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Service Reliability on the Scarborough RT Corridor (Part 2)

This is the second part of a review of headway reliability on the routes serving the former SRT corridor.

Routes included here are:

  • 903 Kennedy-STC Express
  • 939 Finch Express
  • 954 Lawrence East Express
  • 985 Sheppard East Express

For other routes, and an introduction, see Part 1 of this article.

The common thread through these reviews is that although there is transit priority in place between Kennedy Station and Ellesmere on Midland and on Kennedy, these routes have reliability problems. The red lanes benefit riders once they are on a bus, but their wait for a vehicle could delay their trip.

I do not expect that most readers will take a brief look at routes they use. However, some with an absolute passion for Scarborough bus service and lots of time might dive into details for every route.

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Service Reliability on the Scarborough RT Corridor (Part 1)

When the Scarborough RT closed, it was replaced by a bus shuttle, 903 Kennedy-Scarborough Express, running frequent service over streets paralleling the former SRT route. In previous articles, I reviewed actual travel times to determine how much traffic interference and transit priority contributed to speedy travel. See:

Since mid-November 2023, service between Scarborough Town Centre and Kennedy Station has been provided by many routes with the intention of eliminating transfer delays at STC. The following routes were extended south to Kennedy Station following the same route as the 903 Express. At the same time, service on the 903 was reduced as buses were redeployed to the other routes.

  • 38 Highland Creek
  • 129 McCowan North
  • 131 Nugget
  • 133 Neilson
  • 938 Highland Creek Express
  • 939A/B Finch Express
  • 954 Lawrence East Express
  • 985A Sheppard East Express

Debate over the planned busway in the former SRT corridor focuses on travel time savings using a private road from Eglinton to Ellesmere, but an important aspect for any rider is the wait time for their bus. The benefit of a faster ride can be undone by an unpredictable wait. This series of articles reviews service reliability on the extended routes as well as the remaining 903 Express operation between mid-November 2023 and the end of February 2024.

With all the focus on the shared route between Scarborough Town Centre and Kennedy Station, there remains the much longer portion of routes that have been extended. While the red lanes, and later the BRT roadway, should minimize further sources of irregularity, this does not change the fact that some of these routes have service issues east and north of STC.

This is part of a more general issue across the bus network that improvements are needed that will not come quickly or easily simply with a few transit priority projects. Moreover, riders need to see improvements now, not in the indefinite future after studies, priority lists and endless debates about who “deserves” better transit.

Included in Part 1 are routes 38, 938, 129, 131 and 133. The remaining express routes are in Part 2.

Updated Mar. 16, 2024: Route map added.

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The State of Disrepair

Updated March 14, 2024: The table listing subway restricted speed zones has been updated by addition of the TTC’s March 12 and 14 lists.

Updated March 22, 2024: The table of restricted speed zones has been updated with the TTC’s March 21 list.

In July 2023, the Scarborough RT met its unexpected end with a derailment south of Ellesmere Station. The underlying cause was a loose segment of reaction rail struck by the train. The last car separated from the train and the rear truck lifted completely off of the tracks. A major issue raised by the investigation was poor track inspection and maintenance procedures, possibly influenced by a combination of badly trained junior staff and the assumption that the line would close soon and did not require much ongoing work.

Fortunately, the location was an at-grade segment where there was little danger of the car falling far. Had the accident happened on the elevated stretch from Midland to McCowan, this could have been a very different story.

For a detailed look at this accident and the investigation, see:

The SRT would never re-open. Subsequent inspections found other problem locations including some with similar faults to the one causing the derailment.

This might be regarded as poor management choices and bad luck for a line that would soon close, but only half a year later, the subway was beset with widespread slow orders that hampered service. These arose from an annual track geometry inspection performed by a contracted service using a test rig that is run through the entire subway system. The equipment looks for problems a visual inspection will not spot including rails out of gauge and potential failures due to metal defects and fatigue.

At the January 2024 TTC Board meeting, management claimed that this was a normal outcome of the annual inspection. However, a month later in February, management admitted that the number of defects was higher than usual. Unfortunately, for unknown technical reasons, the video record of the February meeting is not available on YouTube to provide an exact quote.

