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Report
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Report To: General Government Committee
Date of Meeting: September 4, 2018
Report Number: EGD -015-18 Resolution: GG -387-18
File Number: By-law Number:
Report Subject: Rainbow Crosswalks
Recommendations:
1. That Report EGD -015-18 be received for information; and
2. That all interested parties listed in Report EGD -015-18 and any delegations be advised
of Council's decision.
Municipality of Clarington
Report EGD -015-18
Report Overview
Page 2
In response to Council's request for staff to identify potential locations for a rainbow
crosswalk, staff have reviewed best practices and applicable standards and guidelines
including those within the Highway Traffic Act (HTA) and the Ontario Ministry of
Transportation publication of the Ontario Traffic Manual (OTM) Book 11 and 15. Staff have
also consulted with the Transportation Association of Canada (TAC), Region of Durham and
our insurer. Based on the information available, this report assesses the design,
maintenance and operational aspects of the installation of a rainbow crosswalk as well as
potential installation locations and funding options for Council's consideration.
1. Background
1.1 During the June 18, 2018 General Government Committee meeting, a delegation
requested that Council consider the installation of rainbow crosswalks to "promote the
message of inclusion and acceptance" for the lesbian, gay, bisexual, transgender and
queer (LGBTQ) community. The delegation requested a rainbow crosswalk be located
in the vicinity of a school to increase awareness by school children and parents.
1.2 At the Council Meeting of July 3, 2018, Council approved Resolution #GG -343-18 which
stated:
"That staff report back to the General Government Committee meeting of
September 4, 2018 with preferred location(s) for a rainbow crosswalk in the
Municipality of Clarington; and
That the report include options for funding the rainbow crosswalk(s)."
2. Technical Review
2.1 The Ontario Highway Traffic Act (HTA) sets out rules and regulates many aspects
pertaining to the use of roads under all jurisdictions. While there is no mention of colours
being used for crosswalks, the HTA specifies and regulates the types of pedestrian
crossovers including required pavement marking patterns and signage.
2.2 The Ontario Traffic Manual (OTM) set of books supplements the HTA, providing
guidelines and specifications relating to the provincial regulations. These books were
developed jointly by local, regional, provincial and private sector experts in order to
provide consistency in application approach and driver behaviour. In reviewing OTM
Book 11, Pavement, Hazard and Delineation Markings, and OTM Book 15, Pedestrian
Crossing Treatments, ladder style crosswalks are a combination of white zebra
pavement markings aligned perpendicular to the pedestrian direction of travel together
with standard parallel white crosswalk lines. While there is no restriction on elements
such as decorative work, texture, brick or paver, outside parallel white lines are always
required. Additionally, material used should not present tripping or slipping hazards and
any textured patterns must be properly oriented. It should also provide sufficient
Municipality of Clarington
Resort EGD -015-18
Page 3
contrast at night and over long periods of time. Not all coloured materials provide the
same level of visibility to motorists.
2.3 The Transportation Association of Canada (TAC) is an organization that focuses on the
safety aspects of transportation networks and are a main source of road safety
information widely used by municipal governments and road authorities. The TAG
provides guidance relating to the design and operation of roads through the
development of design standards, specifications and uniform recognizable road
markings and signage. Clarington staff contacted the TAC to seek their input on rainbow
crosswalks and they provided the following response:
"At present TAC has no published guidance on the use of rainbow
crossings. There is a volunteer project under the Traffic Operations and
Management Standing Committee that will examine `decorative crosswalk
pavement markings,' which will include rainbow crosswalks and other
unconventional designs. This project is just getting underway, so there is nothing
to report yet. Realistically, the earliest the committee could submit a report for
review would be April 2019, at the association's semi-annual meeting."
2.4 Clarington staff also consulted with the Region of Durham regarding the use of rainbow
crosswalks on their roads and at signalized intersections which they are responsible for
operating throughout the Region including those on local municipal roads. Regional staff
noted that their Traffic Engineering and Operations staff follow the practices that are
recommended in the Ontario Ministry of Transportation publication of the OTM,
specifically Book 11, in order to maintain uniformity and road safety. They are very
careful when selecting their pavement marking materials and ensure that the reflective
and surface frictional properties of these materials meet their standards to avoid any
safety or liability concerns to pedestrians or vehicles on the road. They do not
recommend any form of crosswalk marking schemes other than what is defined in the
OTM.
2.5 Key elements in the design of any road or traffic related facility is a driver's behaviour
and perception in recognizing or interpreting road signage and pavement markings.
Consistency between the Region of Durham and our municipality regarding the
application of pavement markings and road signage is of paramount importance and
needs to be adequately addressed when considering a rainbow crosswalk design.
2.6 The Durham Insurance Pool has contacted our insurer, Cowan Insurance, and they
have provided the following response:
"We live in a litigious society, a driver involved in a collision with a pedestrian at a
rainbow crosswalk may claim that they did not recognize the rainbow colours as
a crosswalk. While we all want to demonstrate inclusiveness, remaining with the
current requirements of the Ontario Traffic Manual or the Transportation
Association of Canada would be appropriate until these organizations have
reviewed and possibly revised their guideline."
