
information on the status of winter maintenance operations.
(f) At the start of each winter season, an information package containing winter maintenance policies and route maps
would be sent to each elected official.
5.4 Public Information and Internet Access
Prior to the winter season, information regarding winter control policies and procedures will be prepared for distribution.
The methods of distribution are currently being investigated but could include such vehicles as newspaper advertisements,
brochures or home delivery separately or in conjunction with wastewatch or water watch.
Further, to assist the public in getting status reports of the winter maintenance operations, a web site could be developed.
The web site could provide status updates of the clean-up operations. In addition, it could be used by the public to advise
the city, via e-mail, of snow concerns only if they didn't expect a response, or at least not an immediate one. This could
reduce the work load on the telephone answering service office(s). The public could eventually use the web site to
determine which streets have been ploughed or had snow removed after a storm when the necessary resources are available
to update this information.
5.5 Media
The media can assist the City in providing information to the public relating to winter maintenance operations.
It can actually reduce the number of telephone calls made to the city by residents. Therefore, we should try to provide as
much information as possible to the various forms of the media.
This could be provided in the following manner:
(a) A daily press release be sent out each morning during snow ploughing/snow removal operations to identify the work
which has been done plus what work is scheduled.
(b) Communication staff would be accessible for media inquiries. The communication staff, both corporate and
departmental, will need to work closely with Transportation Services staff to be knowledgeable of the winter maintenance
operations in order to respond to most of the media inquiries. Communication staff would also arrange with staff, media
interviews if requested by the media.
(c) During major snow storms, a daily media briefing be coordinated by communications staff and have appropriate senior
management staff available to provide an update on the winter operations.
(d) If a web site is developed for winter operations, the media would be able to access status reports, general information
and, in the future, computerized plough and snow removal map updated.
(e) A press kit should be developed containing winter maintenance policies, budget information, route maps, general facts,
etc., to be distributed prior to each winter season.
Conclusions:
The City has to address, with stronger legislation, the difficulties that are encountered during snow removal operations as a
result of parked vehicles on principal routes, streetcar routes or other streets that have been designated for snow removal.
In addition, there are environmental implications which result from the need to place removed snow in snow dumps. There
is need to identify snow dump locations and discuss with the Ministry of the Environment and the appropriate public
consultation, their endorsement of the selected locations.
Current sanding/salting and ploughing operations adequately address the City's winter maintenance needs in these
categories.
A great proportion of these activities are conducted through contracts to avoid the need to maintain a large winter-orientated
fleet that cannot be properly utilized during other seasons of the year. In some districts, these operations are conducted by
City staff. It is appropriate to generally maintain this distribution of activity, although minor adjustments might be required
in route definition and equipment use, to make more efficient use of resources for these operations.
Contact Name:
Andrew Koropeski John Thomas
Director, Transportation Services, Director, Transportation Services
District 1 District 2
Roberto Stopnicki Gary Welsh
Director, Transportation Services, Director, Transportation Services
District 3 District 4
Insert Table/Map No. 1
Tables 1, 2 and 3 for Snow operations
Insert Table/Map No. 2
Tables 1, 2 and 3 for Snow operations
Insert Table/Map No. 3
Tables 1, 2 and 3 for Snow operations
The Urban Environment and Development Committee also submits the following report (March 24, 1999) from the
General Secretary, Toronto Transit Commission:
On March 4, 1999, the Commission held a special meeting to review the 1999 TTC and Wheel-Trans Operating Budgets.
As part of these deliberations, the Commission approved a motion that staff investigate the feasibility of obtaining a portion
of the City Emergency Snow Fund in relation to the additional costs incurred by the TTC during the January, 1999
snowstorm.
The following provides a breakdown of the incremental costs and lost revenue incurred:
Lost Revenue Due to Fewer Riders - $2.000 million
Unbudgeted Overtime and Materials - $2.355 million
Commuter Parking Lot Snow Clearing - $0.090 million
Total Incremental Costs/lost Revenue $4.445 million
The foregoing is forwarded to the Urban Environment and Development Committee and City of Toronto Council for
consideration of the Commission's request that a portion of the City's Emergency Snow Fund be used to cover the
aforementioned costs and lost revenue which were incurred by the TTC as a result of the January, 1999 snowstorm.
The Urban Environment and Development Committee also submits the following report (March 26, 1999) from the
Commissioner of Works and Emergency Services:
Purpose:
To report on Councillor Shiner's request that staff report back with the option of leasing snow blowers rather than
purchasing it.
Financial Implications:
There are no financial implications in the recommendations contained in this report.
