FINAL REPORT Toronto Ten Year Cycling Network Implementation Plan · 2019-01-23 · FINAL REPORT...

FINAL REPORT

Toronto Ten Year Cycling Network Implementation PlanConnect, Grow, Renew

Submitted to City of Torontoby IBI Group Professional Services (Canada) Inc.in association with Vélo Québec

IBI GROUP FINAL REPORT TEN YEAR CYCLING NETOWRK IMPLEMENTATION PLAN Prepared for City of Toronto

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Table of Contents

Glossary of Terms .....................................................................................................ix

Executive Summary.............................................................................................. ES-1

1 Introduction ..................................................................................................... 1

1.1 Objectives of the Ten Year Cycling Network Implementation Plan ............. 1

1.2 Background ........................................................................................... 2

1.3 The Need for a New Implementation Plan ................................................ 2

1.4 Cycling Network Investment Benefits ....................................................... 3

1.4.1 Toronto’s Growth since 2001 ...................................................... 3

1.4.2 Updating Standards for Cycling Facility Designs........................... 3

1.4.3 Safety........................................................................................ 4

1.4.4 Health Benefits .......................................................................... 4

1.4.5 Social Benefits ........................................................................... 5

1.4.6 Environmental Benefits ............................................................... 6

1.4.7 Economic Benefits ..................................................................... 6

2 Background & Related Studies ........................................................................ 8

2.1 Toronto Bike Plan................................................................................... 8

2.2 Bikeway Network – 2011 Update............................................................. 8

2.3 Bikeway Trails Implementation Plan ........................................................ 8

2.4 Official Plan Draft Cycling Policy Framework ...........................................10

2.5 Toronto Road Safety Plan......................................................................10

2.6 Toronto Complete Streets Guidelines .....................................................11

3 Study Process.................................................................................................12

4 Cycling Network Critical Review .....................................................................15

5 Mapping the Potential to Impact Cycling in Toronto .......................................16

5.1 Current Demand ...................................................................................16

IBI GROUP FINAL REPORT TEN YEAR CYCLING NETWORK IMPLEMENTATION PLAN Prepared for City of Toronto

Table of Contents (continued)

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5.2 Potential Demand..................................................................................16

5.3 Population and Employment Density ......................................................17

5.4 Coverage..............................................................................................17

5.5 Barriers ................................................................................................17

5.6 Safety...................................................................................................17

5.7 Trip Generators.....................................................................................18

5.8 Connectivity ..........................................................................................18

5.9 Higher-priority Transit Stations ...............................................................28

6 Consultation ...................................................................................................30

6.1 Consultation Overview...........................................................................30

6.2 Internal Consultation .............................................................................31

6.3 Consultation Promotions........................................................................31

6.4 Pre-consultation Workshop Event...........................................................31

6.5 Phase 1 Consultation: Establishing Network Planning Priorities................32

6.5.1 Respondent Distribution ............................................................33

6.5.2 Respondent Demographics........................................................34

6.5.3 Preferred Facility Types .............................................................35

6.5.4 Network Planning Priorities ........................................................36

6.5.5 Current Demand Versus Future Growth .....................................38

6.5.6 New Routes Versus Improve Existing Routes..............................39

6.5.7 Connecting Existing Routes Versus Connecting to Destinations ...40

6.5.8 Commuter Focus Versus Recreational Focus..............................41

6.5.9 Budget .....................................................................................42

6.5.10 Findings from Phase I Consultation ............................................42

6.6 Phase 2 Consultations: Cycling Network Implementation Plan Draft Map ..42

6.6.1 Phase 2 Workshops with Cycle Toronto......................................43

6.6.2 City of Toronto Cycling App .......................................................43

6.6.3 MetroQuest Digital Draft Map .....................................................46

6.6.4 Public Drop-in Events and Rides ................................................58

6.7 Feedback on Cycling Facility Design Options ..........................................60



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7 Cycling Projects Priority Analysis ..................................................................63

7.1 Feasibility Analysis ................................................................................63

7.1.1 Identifying Suitable Cycling Facility Types ...................................63

7.2 Implementation Strategies .....................................................................73

7.2.1 Major Capital Infrastructure Co-ordination Opportunities ..............74

7.3 Cycling Impact Analysis Weighting .........................................................76

7.4 Phase 2 Survey Preferences..................................................................78

7.5 Cycling Project Costs ............................................................................78

7.6 Bringing it All Together: Cycling Project Priority Ranking ..........................78

8 Ten Year Cycling Network Implementation Plan Capital Scenarios ................80

8.1 Funding Levels .....................................................................................80

8.2 Balancing Delivery of Annual Program....................................................81

8.3 Ten Year Implementation Plan Scenarios ...............................................81

9 Cycling Network "Renew" Program ................................................................83

9.1.1 Renewing Quiet Street Cycling Routes .......................................84

9.1.2 Renewing Cycling Facilities on Fast Busy Streets........................85

10 Recommended Ten Year Cycling Network Implementation Plan ....................86

10.1 Integration of 2012 Trail Plan Recommendations.....................................88

10.2 Implementation Plan Approval Process...................................................88

10.3 Exploring the Impacts of the Recommended Network ..............................88

10.3.1 Summary of Recommended Network by District ..........................89

10.3.2 Improving Access to Transit .......................................................91

10.3.3 Crossing Barriers ......................................................................93

10.4 Streets Not Identified as Cycling Network Routes ....................................96

10.4.1 Bicycle Friendly Streets .............................................................96

10.4.2 Complete Streets Guidelines......................................................97

10.4.3 Streets Identified in Future Studies .............................................97

10.4.4 Revisions and Updates to the MCIC Projects ..............................97

11 Implementation ...............................................................................................98



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11.1 Staff to Deliver Infrastructure Projects.....................................................98