Municipality of Clarington
Resort EGD -015-18
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2.7 A number of jurisdictions across Canada, including several in Ontario, have installed
rainbow crosswalks recently to celebrate LGBTQ awareness and rights. There is limited
information available regarding incidents and driver behavior experiences in the vicinity
these rainbow crosswalks.
2.8 The technical organizations and the reference material referred to in this report did not
provide staff with sufficient details regarding road design and operational safety related
to rainbow crosswalks. The interpretation of legislation, design standards and
specifications applicable to rainbow crosswalk design and operation has not been
addressed by the Ministry of Transportation, TAC or any other governing agency at this
time. Should the municipality move forward with a rainbow crosswalk, the experiences
of other municipal government agencies remains the best source for information and
design.
3. Construction and Maintenance Costs
3.1 In researching other rainbow crosswalks, the estimated cost of an initial installation is
roughly $8,000 to $12,000 per crossing (i.e. if all four crosswalks at an intersection were
completed it would cost between $32,000 to $48,000). The cost variation is related to
both the length and width of the crosswalk. It should be noted that depending on the
traffic volumes at the location, the crosswalk would have to be repainted every one to
two years. Therefore, if it is intended that a rainbow crosswalk remain indefinitely, a
budget of $8,000 to $12,000 would be needed every one to two years.
4. Analysis and Potential Crosswalk Locations
4.1 After reviewing the above technical information, specifically the HTA and OTM, it is
staff's position that while these documents are not law and there are no restrictions on
alternate applications (such as decorative work, texture, brick or paver within the lines
defining the crosswalk), any deviation from these guidelines presents a potential liability
risk in the event of collisions that may occur at or near these sites. This position is
supported by our consultation with TAG and Region of Durham. It is staff's view that
Clarington should continue to follow the guidelines provided by TAC and OTM in order
to provide consistency and uniformity for all users throughout the municipality.
4.2 However, recognizing Council's direction given by Resolution #GG -343-18, staff have
identified several locations for a potential rainbow crosswalk. The locations are close to
schools and meet the appropriate road geometrics and supporting traffic data
requirements. The sites are subject to the preparation of a satisfactory intersection or
crosswalk design and must confirm to best practices, the HTA, OTM, TAC standards
and specifications.
4.3 The list of potential rainbow crosswalk locations are as follows:
A. West leg of the all way stop intersection of Prestonvale Rd. and Meadowglade Rd.;
B. South leg of the all way stop intersection of Trulls Rd. and Avondale Dr.;
Municipality of Clarington
Resort EGD -015-18
Page 5
C. South leg of the all way stop intersection of Bons Ave. and Scugog St.;
D. South leg of the all way stop intersection of Apple Blossom Blvd. and Mearns Ave.;
E. West leg of the all way stop intersection of Edward Street and Glass Court; or
F. East leg of the intersection of Brooking Street and Longworth Avenue, Intersection
Pedestrian Signal (would require consultation and approval of the Region).
5. Funding Options
5.1 Below are potential scenarios that could be considered to fund the initial installation in
2018 and subsequent maintenance costs:
A. 100% of the funding to come from the Municipality's annual budget;
B. 50% of the funding to come from the Municipality's annual budget with the other
50% of funding to come from the requesting group; or
C. 100% of funding to come from the requesting group.
5.2 Funding of these works was not included in the 2018 budget. If funds are to be
reallocated from our current budget, it would defer that value of work to a future year.
For example, $8,000 allocated to painting roughly 22,000 m of white edge line or yellow
centreline would have to be deferred to a future year.
5.3 Should Council not want to defer existing work in order to fund the rainbow crosswalks
in 2018, the following option provides the same cost sharing scenarios while deferring
the Municipality's cost share to 2019:
D. Refer the works and the cost sharing scenarios to the 2019 budget for
consideration.
6. Concurrence
Not Applicable
7. Conclusion
7.1 Staff recognize that consistency and uniformity of crosswalk design is important for safe
driving behaviour. The preferable design would be one that consistent across the
municipality as any inconsistent markings, designs, or decorative work that are
unfamiliar to drivers can be distracting and lead to driver errors.
7.2 In response to Resolution #GG -343-18, the list of potential locations for rainbow
crossings is contained in section 4.3 and the funding options are contained in sections
5.1 and 5.3 of this report.
Municipality of Clarington Page 6
Report EGD -015-18
7.3 Should Council decide to move forward with a trial rainbow crosswalk, it will be
important to develop a public awareness campaign in advance to inform road users of
these designs and help ensure safety. The location should also be closely monitored
and reviewed to ensure it is not contributing to incidents or collisions_
7.4 If Council chooses to add further rainbow crosswalk locations, it would require a review
of competing financial interests relating to the maintenance of our road network.
8. Strategic Plan Application
Not Applicable.
Submitted by.
Anthony Cannella,
Director of Engineering Services
Reviewed by:
Andrew C. Allison, B. Comm, LL.B
CAO
Staff Contact: Ron Albright, Assistant Director, 905-623-3379 ext. 2305 or
RAIbright@clarington.net
The following is a list of the interested parties to be notified of Council's decision:
Jordan McCormack
Emily Allison
Allison Ridding
Rudy W. Kraayvanger