Public Works Report Outlines Better Cycling Infrastructure Protocols During Construction

2017PWIC19.4 (February 28, 2017) - Review of Temporary Conditions for Cyclists and Improvements to Safety (http://app.toronto.ca/tmmis/viewAgendaItemHistory.do?item=2017.PW19.4)

UPDATE! Video embed of PWIC 2017.PW19.4 (click to bottom of page)

By Michael Holloway
Ward 30 Bikes Outreach Coordinator
TTC Leslie Barns Construction Liaison Group

Through the Leslie Barns Streetcar Maintenance Facility track extension street reconstruction on Leslie Street between Queen Street and Commissioners Street (2013 - Ongoing), Ward 30 Bikes advocated ¹ for a better level of safety of cyclists and pedestrians in the construction zone; and for high quality detouring of designated bicycle infrastructure through the construction zone.

One of the results of our 3+ years of advocacy (plus blowback from Toronto cyclists community during the Queen's Quay reconstruction and others) was the adoption at the Public Works and Infrastructure Committee (PWIC) of a motion which requested that Transportation Division review protocols for temporary bicycle infrastructure closures (PW5.10 - May 28, 2015 ²) - which directed the General Manager, Transportation Services, to liaise with the General Manager, Economic Development, and the Executive Director, Engineering and Construction Services to develop "a protocol to better address cycling infrastructure during road construction, road closures and bike lane closures, including the requirement to install temporary cycling infrastructure and/or cycling detour routes when bike lane closures are required" ... and report back to PWIC.

That report ³ will go before PWIC today, Tuesday, February 28th.

How the Leslie St Reconstruction Impacted Cycling Routes

2014-02-14 Looking west from the NE corner of Leslie/LSB

The long period of construction on Leslie Street forced cyclists to use the FreshCo and Loblaws parking lots to access to the Lower Don Recreation Trail (LDRT), aka - East Lake Shore Trail, one of the busiest cycling routes for bicycle commuters travelling between downtown, east Toronto and Scarborough. The construction also often closed the LDRT across Leslie forcing cyclists to detour through three signaled crossings (east, south and west); and at times narrowed the crossing to 1.5 m wide, forcing cyclists to dismount and walk with pedestrian traffic across Leslie.


The construction also impacted north-south recreational egress into and out of Ward 30 for recreational use. Leslie Street is the only roadway that connects north and south to the lake front and the Martin Goodman Trail (Cherry Street also connects - but it originates well west of the ward in Ward 28 and features an extremely inaccessible route due to its alignment through the winding Cherry/LSB intersection).

TTC Leslie Barns May 2014 configuration
W30B 2017 markup

The Martin Goodman Trail was difficult to get to - often construction hoarding funneled pedestrians and cyclists into a 1.5 m wide passage (that at one point in the configuration had northbound MGT cyclists popping out onto LSB 26 metres east of Leslie into fast moving northbound Leslie to LSB eastbound traffic. (In the spring of 2014 Ward 30 Bikes successfully pushed TTC and Pomerleau to assign a flag person to stop turning traffic for the MGT's Leslie St pedestrian/cyclist crossing).

The construction also impacted the Eastern Avenue Bike Lanes between Rushbrooke Ave. and Leslie - effecting cyclist progress north-south from the end of the Eastern Ave Bike Lanes as well as cycle traffic east of Leslie.

An Overview of the PWIC Report

The Review of Temporary Conditions for Cyclists and Improvements to Safety report basically points out that all the laws and policies - which apply to all vehicles - were simply not being applied when it came to the bicycle mode.

The key recommendation that will make us safer, I believe, is a change to the street closure permitting process:

Under, "Existing City Processes for Temporary Work Zones for Construction and Filming" the report recommends that in the future, drawings detailing detour routes and lane narrowing through construction zones include any designated cycling infrastructure that is present.

From the report:

"Construction

Related Permits For construction related permits, the applicant applies to Transportation Services for a permit for the intended construction related to the delivery of City road works projects, utility works or private developments including some or all of the following:

• Site plan drawings
• If closures are required as part of the project, a detailed letter must be provided with the application that addresses how the public right of way will be used and a proposed work schedule must be provided for the duration of the closure.
• Specifications of these plans need to include all physical details of the site, including: trees, utility poles, sidewalks, parking meters, street vendor locations and street furniture.

