HomeMy WebLinkAboutINS-19-009 - Winter Sidewalk Maintenance ReviewREPORT TO:Community and Infrastructure ServicesCommittee
DATE OF MEETING:May 13, 2019
SUBMITTED BY:Niall Lobley,Director,Operations -Parks and Cemeteries,
519-741-2600 ext. 4518
PREPARED BY:Faranak Hosseini, TransportationPlanning Project Manager,
519-741-2200 ext. 7665
WARD (S) INVOLVED:All Wards
DATE OF REPORT:May 2, 2019
REPORT NO.:INS-19-009
SUBJECT:Winter Sidewalk MaintenanceReview
___________________________________________________________________________
RECOMMENDATIONS:
That staff be directed to conduct a review of the required level of service stated inBy-law
chapter 687 (Snow and Ice) as outlined in program component 1 of Report INS-19-009,
throughout summer 2019 and report backinfall2019 with results and recommendations;
That staff be directed to conduct a pilot to evaluate the initial clearing for 8cmsnow events
program as outlined in program component 2 of Report INS-19-009 throughout winter
2019/2020 and report back by May 2020 with results and recommendations;
That staff be directed to develop priority route options as outlined in program component
3 of Report INS-19-009 and report back by May 2020 with results and recommendations;
That staff be directed to extendthe proactive inspectionpilot asoutlined in program
component 4of Report INS-19-009throughoutwinter 2019/2020 and report back by May
2020 with results and recommendations;
That staff be directed to extend the assisted servicesfor sidewalkand windrowclearing
pilotasoutlined in program component 5of Report INS-19-009throughout winter
2019/2020 and report back by May 2020 with results and recommendations;
That staff be directed to monitor and further evaluate the neighbourhood shared snow
blower pilot asoutlined in program component 6of Report INS-19-009 throughout winter
2019/2020 and report back by May 2020with results and recommendations; and,
That staff be directed to conduct a representative valid survey asoutlined in program
component 7of Report INS-19-009 and report back by May 2020with results and
recommendations.
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EXECUTIVE SUMMARY:
Background
Recognizing the importance of providing year-round safe andaccessiblesidewalk conditions to
support active transportation and environmental objectives, the Council requested staff to prepare
a report outlining alternative winter sidewalk maintenance options.In early 2018,staff initiated the
Winter Sidewalk Maintenance Review and through this review,winter sidewalk maintenance
programoptions weredevelopedand presented to Council in June 2018. The programs approved
by Council namely: Proactive Inspection, Assisted Services for Sidewalk and Windrow Clearing,
and Neighbourhood Shared Snow Blowerwere implemented and evaluated in the 2018/2019
winter season. This report presents the results of the program evaluation,and recommends seven
program components to be carried forward.
PilotsEvaluation Results
Staff evaluated the effects of the proactive inspection on sidewalk conditions through quantitative
and qualitative data analysis. On the basis of the past winter pilot, the proactive approach to by-
law enforcement, which includes the high profile communications strategy supporting this,
appears to have worked. In the 2018/2019 winter season, fewer notices and clearings were
required compared to what was expected based on the past five year trend.This improvement
can be attributed to the proactive inspectionpilotand the raised awareness aroundthis program.
Staff evaluated the effectsof the assisted services for sidewalk and windrow clearing through
targeted surveys. The evaluation indicates that the program was stronglysupported by those that
received the service. It was run successfully via the Working Centre and was fully subscribed.
Staff evaluated the effectsofprovidingcommunitysnow blower grants on sidewalk conditions
through targeted inspections and surveys.The evaluation results showedcommunity benefits in
most instances where grants were awarded. The inspections showed that the snow blowers were
not effective in reaching the bare pavement requirement especially during ice events. The
program was supported by those that received the service. However, despite being limited in
scope, staff were unable to encourage communities to apply for the program which resulted in
awarding eight grants out of the 10grants.