An obvious, but unasked question is why there was such a jump in defects. Have past inspections missed problems or been too infrequent? Have their findings been ignored? Have repairs been less than adequate?

Quite recently, on March 1, 2024, a broken switch blade was discovered north of Museum Station. This defect was so serious it required service to be suspended from early morning until mid-afternoon when repairs were complete.

Riders on the streetcar system know that there are slow orders everywhere. Any junction slows streetcars to a crawl, and any facing point switch has a mandatory stop-and-proceed so that the operator can verify the switch is correctly set. There is even a rule, not much observed except by junior operators, that streetcars should not pass at junctions lest one of them derail and strike the other. (This rule originated from just such a sideswipe collision several years ago.)

The attitude that poor track condition can be dealt with simply by going slow spread from the streetcar system outward, and now affects the key routes of the TTC’s network.

Somebody made decisions over the years that led to declining maintenance on the rail systems. This was never presented to the TTC Board or Council explicitly, but was the inevitable effect of making do year-by-year with cuts to the Operating and Capital budgets. Three decades ago during a recession and funding cuts, TTC management claimed that they could get by without compromising the system. The parallels are far too clear, and that era’s result was the Russell Hill subway crash.

The term “State of Good Repair” (aka “SOGR”) comes up a lot in TTC budgets as a key component – maintain what we already have, ensure that the system continues to provide safe, reliable service and only then worry about spending on shiny new projects.

A report making its way to Council’s March 20 meeting includes a rough prioritization list of many rapid transit proposals, but the first priority above all is to invest in SOGR. However, the backlog on that account is so big that were this priority taken seriously, Toronto would never have another penny to spend on anything else.

One problem in discussing SOGR is that there is much emphasis on the Capital Budget with big ticket projects like new subway cars and buses, automatic train control, electrification, and replacement of major items such as track, escalators and elevator. We rarely hear about the SOGR buried in the Operating Budget and the day-to-day work of keeping the system in good condition.

An important difference is that the Operating Budget is funded by fares and City subsidies, while the Capital Budget comes from taxes and borrowing at all levels of government. As an example, the cries for Line 2 subway car funding are familiar in recent years. This diverts attention from much-needed ongoing repairs, a very unglamourous part of transit operations.

Spending on operations means money goes out the door today, not in future years for a project that might only now be a line on a map. That money comes from current revenue, not from borrowing, and directly affects taxes and fares depending on which pocket we reach into. There is a lot of competition for whatever spare change we might find.

Any decision to limit tax increases for transit or to freeze fares has a direct effect on how much service the TTC can operate and how well it can maintain the system. Under the Ford and Tory administrations and their low tax policies, there was very strong political pressure to say “we can make do” with no detailed examination of the effects.

This might change under Mayor Chow, but there is no indication that the current TTC budget philosophy has shifted. Indeed, the big push is to restore service and freeze fares. Raising uncomfortable questions about maintenance shortfalls will not serve that agenda.

In this article, I will review the issues with subway and streetcar infrastructure, and then turn to the wider problem of whether “State of Good Repair” can stay as the City’s “priority 1” in the face of typical Council politics. The focus here is on track because that links many current events on the three rail networks, but the concern should be general for the adequacy of TTC maintenance and budgetary limits that are now baked in to overall system quality.

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The Bay Trolleybus in 1988

Back in 1987-88, I photographed the Bay trolleybus a lot. The route was threatened for a time by a proposed one-way pairing with Yonge Street, and the south end of the route went out of service for construction of the Harbourfront line.

Looking at these photos 36 years later, two things are quite striking: the changes all along the route where the canyon of newer buildings had not yet materialized, but also the frequency of service. Getting shots with two or three buses at a time was easy, far different from today when the service is infrequent with the “best” being a 14-minute PM peak headway, and 20-30 minutes at other times. This route saw a vicious downward cycle of riding loss and service cuts, and now is simply not worth waiting for.

For a history of the route, see the Transit Toronto site.

