CITY CLERK

Clause embodied in Report No. 6 of the Community Council, which was before the Council of the City of Toronto at its meeting held on July 24, 25 and 26, 2001.

16

Traffic Speed Control on East, from Greenwood Avenue to (Toronto-Danforth, Ward 30; Beaches-East York, Ward 32)

(City Council on July 24, 25 and 26, 2001, struck out and referred this Clause back to the Toronto East York Community Council for further consideration for its meeting scheduled to be held on October 23, 2001; and the Commissioner of Works and Emergency Services was requested to assist the Ward Councillors with the co-ordination of a public meeting in this regard.)

The Toronto East York Community Council submits this matter to Council without recommendation.

The Toronto East York Community Council reports, for the information of Council, having requested the Commissioner of Works and Emergency Services to report directly to Council on the proposal to reduce the speed limit on Dundas Street East from Broadview Avenue to Kingston Road.

The Toronto East York Community Council submits the following communication (June 15, 2001) from Councillor Layton:

Recommendation:

That the speed limit on Dundas Street East between Greenwood and be reduced to 40 km/hour.

Background:

When a young girl was involved in a collision with a speeding car recently, leaving another casualty of the east end's dangerous Dundas Street expressway, the police officer at the scene said 'when is the city going to do something about this street?' It had been the second collision of the day.

Over the past several years, residents have worked with me and with the community workers at the South Riverdale Community Health Centre in an attempt to find traffic calming solutions such as bicycle lanes, but without success. To make matters worse, as the removal and Lakeshore Blvd reconstruction continues, the diverted traffic on Eastern and Dundas has become more aggressive. Toronto City Council 2 Toronto East York Community Council July 24, 25 and 26, 2001 Report No. 6, Clause No. 16

Let's begin by lowering the speed limit from the current 50km / hour to 40 km/hour. Afterall, this is largely a residential area and school zone (there are 7 schools in this section of Dundas East). Many homes are inches from the travelled portion of the roadway because it was built in the '50s right in people's front yards. As well, more properties are being converted to residential in the old industrial stretch near Carlaw and Logan.

The Toronto East York Community Council also submits the following motion from Councillor Bussin and Councillor Layton:

“WHEREAS Dundas Street East from Kingston Road to Greenwood Avenue, in Ward 32, and from Greenwood Avenue to Broadview Avenue in Ward 30, is currently signed at 50 km/per hour, and

WHEREAS the street traverses predominantly residential neighbourhoods and 7 school zones, and

WHEREAS several recent accidents, including the near fatality of a child prompted the police officer at the scene to ask “when is the city going to do something about this street”, and

WHEREAS both Councillor Layton and I have received many calls from, and worked closely with, residents living on Dundas Street East to reduce speeding through traffic calming solutions such as bicycle lanes, but without success, and

WHEREAS the volume of cars and aggressiveness of drivers has significantly increased on Dundas Street East as the removal of the Gardiner Expressway and the reconstruction of the Lakeshore Blvd. East continues,

THEREFORE BE IT RESOLVED THAT Community Council consider the serious nature of this request and choose to reduce the speed limit to 40 kilometers per hour for the safety of the residents on this portion of Dundas Street East.”

______

The Toronto East York Community Council reports, for the information of Council, having also had before it during consideration of the foregoing matter, the following communications, and a copy thereof is on file in the office of the City Clerk.

- (July 9, 2001) from Leslie Barchou; - (July 9, 2001) from Paula Fletcher, Toronto District School Board; - (July 8, 2001) from Leslie Rose; and - (July 10, 2001) from William Brown submitting a petition with 234 signatures in support.

The following persons appeared before the Toronto East York Community Council in connection with the foregoing matter:

- Councillor Layton (by telephone); - Ms. Peg Lush, Representative of “Feet on the Street” on Toronto Pedestrian Committee; Toronto City Council 3 Toronto East York Community Council July 24, 25 and 26, 2001 Report No. 6, Clause No. 16

- Mr. William Brown, Toronto; - Mr. Mike Novic, Toronto; - Ms. Norah Dillon-Cheetham, Toronto; and - Ms. Suzanne Simard, Toronto.

(City Council on July 24, 25 and 26, 2001, had before it, during consideration of the foregoing Clause, the following report (July 19, 2001) from the Commissioner of Works and Emergency Services:

Purpose:

To respond to a request from the Toronto East York Community Council for staff to report directly to City Council at its meeting of July 24, 2001 on a proposal to reduce the speed limit on Dundas Street East, between Broadview Avenue and Kingston Road, from 50 km/h to 40 km/h.

