Report No. 3 of the Transportation Services Committee Regional Council Meeting of March 22, 2012

2 TRANSIT / HIGH OCCUPANCY VEHICLES (HOV) LANE BYLAW UPDATE The Transportation Services Committee recommends the adoption of the recommendations contained in the following report dated February 29, 2012, from the Commissioner of Transportation and Community Planning.

1.

RECOMMENDATIONS It is recommended that: 1. The existing Transit/High Occupancy Vehicle (HOV) lane, Bylaw No. 2010-30 be amended to permit motorcycles and scooters to use the existing Transit/HOV lanes on Yonge Street (Y.R. 1), between Steeles Avenue and Clark Avenue. 2. The existing Transit/High Occupancy Vehicle (HOV) lane, Bylaw No. 2010-30 be amended to permit motorcycles and scooters to use the existing Transit/HOV lanes on Dufferin Street (Y.R. 53), between Steeles Avenue and Langstaff Road (Y.R. 72). 3. The Regional Solicitor prepares the necessary amendments to the existing bylaws. 4. The Regional Clerk circulate this report to the Clerks of the City of Vaughan, the Town of Markham, and to the Chief of the York Regional Police.

2.

PURPOSE This report seeks Council approval to amend the existing operation of Transit/High Occupancy Vehicle (HOV) lanes on Dufferin Street and Yonge Street.

3.

BACKGROUND Since 1999, Transit/HOV lanes have been operating on Yonge Street between Steeles Avenue and Clark Avenue In 1994, the City of Toronto installed Transit/HOV lanes on Yonge Street from north of Finch Avenue to Steeles Avenue primarily to provide a benefit to the significant number of transit vehicles using this section of Yonge Street to access Finch Subway Station including York Region Transit, TTC and GO Transit.

Report No. 3 of the Transportation Services Committee Regional Council Meeting of March 22, 2012

On November 11, 1999, York Region implemented Transit/HOV lanes on Yonge Street from Clarke Avenue to Steeles Avenue, given that a number of these services extended north of Steeles Avenue (see Attachment 1). On March 29, 2007, Council approved the implementation of Transit/HOV lanes and bicycle lanes on future six-lane roadways On March 29, 2007, Council approved the implementation of Transit/HOV lanes and bicycle lanes for capital projects that involve a road widening from four to six lanes. Council also directed staff to address details related to enforcement/legislation, operations/design and education/communication through the development of a Regional Transit/HOV lane policy which staff will report on prior to the opening of any future Transit/HOV lanes on Regional roads. On March 25, 2008, the City of Toronto Council amended their HOV bylaw to permit motorcycles and scooters to use City of Toronto controlled High Occupancy Vehicle (HOV) lanes On March 25, 2008, the City of Toronto Council amended their bylaw to permit motorcycles and scooters to use City of Toronto controlled HOV lanes. The justification for the City of Toronto bylaw amendment was due to the vulnerability of motorcycle users and their perceived safety concerns associated with slower motorcycles and scooters occupying the centre or left lane of the three-lane roadway. On April 23, 2009, Council approved the implementation of Transit/HOV lanes and bicycle lanes on Dufferin Street between Steeles Avenue and Langstaff Road On April 23, 2009, Council approved the implementation of Transit/HOV lanes and bicycle lanes on Dufferin Street between Steeles Avenue and Langstaff Road (see Attachment 2). The bylaw has been updated to reflect the best practices and options pertaining to Transit/HOV lane operating parameters, including: • • • •

A minimum occupancy of two (2) or more people per vehicle for any new Transit/HOV lanes in order to promote and encourage carpools. Transit/HOV lanes give priority to transit and vehicles carrying more than one passenger in order to increase the people-moving capacity of the roads. Transit/HOV lanes be operational at all times (i.e. 24 hours, 7 days a week) in order to simplify the decision for motorists, to make it easier for enforcement and to eliminate court challenges related to hours of operation. Allow single-occupant vehicles to use the Transit/HOV lane for a specified distance (100 metres) to turn right to enter or exit the road.