11.2 Cycling Projects and Other Agencies ......................................................98

11.3 Resources for Cycling Network Maintenance ..........................................99

12 Setting and Tracking Objectives ................................................................... 101

12.1 Tracking Infrastructure Delivery ............................................................ 101

12.2 Evaluating the Impact of the Cycling Network........................................ 102

12.2.1 Evaluating Proposed Network Routes....................................... 102

12.2.2 Evaluating Proposed Major Corridor Studies ............................. 103

13 Conclusions .................................................................................................. 104

Appendix A – Ten Year Cycling Network Implementation Plan Maps (City-Wide, District and Ward) ......................................................................................... A-1

Appendix B – Cycling Impact Analysis................................................................... B-1

Appendix C – Unit Costs of Construction............................................................... C-1

Appendix D – Project Priority Ratings .................................................................... D-1

Appendix E – Cycling Network Outcomes for Various Implementation Plan Scenarios ...................................................................................................... E-1

Appendix F – Studies Led by Others ...................................................................... F-1

References ............................................................................................................. R-1



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List of Exhibits

Exhibit 1-1: Cycling on College Street West .................................................................. 3

Exhibit 1-2: The Appetite is Growing for Infrastructure Designs that Support a Wider Range of Cycling Ages and Abilities ............................................................. 4

Exhibit 1-3: Cycling Facilities Help to Create Vibrant Destination Areas........................... 5

Exhibit 1-4: Toronto's Greenhouse Gas Emissions & Targets ......................................... 6

Exhibit 2-1: Bikeway Trails Plan Approved by Council June 6, 2012................................ 9

Exhibit 3-1: Ten Year Cycling Network Implementation Plan Study Process ...................14

Exhibit 5-1: Current Cycling Demand ...........................................................................19

Exhibit 5-2: Potential Cycling Demand .........................................................................20

Exhibit 5-3: Population and Employment Density ..........................................................21

Exhibit 5-4: Coverage of Existing Cycling Network ........................................................22

Exhibit 5-5: Barriers: Freeways, Railways, Rivers and Ravines ......................................23

Exhibit 5-6: Vehicle-Bicycle Collisions: Area 1 ..............................................................24

Exhibit 5-7: Vehicle-Bicycle Collisions: Area 2 ..............................................................25

Exhibit 5-8: Trip Generators ........................................................................................26

Exhibit 5-9: Cycling Network Connectivity ....................................................................27

Exhibit 5-10: Higher-priority Transit Stations in Area 2 Identified as Bicycle Trip Generators ................................................................................................29

Exhibit 6-1: Public Consultation Process to Develop the Ten Year Cycling Network Plan 30

Exhibit 6-2: Sample Targeted Ad for the Phase 1 Survey ..............................................32

Exhibit 6-3: Location (First Three Digits of Home Postal Code) of Respondents to Phase 1 Survey: Network Planning Priorities ............................................................33

Exhibit 6-4: Map Phase 1 Survey Respondents ............................................................34

Exhibit 6-5: Survey Results for Type of Cycling Facility the City Should Focus On (Respondents Distributed 20 Points Among the Four Types) ........................35

Exhibit 6-6: Survey Results for How Cycling Projects Should be Evaluated (Respondents Chose Top Three Priorities out of Eight Criteria) ..........................................36

Exhibit 6-7: Survey Results for Overall Objectives for the Cycling Network (Respondents Chose First and Second Priorities Out of Three Objectives) ..........................37

Exhibit 6-8: Phase 1 Survey – Current Demand vs. Encourage Future Growth ...............38



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Exhibit 6-9: Phase 1 Survey Map – Emphasis on Future Growth vs. Meeting Current Demand ....................................................................................................38

Exhibit 6-10: Phase 1 Survey – New Routes vs. Route Improvements / Renewal............39

Exhibit 6-11: Phase 1 Survey Map – New Routes vs. Route Improvements / Renewal ....39

Exhibit 6-12: Phase 1 Survey – Emphasize Connecting Existing Routes vs. Emphasize Connecting to Destinations .........................................................................40

Exhibit 6-13: Phase 1 Survey Map – Emphasize Connecting Existing Routes vs. Emphasize Connecting to Destinations .......................................................40

Exhibit 6-14: Phase 1 Survey - Emphasize Commuter Focus vs. Emphasize Recreational Focus........................................................................................................41

Exhibit 6-15: Phase 1 Survey Map – Emphasize Commuter Focus vs. Emphasize Recreational Focus ....................................................................................41

Exhibit 6-16: Phase 1 Results for Cycling Network Budget Change................................42

Exhibit 6-17: Toronto Cycling App 2015 Heat Map ........................................................44

Exhibit 6-18: Toronto Cycling App Trips Logged in 2015 ...............................................45

Exhibit 6-19: Sample Screens from MetroQuest Online Mapping Tool ............................46

Exhibit 6-20: Phase 2 MetroQuest Digital Draft Map Respondents .................................47

Exhibit 6-21: MetroQuest Online Survey Map – Area 1..................................................49

Exhibit 6-22: MetroQuest Online Survey Map – Area 2..................................................50

Exhibit 6-23: Phase 2 MetroQuest Digital Map Sample Screenshot to Select Priority Projects.....................................................................................................51

Exhibit 6-24: A Section of College Street West that is Wide Enough to Accommodate Street Car Lanes, Two Travel Lanes, a Bike Lane and On-Street Parking......52

Exhibit 6-25: MetroQuest Origin-Destination Desire Lines Map: Toronto and East York District ......................................................................................................54

Exhibit 6-26: MetroQuest Origin-Destination Desire Lines Map: Scarborough District ......55

Exhibit 6-27: MetroQuest Origin-Destination Desire Line Map: North York District...........56

Exhibit 6-28: MetroQuest Origin-Destination Desire Line Map: Etobicoke-York District ....57

Exhibit 6-29: Phase 2 MetroQuest Digital Draft Map Age of Respondents ......................58

Exhibit 6-30: Phase 2 MetroQuest Digital Draft Map Gender of Respondents .................58

Exhibit 6-31: Phase 2 MetroQuest Digital Draft Map Respondents Frequency of Cycling.58

