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Complete Streets: From Policy to Implementation in 

Toronto

Fiona Chapman – Manager, Pedestrian Projects, Transportation Services – City of 

Toronto

Total required Right of Way width:45 m

Competing Demands for Limited ROWCompeting Demands for Limited ROW

2013 – COUNCIL DIRECTION

In 2013, City Council adopted motions:

o requesting the DCM, Cluster B, to develop Complete Streets Guidelines in consultation with the GM, Transportation Services and Chief Planner, and report back on an approach.

And,

o requesting Toronto Water; Transportation Services; Engineering and Construction Services; City Planning to develop “green infrastructure” standards for the public right-of-way for implementation in capital projects.

o requesting information on international best practices for stormwater management and green infrastructure.

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COMPLETE STREETS - HISTORY

What we have already :

•A policy foundation (history and legal context)

What we need:

•A better toolbox for effective multi-modal delivery and implementation

State-of-the-art technical standards and innovations

•More tools for public education and engagement

PROVINCIAL – LEGAL AND POLICY CONTEXT

• Planning Act – Provincial Policy Statement, 2005: “planning public streets, spaces and facilities to be safe, meet the needs of pedestrians, and facilitate pedestrian and non-motorized movement, including but not limited to, walking and cycling”

• Places to Grow Act – Growth Plan for the Greater Golden Horseshoe, 2006: • “Walking and cycling will be practical elements of our urban transportation systems.” • Growth will be accommodated by… mixed-use, transit-supportive, pedestrian-friendly urban

environments”…and by “reducing dependence on automobiles to increase modal shares of transit, walking and cycling.”

• Official Plans and other policies will “support transit, walking and cycling for everyday activities”• New development will be planned and designed with street configurations, densities, and an urban

form that support walking, cycling, and transit. • “Municipalities will ensure that pedestrian and bicycle networks are integrated into transportation

planning”…

• Accessibility for Ontarians with Disabilities Act, 2005 will set standards that municipalities must follow regarding built environment and transportation.

• Ministry of Transportation’s Guide to Preparing A Transit Ridership Growth Plan (2005) and Transit Supportive Guidelines (1992 and draft 2011)

• Metrolinx Act – The Big Move, 2008:• Walking, cycling and transit will be attractive choices for travel for all. More transit and pedestrian-

friendly streetscapes, and improved walking and cycling amenities.

TORONTO –LEGAL AND POLICY CONTEXT

• Toronto Official Plan

• Environment Plan (2000)

• Climate Change and Clean Air Action Plan (2007) and Sustainable Transportation Initiatives (2007)

• Bike Plan (2001), Pedestrian Charter (2002)

• Call to Action on Physical Activity (2003) from the Medical Officer of Health

• Accessibility Design Guidelines (2004)

• Vibrant Streets – Street Furniture Guidelines (2006) and Streetscape Manual (2009)

• Walking Strategy (2009)

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'The "Complete Streets" approach recognizes that there is no single way in which to make a street "complete". It depends on numerous factors whose relative importance varies according to the character and context of each particular street. While it may not be viable or appropriate to accommodate every type of user or use on every street, the overall objective is to create a well-functioning street network that is planned and designed to provide safe access and efficient operation for all street activities and functions. Guidelines for applying the "Complete Streets" approach will be developed to assist in resolving and balancing the competing demands placed upon the use of street rights-of-way and applied when streets are constructed, reconstructed or otherwise improved.'

Official Plan Review Official Plan Review

TransportationServices

Toronto Water

Engineering and

Construction

EMS

MCIC

Solid Waste Management

Private Utilities TPA

Equity, Diversity and Human Rights

BIAs

City Planning

MLSFire

Services

Toronto Police Service

Toronto HydroTTC

Parks, Forestry and Recreation

Economic Development and Culture

Environment and Energy

Astral Media Outdoor

COMPLETE STREETS Corporate Partners

Legal Services

Toronto Public Health

Scan of Precedents Scan of Precedents

• Jurisdictional scan and compilation of best practices

– Calgary, Edmonton, Waterloo

– Boston, Chicago, New York City, Philadelphia

– National Complete Streets best practices

– Others such as NACTO (National Association of City Transportation Officials)

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•Complete Streets Guidelines will provide a vision and process that fully considers the accommodation of all users and uses of city streets, so that every user group has access to a well-functioning network that provides modal choice, safe travel, and access to destinations.