The existing guidance does not highlight the need to indicate bicycle lanes, cycle tracks or bike parking."

Recommendation:

"Details of existing cycling facilities as part of site plan submission - this will aid in the review of impacts to cycling facilities during the intended construction. Closures that impact streets with designated cycling facilities will include specifics of how cyclists would travel during the proposed closure."

Also from the report, under "Toronto Municipal Code Guidance" - include cycling infrastructure routing changes in the Road Disruption Activity Reporting System (hither-to only applied to motor vehicles):

"Public Information about Planned Closures

"The Road Disruption Activity Reporting System (RoDARS) informs the public of planned roadway closures throughout the city. RoDARS Notification Forms are submitted by applicants following the acquisition of a Street Closure Permit and temporary road closures are approved by the appropriate City staff. Roadway restrictions and specific considerations are included in the application. However, information on bicycle lane/cycle track closures and impacts on these facilities are not identified.

"Pre-construction or construction notices are generated for Major Capital Works in the City of Toronto and are another useful tool to provide information about temporary roadway conditions to the public. For these works, on-site signage may be a requirement of the work zone in order to provide all road users with advanced information on conditions of the road ahead and any requirements for detour."

Recommendation:

"Inclusion in RoDARS Communication - this will help to inform cyclists and appropriate City staff of any planned bicycle lane closures or disruptions and support messaging to the public to communicate about these closures."

Guiding Principles for Cycling Safety in Work Zones

In "Review of Temporary Conditions for Cyclists and Improvements to Safety" ³;
In "Appendix A" ⁴;
Under section ‘3.’ “Consider Temporary Options for Bicycle Lane/Cycle Track in Work Zones";
Beside letter ‘c.’ (page 4) “Close the Bicycle Lane, Use Temporary Markings to Highlight Cycling Path of Travel in a Shared Lane";

Four bullet points mark the Manager of Tansportation Services' recommendations:

c. Close the Bicycle Lane, Use Temporary Markings to Highlight Cycling Path of Travel in a Shared Lane

• In shared traffic lanes which are less than 3.3 metres in width, shared use lane pavement marking "sharrows" may be installed
at the middle of the traffic lane to provide a message that the lane is shared for limited periods.
• Shared use lane pavement markings should not be used on streets with posted speeds greater than 50km/h.
• Consider reducing posted speed on roadway to <40 km/h if only a shared use lane can be provided. City of Toronto and other municipalities have delegated authority under OTM to reduce speed limits through work zones.

I proposed one change to the recommendations: I propose PWIC amend the fourth bullet point - YELLOW HIGHLIGHT - replace "<40 km/h" with "30 km/h".

Rationale for this proposed amendment:

As the report notes, cyclists generally travel at about 20 km/h, therefore in a shared road condition - and especially one where the cycle lane is being temporarily discontinued and cyclists are required to merge with motor vehicle traffic in a shared lane - a posted speed of 30 km/h will create a relatively safe condition and good traffic flow for all modes; is a reasonable policy in the dense urban core (Toronto & East York); is within OTM Book 7 speed reduction guidelines ⁵; and conforms to Vision Zero recommendations ⁶.

As we know from the Vision Zero research, a person hit by a vehicle going 20 km/h has a MUCH better chance of surviving the collision than a person hit by a vehicle at say, the report's recommended, "<40 km/h" - not to mention the reduced likelihood of a collision happening at all, if the speed limit through construction zones on Major Arterials and Collectors in Toronto's dense urban core were a standard, 30 km/h.

Chart Image: Pedestrian Death Risk and Vehicle Speed | https://raisethehammer.org/static/images/chart_pedestrian_death_risk_and_vehicle_speed_world_resources_institute.jpg

Graphic from NYC Vision Zero indicates survivability rates at different speeds:

Image from TheUrbanist | ICYMI: New York City Implements ‘Vision Zero’ | https://www.theurbanist.org/2014/11/11/icymi-new-york-city-implements-vision-zero/

Added to this is the benefit to the City over the long term in lower road maintenance cost if the liabilities that construction companies face while doing City of Toronto contracts are lower due to a marked decrease of on-the-job injury and death from worker/private motor vehicle collisions. Worker injury due to through-traffic is a major concern for the Province of Ontario and the Road Construction Industry ⁷.