Exhibit 6-32: Phase 2 MetroQuest Digital Draft Map Respondent Affiliations ..................58

Exhibit 6-33: Public Drop-in Events to review the Draft Cycling Network and Priorities ....59



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Exhibit 6-34: Public Drop-in Event on the Waterfront Trail .............................................59

Exhibit 6-35: Cycling with Gateway Public School Students and Parents in Partnership with Green Communities Canada................................................................59

Exhibit 6-36: MetroQuest Survey Question – Comfort Cycling on Toronto Streets ...........60

Exhibit 6-37: MetroQuest Survey Question – Prioritizing On-street Parking or Separators.................................................................................................60

Exhibit 6-38: MetroQuest Survey Question – Separation for Pilot Projects ......................61

Exhibit 6-39: MetroQuest Survey Question – Separation for Cycle Tracks ......................61

Exhibit 6-40: MetroQuest Survey Question – Options for Cyclists' Left-turns..................62

Exhibit 6-41: MetroQuest Survey Question – Accessible Bus Stop Design .....................62

Exhibit 7-1: Street Types for Proposed Cycling Network ................................................64

Exhibit 7-2: OTM Book 18: Cycling Facilities Pre-Selection Nomograph .........................65

Exhibit 7-3: Planters Used as Separators for the Richmond Street Cycle Track ..............66

Exhibit 7-4: Fast Busy Street Speed and Volume Thresholds for Dedicated and Separated Cycling Facilities ........................................................................................66

Exhibit 7-5: Types of Cycling Facilities Suitable for Fast Busy Streets ............................67

Exhibit 7-6: Example of a Contra-flow Bike Lane on a Local Street ................................68

Exhibit 7-7: Range of Design Features for Quiet Streets................................................69

Exhibit 7-8: Physical Traffic Diversion Measures...........................................................70

Exhibit 7-9: Quiet Street Speed and Volume Thresholds for Shared Cycling Facilities .....71

Exhibit 7-10: Major Corridor Studies ............................................................................72

Exhibit 7-11: Implementation Strategies for Each Type of Cycling Facility.......................73

Exhibit 7-12: Reallocation of Lane Lines to Install Painted Cycling Facilities May be Undertaken in Co-Ordination with Road Resurfacings ..................................76

Exhibit 7-13: Eight Criteria used in the Analysis of Cycling Impact Undertaken for Each Planned Cycling Facility .............................................................................77

Exhibit 7-14: Illustrating the Combining of Feasibility, Analysis and Consultation Scores .79

Exhibit 9-1: Example of Green Pavement Markings Installed at Sherbourne Street and Wellesley Street East .................................................................................83

Exhibit 9-2: Examples of City of Toronto’s New Wayfinding Signs ..................................85

Exhibit 10-1: Map of Ten Year Cycling Network Implementation Plan Recommended Routes ......................................................................................................87



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Exhibit 10-2: Summary Table – Centreline Kilometres of Existing and Recommended Network for Scenario 3 (Uplift to $16M Annual Budget) ................................90

Exhibit 10-3: Scenario 3 Recommended Infrastructure - Centreline Kilometres by District ......................................................................................................91

Exhibit 10-4: Existing Cycling Network and Transit Stations...........................................91

Exhibit 10-5: Transit Integration with the Existing Cycling Network .................................92

Exhibit 10-6: Ten Year Cycling Network and Barrier Crossings ......................................94

Exhibit 10-7: Proposed Cycling Network Projects that Cross Barriers .............................95

Exhibit 10-8: Proposed Cycling Network Projects that May Require a Grade Separation to Cross a Barrier ..........................................................................................96

Exhibit 10-9: Summary of Barrier Crossings .................................................................96

Exhibit 11-1: Recommended Staffing Increases Corresponding to Capital Funding Increases ..................................................................................................98

Exhibit 11-2: Winter and Summer Maintenance of Cycle Tracks .................................. 100

Exhibit 12-1: Wellesley Street Cycle Track ................................................................. 101


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Glossary of Terms Area 1 For the purpose of this study, the city was divided into two context

areas, recognizing that levels of cycling activity and demand differ in each. Area 1 consists of the more compact central area of the city, where there is further evolution of a maturing cycling network and culture. There are opportunities to "connect" and "renew" the network by completing missing links and improving the quality of cycling routes. See also Area 2.

This area is shown on the maps illustrating the potential cycling impact analysis in Section 5. The boundary between the two areas is intended to provide guidance only in the application of some of the cycling impact criteria.

Area 2 For the purpose of this study, the city was divided into two context areas, recognizing that levels of cycling activity and demand differ in each. Area 2 consists of the more suburban built environment surrounding the central area (Area 1). The existing cycling network is less extensive, with more opportunities to “grow” into new parts of the city not served by the network. See also Area 1

This area is shown on the maps illustrating the potential cycling impact analysis in Section 5. The boundary between the two areas is intended to provide guidance only in the application of some of the cycling impact criteria.

Bicycle Boulevard A cycling route along connected, Quiet Streets (see below) with traffic calming, wayfinding signage and “sharrow” pavement markings that make it comfortable and efficient for cyclists to use these streets. Sometimes they are referred to as neighbourhood greenways.

Bike Plan The City of Toronto Bike Plan was adopted by City Council in 2001. This overarching policy document included a variety of cycling-related recommendations, including guiding principles and objectives for the design of Toronto’s Cycling Network.

This Ten Year Implementation Plan report supersedes Bike Plan Recommendations 5-4, 10-2 and Appendix C, as it provides updated information surrounding the resourcing required for the delivery of Cycling Network Infrastructure in the City of Toronto.

Bikeway Trails Plan The City of Toronto Bikeway Trails Implementation Plan, adopted by City Council in 2012. The Trails Plan sets out the vision for where and how Toronto will build trails until 2021.