The route’s conversion to trolleybus was an offshoot of the 1972 decision to retain streetcars. The surplus TBs from 97 Yonge, released when the subway extension to York Mills opened, were originally intended for the St. Clair streetcar route, although the proposed service level would have been worse than the streetcars to be replaced. The Streetcars for Toronto advocacy group (which I chaired for a time) pushed for deployment of the surplus TBs on Bay given its frequent service and downtown location well placed to use the existing power distribution infrastructure. (A less obvious motive was to eliminate a potential threat to any other streetcar lines with the TBs looking for a home.)

The galleries below run from south to north along the route with photos from Fall 1987 and Spring-Summer 1988. Photos of 9200, the first production bus of the “new” TBs, are from a fan excursion.

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The Priority of Transit Corridors

Anyone who has watched the transit “planning” debates at Council or at the TTC will know that various schemes for higher order transit pop up from time to time, but they are rarely considered as a set, let alone compared to each other. The basic premise is “my ward deserves …” and there ends the detailed evaluation.

In the context of the Fords first at City Hall, and now at Queen’s Park, we got a whole map that was, at least allegedly, the Mayor’s or Premier’s own creation. Tunnels figured prominently regardless of the vehicle that might run through them.

The big plan may take some major projects out of discussion, but this leaves many more ideas competing for funding and attention. Which should be retained, added to or removed from the Official Plan (OP)?

A report at Toronto’s Executive Committee on February 29 makes a first, very rough attempt at answering this question.

Twenty four projects were evaluated to measure their contribution to the City’s various goals for transit spending, city improvement and equity. The actual scoring system attempts to provide a fair, if early, comparison, but the level of abstraction in the process will confuse more than it enlightens. (I will go into this in more detail later in the article.)

The list of projects was compiled from the existing OP, schemes that Councillors have promoted over the years, and a few busy bus corridors. An important product of the exercise will be to update the OP to match current priorities, and to adjust the map of target road widths to protect corridors where a surface right-of-way might be needed.

After the scores were brewed, the projects were sorted into quintiles with the highest being the most promising and the lowest likely to remain on the shelf. The report stresses that the rankings are relative and that a low score does not necessarily mean a project has no value, merely that others perform better.

This will not please advocates of the lower-ranked projects such as the Sheppard subway extensions east from Don Mills and west from Yonge, the Ontario Line extension to Dundas West, the Line 2 Sherway extension, and the Waterfront West LRT. Whether the affected Councillors will attempt to have the priorities, and hence the focus of further study, shuffled, and whether Council will approve, remains to be seen.

It is easy to vote for a request to look at a single project in isolation, some day, maybe. Much more difficult is to try juggling a priority list when the City has finite resources to study or build anything. Another problem is that development does not necessarily follow transit plans, and can be affected by access to expressways.

This map shows the location and status of the projects, and shows those that are not already in the OP:

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TTC Board Meeting: February 22, 2024

The TTC Board met on February 22 with what appeared at first glance to be a light agenda. In fact the meeting ran on into the early evening. Various items were discussed including:

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The Unhappy State of SRT Track

On July 24, 2023, at about 6:43 pm, a southbound SRT train derailed south of Ellesmere Station after snagging the reaction rail. This event lifted the rear truck of the car off of the track and also caused it to break away from the rest of the train.

The detailed investigation reports were quietly posted on the TTC’s website, and I wrote a summary of them at the end of January:

I filed a Freedom of Information (FOI) request with the TTC at the beginning of 2024 for “track inspection reports and work orders” for the SRT between June 1 and August 31, 2023. The reason for the extended cutoff date was to pick up any inspections and repairs that took place after the derailment.

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A Ridership Growth Strategy for 2024

Introduction: Regular readers of this site will recognize threads and arguments from past articles here. Indeed some recent posts were intended as background to this overall article on our city’s transit direction. There is a new Mayor with Council support for change. However, we risk that momentum will be lost and content ourselves with “full service restoration” and a handful of RapidTO projects.

This is not exactly a manifesto, but we have been here before with hopes for new and improved transit seeking progress beyond “business as usual”. Will this round be any different?

Thanks to readers for tweaks in the text. This is a long article, and I have broken it into segments with hotlinks here so that you can jump to specific chapters.

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Overcrowding on TTC Bus Routes

An ongoing issue with TTC service levels is that TTC claims about crowding do not always appear to align with rider experiences.