Financial Implications and Impact Statement:

The costs associated with the installation of appropriate traffic and parking signage to implement the Recommendations set out in this report are $10,000.00. Funds to cover these costs can be accommodated in the Transportation Services Division 2001 Operating Budget.

Recommendations:

It is recommended that:

(1) the regulation which prohibits parking on the south side of Dundas Street East, between Broadview Avenue and Kingston Road, from 7:00 a.m. to 9:00 a.m., Monday to Friday, be rescinded;

(2) the regulation which prohibits parking on the north side of Dundas Street East, between Broadview Avenue and Kingston Road, from 4:00 p.m. to 6:00 p.m., Monday to Friday, be rescinded;

(3) staff complete a detailed technical assessment and report as expeditiously as possible on the feasibility and implications of installing bicycle lanes on Dundas Street East, between Broadview Avenue and Kingston Road, as identified in the City of Toronto Cycling Master Plan study considered by Planning and Transportation Committee at its July 2001 meeting;

(4) this report be forwarded to the for information and consideration of any vehicle speed enforcement measures deemed necessary for this section of Dundas Street East; and

(5) the appropriate City officials be requested to take whatever action is necessary to give effect thereto, including the introduction in Council of any Bills that are required. Toronto City Council 4 Toronto East York Community Council July 24, 25 and 26, 2001 Report No. 6, Clause No. 16

Background:

Toronto East York Community Council, at its meeting of July 10, 2001, had before it a Motion (July 5, 2001) from Councillors Sandra Bussin and Jack Layton, recommending a reduction of the speed limit on Dundas Street East, between Broadview Avenue and Kingston Road, from 50 km/h to 40 km/h. Community Council has forwarded the matter to City Council without recommendation and requested the Commissioner of Works and Emergency Services to report directly to City Council, at its scheduled meeting of July 24, 2001. (Clause No. 16 of Report No. 6)

Comments:

Dundas Street East, between Broadview Avenue and Kingston Road, is a four-lane minor arterial roadway. This section of roadway is approximately three kilometres in length and has a speed limit of 50 km/h. Daily traffic volumes are generally in the 20,000-vehicle range. Traffic control signals on Dundas Street East are located at Carlaw Avenue, Pape Avenue, Jones Avenue, Leslie Street, Greenwood Avenue, and Woodfield Avenue. Greenwood Park fronts the north side of Dundas Street East, between Greenwood Avenue and Alton Avenue. Pedestrian Crossovers (PXO) exist on Dundas Street East at Alton Avenue, Kerr Road and Maughan Crescent.

A “school speed zone” (implemented in 1997) is located in front of Queen Alexandra Public/Dundas Street Junior Public School, between Broadview Avenue and Boulton Avenue. From 8:00 a.m. to 5:00 p.m. on days when school is regularly held, flashing beacons advise motorists of the 40 km/h reduced speed limit. There are no other schools fronting Dundas Street East in the subject section. However, and St. Joseph Catholic Schools are located north and south of Dundas Street East, between Curzon Street and Leslie Street; Duke of Connaught School is located south of Dundas Street East, near Woodfield Avenue; and Corpus Christi Catholic School is located east of Coxwell Avenue.

Stopping is prohibited in the peak direction and parking is prohibited in the off-peak direction during weekday morning and afternoon peak periods along this entire section of Dundas Street East. At other times, on-street parking is allowed for a three-hour maximum period. Transit service is not provided on the subject section of Dundas Street East.

According to the City of Toronto “Road Classification System – A Consolidated Report” minor arterial roadways typically carry traffic volumes in the range of 8,000-20,000 vehicles daily. The legal speed limits associated with minor arterial roadways typically range from 40 km/h to 60 km/h, depending on the design of the road. A listing of other roadways in this vicinity classified as minor arterials is provided below. Generally, these roadways have a 50 km/h speed limit unless otherwise indicated. Toronto City Council 5 Toronto East York Community Council July 24, 25 and 26, 2001 Report No. 6, Clause No. 16