Centreline Kilometres The length of a facility, i.e. road, bikeway, sidewalk, etc., measured along the centreline, or along the middle, of the road. For bike lanes, typically the lane kilometres measured along the length of each bike lane are twice as long as the centreline kilometres. Centreline kilometres are typically used to provide an overall measure of how much of the roadway network has facilities.


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Contraflow Bicycle Lane Contraflow bicycle lanes allow cyclists to travel in two directions on a street that is one-way for all other vehicles. Cyclists travel in the designated contraflow bicycle lane in the opposing direction from the one-way direction of all other vehicles. Cyclists traveling in the one-way direction with all other vehicles typically ride in a mixed-use traffic lane or in a marked bicycle lane in that direction.

Bicycle symbols and diamonds are used to mark the lane. The diamond symbol is the symbol for a “reserved” lane. The “contra flow” bicycle lane will also have arrows painted in the lane, communicating that the bicycle lane is to be used in only one direction.

Cycling Impact Analysis Measures applied to prospective City of Toronto Ten Year Cycling Network Implementation Plan Projects, to evaluate their benefit to the overall design of Toronto’s network.

Cycling Network Plan The collection of on-street and off-street cycling routes that form a network. It is used as a policy design tool that stipulates locations and standards where the inclusion of cycling infrastructure as an integrated component of the broader road transportation system must be accommodated. Appendix E includes maps of the existing and proposed Cycling Network for the city of Toronto.

Cycling Network Facility Infrastructure that facilitates cycling. Standards for Cycling Network facilities are described at a high level in this report, and in detail by the City of Toronto’s Bikeway Design Guidelines.

Cycling Network Route May refer to both dedicated and non-dedicated cycling routes which make up the City of Toronto’s Cycling Network, but must adhere to minimum standards for cycling network facility design.

Cycling Unit Refers to the group of staff from Cycling Infrastructure and Programs that deliver the Cycling Network Infrastructure, within the City of Toronto’s Transportation Services Division.

Fast Busy Street A street with a lot of motor vehicles and traffic is moving quickly; this makes most cyclists feel unsafe. For these types of streets a dedicated cycling facility such as a bicycle lane, buffered bicycle lane or cycle track can help keep cyclist and motor vehicle traffic separate. See also Quiet Street below.

Implementation Scenarios 1 through 5

Refers to five (5) capital budget funding scenarios outlined in Appendix E of this report. The City of Toronto Ten Year Cycling Network Implementation Plan analyzed the amount of linear infrastructure that would be delivered at each funding level.

Major Corridor Study Fast busy streets (see above), which support high levels of commercial activity or a very high number of motor vehicle trips, may require a deeper level of study, consultation and investment.

OP The City of Toronto Official Plan. The Official Plan sets out the vision for where and how Toronto will grow to the year 2031.

Quiet Street A street that is quiet and has slow-moving motor vehicle traffic; there is no need to make a dedicated cycling facility. Traffic calming, wayfinding signage and “sharrow” pavement markings can help build bicycle boulevards that are comfortable for every type of cyclist. See also Fast Busy Streets above.


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Ten Year Plan The City of Toronto Ten Year Cycling Network Implementation Plan will serve as a comprehensive roadmap and work plan, outlining the investments planned by the City of Toronto's Cycling Unit over 2016-2025


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Executive Summary The Ten Year Cycling Network Implementation Plan will serve as a comprehensive roadmap and work plan, outlining the investments planned by the City of Toronto's Cycling Unit over 2016-2025. This report provides an overview of the process undertaken to develop the Ten Year Implementation Plan and describes the five implementation scenarios brought to City Council for consideration in the 2017 Capital Budget process. Scenario 3, as detailed in this report, is the staff recommended implementation scenario.

The Ten Year Cycling Network Implementation Plan will build on the city's existing network of cycling routes by identifying potential Cycling Network projects to fulfill the project mandate to:

Connect the gaps in our existing Cycling Network;

Grow the Cycling Network into new parts of the city; and,

Renew the existing Cycling Network routes, to improve their quality.

Since November 2014, a significant amount of analysis and consultation was undertaken to inform the recommendations in this report. Extensive field work to inform new route feasibility was undertaken to identify and assess each of the routes proposed in the Plan.

The proposed Ten Year Plan identifies approximately 550 centreline kilometers (km) of new infrastructure (if counted in each lane direction, this proposed network constitutes more than 1000 lane km). This proposed new network includes:

280 centreline km of bicycle lanes or cycle tracks on Fast Busy Streets;

55 centreline km of sidewalk-level boulevard trails along Fast Busy Streets; and,

190 centreline km of cycling routes along Quiet Streets.

Included within this proposed network was approximately 100 centreline km along eight arterial roadways (split into seventeen segments) for which Major Corridor Studies would be undertaken to evaluate the feasibility of bicycle lanes or cycle tracks.

The deliverables recommended by Transportation Services in this report represent the outcome of Cycling Impact Analysis, feasibility analysis, capital works coordination and consultation.

A number of the significant trail projects were included in the 2012 Trails Plan and are therefore already approved. The recommended network in the Ten Year Cycling Network Implementation Plan has been designed to include these approved trails as well as routes that are part of approved LRT projects. This implementation plan also recognizes numerous studies being undertaken by other divisions or agencies, which may afford opportunities for additional routes to be added to the network.

As per Council approval, Transportation Services will have the authority to initiate the studies, detailed design and public consultation required to deliver the cycling infrastructure projects contained in the Ten Year Cycling Network Implementation Plan. During project implementation, Transportation Services will work with local area councillors and stakeholders, i.e. TTC, Metrolinx, utilities, etc., and undertake public consultation as part of the preliminary design process.

The intention of this plan is not to preclude opportunities for cycling projects, which may be supplemental to the proposed network. The purpose of this report, and its recommendations, is to ensure that within a coordinated capital program, the necessary resourcing is available to install and study cycling infrastructure annually. All projects have undergone a feasibility assessment to ensure a sound business case for their inclusion within Toronto’s Cycling Network. Each program scenario has been designed to ensure the targets match stable capital funding and staff resourcing required to deliver the recommended projects.