Public Engagement Results
During this winter season through media, social media and the Engage platform, the City became
awareof the following:
There isastrong desire,based on the comments received,for the City to undertake
maintenance ofsidewalks.
Residentshave expressedconcernson relying on an enforcement approach against a
standard that is perceived as unrealistic to be achieved by residents.
Residentshave requested more communications andsimplermeans to reportuncleared
sidewalks.
While useful as an indicator of public opinion, these platforms do not provide a statistically
representative sample of the Community.
pg. 2
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Recommendations
By taking into account the results of the pilot evaluation, stakeholder interviews, and public
engagements, sevenrecommendations have been identified to further inform discussions about
the winter sidewalk maintenance program for the 2020/2021 winter season and beyond.
Component 1: Review the Required Level of Service Stated inBy-lawChapter 687.
Component 2: Evaluate the Initial Clearing for 8cm Snow EventsPilot.
Component 3: Develop Priority Route Options.
Component 4:Extendthe Proactive InspectionPilot.
Component 5:ExtendtheAssisted Services for Sidewalkand Windrow Clearing Pilot.
Component 6: Continue to Monitor the Neighbourhood Shared Snow Blower Program.
Component 7:Conduct a Statistically RepresentativeSurvey.
BACKGROUND:
The City of Kitchener is moving towards a more balanced and holistic transportation network that
accommodatesallroadusers regardless of age, ability or mode of transportation.Over the past
decade, the City of Kitchener has developed and approved a number of guidelines and policies
(summarized in Appendix A)to shift the automobile dependent transportation network to a
multi-modal network where walking and cycling are viableand safemodes of urban travel.One
of the key components towards this shift is maintaining passable and safe sidewalk infrastructure
year round.
-modal transportation network and resident feedback
during ongoin
practices was approved and initiated in 2015.The results of this review werepresented to Council
in 2016 (Report INS 16-087) which recommended that existing winter sidewalkmaintenance
practices be maintained until the changes to the provincial minimum maintenance standards were
adopted. The revisions to the minimum maintenance standards were released late winter 2018
and adopted by the province, triggering the City to conduct reviewof winter maintenance
practices, in particular winter sidewalk maintenance.The results of this review werepresented to
Council in June 2018 (Report INS 18-023) and recommended pilot programs to be implemented
and evaluated in the 2018/2019 winter season. Council approved the implementationof three
pilotsand deferred consideration of threepilots to May 2019.This report presents the analysis
and results of the approved pilot programs evaluation, and provides recommendations to improve
and further analyze
REPORT
This report reviews past efforts regarding improvements to
practices, presents the analysis and results of the pilot programs evaluation, and provides
recommendations and options for the 2019/2020 winter seasonand beyond.
2016 Staff Report INS 16-087
In 2016,staff submitted report number INS 16-087to the Community and Infrastructure Services
Committee. This report provided evaluation of the impact of city-wide sidewalk snow clearing
pg. 3
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practices and reviewed the maintenance practices used in other municipalities.The review of
municipalities that haveimplemented city-wide sidewalk snow clearing identifiedthe following:
Service levels variedamongst municipalities;
Sidewalkswere typically maintainedto snow packed conditions,and clearingwas
initiated atspecific snow depth triggersranging from 2.5cmto 8 cm;
Resident complaints increased following the implementation of city-wide programs; and,
It is critical that expectations are managed regardingthe level of service that should be
reasonably expectedwhere municipalities take on the responsibility of sidewalk clearing.
In report INS 16-087 Council approvedthat existing winter sidewalk maintenance practices be
maintained until the changes totheProvincial Minimum Maintenance Standardswere adopted
and impacts of these changes could beconsidered.
2018 Staff Report INS 18-023
In 2018, staff submitted report number INS 18-023 to the Community and Infrastructure Services
Committee. This report recommendedthe following programcomponentsto be piloted and
evaluated during the 2018/2019 winterseason.