Roadway Section Segment with 40 km/h Speed Limit Broadview Avenue to East to Danforth Avenue Carlaw Avenue Eastern Avenue to Eastern Avenue to Queen Street East; Riverdale Avenue East to Riverdale Avenue Jones Avenue Dundas Street East to Dundas Street East to Danforth Avenue Danforth Avenue Greenwood Avenue Dundas Street East to Dundas Street East to former north City of O’Connor Drive Toronto limit; Mortimer Avenue to O’Connor Drive Coxwell Avenue Queen Street East to O’Connor Drive East to O’Connor Drive Main Street Kingston Road to Kingston Road to Gerrard Street East; Lumsden Avenue Danforth Avenue to former north City of Toronto limit Dawes Road Danforth Avenue to None Eastern Avenue Carlaw Avenue to Queen None Street East Queen Street East Broadview Avenue to to former east City of Victoria Park Avenue Toronto limit Gerrard Street East Broadview Avenue to Coxwell Avenue to Main Street Victoria Park Avenue Mortimer Avenue Broadview Avenue to Arundel Avenue to Pape Avenue; Main Street Greenwood Avenue to Woodbine Avenue Cosburn Avenue Broadview Avenue to Broadview Avenue to Binswood Avenue Woodbine Avenue

These minor arterial roadways vary in abutting land use, roadway design (number of lanes of travel) and operating characteristics. Some have bicycle lanes, and/or transit routes, including streetcars.

Transportation Services staff has been collecting speed data on Dundas Street East as part of the F. G. Gardiner East Dismantling Project since April 2000. In total, four studies were undertaken: April 2000 (before implementation of the detour plans for F. G. Gardiner East Dismantling Project), May 2000 (Stage 2 of F. G. Gardiner East Dismantling Project), November 2000 (Stage 2 of F. G. Gardiner East Dismantling Project) and February 2001 (Stage 3 F. G. Gardiner East Dismantling Project). The F. G. Gardiner East Dismantling Project has impacted on the traffic characteristics of Dundas Street East. As such, our review of this matter may not entirely reflect the true Dundas Street East operating environment and will not until the F. G. Gardiner East Dismantling Project is completed (scheduled to be December 2001) and travel patterns return to normal conditions.

The 24-hour 85th percentile speed (the speed at which 85 percent of motorists travel at or below) results for the most recent sampling are summarised below, by road segment. Toronto City Council 6 Toronto East York Community Council July 24, 25 and 26, 2001 Report No. 6, Clause No. 16

Section Eastbound (km/h) Westbound (km/h) Logan Avenue to Carlaw Avenue 49.6 55.3 Carlaw Avenue to Pape Avenue 61.0 47.8 Pape Avenue to Jones Avenue 65.7 56.1 Jones Avenue to Leslie Street 56.7 58.7 Leslie Street to Greenwood Avenue 65.7 61.0 Greenwood Avenue to Coxwell Avenue 70.0 60.0 Coxwell Avenue to Kingston Road 63.0 55.0

These data indicate that the highest 85th percentile speeds recorded were in the eastbound direction, in particular on Dundas Street East, between Greenwood and Coxwell Avenues.

A review of the Toronto Police Service collision records for the three-year period between January 1, 1998 and December 31, 2000 on Dundas Street East, between Broadview Avenue and Kingston Road, disclosed a total of 60 collisions involving pedestrians and cyclists. An annual breakdown is listed in the following table.

Year Pedestrian Collisions Cyclist Collisions Intersection Midblock Intersection Midblock 1998 10 0 8 0 1999 11 0 6 2 2000 13 1 7 2

A cursory review of these collision data in the above table indicates that the majority of pedestrian and cyclist collisions occurred at intersections where traffic control signals exist. Specifically, approximately 60 percent of reported collisions occurred at signalized intersections; 30 percent were at “stop-controlled” locations; and ten percent occurred at midblock locations, where there is no control. Further, the primary charge to motorists laid by the investigating officer was failing to yield the right-of-way. Children 13 years and under were involved in three of the collisions, two of which were pedestrians.

Also, according to the collision reports, none of the collisions involving pedestrians and cyclists were directly attributable to motorists exceeding the speed limit. In October 1999, a 77-year old man, while crossing Dundas Street East from the north side at its intersection with Dagmar Avenue, was struck by an eastbound motorist. According to the investigating officer, the pedestrian sustained fatal injuries and the driver of the vehicle was not charged.

40 km/h Warrant Criteria:

City Council, at its April 23-27, 2001 meeting, adopted a 40 km/h warrant system to be used to evaluate roads for a reduction in the speed limit. We have evaluated the request for a 40 km/h speed zone on Dundas Street East, between Broadview Avenue and Kingston Road, using these City criteria for the installation of 40 km/h speed zones. This analysis takes into account road width, the presence of schools, sidewalks, parking, road gradient and collision history. Toronto City Council 7 Toronto East York Community Council July 24, 25 and 26, 2001 Report No. 6, Clause No. 16

A 40 km/h speed limit is not technically warranted on Dundas Street East, between Broadview Avenue and Kingston Road, with the current lane configurations and road geometry for the following reasons:

(1) The width of Dundas Street East is greater than 10.5 metres;

(2) The sidewalks are separated from the flow of traffic by long-term parking and the travelled portion of the road is greater than 5.7 metres;

(3) The number of collisions on a block-by-block section on Dundas Street East, in which speed was identified as a causal factor, was less than five over three years; and

(4) The 85th percentile speed on each section of Dundas Street East was greater than 50 km/h, which indicates other measures should be considered to influence driver behaviour to reduce speed.