An Integrated Approach – Building on our ContextAn Integrated Approach – Building on our ContextFederal & Provincial

Transportation Association of Canada, AODA, Highway Traffic Act, Metrolinx plan

City of Toronto

Official Plan (health, environment, equity, social & economic vibrancy)

Wet Weather Flow 

Master Plan

Transportation Strategic  Plan (people & goods, emergency / utilities, work zones, right‐

of‐way management,  public space, Walking Strategy, Bike Plan, multi‐use trails, etc.)

Strategic Forest 

Management Plan

Complete Streets Guidelines(mode choice, space allocation, street 

geometry, design options)

Street Tree Study

“Green Streets”

Equity, Diversity & Human Rights

Accessibility Design 

Guidelines

Streetscape Manual

1) Builds on & integrates key policies, bylaws, standards, guidelines affecting the right‐of‐way, such as Official Plan, Streetscape Manual, Vibrant Streets, Accessibility Design Guidelines, Bike Plan, Walking Strategy, Wet Weather Flow Guidelines, MLS Café bylaws, Streets bylaw, etc…

2) Includes “links” to relevant technical details such as “Green Streets”, low Impact development, street tree details, area‐specific plans/BIA plans, approved EAs, and SPQA / DIPS (ECS standards)

Integration of Green InfrastructureIntegration of Green Infrastructure• The Guidelines will integrate planning for “green infrastructure” (to manage

stormwater and snow) as part of the street design process

• Detailed technical standards will be developed in tandem by Toronto Water; Engineering and Construction Services; City Planning and Transportation Services using pilot projects and best practices

Photo Courtesy of New York City

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• Reconstructions• Resurfacings• Water/Sewer/Stormwater Management• Utility Cut Rehabilitations• Safety/Local Improvements• New Sidewalk Construction• Bikeway Construction/Markings• Street Furniture Installations• Street Tree Planting/Operations• BIA Work• TTC/Metrolinx Projects• Waterfront TO/PanAm Initiatives • Private/Developer Sidewalk and Boulevard Improvements • Environmental Assessments, Avenue Studies, etc.

How the Guidelines applyHow the Guidelines apply

The Guidelines will inform

planned projects–

Not create new projects

The Guidelines will inform

planned projects–

Not create new projects

Budget is $450,000 to $500,000 to retain a consultant team to develop and produce the guidelines.

Council Approved RecommendationsCouncil Approved Recommendations

1. Direct the General Manager, Transportation Services and Chief Planner and Executive Director, City Planning to develop Complete Streets Guidelines using the integrated approach as outlined in Attachment 1.

2. Report back in 2015 on the Complete Streets Guidelines and the completion of Phase 1: Development, Consultation and Delivery of Complete Streets Guidelines, with recommendations on the support that may be necessary for implementation.

Project Management (roles, staffing, committees)Project Management (roles, staffing, committees)

Steering Committee(DCM, Cluster B; GM, Transportation Services; CP/ED, City Planning; ED

Engineering and Construction Services; GM, Toronto Water)

Core Project Team(staff from Transportation

Services and City Planning)

Technical Committee(s)(Transportation Services, City Planning, Toronto Water, Engineering & Construction, Fire, EMS, Parks & Forestry, Public Health, EcDev, Major Capital Infrastructure Coordination, Municipal

Licensing and Standards, TTC, Toronto Parking Authority and others as needed)

Consultant Team

Stakeholders

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Committee MandatesCommittee Mandates

STEERING

• Approve project direction and content

• Lead project communications and change management

• Oversee and approve budget and staff resource requirements

• Provide subject matter expertise

• Communicate project goals and progress within each division

• Provides subject matter expertise

• Broaden understanding street making within their division

• Champion improved streets and street development processes

• Attend or assigns staff to Technical Advisory sub-committees when relevant

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TECHNICAL ADVISORY

Governance: Committee MandatesGovernance: Committee Mandates

“Transportation Services and City Planning will jointly develop comprehensive Complete Streets Guidelines for use in the planning, design and management of streets in Toronto.”