Report No. 3 of the Transportation Services Committee Regional Council Meeting of March 22, 2012

• •

Overhead and off-road road signs be limited at key intersections and combined with enhanced pavement markings at mid-block locations to help distinguish the Transit/HOV lanes. A set fine of $85 be introduced and to be consistent with the penalty for “improper use of Transit/HOV lane” as outlined in the Highway Traffic Act.

On April 22, 2010, Council amended Bylaw No. 2009-23 to designate the outside lanes adjacent to the bicycle lanes on Dufferin Street between Steeles Avenue and Langstaff Road as Transit/HOV lanes only from 7:00 a.m. to 10:00 a.m. and 3:00 p.m. to 7:00 p.m., Monday to Friday On April 22, 2010, Council approved changing the original 24 hours, 7 days a week operation of the Transit/HOV lanes on Dufferin Street between Steeles Avenue and Langstaff Road to time-of-day, and day-of-week operations between 7:00 a.m. to 10:00 a.m. and 3:00 p.m. to 7:00 p.m., Monday to Friday. This is due to the HOV lanes being underutilized during off-peak periods. Permitting all vehicles to use the HOV lanes during off-peak times of the day, as is the case with all other HOV lane facilities in York Region and in the City of Toronto, will result in significantly improved traffic operations. The inconsistency of Transit/HOV lanes between York Region and the City of Toronto bylaw related to motorcycles and scooters has been raised as a concern Staff have identified an inconsistency in the Transit/HOV lane bylaw between York Region and the City of Toronto along Dufferin Street and Yonge Street north and south of Steeles Avenue. York Region’s existing Transit/HOV lane bylaw does not permit single-occupant motorcycles and scooters. From a transportation planning perspective, a bylaw amendment to include single-occupant motorcycles and scooters will ensure consistency and continuity of the Transit/HOV lanes north and south of Steeles Avenue.

4.

ANALYSIS AND OPTIONS On six-lane roadways, motorcycles and scooters are encouraged to use the right lane to improve safety Various studies have suggested that there are significant safety advantages to motorcyclists and scooter riders primarily using the curb lane. Most motorcyclists and scooter riders feel most comfortable operating in the curb lane because the right lane can provide increased visibility to other motorists travelling in the corridor and hence provide the motorcyclist and scooter riders a way out if required, i.e. situating themselves next to the curb, not to be caught in the middle lanes. There is also an expectation amongst other road users that these riders generally operate in the curb lane. In accordance with the Official Ministry of Transportation Ontario (MTO) driver and motorcycle handbooks,

Report No. 3 of the Transportation Services Committee Regional Council Meeting of March 22, 2012

those slower vehicles that cannot maintain the posted speed limit, including motorcycles and scooters are encouraged to drive in the curb lane of the roadway and allow faster vehicles to pass on the left when it is safe and practical to do so. The current Transit/HOV lane bylaw needs to be updated in order to be consistent with the City of Toronto bylaw that permits motorcycles and scooters The existing Transit/High Occupancy Vehicle (HOV) lane, Bylaw No. 2010-30 currently governs the operation of Transit/HOV lanes on Yonge Street, between Steeles Avenue and Clark Avenue, and Dufferin Street, between Steeles Avenue and Langstaff Road. It needs to be updated in order to be consistent with the City of Toronto bylaw that permits motorcycles and scooters to use the Transit/HOV lanes. Road authorities have various options for the implementation of Transit/HOV lanes through a Municipal Bylaw Regional staff has identified the key operating parameters for the Transit/HOV lanes that are currently in place for Yonge Street and Dufferin Street needing modification in order to provide consistency between York Region and the City of Toronto. Table 1 outlines the Transit/HOV lane operating parameters between Yonge Street in the City of Toronto, and Yonge Street and Dufferin Street in York Region. Table 1 Comparison of the Transit/HOV lane operating parameters Yonge Street and Dufferin Street Operation Parameters Number of occupants per vehicles

City of Toronto Yonge Street Three (3) or more occupants (3+)

York Region Yonge Street Dufferin Street Three (3) or more Two (2) or more occupants (3+) occupants (2+)