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1 Introduction 1.1 Objectives of the Ten Year Cycling Network Implementation

Plan Connect – Grow – Renew: Building Toronto’s Cycling Network over the Next Ten Years The objectives of the Ten Year Cycling Network Plan are:

Connect the gaps in our existingCycling Network;

Grow the Cycling Network into newparts of the city; and,

Renew the existing Cycling Networkroutes, where there are opportunities toimprove their quality.

The routes recommended in the Ten Year Cycling Network Implementation Plan have been designed to enhance the existing network in Toronto's central area. The projects recommended will connect network gaps by adding new routes and will renew existing routes to improve their quality. Routes that would grow the cycling network into neighbourhoods outside the city centre considered network recommendations from the 2001 Bike Plan and took a fresh look at new options. For these more suburban areas, infrastructure designs that provide more physical separation from motor vehicle traffic may be more desirable to increase cyclists’ comfort. It is anticipated that recommendations for boulevard trails may help to ensure the Cycling Network routes identified would provide a comfortable cycling environment for a wide range of people.

The Ten Year Cycling Network Implementation Plan will recommend the type of cycling route appropriate for each project based on the street and land-use characteristics, including how busy the street is, how fast the traffic is moving and the space available within the roadway and boulevard. The appropriate type of Cycling Network facilities are described at a high level in this report; design guidance will be provided by the City of Toronto’s Bikeway Design Guidelines.

The Ten Year Plan will identify cycling network projects to be constructed by Transportation Services’ Cycling Unit starting in 2016 for the next 1-5 years and 6-10 years and the annual capital funding requirements to implement the plan. The recommendations in this implementation plan will help to ensure adequate, stable funding for Transportation Services' cycling program.


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1.2 Background Bike lanes, cycle tracks, multi-use trails, and bicycle boulevards all link together to help build a connected Cycling Network. The Toronto Cycling Network Implementation Plan was designed to build on Toronto’s existing Cycling Network, which in 2015 included approximately 6 centreline km of cycle tracks, 107 centreline km of painted bicycle lanes, 148 centreline km of signed shared roadway routes and 294 centreline km of multi-use trails.

1.3 The Need for a New Implementation Plan In August 2001 Toronto’s City Council approved the 2001 Bike Plan. This ambitious policy document included 42 recommendations which have provided direction in 6 areas; Bike Parking Infrastructure, Cycling and Transit Programs, Safety and Education Programs, Promotion Activities, Standards for Bicycle Friendly Streets and the Direction to develop a Cycling Network.

This Ten Year Cycling Network Implementation Plan revisits the routes identified as well as the cycling route designs used in recommendation 5.1 of the 2001 Toronto Bike Plan. An updated Cycling Network Implementation Plan is needed because:

• In the downtown core, most of the Cycling Network routes recommended in 2001 have now been installed;

• Ridership has grown and additional cycling routes are needed to serve the high demand in Toronto’s downtown core;

• New types of cycling infrastructure designs means that the roads which may best serve the cycling network have changed. New infrastructure options will allow for different streets to be evaluated in both the downtown core and the city’s suburban neighbourhoods;

• Our transportation infrastructure is aging, and many of our assets require significant rehabilitation. Bundling cycling infrastructure into the delivery of major capital road resurfacing or reconstruction projects will realize cost savings to build the cycling facilities;

• Congestion on our roads and expressways costs Toronto commuters an estimated $1.4 billion annuallyi;

• Cycling fosters health benefits, as a form of chronic disease prevention. In the city of Toronto, the total savings from these prevented deaths range from $130 million to $478 million annually (depending on how deaths are valued)ii;

• The cost to travel by bicycle is far lower than travelling by automobile. Infrastructure which supports financially affordable travel options contributes to poverty reduction and social benefits;

• Supporting cycling presents important environmental benefits, as motor vehicles continue to account for approximately one-third of greenhouse gas emissions from the cityiii. Facilities which make cycling safe and practical will enable more people to leave their cars at home; and,

• Travel by bicycle encourages shorter trips than auto travel which yields economic benefits for smaller community-based shops and businesses. For example, one case study in Toronto shows customers arriving by foot or on bike reported spending more than those arriving by car or transit. Those who lived nearby were 2.6 times more likely to spend more than $100 per month than those arriving from farther awayiv.


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1.4 Cycling Network Investment Benefits

1.4.1 Toronto’s Growth since 2001 The city’s population is increasing by almost 40,000 people annually. 151 high-rise buildings were under construction in 2013. This increase in population density means more people may choose to cycle for short trips.

Over 143,000 new dwelling units were constructed in the city of Toronto between 2006 and 2016. 80% of these were mid to high-density developments, with buildings greater than 5 storeys. Increasingly, families with children are calling these buildings home. In 2011, 10,000 more families with children and youth lived in high-rise buildings than in 1996.vi.

As the city grows and changes, this presents an opportunity to improve how Toronto’s transportation systems operate. The City of Toronto’s Complete Streets Guidelinesvii will seek new and innovative ways to build public spaces which work for all modes of travel. And we can make on-the-ground changes – large and small, short-term and long-term – that will help Toronto’s transportation systems better meet the needs of all users.

The challenges related to aging infrastructure will be amplified over the next five years. The installation of cycling infrastructure may be a more affordable option, to update roads previously designed exclusively for motor vehicle travel.

A successful city requires a transportation system that is safe for people of all ages and abilities. Over the past ten years, Toronto’s streets have become safer for all road users. Total traffic -related fatalities have dropped by 41%, from an average of 74 per year from 1998 to 2002, to an average of 44 per year from 2008 to 2012. Pedestrian fatalities have dropped by 37% over the same period, from an average of 38 to an average of 24 per year. At the same time, the city’s population has increased.

While Toronto is outperforming many other North American cities, there is still room for improvement. In 2012, over 50,000 collisions were reported, resulting in 44 fatalities, and societal costs of almost $2 billion. Toronto is committed to enhancing transportation safety for all users.