Recommendation:
That this report be received for information.
Background:
The Joint Urban Environment and Development and Works and Utilities Committees at their meeting held on March 16,
1999 considered the report dated March 11,1999 from the General Manager, Transportation Services which recommended,
inter alia, the following:
"3 (b) Purchase 10 additional snow blowers to provide a total City-owned complement of 20(one time total cost of
$1,500,000.00 and an annual total maintenance cost of $50,000.00);"
Councillor David Shiner requested that staff report back with the option of leasing this equipment rather than purchasing it.
Discussion:
After the January storms, quotations for leasing snowblowers ranged from $16,500.00 to $19,500.00 per month. Assuming
a 5 month winter control season, the cost per blower would be between $82,500.00 and $95,500.00. Therefore, to lease 10
snowblowers, the annual cost would be between $825,000.00 and $950,000.00. The cost to purchase the snowblowers is
estimated to be $1,500,000.00.
The high lease rates reflects the very specialized nature of this equipment and the inability of the leaser to use if for other
operations outside the winter period therefore their costs must be re-couped over a short period of time. Longer lease
periods would reduce these cost, however, they would still be higher than the purchase costs. Generally, leasing may be
appropriate if the equipment is required for short periods of time and on an infrequent basis. This is not the situation. The
intent is to increase the City's snow removal capacity on a permanent basis.
The lessee would also be responsible for maintenance of the equipment during the period of the lease, therefore, there
would be no savings from leasing vs purchasing.
Conclusions:
Given that the blowers generally see limited use, the life cycle is in excess of 10 years. Many of the City's existing
snowblowers are 10 to 20 years old. Therefore, given the leasing costs in comparison to the capital costs, the purchase of
this specialized equipment is more cost effective than leasing.
Contact Names:
Roberto Stopnicki
Director, Transportation Services - District 3
Telephone: 395-7480
Fax: 395-7482
John W. Thomas
Director, Transportation Services - District 2
Telephone: 394-8341
Fax: 394-8942
The Urban Environment and Development Committee also submits the following report (March 25, 1999) from the
Commissioner of Works and Emergency Services:
Purpose:
This report responds to a series of specific questions raised by the Urban Environment and Development Committee at its
meeting of February 8, 1999, in its consideration of a departmental report (January 25, 1999) on the winter operations
during the severe January, 1999 storms.
Financial Implications:
Not applicable.
Recommendation:
That this report be received for information.
Background:
The Urban Environment and Development Committee, at its meeting of February 8, 1999 in considering a report (January
25, 1999) from the Commissioner of Works and Emergency Services entitled, "Summary of Winter Operations - January
1999", among other things, requested the Commissioner to report on a number of questions related to the winter operation
(Clause No. 11 in Report No. 3 of The Urban Environment and Development Committee).
Comments:
For clarity this report responds to each of the specific questions raised:
(a) When was the written order given to begin snow removal during the recent winter storm on arterial and local routes and
why was it given so late.
District Directors and Managers have delegated authority and require no written order to initiate snow operations in their
individual districts. The first snow emergency was declared as of 12:01 a.m., Monday, January 4. Snow removal (as
opposed to salting and plowing operations) commenced on arterials with streetcar tracks and the expressways on this same
date. Snow removal on local streets began on dead ends and narrow local streets in District 1 (Kensington Market,
Yorkville area) on January 6 and 8 respectively. On January 10, the decision was made to organize a major snow removal
operation from local streets in District 1 on a wide scale basis. Although snow removal continued on the arterials, much of
the week of January 11 to 15 was focused on plowing and salting operations, resulting in removal being curtailed, due to the
ongoing heavy snowfalls throughout the week. It should be noted that plowing operations began on arterials on Saturday,
January 2nd even though the storm continued to Sunday, January 3rd. Local road plowing commenced on Sunday. As a result
all major routes were opened by Sunday afternoon.
(b) When was the order given to utilize all available staff (solid waste, parks, etc.), in particular the issue cited by CUPE
Local 416 that staff from Parks Division were available to assist in snow removal but were not used until later in the second
week.
The department first drew on resources from its other divisions:
Monday, January 4 - Water and Wastewater Division staff commenced clearing seniors sidewalks and transit stops.
Wednesday, January 6 - Staff and equipment from sewage plants commenced snow removal from dead-ends and school
zones.
Friday, January 8 - Equipment from Solid Waste landfills was assigned to snow dumps.
The department then also drew on the resources of other departments:
Wednesday, January 13 - Parks crews commenced local street snow removal operations south of Queen Street East.