The TTC Board’s February 22 agenda includes a report about proposed free transit for Middle and Secondary School students, particularly for group field trips.

See: A Step Towards Free Transit for Middle and High School Students

Among the issues raised by the report is the ability of the transit system to handle the additional loads, and the need to co-ordinate planned outings with the TTC for provision of extra service. There is a map showing existing “hot spots” where mid-day routes are over capacity.

Many bus routes have this problem, but none of the streetcar routes.

A related issue is the degree to which crowding varies by day-of-week and the danger that Monday-Friday averages could mask problems with midweek demand levels.

Of particular note here is that the off-peak capacity shown is 35 per bus, not the higher value introduced with the 2023 budget that is close to a standing load. The heat map shows us where current operations exceed the 2023 standard, i.e. those over 100% occupancy vs a bus capacity of 35. Note that these are six-hour averages and individual bus loads will vary.

This also shows the scale of service changes required to reinstate the pre-2023 standard.

Here are the official Service Standard crowding levels and those implemented in the 2023 Operating Budget. The TTC Board has never formally change the Service Standards, and management plans to work back to the existing standards from the 2023 levels as part of future service and budget planning.

Service Standards Peak2023 PeakService Standards Off-Peak2023 Off-Peak
Bus50503545
Streetcar1301307090

The TTC produces a lot of charts in their monthly CEO’s report, but crowding maps like this one showing actual conditions only appear to support analyses of specific issues. They should be a standard part of the CEO’s Report so that there is an up-to-date indication of service capacity versus demand for all time periods.

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Honest Budgeting Needed At TTC

This article began as a Twitter/X thread responding to a post from Mayor Olivia Chow.

From the better way to the *best* way. This budget will restore 97% of pandemic-era TTC service cuts and get the city back on track.

There is a big problem with this claim, and I fear riders will be disappointed by what they actually see. Here is my consolidated thread.

It pains me to write this, but this post by Mayor Chow is simply not true. Either her spin doctors cannot read a budget, or she has been bamboozled by TTC’s misleading use of “restoring” service.

This chart is right out of the TTC budget and shows the planned service restoration by mode. Note that only the bus network gets back to 100%.

Because the values are based on vehicle and train hours, and buses (with relatively small capacity per vehicle) account for most of the hours, the total gets to 97% while leaving streetcars and the subway far behind.

But 97% is not really 97% as seen by riders. Many routes run more slowly than they did in 2019, and so it takes more hours to provide the same frequency and capacity of service.

For added clarity, “100%” of service hours will *not* reverse all pandemic era cuts because some hours go to routes running over 100% while others stay below that level. But spin doctors don’t do pesky details like that.

On top of that, crowding standards brought in by management without advance approval in 2023 mean that off peak service can be more crowded before triggering service improvements. These might be reversed in 2025 but only if there is budget headroom.

Talk about prepandemic service levels forgets that there were major problems with overcrowding and inadequate service back in 2019. Actual planned service in 2020 was higher than 2019, but was cut due to covid.

The shift in commute patterns means that total ridership is less than 2019 levels, but it is concentrated on a shorter work week. Off peak riding is already at or above former levels.

The TTC does not break out service frequency and capacity as metrics, but using vehicle hours hides deeper cuts in these areas.

The February 18 schedule changes include cuts on many routes which are described as “adjustments” on the TTC’s website. A few of these are erroneously called “improvements”.

One reason for the February cuts is that service in January was actually *over* budget and the cuts back that out.

The TTC has no public measurement of crowding conditions and service quality including gaps and bunching. That 97% number will be broadcast far and wide, but will hide many problems.

Service Budgets

For comparison, here are the 2019, 2020 (pre-covid) and 2024 service budgets. The important column is the third from the left, “Regular Service Total”.

For a comparison of January 2024 service levels to January 2020, see this article:

There is work to be done, and a vital first step is to understand just what is needed and what is possible. The TTC Board plans a strategy session in March, and their Budget Committee will probably start meeting in June-July.

Soon I will publish an article about a Ridership Growth Strategy for 2024 that will set the stage for the kind of debate that should be on the agenda.

Can we hope that these meetings will not be consumed by self-serving management dog-and-pony shows, but rather will be an open discussion of the state of and options for our transit system.