1.Proactive Inspection:This componentrecommended thatproactive enforcement
officerswould be responsible for monitoring and inspecting various clusters of properties
after each snow and/or ice occurrence. The cost of this program was estimated at
$170,000 for fourofficersper winter season.
2.Initial Clearing for 8cm Snow Events:This componentrecommended that through
contracted services the City would providesidewalk clearing for all sidewalks after snow
events of 8cm or more within a targeted 24 hour period. The total cost of this pilot
program was estimated at $67,500 for 40 km of sidewalkper winter season.
3.Full Winter Maintenance Service of all Sidewalks:This componentrecommended that
with in house resources, the City would provide winter sidewalk maintenance clearing for
all sidewalks, forall snow and ice occurrences, withina24 hourtarget. The cost of this
pilotprogram was estimated at $179,000 for 40 km of sidewalkper winter season.
4.Pavement Weather Sensors:This componentrecommended that sensor solutionsbe
designed to measure pavement surface conditions to improve data collection, evaluation
and prioritization. The cost of this pilot program was estimated at $82,000 for twosensors
including supply, installation, data management,andtwoyear annual maintenance.
5.Partnership Grant:This componentrecommended sidewalk and windrow clearing for
eligible residents including those unable to afford private snow clearing services and
living with a disability and/or over 65 years of age.The cost of this program was
estimated at $25,000 per year.
The above mentioned pilot programs were presented to Council in June 2018. Pilot programs 1
and 5 were approved by Council tobe implemented and evaluated during the 2018/2019 winter
season. In addition to pilot programs 1 and 5, Council introduced and approved the
program. A $500grant toward a purchase of a shared
pg. 4
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snow blower was provided. Up to10snow blower applications wereapproved that could be
awarded to eligible groups of neighbours with at-least four membersin a neighbourhood.
WinterSidewalkMaintenance Practices
The City of KitchenerParks and Cemeteries Divisionmaintains sidewalks throughout the winter
seasonfor all City owned properties and back-lotted properties.These sidewalks cover 216 km
out of 1,202 kmof total sidewalks(17.6%) available across the city.These sidewalksare usually
plowedwithin24 hours after cessation of snowto meet the existing by-lawrequirements. In an
average winter, the City uses approximately 1,134 tonnes of salt(5.25 tonnes per km)to treat
these sidewalks. The current annual expenditure for this practiceis $1,199,000 per year($5,550
perkm per year)on average(2016-2018).
Sidewalks in the downtown areas arealsomaintained by the City and funded through special
by-law taxation to downtown properties.There is approximately12 kmof sidewalks in the
downtown area which are consistentlymaintained to bare concrete through multiple visitsduring
a 24 hour period. In an average winter, the City uses approximately 177tonnes of salt (14.75
tonnes per km) to treat downtownsidewalks and the current annual expenditure for this practice
is$220,085per year($18,340perkmper year)on average (2016-2018).
All other sidewalks within the city are maintained throughout the winter by property owners as set
-law Chapter 687 (Snowand Ice). Chapter 687 requires property
owners to clear snow and ice from sidewalk(s) adjacent to their property within 24 hours after
cessation of snow.
In addition the City also promotesthe snow angels program.In this program, the City of Kitchener
administers an awareness campaign and recognition opportunity for Snow Angels. Snow Angels
are residents who self-organize to shovel snow for neighbours in need of assistance.
2018/2019 WinterSeason Pilot Programs
During the2018/2019winterseasonthe following additional programs were implemented as
part of the approved pilots.
Proactive InspectionPilot:Introducedand pilotedinthe 2018/2019 winter season, by-
law officers proactively inspectedsidewalks citywide. If a sidewalk wasnot cleared of
snow and ice, a by-law officer would leave a one-time notice at the property and return
within 24 hours. If the sidewalk was still not adequately cleared, the city would clear it and
invoice the property owner. The invoice amount dependedon the lengthof the sidewalk
and the duration it tookthe contractor to remove ice and snow.