Toronto’s Vision Zero Road Safety Planviii is a comprehensive five-year (2017-2021) action plan focused on reducing traffic-related fatalities and serious injuries on Toronto's streets. With over 50 safety measures across six areas of emphasis, the Plan prioritizes the safety of our most vulnerable road users. For additional information about the Road Safety Plan please see Section 2.5 of this report.

1.4.2 Updating Standards for Cycling Facility Designs The Cycling Network described in the 2001 Bike Plan included only painted bicycle lanes, signed shared roadways, and multi-use trails. Since the 2001 Bike Plan, there are new types of cycling facilities being implemented in Toronto:

Exhibit 1-1: Cycling on College Street Westv


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In 2001 separated bike lanes (cycle tracks) were a type of cycling infrastructure thatwas not yet being widely implemented in North America. They are now beingconsidered and constructed in cities of all sizes on fast busy streets to improve thecomfort of cyclists and attract people who are uncomfortable riding in traffic tocycling;

Similarly, Toronto’s new cycling wayfinding standardsix will allow for signed, sharedroadway routes on Quiet Streets to be enhanced with the use of wayfinding signsand sharrow pavement markings. These enhance the cohesion and visibility of theQuiet Street network; and,

In 2001, multi-use trailopportunities were lookedat extensively in rail corridors, hydro corridors and other green spaces. Multi-use path connection opportunities in the boulevard were less widely explored as they are more costly to build than painted bicycle lanes. Today, there is greater appetite to invest in cycling facilities (multi-use trails or cycle tracks) located in the boulevards of fast busy streets as these facilities are more comfortable for cycling than painted bicycle lanes.

1.4.3 Safety Toronto's City-wide Cycling Study, conducted by Transportation Services in 2009, found that there is potential to move 44% of recreational cyclists to cycle for practical purposes by improving the safety of cycling in the city through creating more bike lanes, paths, and safer road conditions.

The provision of cycling infrastructure would support safety for both residents and non-residents.

1.4.4 Health Benefits Active transportation (walking and cycling) is a means to improve health and quality of life in Toronto. Some of the significant benefits, as outlined in Road to Health: Improving Walking and Cycling in Toronto (Toronto Public Health, April 2012) include the following:

• In the city of Toronto, traffic-related pollution was estimated to cause 440 premature deaths, 200,000 restricted activity person-days and 1,700 hospitalizations per year in 2007. Mortality costs alone were valued at $2.2 billion (Toronto Public Health 2007). Cycling is a form of active transportation, which does not contribute to traffic-related air pollution;

• In Toronto, over 40% of adults and 22% of adolescents are overweight or obese(Toronto Public Health 2010). Increasing the active transportation mode share could

Exhibit 1-2: The Appetite is Growing for Infrastructure Designs that Support a Wider Range of Cycling Ages and Abilities


April 17, 2016 5

help to improve physical fitness and reduce the proportion of Torontonians who are overweight or obese;

• Reductions in cardiovascular disease, diabetes, stroke and cancer are important for the city of Toronto, given the increasing rates of chronic disease. Rates of self-reported diabetes doubled from 4% to approximately 8% between 2001 and 2008 among Torontonians 12 and older, while high blood pressure increased from 12% to 15%. Circulatory diseases are responsible for more than 1 in 4 deaths in Toronto each year; breast and colorectal cancers alone are responsible for over 5% of deaths in Toronto (Statistics Canada 2011). Increasing the active transportation mode share could help to increase daily cardiovascular activity of Torontonians;

• Physical activity has a demonstrated positive effect on a range of mental illnesses. Physical activity has also been found to reduce the symptoms of depression, anxiety and panic disorders, with beneficial effect equal to meditation or relaxation (Paluska and Schwenk 2000); and,

• A Canadian study calculated that physical inactivity alone is directly associated with $1.6 billion in annual health care costs in Canada, or 1.5% of all Canadian health care costs (Katzmarzyk and Janssen 2004). Each additional 10% increase in physical activity in Canada would translate to annual direct health care savings of up to $150 million (Katzmarzyk et al. 2000).

1.4.5 Social Benefits In Toronto, only 66% of adults report a strong sense of belonging to their local community (Statistics Canada 2011). As stated in the Official Plan (City of Toronto 2010a), developing walkable and bikeable neighbourhoods and communities may help to fulfill Toronto’s vision of “creating an attractive and safe city that evokes pride, passion and a sense of belonging”.

While cycling is often identified for its environmental benefits, it should also be recognized as a financially sustainable type of transportation. When the built environment provides safe cycling infrastructure, cycling can serve as a mode of travel that costs individuals less than driving or taking public transit. Toronto's Poverty Reduction Strategy states that 46% of recent immigrants live in poverty, 37% of female lone parents live in poverty and 33% of people in racialized groups live in poverty. Recommendation 9.3 of Toronto’s Poverty Reduction Strategy suggests that Toronto will "Develop a capital and service planning approach that focuses on building infrastructure improvements faster and meeting the immediate needs of the inner suburbs."

On significant civic streets such as Queens Quay, the provision of cycling infrastructure is an important component when place-making vibrant social spaces. Supporting cycling offers

Exhibit 1-3: Cycling Facilities Help to Create Vibrant Destination Areasx


April 17, 2016 6

distinct opportunities to define streets as human-scale places, which attract cultural events and tourism.

1.4.6 Environmental Benefits Recognizing that climate change is one of the most important issues of our time, Toronto’s City Council unanimously adopted Toronto's Climate Change Action Plan in 2007xi. The plan set bold targets for the reduction of greenhouse gas emissions, and outlined actions for the City to create a sustainable energy future. Toronto's greenhouse gas reduction targets, based on 1990 levels of approximately 22 million tonnes per year, city-wide, are 30% by 2020 (6,600,000 tons per year) and 80% by 2050 (17,600,000 tons per year).