Type of vehicles permitted

Buses, taxis, motor vehicles with three (3) or more occupants (3+), bicycle, motorcycles, scooters

Buses, taxis, motor vehicles with three (3) or more occupants (3+), bicycle

Buses, taxis, motor vehicles with two (2) or more occupants (2+), bicycle

Hours of Operation

7:00 a.m. to 10:00 a.m., and 3:00 p.m. to 7:00 p.m., Monday to Friday

7:00 a.m. to 10:00 a.m., and 3:00 p.m. to 7:00 p.m., Monday to Friday

7:00 a.m. to 10:00 a.m., and 3:00 p.m. to 7:00 p.m., Monday to Friday

These parameters are similar for HOV lanes on Yonge Street, south of Steeles Avenue, between Bishop Avenue/Hendon Avenue and Steeles Avenue, in the City of Toronto. The only exception is City of Toronto HOV lanes permit motorcyclists and scooter riders.

Report No. 3 of the Transportation Services Committee Regional Council Meeting of March 22, 2012

The Transit/HOV lanes on Dufferin Street, south of Steeles Street, between Etobicoke Creek and Aukland Road only permit transit usages. The rationale for the two (2) or more occupants designation on Dufferin Street is that it will promote better use of the HOV lane while still providing travel time saving for transit and ensure that during the early stages of implementation the HOV lane is not under-utilized. It is unlikely the inclusion of motorcycles and scooters will have a significant impact on traffic operations in the Transit/HOV lanes due to seasonal operation Certainly, there are safety benefits for motorcycles and scooters to operate on Transit/HOV lanes. Studies from the City of Toronto indicates that there were eleven reported collisions involving motorcycles in the City of Toronto along 5 road sections in the Transit/HOV lane during the peak rush hours over a five-year period between 2002 and 2006 (see Table 2). Considering that these eleven collisions in the Transit/HOV lanes were amongst more than 1,300 collisions involving motorcycles during the same period, there is nothing to suggest that motorcycles traveling in Transit/HOV lanes pose a particular problem or require specific consideration, nor would they be safer operating outside of Transit/HOV lanes. Table 2 Motor Vehicle Collisions involving Motorcycles in the Transit/HOV lanes during peak hours (7-10 a.m. and 3-7 p.m.) between 2002 and 2006 Location Allen Road / Dufferin Street * Don Mill Road / Overlea Boulevard / Pape Avenue Dundas Street West Eglinton Avenue East Yonge Street Total

Total 0 4 2 3 2 11

* Allen Road/Dufferin Street as of November 2009 is only a transit lane

However, the inclusion of single-occupant motorcycles and scooters violates the intent and purpose of the Transit/HOV lanes, which is to relieve traffic congestion, carry more passengers in a lane, promote the use of public transit, and encourage carpooling. Given that there are few anticipated motorcycles and scooters volumes on the road due to seasonal operation, which is primarily in the summer, it is unlikely that the inclusion of motorcycles and scooters will have a significant bearing on the impacts to the traffic capacity of the Transit/HOV lane facility.

Report No. 3 of the Transportation Services Committee Regional Council Meeting of March 22, 2012

Existing Transit/HOV lane signage will be modified, and a communication plan will be developed to educate, and advise motorists that motorcycles and scooters are permitted to use the Transit/HOV lanes In order to allow motorcycles and scooters to use the existing Transit/HOV lanes, all existing Transit/HOV lane signage will need to be replaced or amended with the addition of motorcycle and scooter image (See Figure 1).

Figure 1 Transit/HOV lane signage with motorcycle and scooter image

A communication plan is also being developed to inform and educate motorists of the new change. The communication plan will include the following elements: • • •

Community flyer insert Roadside message boards Media outreach (i.e. press releases, press kits)

• •

Formal public launch Newspaper ads

Link to Key Council – approved Plans 2011 to 2015 Strategic Objective – Improve mobility for users on Regional transportation corridors; optimize the transportation capacity and services in Regional centres and corridors.

Report No. 3 of the Transportation Services Committee Regional Council Meeting of March 22, 2012

5.