Assisted Sidewalk and Windrow Clearing ServicesPilot(approved as the
:Introduced and piloted in the 2018/2019 winter season,the City of
Kitchener collaborated with the Working Centre for sidewalk and windrow snow clearing
for residents living with a disability and/or over 65 years of age andunable to afford
private snow clearing services. The pilot program waslimited to 50 properties.
pg. 5
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Neighbourhood Shared Snow Blower Pilot:Introduced and piloted in the 2018/2019
winter season, the City of Kitchener provided $500 grant funding for groups of residents
with four membersor moreliving in the same neighbourhood. The $500 grant wasto
purchase a shared snow blower. This pilot program was limited to 10 grant applications
for the season.
Winter 2018/2019 Weather Conditions Review
Summary:Sinceweather conditions area major contributing factor to the pilot evaluation, this
section compares the weather conditions of the 2018/2019 winter season with the average of the
past five winter seasons. The analysis shows that thenumber of snow eventsand the average
temperatureof the 2018/2019 winter seasonweresimilar to thepastfive year trend. Key
differences were thata deep freeze to thaw cyclewas experienced.Thisled to extensive icebuild
up, a greater amount of freezing precipitation, and an overall decrease in the number of days
where deep snow lay on the ground.
Figure1compares the average temperature of each day of this winter season to the
average temperature of each day of the past five winter seasons. Thisshows that on
average the 2018/2019winter season experienced similar average temperatures to that of
the past five years. Howeversignificant local temperature fluctuations haveoccurred
especially in late January and early February,which can beattributedtothe 2018/2019
winter seasonfrequent thaw and freeze events, the freezing rain events,andice build up.
Based on the projections inthe changing climate of the Waterloo Region study
(AppendixB), this trend is expected to continue and worsen,with estimates up to 40%
more freezing rain events by 2050.
Figure 2compares both the number of snow events and the number of days with snow on
the ground of the 2018/2019 winter season, to the average of the past five winter seasons.
This figure shows that the 2018/2019 winter season experienced a similar number of snow
events compared to the average number of snow events of the past five winter seasons.
The figure also shows that this winter experienced similar number of days with more than
2 cm of snow on the ground, but less days with more than 8 cm of snow on the ground.
This difference can be another indicator of the thaw and freeze events of the 2018/2019
winter season.
pg. 6
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Mean Temp (°C) Winter 2014-2018Mean Temp (°C) Winter 2018/2019
12.00
10.00
8.00
6.00
4.00
2.00
0.00
-2.00
-4.00
-6.00
-8.00
-10.00
-12.00
-14.00
-16.00
-18.00
-20.00
-22.00
Figure 1: Weather Conditions EvaluationAverage Temperature
Average of Winters 2014-2018Winter 2018/2019
74
6969
54
DAYS
13
12
44
SNOW >2 CMSNOW >8 CMSNOW ON GROUND >2 CMSNOW ON GROUND >8 CM
Figure 2:Weather Conditions Evaluation Snow Events
Proactive InspectionPilot Evaluation
Summary:The main purpose of this pilot program was to evaluate the effect of proactive by-law
enforcement on sidewalk conditions during winter. On the basis of the past winter pilot, the
proactive approach to by-law enforcement, which includes the high profile communications
strategy supporting this, appears to have worked. In the 2018/2019 winter season, fewernotices
andclearings were required compared towhat was expected based on the pastfive year trend.
Four proactive officers were temporarily hired to each inspect a specific areawithin the City.For
the purpose of the pilot, 40cluster areas (four in each ward) were selected with each area
containing 50properties. These cluster areas were selected based on thefollowingcriteria:even
distributionthrough each ward, continuous sidewalks for efficientinspection,and proximity to
schools,parks,and key connections.After circulating each of the cluster areas once, the officer
would circulate through each area for a second time later in the season to track changes in
sidewalk conditions.Where possible the officers would identify residents who required assistance
pg. 7
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and provided contact information for supportincluding the assisted services program.The pilot
was in place for a duration of five months from November 15, 2019 to April 15, 2019.The pilot
program cost atotal of $170,000 for the season.