Thursday, January 14 - Parks staff in twelve 4 x 4's deployed to respond to medical emergencies.
The department then drew further on other division resources:
Friday, January 15 through
to Friday January 29 - Solid Waste and Water/Wastewater staff assigned to clearing seniors sidewalks, transit stops, lane
entrances, hydrants and catch basins.
(c) When and how was the decision made to cancel garbage collection during the recent snow storm and why was it
cancelled the same day as pick-up.
Recycling collection in the former City of Scarborough was postponed from Monday, January 4 to Wednesday, January 6,
and from Friday the 15th, to Wednesday the 20th. Daytime garbage collection in the former City of Toronto was cancelled
on Friday the 15th, and daytime recycling services were cancelled on Monday the 18th and Tuesday the 19th. No other
garbage or recycling collection service was cancelled throughout the severe series of snow storms.
By January 14th, the backlog in waste and recyclable collection due to the service cancellations and rescheduling from the
Holiday season had been addressed. Late on Thursday, January 14th, it became evident that accessibility for the garbage
collection vehicles along residential streets in the former City of Toronto was restricted to the point where an acceptable
level of service could no longer be maintained due to the 60 cm accumulation over the 72 hours preceding. The decision
was made on this date by senior staff to deploy Solid Waste staff to assist Transportation staff in emergency snow removal
duties. Notice of the service cancellations was provided through media releases on Friday the 15th and Tuesday the 19th.
(d) Provide specifics of where the equipment was utilized and why in some cases it was not utilized for the conditions the
equipment was designed; for example on Lake Shore Boulevard a grader was moving snow banks into the road and belt
loader was loading onto trucks to be hauled away. Equipment was deployed correctly considering both street conditions and
the availability of specific equipment and crews. The available methods of snow removal were Metromelters, snow blowers,
front end loaders with buckets and belt loaders. In most areas, blowing snow onto abutting properties is not an option in the
confined environment of District 1 (Toronto, York and East York). This method was, however, employed along sections of
Mount Pleasant Road, Lake Shore Boulevard East, the Don Valley Parkway at grade sections of the F. G. Gardiner
Expressway.
Crews were deployed to a route and progressed along the route until completion. The Melters were used on Yonge Street,
Bloor/Danforth, Dundas Street and Bathurst Street. Snow blowers were used on many of the streetcar routes. Belt loaders
were used on Woodbine Avenue, Kingston Road and sections of Eglinton Avenue East. In the case of Lake Shore
Boulevard, snow blowers were used and in the section east of the F. G. Gardiner ramp at Leslie Street to Coxwell Avenue,
the snow was blown onto the boulevard.
(e) Why were the transit routes along Queen Street East, Gerrard Street and Eglinton Avenue from Laird Drive to Yonge
Street not cleared.
and
(f) Why were former Metro streets and arterial roads on which streetcars could not operate because of snow not given the
same priority for snow removal as others.
Streetcar lines were the highest priority for snow removal. These routes were commenced in the Central area and generally
radiated out from there. Other key arterials such as Yonge Street, Bay Street and Front Street were also high priorities.
Commercial areas in York and East York were dealt with simultaneously with the above-noted operations and equipment
from the former municipality was generally utilized within the area. Although the priorities for snow removal were as stated
above, there were numerous instances where the approach was altered to deal with emergencies and urgent requests of
Councillors and of the TTC.
The operation of removing snow on the streetcar routes commenced on Monday, January 4 and a first pass was completed
by Monday, January 11. Some of the streets were dealt with early and additional storage capacity was made available. With
the subsequent wave of severe snowfalls (January 8, 10.80 cm.; January 11, 9.4 cm; January 12 to 14; 47.6 cm) the crews
had to continue on main routes that had not been reached up to that point. Once the initial pass was made on the arterials, a
second snow removal had to be commenced on the streetcar lines which were completed earlier. In some cases the
subsequent accumulations were greater than the initial snowfall. Queen Street East, east of Woodbine was subject to snow
removal twice from January 10 to 11 and then again on January 21. Gerrard Street East from Broadview Avenue to Main
Street (the portion with streetcar tracks) was cleared on January 7 and 8, and then again on January 24 and 25. The portion
of Gerrard Street east of Main Street (no streetcar tracks and limited other transit service) was removed on January 24.
Eglinton Avenue East from Bayview to Brentcliff was removed January 22. The pace of snow removal reflected the
capacity of the available specialized equipment used for this purpose.
(g) Provide a list of contractors which were brought in to assist with the snow clearing, list the equipment they brought and
the exact dates they were engaged.