Measures to Reduce the Operating Speed of Motorists on Dundas Street East:

Although the current lane configuration and width on Dundas Street East does not lend itself to a 40 km/h speed limit, the implementation of geometric changes that affect motorists’ behaviour could have positive impacts on reducing the operating speed of Dundas Street East.

In other words, the current speed limit of 50 km/h is appropriate for Dundas Street East under its current configuration, given its width, lane configurations, parking regulations, and design. Our studies have shown that simply reducing the speed limit to 40 km/h by posting signage will not have an impact on typical operating speeds. Motorists will continue to travel at a speed at which they feel comfortable and perceive to be appropriate.

Our report to City Council in March, 1999, entitled, “Speed Limit Compliance on Major Arterial Roadways – Update”, outlined a number of measures, other than speed limit reductions to reduce the operating speed of motorists on arterial roadways. In general, other than continual Police enforcement, positive measures to reduce the operating speed of arterial roads involve geometric changes such as lane narrowings and lane reductions.

It is very important to recognise that there may be trade-offs between geometric changes to a minor arterial road such as Dundas Street East and potential impacts on parallel roads of the same type, as well as local streets in the adjacent community. Changes that may result in decreasing the capacity on Dundas Street East to achieve reduced operating speeds could result in through traffic diverting to other parallel routes such as Eastern Avenue and Gerrard Street East. Further, it can also be expected that displaced motorists would increase demands on north/south local roads to access these parallel routes. These considerations must be balanced when considering traffic management measures for a street like Dundas Street East.

The following paragraphs highlight a number of measures considered by Transportation Services staff to mitigate speeding on Dundas Street East. Toronto City Council 8 Toronto East York Community Council July 24, 25 and 26, 2001 Report No. 6, Clause No. 16

Police Enforcement:

Our experience with speed studies indicates that during periods of sustained police enforcement decreases in the 85th. percentile speeds are experienced. However, after a period with no police enforcement, 85th percentile speeds generally increase to pre-enforcement levels. The following table demonstrates this phenomenon for speed studies, which were conducted in the “school speed zone” on Dundas Street East (keeping in mind that the daytime “after” speed limit is 40 km/h).

Before After After with Enforcement km/h speed limit 50 km/h km/h speed limit 40 km/h Km/h speed limit 40 km/h Eastbound 57 55 52 Westbound 58 57 51

These data clearly illustrate that with the speed limit change alone very little reduction was evident. The impact of the “positive” measure of Police enforcement resulted in a more pronounced decrease. Although it is recognised that prolonged enforcement at any single location is very difficult under present circumstances, it is recommended that this report be forwarded to the Police Service for consideration of appropriate enforcement levels on this section of Dundas Street East.

Traffic Control Signal Co-ordination:

Staff completed an analysis on the impacts of disrupting signal co-ordination on Eastern Avenue and Dundas Street East. This proposal was brought forward by the “Traffic Working Group (TWG) of the Construction Monitoring Committee”, as a potential means to discourage neighbourhood infiltration that could occur during Stage 3 of the F. G. Gardiner East Dismantling Project. The TWG is comprised of local residents and acts as a liaison between the Community and the Project. Based on the results of our analysis, no adjustments to the signal co-ordination on Eastern Avenue or Dundas Street East were recommended or implemented.

During Stage 3 of the F. G. Gardiner East Dismantling Project (Winter 2000 to Fall 2001), Gardiner Expressway and Lake Shore Boulevard traffic is diverted at various times onto adjacent detour routes. Although the detour, mainly relying on Commissioners Street, has been designed to accommodate the expected traffic diversion, there has been some concern expressed that many motorists avoid the detour route by using alternate routes to access the cities downtown core. Eastern Avenue and Dundas Street East were identified as the primary routes for potential traffic diversion during the demolition period.