Michael Holloway
Ward 30 Bikes Outreach Coordinator
TTC Leslie Barns Construction Liaison Group

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Footnotes

¹ TTC Leslie Barns Construction Liaison Group | http://www.ttc.ca/About_the_TTC/Projects/Leslie_Barns/Construction_Liaison_Groups.jsp

Ward 30 Bikes' label, LeslieBarns (all Leslie reconstruction advocacy posts 2013 - 2017) | https://ward30bikes.blogspot.ca/search/label/LeslieBarns

² May 6, 2015 letter to PWIC from Councillor Joe Cressy, Councillor Mike Layton, and Councillor Mary-Margaret McMahon on Ensuring Safety for Cyclists During Construction and Closures (http://www.toronto.ca/legdocs/mmis/2015/pw/bgrd/backgroundfile-80116.pdf) -which was considered at PWIC on May 28, 2015 PW5.10 - Ensuring Safety for Cyclists During Construction and Closures | http://app.toronto.ca/tmmis/viewAgendaItemHistory.do?item=2015.PW5.10

³ General Manager, Transportation Services, February 13, 2017 - Review of Temporary Conditions for Cyclists and Improvements to Safety | http://www.toronto.ca/legdocs/mmis/2017/pw/bgrd/backgroundfile-101365.pdf

⁴ Appendix A - Guiding Principles for Cylcing Safety in Work Zones | http://www.toronto.ca/legdocs/mmis/2017/pw/bgrd/backgroundfile-101366.pdf

⁵ OTM Book 7 - Temporary Conditions, section 2.6, (page 48) | http://www.bv.transports.gouv.qc.ca/per/0980389/08_Book_7.pdf

⁶ World Resource Institute | Ross Center for Sustainable Cities | Cities Safer by Design - July 2015 (page 20 of 104) | http://www.wri.org/sites/default/files/CitiesSaferByDesign_final.pdf (source via Raise the Hammer - April 18, 2016 | Why Vision Zero Calls for a 30 km/h Speed Limit | https://raisethehammer.org/article/2919/?view=flat)

⁷ In 2012 Ontario Ministry of Labour conducted inspection blitzes at road construction sites to try and mitigate what the Ministry saw as an alarming trend in the increase in worker / private motor vehicle collisions at road-based construction sites (below, see quote from page 1, paragraph 3 - MOL Blitz Results 2012*):

Traffic control

In June, the MOL conducted an inspection blitz on the dangers of working around vehicles and large pieces of mobile equipment at construction sites, including roadwork projects. During this period, 944 orders were issued, 56 of which were stop-work orders. The orders were based on 573 field visits by inspectors. The orders issued most often were for

• lack of protective headgear
• failure to develop and use a traffic protection plan
• failure to ensure workers and employer complied with the Occupational Health and Safety Act and regulations

The MOL chose this issue for its blitz because there had been so many injuries and fatalities in this kind of work. Between 2009 and 2011, four workers were killed or injured on construction sites and roadwork projects and fifteen workers were seriously injured.

* MOL Blitz Results 2012 | https://www.ihsa.ca/pdfs/magazine/volume_13_Issue_1/MOL_Blitz_Results_2012.pdf

UPDATE: Video embed of PWIC 2017.PW19.4

The video is set to start at 1:49:45 when Councillor Janet Davis asks staff about Ward 30 Bikes' proposed amendment to reduce the speed in a shared roadway condition to 30 km/h; report author, Jacquelyn Hayward Gulati, Manager, Cycling Infrastructure & Programs - Transportation Services responds. (Click to 1:39:13 for the beginning of item PW19.4)





mh

Tommy Thompson Park Entrance Pavilion - stakeholder meeting 2

[Written in Facebook¹ and posted here with link added]

2nd Tommy Thompson Park, Entrance Pavilion stakeholder meeting Presentation PDF came in email this morning.

So everyone has a better idea of what is proposed at this point, I publish three slides from the presentation.