FINANCIAL IMPLICATIONS The cost to change the Transit/HOV lane signs is included in the 2012 Transportation and Community Planning budget.

6.

LOCAL MUNICIPAL IMPACT The recommended Transit/HOV lane bylaw update on the Regional road system has no direct impact on the local municipalities. However, local municipal staff from the City of Vaughan and the Town of Markham, and staff from the York Regional Transit have been advised of the proposed change within this report and indicated their support.

7.

CONCLUSION Regional staff has been requested to initiate a review to permit single-occupant motorcycles and scooters to use the existing Transit/HOV lane on Yonge Street, between Steeles Avenue and Clark Avenue, and on Dufferin Street, between Steeles Avenue and Langstaff Road. The recommended bylaw update will ensure consistency and continuity of the Transit/HOV lanes north and south of the boundary. A bylaw amendment is required in order to permit motorcycles and scooters to use the existing Transit/HOV lanes on Regional roads in York Region. Therefore, the Regional Solicitor should prepare the necessary bylaw (see Attachment 3) and the Regional Clerk forward a copy to the City of Vaughan, the Town of Markham, and to the Chief of York Regional Police.

For more information on this report, please contact Steven Kemp, Director, Traffic Management and Intelligent Transportation Systems at Ext. 5226. The Senior Management Group has reviewed this report. (The three attachments referred to in this clause are attached to this report.)

COUNCIL ATTACHMENT 1

Yonge Street ) (Y.R. 1

e enu v A k Clar

l Stee

d Hen

LOCATION PLAN Yonge Street (Y.R. 1) Transit/HOV and Bicycle Lanes Between Steeles Avenue and Clark Avenue City of Vaughan and Town of Markham

u ven A n o

ast E e u ven A s e

e enu v A t op Eas Bish e u ven A h Finc

e

Transit/HOV Lane and Bicycle Lane Corridor City of Toronto Jurisdiction 0

225 450

900

TRANSPORTATION SERVICES

1,350

1,800 Metres

COUNCIL ATTACHMENT 2

gsta n a L

72) . R . Y ad ( o R f f

Duffer . et (Y.R in Stre 53)

7 y 40 a w High

les Stee

t Wes e u n Ave

est W e enu v A h Finc

Dr k c o pr Stee

ive

lace P k o rbo Ove

Sh

LOCATION PLAN Dufferin Street (Y.R. 53) Transit/HOV and Bicycle Lanes Between Steeles Avenue and Langstaff Road (Y.R. 72) City of Vaughan

n Ave d r a epp

est W ue

Transit/HOV Lane and Bicycle Lane Corridor Transit Lane

City of Toronto Jurisdiction 0

410

820

1,640

TRANSPORTATION SERVICES

2,460

3,280 Metres

COUNCIL ATTACHMENT 3

TRANSIT / HIGH OCCUPANCY VEHICLE (HOV) LANE ON REGIONAL ROADS

Transit / High Occupancy Vehicle (HOV) Lane By-law Update

Portion of Highway Yonge Street (Y.R. 1) curb lane

Limit

North limit of Steeles Avenue to the south limit of Clark Avenue

Class of Vehicle

Motor vehicles with three (3) or more persons

Times or Days

7:00 a.m. to 10:00 a.m. and 3:00 p.m. to 7:00 p.m., Monday to Friday

Motorcycles, Scooters, Bicycles Dufferin Street (Y.R. 53) the lane immediately adjacent to the designated bicycle lane

North limit of Steeles Avenue to the south limit of Caraway Drive

Dufferin Street (Y.R. 53) Curb lane

North limit of Caraway Drive to the south limit of Langstaff Road

Motor vehicles with three (2) or more persons

7:00 a.m. to 10:00 a.m. and 3:00 p.m. to 7:00 p.m., Monday to Friday

Motorcycles, Scooters,

Motor vehicles with three (2) or more persons Motorcycles, Scooters, Bicycles

7:00 a.m. to 10:00 a.m. and 3:00 p.m. to 7:00 p.m., Monday to Friday