During consultation with the community, several suggestions were received regarding means to discourage the use of neighbouring surface streets (particularly Eastern Avenue and Dundas Street East) as “de-facto” detours during the dismantling project. The suggestions included the provision of additional on-street parking during peak periods, reduced speed limits and the disruption of signal co-ordination to generate more vehicles being stopped at traffic control signals along each route. The analysis was to attempt to quantify the potential benefits and costs of disrupting signal co-ordination prior to any on-street implementation or testing. Toronto City Council 9 Toronto East York Community Council July 24, 25 and 26, 2001 Report No. 6, Clause No. 16

The existing signal co-ordination on Eastern Avenue and Dundas Street East results in very few stops for vehicles travelling at the posted speed limit westbound in the weekday morning peak period and eastbound in the weekday afternoon peak period. The co-ordination strategy is set-up to minimise network fuel consumption, vehicle emissions, stops and delays. Any changes to the existing co-ordination design results in decreased arterial performance.

Computer simulation modelling was undertaken whereby signal co-ordination was disrupted with the objective to cause more stops for the peak flow direction. This change would discourage motorists from using Eastern Avenue or Dundas Street East as an alternate to the Lake Shore Boulevard East/F. G. Gardiner Expressway detour; however, it is by no means guaranteed. The change would also result in increased congestion and vehicle emissions on these roadways.

Removing the co-ordination between signalized intersections would have a detrimental impact on the surrounding neighbourhood. The resultant impacts would include increased queuing, congestion and delays on Dundas Street East. Correspondingly, motorists may accelerate faster and speed to make up any lost time, once they pass through a green signal. Also, an increase in infiltration through abutting neighbourhoods to bypass these delays could be expected. From an intersection operations perspective, signalized intersections would not work effectively to control traffic volume demand because of the inconsistent arrival rates. As a result, motorists may experience increased frustration, exacerbated by frequent stops, which would increase the emissions from vehicles in the area. Further, the potential for motorists to disobey the traffic signal indications is also increased.

Given the above-noted impacts, modifications to signal co-ordination was not implemented.

Bicycle Lanes:

This section of Dundas Street East has been identified as a potential bicycle lane in the City of Toronto Cycling Master Plan study currently before Council. The implementation of a cycling lane has been identified as a short-term priority.

The design of the cycling lane has not been finalised, nor has staff had the opportunity to conduct an in-depth review and document the impacts on traffic operations. It is recommended that this cycling link be identified as a priority and staff of the Transportation Services Division undertake a review of this facility and report on the results as soon as possible.

On-Street Parking:

Based on the prevailing traffic flows on Dundas Street East, peak period parking in the off-peak direction could be allowed on Dundas Street East. Specifically, the parking regulations could be amended as follows:

(1) Rescind the parking prohibition on the south side of the road during the weekday morning peak period; and

(2) Rescind the parking prohibition on the north side of the road during the weekday afternoon peak period. Toronto City Council 10 Toronto East York Community Council July 24, 25 and 26, 2001 Report No. 6, Clause No. 16

This proposal would reduce the number of lanes of Dundas Street East from four to three traveled lanes during the weekday peak periods, and could result in slower operating speeds. Also, residents would be provided an additional two hours of parking every weekday. The vehicle demands exceed capacity in terms of allowing parking in the peak direction and such a measure would be highly problematic.

Conclusions:

In the short term, staff recommends that parking be allowed during the peak periods in the off-peak direction as a means to reduce the speed of motorists on Dundas Street East. Furthermore, we recommend that this report be forwarded to the Toronto Police Service for any enforcement action deemed necessary to reduce the operating speed of motorists.

As a next step, it is recommended that staff report on the impacts of creating a cycling lane on Dundas Street East, as identified in the City of Toronto Cycling Master Plan currently before Council.

The current speed limit of 50 km/h is appropriate for this section of Dundas Street East, given its current operating environment and design. Changing the speed limit alone will have a minimal impact on prevailing vehicular speeds. Changes to the geometry, such as the addition of cycling lanes, or lane reduction would have significant impacts to the adjacent community and parallel roads. These changes should not be undertaken without community consultation.

Notwithstanding, should Council adopt a recommendation to implement a 40 km/h speed limit on Dundas Street East, between Broadview Avenue and Kingston Road, the by-law authorising the “School Speed Zone” on Dundas Street East, between Broadview Avenue and Boulton Avenue, would also have to be rescinded.

Contact:

Vince Suppa, Transportation Planner Telephone No.: 416-392-1559; Fax No: 416-392-0816; E-mail: [email protected]

(A copy of the attachment referred to in the foregoing report is on file in the office of the City Clerk.)

(City Council also had before it, during consideration of the foregoing Clause, a petition signed by 44 residents requesting City Council not to make changes to the present speed limit on Dundas Street East from Kingston Road to Broadview Avenue.)