1. Pedestrian & Bicycle Circulation.
2. Bus / Shuttle circulation.
3. Layout Strategy (noting the 'Tabletop' outline)

Image 1

Pedestrian & Bicycle Circulation

Image 2

Bus / Shuttle circulation

Image 3

Layout Strategy

Public motor vehicle circulation happens only on the entrance driveway (left side of the image south off Unwin) and in the parking lot area ... NOT on the Spur Road's 'Tabletop' (a ~20cm raised platform that defines a relaxed pedestrian dominated zone).

In this cycling advocate's opinion, the numbers of Bicycle Parking spots are way too few - not only as compared with excessive number of parking spots for cars (110) - but also as it relates to the reality of a Park in the midst of a dense urban built form that requires by it's nature, a sustainable, active lifestyle.

Again in this cycling advocate's opinion, the placement of the Bike Parking is sure to make both facilities VERY INSECURE:

• Bicycle Parking south of the Pavilion is hidden behind the structure and is down off the Tabletop - so likely invisible from Unwin/Leslie;
• The other Bike Parking area is at the southern most extent of the precinct - as far from Leslie/Unwin as is possible in this site plan - and is also down off the raised welcome area - so hidden by distance, and topography.

As well, the proposed Bicycle Parking is away from potential Police patrol routes on Unwin and Leslie; they are Unlit, and, Uncovered.

The sense one gets from this document is that the major users of the park - by a vast amount (80% cyclists vs 20% all other visitors) are an after-thought; and embarrassment, an irritation. To put into marketing speak: the Cycling Culture will hurt the Park's 'brand'.

All these small elemental 'Disses' add up to the exact opposite effect that industry best practice and City of Toronto environmental, transportation and planning policy try to achieve towards modern sustainable city-building.

Despite how crappy it makes me feel, I will continue playing the annoying irritant that you can't scratch - at Stakeholder Meeting 3 - coming up shortly.

Michael Holloway,
Tommy Thompson Park User Group,
Cycling Representative
2011-2017


¹  Facebook @ Ward 30 Bikes Page, by Michael Holloway, Feb 9, 2017 | https://www.facebook.com/ward30bikes/posts/1218903768223555

Images are from DTAH's Presentation at the Tommy Thompson Park Entrance Pavilion stakeholder meeting 2, Wednesday, February 8, 2017, Metro Hall, Room 302



mh

Complete Streets Opportunities on Logan & Eastern - Weston Bakery Redevelopment

Completing the existing cycling commute grid; extending the grid; making local connections - as part of the Weston Bakery Redevelopment proposal and other nearby developments.

Below is an image of the City’s online GIS map zoomed in on the south of Ward 30 (Riverside, South Riverdale, Leslieville and and the South of Eastern area). The Bike Infrastructure layer on the map is enabled (red lines, pink lines, blue lines) - and then we add markup to an image of the map showing , nearby development proposals (black lines), and our proposed new cycling infrastructure (gold lines).

Complete Streets Opportunities on Logan & Eastern - Weston Bakery Redevelopment - Full Size: http://bit.ly/2gbmY7J

The Weston Bakery proposed development is for retail/residential complex. Here's the blurb on the City of Toronto Development Applications webpage:

"Official Plan Amendment and Rezoning application to permit the re-development of the lands for the purposes of a new mixed use development containing residential, and commercial uses. Included in the proposal is the construction of a 7 storey mixed use building complete with ground floor retail uses including a food store and 259 residential dwelling units above. An additonal 7, 3.5 storey town house type dwelling units would be constructed on the Logan Avenue facade . 288 parking spaces to serve the development are proposed to be provided, all in a below grade parking structure. Resubmission Mar 17, 2015: Flood Plain and Flood Proofing Analysis pending advise from the Province on the Lower Don Lands SPA."

We see this as a great opportunity to extend the Eastern Avenue Bike Lanes from where they end just east of Logan, west to Broadview - and add cycling infrastructure to the existing 'Logan Avenue Bikeway'.

The local road network is already full to gridlock during peak hours - we need to increase these roadways' capacity - the only way to do that is to make them 'Complete Streets'. This means adding infrastructure that supports not just driving, but cycling and walking too.