During the inspection process, the officer would visually inspectsidewalks, and in cases where
sidewalkswerenot adequately cleared to the by-law maintenance standard, the officer would
issue a one-time notice. The officer would then return after 24 hoursand if the sidewalk was still
not adequately cleared, itwould be sent for clearing. At the time of arrival for clearing,if the
sidewalk had still not been cleared, the sidewalk would be cleared and the property owner would
be invoiced.These events were logged by the officers for pilot evaluationpurposes.
As shown in Table 1, as a result of the proactive inspectionpilot, 2,350 properties were inspected
and atotal of 480 notices were issued. Out of 480 notices, only three addresses were sent for
clearing,which is 0.6% of the notices issued and 0.1% of thetotal properties inspected. The data
also showed that less than 1% of the properties that received notices during the first round of
inspections, were not in compliance withthe by-law in the second round of inspections.
Table 1Proactive InspectionResults
Number of InspectionsNumber of NoticesNumber of Sent for Clearing
2,3504803
To further evaluate the impacts of the proactive inspectionon sidewalk conditions during the
2018/2019 winter season, the complaint-triggered (reactive enforcement)inspections data
was analyzed.
Figure 3compares the number of complaint-triggered inspections of the 2018/2019 winter season
to the average of the past five winter seasons for both the city maintained sidewalksand non-city
maintained sidewalks. The comparison shows a 72% increase in the number of complaint-
triggered inspections on non-city maintained sidewalks. However this increase can be attributed
to the raised awareness and icy weather conditions since the city maintained sidewalks also saw
a 59% (102 to 162) increase in the number of complaint driven inspections. This increase
happened while the maintenance practices on the city maintained sidewalks remained unchanged
from the previous years.
pg. 8
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Average (2014-2018)Winter 2018/2019
3500
2879
3000
2500
2000
1672
1500
1000
500
162
102
0
City Maintained SidewalksOther Sidewalks
Figure 3: Inspections completed in the 2018/2019 Winter Season vs the Average of the Past Five (5) Years
The complaint-triggered (reactive enforcement)notices and addresses sent for clearing data
was also analyzed to evaluate the effectof the proactive inspectionon sidewalk conditions during
the 2018/2019 winter season.
Staff developed amodelto predict the number of notices issued and addresses sent for clearing
for the 2018/2019 winter season. This prediction is based on the previous 5 year trend, and
assumes no change to by-lawenforcement (i.e. no proactive enforcement).Figure 4compares
the number of actual noticesissuedand addresses sent for clearinginthe 2018/2019 winter
season,to the predictednumber of notices andclearingsbased on the past five year trend. Based
on this model 1,794notices and 231clearingswerepredictedforthe 2018/2019winter season.
Howeverthe actual number of notices issued in the 2018/2019winter seasonwas1,130 and 156
properties were sent for clearing.
This comparisonshows a 37% reduction in the number of notices and a 32% reduction in the
number of clearings.This can be attributed to the proactive inspectionpilot and the raised
awareness around this programdue to extensive communication.
2018/2019 Actual2018/2019 Predicted
156
Addresses Sent
for Clearing
231
1130
Notices Issued
1794
0200400600800100012001400160018002000
Figure 4: Notices Issued and Sent for Clearing in the 2018/2019 Winter Season vs the Average of the Past Five (5)
Years
pg. 9
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Key lessons learnt from this pilot program are as follows:
The effectivenessof this program is closely correlated with the expected/required level of
servicestated in the by-law. Since the bare pavement requirement was difficult to
achieve, especially during ice events, it resulted incitizen complaints and dissatisfaction.