Exhibit 1-4: Toronto's Greenhouse Gas Emissions & Targets

Cycling uses minimal fossil fuels and is a pollution-free mode of transport. Bikes reduce the need to build, service and dispose of cars. Cycling 5 km each way to work would save 750 kgxii of greenhouse gas emissions each year. Cycling for short trips provides an alternative to motorized modes of transportation, which contribute to climate change. In addition, as cycling produces no emissions, it does not contribute to smog or noise pollution.

The City of Toronto’s Power to Live Green reportxiii identifies Toronto’s cycling infrastructure planning as a mechanism to realize the City’s greenhouse gas emissions targets.

1.4.7 Economic Benefits Toronto is a vibrant city of neighbourhoods. Toronto's neighbourhoods have been made possible in part by mixed use zoning policies instituted by Toronto's City Planning department in the 1980s and 1990s. Today, Toronto's Avenues support commercial activity, blended with nearby residential units. As a result many residents are within walking or biking distance from local shops and businesses. In contrast to many North American cities where residential units are located away from commercially zoned areas, the City of Toronto’s Avenues ensure origins and destinations are often a distance which can be cycled.


April 17, 2016 7

A number of studies have been undertaken by the Toronto Centre for Active Transportation (TCAT) and the University of Toronto. A study of the Danforth found that those who live or work in the area visited local shops more frequently than those who do not: 78% of those who live in the area visited more than five times per month whereas only 23% of those who do not live or work in the area will visit more than five times per month. Those who live or work in the Danforth area spend more money than those who do not: 62% of those who live in the area spend over $100 per month whereas only 10% of those who do not live or work in the area spend over $100 per month. Shorter trips can be taken efficiently on foot or by bicycle. These studies found that merchants tend to overestimate the number of people who drive to get to their businesses.

Surveys undertaken by TCAT on both Danforth Avenue and Bloor Street found that a majority of respondents preferred to see street use reallocated for streetscaping and safety projects such as widened sidewalks or a bike lane. Interestingly, even the majority of surveyed respondents who identified as drivers demonstrated support for streetscape changes.


April 17, 2016 8

2 Background & Related Studies The following studies provided background, related information, or recommendations which were incorporated into this Plan.

2.1 Toronto Bike Plan The Toronto Bike Planxiv was the first cycling master plan for the newly amalgamated City of Toronto adopted by Council, 2001. It recommends, among other things, a long-term, city-wide Bikeway Network consisting of bicycle lanes, signed routes and trails. The network objective was to create a grid of bikeways spaced approximately two kilometres apart so that all residents would be no more than one kilometre from a designated bikeway. Where bike lanes on arterial roads could not be accommodated due to impacts on motor vehicle parking or traffic, the grid gaps were filled with signed routes on parallel local roads.

2.2 Bikeway Network – 2011 Update This Transportation Services staff report adopted by Councilxv confirmed Council’s implementation priorities for 2010-2014 to accelerate the construction of the trails component of the network and upgrade and expand the downtown network of bike lanes by constructing cycle tracks.

2.3 Bikeway Trails Implementation Plan City Council, at its meeting of June 6, 2012, adopted the Bikeway Trails Implementation Planxvi. This Plan included 26 new trail projects totalling an additional 77 km of bikeway trails, as illustrated in Exhibit 2-1.

The majority of near-term (years 1-5) projects identified in the Bikeway Trails Implementation Plan have been initiated. A review of the projects identified for years 6-10 was undertaken by City of Toronto staff to evaluate the needs of the trails program, within the broader context of the Cycling Network Ten Year Implementation Plan.

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April 17, 2016 10

2.4 Official Plan Draft Cycling Policy Framework The Official Plan Review of Transportation Policies includes new text to establish a bicycle policy framework, and revised text that strengthens the existing policy that promotes cycling. The new policies, currently in draft form, are proposed as part of Section 2.4 Bringing the City Together: A Progressive Agenda of Transportation Change.

The new text explains that guidelines, programs and infrastructure will be developed and implemented to create safe, comfortable and bicycle-friendly environments that encourage people of all ages to bicycle for everyday transportation and recreation. The draft policies focus on ways to expand the cycling network, enhance the convenience and attractiveness of the cycling network, make cycling a safer travel mode, and provide convenient high-quality short-term and long-term bicycle parking facilities at key locations throughout the city.

The draft policies, along with new introductory text and sidebars, will be refined through consultation with external stakeholders and the public scheduled in late 2018 and early 2019. The finalized policies, as part of the Official Plan Review, are expected to be reported to Council in 2019.

2.5 Toronto Road Safety Plan The Ten Year Cycling Network Implementation Plan proposes new dedicated and connected cycling facilities across the city. The 2017-2021 Road Safety Plan'sxvii additional safety enhancement programs will implement improvements to existing cycling routes and facilities using cyclist collision data to identify high risk corridors and intersections.

Improvements and enhancements could include additional pavement markings, signs and bollards and construction of raised or separated cycling facilities. This also includes pilot studies / evaluations of new and emerging designs, applications, countermeasures and technologies for cyclist safety. Dedicated and separated cycling facilities, such as buffered bike lanes, cycle tracks, bike trails, bike boxes, signage and pavement markings, provide greater guidance and protection for cyclists from vehicular traffic than shared and unmarked facilities.

In addition, the Road Safety Plan identifies the following countermeasures which will change the built environment to make Toronto's streets safer for cycling:

Intersection safety improvements, including as applicable the installation of bicyclecrossing signals;

A pilot study will be conducted on the technological and financial requirements ofimplementing an advanced green for cyclists at signalized cyclist crossings;

Reductions to the posted speed limits for those street locations identified in theRoad Safety Plan report;

Speed enforcement measures in construction zones;

Enhancements to the automated detection of cyclists at high cyclist volumeintersections;

An expansion of speed enforcement measures and the "Watch Your Speed"Program to include the use of permanent speed display signs exclusively in school zones; and

New enforcement measures to be undertaken by the Toronto Police Service insupport of the Road Safety Plan.