In the near future the Relief Line will go right under this precinct as will Smart Track (on the heavy rail line on the berm). People will need to walk to mass transit stations nearby. As well, 20% to 30% of us will choose to cycle to work and school - if that option is made safe.

All the indicated black boxes (except the First Gulf ‘East Harbour’ development) purport imminent higher population density in the immediate area.


They include:

• 462 Eastern Avenue - Weston Bakery (259 residential units)
• 875 & 887 Queen Street East - Church and Heritage structures on the southwest corner of Queen/Logan (118 residential units)
• 897 Queen Street East - Jim's Restaurant, AutoShare Lot (59 residential units)
• 7 - 79 East Don Roadway & 661 - 667 Queen Street East - Riverside Square (894 residential units)
• 21 Don Roadway | First Gulf's 'East Harbour' - a 'New City Centre' - Offices/Retail and a transportation hub bigger and more connected than Union Station.

So massive new local population density and massive new local employment.

East-West Cycling Grid

To handle all the transportation needs of all these new residents we propose extending the Eastern Avenue Bike Lanes east to Broadview and then connect them to a point due south of Monroe and create a route north-south through Riverside Square on a proposed 'Woonerf' there; connecting to a neighbourhood route through Rivertowne; through Riverdale Park East and connecting to Danforth Avenue west of Broadview.

We also see a connection to First Gulfs' East Harbour Transportation Hub - which runs along the rail berm from the overpass at Eastern to the west side of the Don Valley just south of Corktown Common Park.

As well, we envision a Pedestrian/Cyclists Bridge across the valley at Sunlight Park Road (where the existing steel bridge sits across the river abutting the southbound lanes of the DVP). This route takes advantage of a direct, line-of-sight path from Eastern Avenue at Broadview to the Richmond/Adelaide Bicycle Corridor which starts at Parliament Street.

North-South Cycling Grid

Logan Avenue is an existing Bikeway with a contraflow bike lane from Lake Shore Boulevard to Eastern Avenue. North of Eastern it continues as a 'Signed Bike Route' with Logan signed as a Two-Way roadway.

We propose that the City make Logan a One-Way Street from Eastern to Queen with a contraflow Bike Lane on it.

Image via StreetMix

This configuration will preserve existing one-side street parking. It can be configured either One-Way southbound, or northbound - with the contraflow either continuing on the east side of the street as it does from LSB to Eastern - or if the One-Way is preferred northbound - a contraflow on the west side with street parking on the east side.

We also propose similar treatment north of Queen to Dundas, where existing bike lanes travel up to Gerrard and north via a Woonerf style treatment between Gerrard and Bain - and beside Withrow Park as a painted road edge line that acts as separation for northbound cyclists with Logan marked One-Way northbound. We also propose that the speed limit on the Logan beside Withrow Park be reduced from 40km/h to 30km/h maximum.

We wonder if parking can be removed on Logan in order to create a bi-directional bike route from Danforth to Gerrard. If not - then a bike lane on Carlaw from Danforth to Dundas.

Links

Weston Bakery - http://app.toronto.ca/DevelopmentApplications/associatedApplicationsList.do?action=init&folderRsn=3105811&isCofASearch=false

'Red Door' development - kitty-corner to Jimmy Simpson Park - http://www1.toronto.ca/wps/portal/contentonly?vgnextoid=2c04cfacd6f0c410VgnVCM10000071d60f89RCRD&vgnextchannel=c1c26d87bc002410VgnVCM10000071d60f89RCRD

Riverside Square - http://www1.toronto.ca/wps/portal/contentonly?vgnextoid=728da19cdcef7410VgnVCM10000071d60f89RCRD&vgnextchannel=c1c26d87bc002410VgnVCM10000071d60f89RCRD

897 Queen Street East - Jim's Restaurant, AutoShare Lot - http://www1.toronto.ca/wps/portal/contentonly?vgnextoid=dcab1bbd20711510VgnVCM10000071d60f89RCRD&vgnextchannel=c1c26d87bc002410VgnVCM10000071d60f89RCRD

21 Don Roadway | First Gulf's 'East Harbour' - http://project21.firstgulf.com/




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