Key Considerations

• streets as vibrant places

• Increased connectivity and mobility choices

• Improved safety and comfort

• prioritization and allocation of limited ROW space

• flexible designs, complimenting different urban contexts

• leveraged infrastructure spending

• create streets with attractive, high-quality materials

• support economic development, tourism and local investment

• social, public health, and environmental benefits

• improved stormwatermanagement

• street maintenance, repairs, and operations

Complete Streets Project CharterComplete Streets Project Charter

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Complete Streets – Project CharterComplete Streets – Project Charter

SPRING/SUMMER 2014

• Finalize work plan & RFP• Develop engagement plan• Compiling City documents

FALL/WINTER 2014-2015

• Consultant team starts• Reviews existing gaps &

best practices• DELIVER: Gap analysis &

best practices report

WE ARE

HERE

SPRING/SUMMER 2015

• Develop vision & principles• Develop Guidelines content• Develop decision-making protocol

FALL/WINTER 2015

• DELIVER: Complete Streets Guidelines

• DELIVER: Implementation plan & decision-making protocol

• Plan ‘Quick Start’ projects• DELIVER: Council report

1 2 3SCANEXISTING

DEVELOPGUIDELINES

IMPLEMENT& TRAIN

2014 - 2015 2015 - 2016 2016 +

CONSULTATION & ENGAGEMENT

Project Phasing & TimelineProject Phasing & Timeline

2016 AND BEYOND

• Staff training• Funding strategy• Engineering & construction

drawings• Public education campaign

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Project Phasing and TimingProject Phasing and Timing

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1. Undertake a gap analysis of existing City street design standards and guidelines, and review international best practices.

2. Establish a comprehensive and consolidated Complete Streets Guidelines document.

3. Develop an internal stakeholder, external stakeholder, and public engagement and communication plan.

4. Institute an improved internal decision-making process for how the City designs, constructs, and manages its streets.

5. Develop and execute an implementation plan for that includes directions for a staff training program, a funding strategy, performance monitoring, engineering construction drawings, and 'quick start' demonstration projects.

Key Project ComponentsKey Project Components

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Key Project ComponentsKey Project Components

Engagement & Communications EventsEngagement & Communications Events

ENGAGEMENT EVENT

PHASE 1Scan

Fall-Winter 2014

PHASE 2Principles

Winter-Spring 2015

PHASE 2GuidelinesSummer-

Fall2015

‘Lessons Learned’ street tours with TAC and consultants

●

Staff launch and symposium ●Public launch & online consultation on Guidelines vision, principles & goals

●

Stakeholder focus groups ● ●Councillor briefings ● ●Design Review Panel &Disability Issues Committee

● ●

Staff Charrettes & Workshops ● ●Interactive public open house & online ●

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Engagement and Communication EventsEngagement and Communication Events

External Partners & StakeholdersExternal Partners & Stakeholders

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Communications StrategyCommunications Strategy

Great Streets TO

Complete Streets for Toronto

• Elements:• Project brand and logo• Website• ________@toronto.ca• Twitter # & social media

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Communications StrategyCommunications Strategy

Next StepsNext Steps• Finalize consultant selection

• Begin formal Phase One work on Guideline development

• Continue work on the Engineering Design Guidelines internally

• Focus on process mapping to understand and update business processes

• Focus on data collection to better develop mapping and network analysis tools

For more information on Complete Streets: Fiona Chapman, Manager of Pedestrian Projects – Transportation Services, City of

Torontofchapma@toronto.ca

For more information on Complete Streets: Fiona Chapman, Manager of Pedestrian Projects – Transportation Services, City of

Torontofchapma@toronto.ca