Implementing this program in conjunction with a change in the expected/required level of
service and/or setting exceptions on days where bare pavement is difficult to achieve
wouldlikelymake the program less contentious.
For the purpose of the pilot, the by-law officers needed to travel set routes on footto
inspectsidewalks.Thispractice significantly constrainedthe number of inspected
properties.The inspection practicein future should attemptto maximize thenumber of
inspected properties and cover a greater number of properties in the City.
From the pilot experience, officers using discretion to target worst offenders was identified
as a way to improve the efficiency and effectiveness of the program.
Any potential change to the by-law could haveimpacts on the effectiveness of enforcement
activities (for example, if a less strict level of service introduced room for greater
interpretation of the standard).
Assisted Services for Sidewalk and Windrow ClearingPilotEvaluation
Summary: The implementation of an Assisted Services program was widely supported both by
the community and those that received the service. It was run successfullyvia the Working Centre
and was fully subscribed.
The purpose of this pilot was toevaluateprovidingassisted sidewalk and windrow snow clearing
services,free of charge,toresidentsliving with a disability and/or over 65 years of age, andunable
to afford private snow clearing services.This pilotwascarried out in collaboration with the Working
Centre and was fullyfunded by the City of Kitchener. The totalcost of the pilot was$26,700.
A capacity of 50 properties wasconsidered for the purpose of thepilot.Out of the 50vacancies,
20 of them were keptreserved forthe householdswho received aninfraction noticethrough the
-law program and were eligible.When the first 30 vacancies were full, staff still
encouraged eligible applicants to register for the waiting list to help estimate the demand for this
service. This resulted inidentifying another 50 eligible applicantsin addition to those already
enrolled in the program.
To evaluate the performance of this pilot, all the households who were enrolled in the program
were requested to be interviewed and surveyed inlate March2019.The surveyinquired about
their experience with the program andareas of potential improvement. The survey had a response
rate of 80%. Figure 5shows that overall 90% of the respondents rated the program from good to
excellent, 88% of the respondents rated theresponse time and quality of the work from good to
excellent, and 83% of the respondents rated the application process from good to excellent. The
survey questions are provided in AppendixC.
pg. 10
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Excellent Very Good Good Poor
Program in General
40%17%33%10%
Excellent Very Good Good Poor
Quality of Work
32%16%42%10%
Excellent Very Good Good Fair Poor
Response Time
30%23%33%3%10%
Excellent Very Good Good Fair Poor
Application Process
50%11%22%11%6%
Figure 5: User Survey Assisted Services Pilot Program
Considering the close involvement of the Working Centre in this pilotthey were also interviewed
to receive feedback. It was identified that the Working Centre is generally happy with continuing
to collaborate with the City on this program. However, they can only support up to a maximum of
100 properties for the winter season of 2019/2020. It was also identified that the initial estimated
costs were lower than the actual costsand may need to adjust the costsby approximately 20%
for the next winter season.
Lessons learnt from this pilot program are as follows:
of income
was requested fromthe applicants. This year an honor system approach was taken in
enforcing the application criteria. If this pilot is extended this approach will no longer be taken
and the income criteria will be evaluated using information already available that are being
used on other programs within the City to determine income thresholds.
Based on discussions with the Working Centre, the cost for the program is estimated to be
higher than the pilot year.For a possible future adoption,other delivery mechanisms maybe
exploredto reduce operational costs.
Top feedback received from the program wasabout simplifying the application process for
seniors,such as enabling paper applications and providing clear contact information. It was
also understood from the survey that the City should more clearly communicate what the
service includes (i.e. sidewalk and windrow only).
Neighbourhood Shared Snow BlowerPilot Program
Summary:The purpose of this pilot was to evaluate the effect of providing snow blower grants to
communities on sidewalk conditions during winter. Despite being limited in scope, staff were
unable to encourage communities to apply for the program. Where applications were made they
pg. 11
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were all successful and there appeared to be community benefit in most instances where grants
were awarded.