April 17, 2016 11

2.6 Toronto Complete Streets Guidelines The City of Toronto developed Complete Streets Guidelinesxviii to provide a holistic approach for how we design our city streets. This builds on many of the City's existing policies, guidelines and recent successful street design and construction projects.

Complete streets are streets that are designed to be safe for all users, such as people who walk, bicycle, take transit or drive, and people of varying ages and levels of ability. They also consider other uses like sidewalk cafés, street furniture, street trees, utilities, and stormwater management.

While not every type of use or user may be accommodated on every street, the goal is to build a city with a well-functioning street network that supports and sustains our quality of life in Toronto. Complete streets will ensure that social, economic and environmental priorities are integrated in street planning and design. For more information on how the Complete Streets Guidelines will be used alongside the City of Toronto’s Cycling Network Plan, please see Section 10.4.2 of this report.


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3 Study Process The Ten Year Cycling Network Plan study is intended to identify the most meaningful projects for cyclists and ‘would-be’ cyclists to be scheduled and implemented over the next 5 and 10 years. The cycling projects that the City will implement have to be the “most meaningful” in terms of being located throughout the city; supported by stakeholders and the public; fill gaps; overcome barriers; upgrade existing bikeways when a new type would better serve the users and fit the corridor context; integrate with transit; connect key places with high levels of cycling activity or potential; connect to adjacent municipalities; and fulfill City policies.

The study process consisted of the following major components as illustrated in Exhibit 3-1.

1. Undertake a critical review of the recommended network in the 2001 Toronto BikePlan with the project team. This review resulted in a draft map of key cyclingprojects as per the 2001 Toronto Bike Plan plus new opportunities for cyclingfacilities that warranted further analysis for their impact on cycling, and werepresented for stakeholder and public consultation. The process of reviewing thecycling network is documented in Section 4;

2. Analyze the impact of the network on cycling, i.e., determine those routes that arethe “most meaningful”, based on the following criteria:

Current cycling demand

Potential demand

Coverage, i.e. areas of the city that lack bikeways

Barriers and opportunities to cross them or improve existing crossings

Population and employment density

Trip generators

Safety

Connectivity

Higher-priority transit station connections

These criteria are described in detail and the maps that represent the data are provided in Section 5 and Subsections 5.1 to 5.9;

3. Consult with stakeholders and the public regarding the draft cycling network map to incorporate their opinions and preferences. These consultations are documented in Section 6;

4. Undertake a priority analysis of which routes should be implemented each year for the next five and ten years. This consisted of first determining the type of cycling facility feasible for the various cycling routes, and then the associated cost to implement them. Coordination opportunities to implement the cycling routes as part of other municipal projects were also determined. The cycling impact analysis, consultation results and feasibility analysis were combined to determine project priorities. An overall schedule of projects was developed by evaluating coordination opportunities and project priorities. This cycling project priority analysis is documented in Section 7; and,

5. Prepare a schedule of projects for each of five scenarios based on various funding levels. Each scenario included funding the implementation of the approved Bikeway Trails Implementation Plan projects; the Ten Year Plan Cycling Network (Connect and Grow projects); the existing network upgrades (Renew projects); and


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bicycle parking, i.e. bike racks and bike stations. The funding scenarios are documented in Section 8; the Renew program is documented in Section 9.

The recommended Ten Year Cycling Network Implementation Plan, including the Bikeway Trails projects; the Ten Year Plan Cycling Network; the existing network upgrades and bicyc le parking, is presented in Section 10.

Resources to deliver and maintain the Ten Year Cycling Network Plan are discussed in Section 11.

Section 12 of the report presents objectives to track and monitor the delivery of the plan.

The recommendations of the report as approved by Council are presented in Section 13.


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Exhibit 3-1: Ten Year Cycling Network Implementation Plan Study Process

EXISTING CYCLING


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4 Cycling Network Critical Review The recommended cycling network in the 2001 Bike Plan formed the basis of the network to be reviewed and updated, and then analyzed to develop a ten year implementation plan. Most of the downtown cycling routes recommended in the 2001 Bike Plan have been installed. A key goal of the Ten Year Cycling Network Plan for downtown is to further enhance the existing network by adding new routes and enhancing existing routes. Most of the routes recommended in 2001 for Scarborough, North York and Etobicoke have not been installed. A key goal of the Ten Year Cycling Network Plan in these areas is to learn lessons from the past ten years about what did not work and why, and re-evaluate what can now be done to make these parts of Toronto great places to ride a bike moving forward.

This critical review of the cycling network was undertaken in consultation with a number of stakeholders before being issued as the draft digital map for public review:

Transportation Services staff in the Cycling Unit: These staff are responsible forimplementing the cycling network. They provided an understanding of which projectsdid not move forward and why. Some projects were difficult to achieve technically,others were not supported by the area residents or businesses, and some wheretabled in favour of other nearby opportunities or investments that arose. Staff alsoincorporated ideas from Cycle Toronto that were presented at an event in November2014, as documented in Section 6.4. Two working meetings with staff were held inMarch 2015;

Ten Year Cycling Network Plan Project Team: There were nine meetings heldwith the Project Team from November 2014 to February 2016. Three of thesemeetings focused on the cycling network review, with minor edits made atsubsequent meetings. Staff involved in the Project Team provided information oncycling route and network recommendations from roadway EnvironmentalAssessments, Secondary Plans, Precinct Plans and Avenue Studies. They alsoprovided information on barrier crossings, and rapid transit projects that includedcycling facilities; and,

District staff: Four meetings were held, one in each District, in May 2015. Staffmarked up maps of the cycling network, revising cycling routes based on trafficoperational issues and opportunities, construction co-ordination opportunities, andknowledge of studies and field conditions surrounding specific cycling routes.Additional information on consultation with District staff is provided in Section 6.2.

The draft cycling network map produced from the above consultations was further reviewed during the Phase 2 consultations, as documented in Section 6.6.

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