The bulk of the City's winter operations are performed under contract. During the January snow emergency a large
contingent of additional contractors were retained primarily to assist in snow removal. Appendix A provides the list of
contractors, equipment and dates.
(h) Why were parking permit holders in Ward 26 - East Toronto, ticketed despite having nowhere to park their vehicles
because of the heavy snow fall.
The Parking Enforcement Unit is under administration of Police Services. Transportation Staff notified the Parking
Enforcement Unit on January 5th in writing seeking consideration of enforcement for permit parking holders. The Unit was
also requested in writing to waive enforcement of alternate side parking regulations when the changeover was temporarily
suspended in East York due to snow conditions. Staff faxed a daily report to Parking Enforcement, among others, outlining
the planned snow removal routes for the upcoming evening. Parking Enforcement were also engaged on an ongoing basis to
assist with the moving of vehicles blocking snow removal operations.
(i) Identification of unit costs of former City of Toronto program for seniors and disabled persons.
Based on a budget of about $1 million and approximately 8,245 applicants, the former City of Toronto program has a unit
cost of $121.00 per property per year.
(j) Results of consultation with community care and access workers, such as Meals on Wheels and nursing home visitors to
gain their perspective on how to proceed.
Ambulance staff requested all medical institutions to limit redirect and bypass declarations in the snow emergencies.
Ambulance, DND and Parks and Recreation snow emergency staff were available to assist Meals on Wheels and other
personal care providers during the emergency. Staff will be consulting with community care and access workers further as
part of our longer term review process.
(k) Capital costs of obtaining snow-rid equipment for all areas where windrow clearing is possible.
and
(l) Capital and operating costs of a universal sidewalk plowing/sanding/salting program throughout the city with an
emphasis on mechanical equipment.
These issues, including costs, are contained in the March 11 report to the joint meeting of the Urban Environment and
Development and Works and Utilities Committees on March 16. As set out in that report, for snow removal and sidewalk
clearing, we are not recommending that a major capital investment in equipment be made, but that it be provided under
contract, as is the case in the current North York and Scarborough programs. The estimated incremental annual cost for the
driveway windrow service in areas where mechanical methods could be employed was indicated in the report as $1.6
million.
(m) In consultation with the Chief Administrative Officer, on how efficiencies in the works operations might be applied to
improvements in winter maintenance.
The determination of efficiencies in all areas of transportation operations is continuing and has been used to achieve our
budgetary reduction targets. These funds are thus not available to supplement winter maintenance. The specific funding
requirements for winter services were dealt with in the March 11th report.
(n) When were contractors from the former municipalities of North York and Scarborough brought in to assist with snow
removal in other parts of the City.
On January 4th, Metromelters were assigned from Districts 2, 3 and 4 to District 1. A snow blower from District 2 was
assigned on January 10. This was followed on January 11 with front end loaders and hired tandem trucks. Tandem trucks
and front end loaders and crews were assigned to District 1 from Districts 3 and 4 beginning January 16 and 17,
respectively.
(o) On damage to roads and curbs caused by snow plows.
Some damage to pavements and curbs was sustained in January. This is not unusual since it is sometimes difficult to
precisely define edge of pavements and curbs which are snow covered. We do not have precise figures on what damage can
be specifically attributed to these operations, however, necessary repairs will be made under standard maintenance
programmes. No increase in budget allocation will be required. The City is receiving claims for damage incurred on private
property (fences, retaining walls, etc.) during snow removal operations, but it will be some time before final tallies would be
available. Again, based on initial investigations, it appears that a majority of the claims can be dealt with under normal
maintenance programmes by City forces or contractors and others through insurance.
Contact Name and Telephone Number:
Andrew Koropeski, Director
Transportation Services District 1
392-7711
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The Urban Environment and Development Committee also had before it the following material, which was forwarded to all
Members of Council with the agenda of the Urban Environment and Development Committee for its meeting of March 31,
1999, and copies thereof are on file in the office of the City Clerk:
- Appendices A to G, appended to the report (March 24, 1999) from the General Manager, Transportation Services
- Appendix A, appended to the report (March 25, 1999) from the Commissioner of Works and Emergency Services
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Mr. Gary Welsh, Transportation Services Division, gave a presentation to the Urban Environment and Development
Committee on the foregoing matter.
Councillor Sherene Shaw, Scarborough-Agincourt, appeared before the Urban Environment and Development Committee
in connection with the foregoing matter.
Respectfully submitted,
JOE PANTALONE
Chair
Toronto, March 31, 1999
(Report No. 6 of The Urban Environment and Development Committee was adopted, as amended, by City Council on May
11 and 12, 1999.)