In this pilot program, the City offered a grant fund of $500towards the purchase of a shared snow
blower.Groups of residents,with a minimum of four group members,living in the same
neighbourhood were able toapply for this program. A cap of 10 grants was considered for the
purpose of this pilot.
Despite the wide scale communication around the pilot program, only eight eligible applications
were received for the 2018/2019 winter season. The properties enrolled in this program were
inspected twice(24 hours after cessation of snow to evaluate the effectiveness of this pilot) during
the winter season. Seven out of eight groups appeared to have used the snow blower to clear
their sidewalks. Five out of eight cases had provided good community benefit for the
neighbourhood. However, the snow blowers were observed to not be able to clear the sidewalks
up to the City of Kitchener By-law standard of bare concrete,and were not effective in eliminating
icy conditions.
each group enrolled in the program wasrequested tofill out a shortsurveyin late March 2019.
The aim of the survey was to capturetheir experience with the program and areas of potential
improvement.Figure 6shows that overall 100% of the respondents rated the program from good
to excellent, 100% of the respondents rated the application process from good to excellent,and
88% of the respondents rated the cooperation with the neighbours from good to excellent. The
most common feedback was that the amount of the grant was not enough to cover the capital and
maintenance costsof the shared snow blower.The survey questions are provided in AppendixD.
Excellent Very Good Good
Program in General
50%38%12%
Excellent Very Good Good
Application Process
50%38%12%
Excellent Very Good Good Poor
Working with the
44%31%13%12%
Neighbours
Figure 6: User Survey Neighbourhood Shared Snow Blower Program
SurveyResults
In order to gain public feedback on the2018/2019winter sidewalk maintenance pilots, threeonline
surveys were released on the Engage Kitchener website. The first survey was released in
November 2018 in conjunction with the start of the proactive inspectionpilot program. This survey
was available until early February 2019 to receive initial feedback. A second survey was released
early February for one month to receive feedback on all three winter sidewalk maintenance pilot
programs. A third survey was released early Aprilfor two weeksto gain feedback on the overall
pg. 12
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experience regarding the wi
opinion on the main areas of focus,and potential improvements for the futurewinter seasons.
During the first, second and third survey, a total of 87, 424, and 139responses were received
respectively. Participating in the survey required email registration in order to reduce duplicate
responses and help prevent bias in the results. The surveys conducted were not representative
surveys of the entire population,thereforethe results may be skewed and/or biased toward certain
typesof opinions.Below are the main highlights from thesurveys.
23% of respondents believed that the sidewalk conditions had improved as a result of the
proactive inspectionprogram. 63% of the respondents believed that the sidewalk
conditions remained unchanged as a result of this pilot. 14% of the respondents were
unsure about the impact.
58% of the respondents believed that the proactive inspectionshould be continued with
increased or the same amount of resources. 42% believed that the City should allocate
less resources to this program or discontinue the program.
77% of respondents were supportive of the assistedservices for sidewalk and windrow
clearing pilot. 17% of the respondents were indifferent and 6% were opposed to the
program.62% of the respondents believed that more resources should be allocated to this
program.
43% of respondents were supportive ofthe neighbourhood shared snow blower program,
31% of the respondents were indifferent and 27% were opposed to this program. 25% of
the respondents believed that more resources should be allocated to this program.
A total of 1,194 comments were received through the three surveys. A review of all the comments
received demonstratesthe following:
63% of the respondents were in favor/requested that the City be responsible for clearing
all sidewalks and/or increase its focus and resources in this regard.
31%of the respondents emphasized the need for proactive by-law officers to use more
discretion,and/or that the bare pavement requirement isunrealistic and not always
achievable.
17% of the respondents requested more communication regarding the pilot programs,
specifically the assisted services and shared snow blower pilots.
17% of the respondents requested for simpler ways to report an unclear sidewalk.
12% of the respondents requested more enforcement focus be put on high pedestrian and
high infraction areas.
11%of the respondents requested the enforcement to be increased and faster response
times to complaints.
pg. 13
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Winter Sidewalk Maintenance Recommendations and Options
As stated earlier in the report, in June 2018,Council approved the implementation of three pilots
(i.e. proactive inspection, assisted services for sidewalkand windrow clearing, and neighbourhood
shared snow blower) and deferred considerationof threepilots(i.e. initial clearing for 8cm of snow
events, full winter maintenance ofall sidewalks, and pavement weather sensors)to May 2019. By
taking into account the results of the pilot evaluation, stakeholder interviews, and public
engagements, staff suggeststhe followingresponses to the 2018 recommended pilots:
Proactive Inspection: Staff be directed to extend thispilot programthroughoutwinter
2019/2020 and report back byMay 2020with results and recommendations.
Initial Clearing for 8cm Snow Events: Staff be directed to evaluate this pilot program
throughout winter 2019/2020and report back by May 2020with results and
recommendations.
Full WinterMaintenance of all Sidewalks: Staff be directed to develop criteria and select
locations of prioritysidewalks for consideration of an expanded winter sidewalk
maintenance service level based on high priority sidewalks. Existing sidewalk datafrom
city-maintained routes will be used to estimate order of magnitude costs to deliver this.
Pavement Weather Sensors:Staff believe that pavement weather sensors should be
reconsidered pending final recommendations in 2020.
Assisted Services for Sidewalkand Windrow Clearing:Staff be directed to extend this pilot
program throughout winter 2019/2020 and report back by May 2020 with results and
recommendations.
Neighbourhood Shared Snow Blower:Staff be directed to continue to monitor this pilot
programand report back byMay 2020with results and recommendations.
In addition, based on the pilot evaluation results, stakeholder interviews and the public
engagements, staff recommends twonew program componentsas follows:
Review the RequiredLevel of ServiceStated in the By-law: Staff be directed to review the
bare pavementrequirement stated in the By-law. If approved, this work would be
completed during summer and fall 2019. It is anticipated if revisions are required, they are
implemented for the 2019/2020 winter season.
Statistically RepresentativeSurvey: Staff be directed to conduct a statistically
representativesurvey to quantify resident desires,expectations,and level/s of service for
municipal involvement in winter sidewalk clearing. To becompleted throughwinter and
spring 2020 and report back by May 2020 with results and recommendations.
The recommendations above is summarized inTable 2.
pg. 14
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Table 2RecommendationsSummary
Program ComponentJune 2018 Recommendation
Council
Decision
Proactive InspectionApprovedExtend the pilot throughoutwinter
2019/2020
Initial Clearing for 8cm Snow EventsDeferred to Evaluate the pilot throughout winter
May 20192019/2020
FullWinter Maintenance Service of Deferred to Pursue only as a data driven exercise
all SidewalksMay 2019
Pavement Weather SensorsDeferred to Do not pursue at this time
May 2019
Assisted Services for SidewalkandApprovedExtend the pilot throughout winter
Windrow Clearing2019/2020
Neighbourhood Shared Snow ApprovedContinue to monitor the pilot throughout
Blowerwinter 2019/2020
Review the RequiredLevel of NewConduct the review throughout summer
Service Stated in the By-lawand fall 2019
Statistically RepresentativeSurveyNewConduct the survey throughout winter
and spring 2020.
According to the summary illustrated in the table above, sevenrecommendations have been
identifiedto be evaluated/conducted throughout winter 2019/2020.These seven
recommendations are listed below, and further described on the following pages in terms of
objectives, scope, cost, resources and risks. Funding sources of the recommendation
components are identified in the Financial Implications section of this report.
Component 1: Review the Required Level of ServiceStated intheBy-law.
Component 2: Evaluate the Initial Snow Clearing for 8cm Snow Events Pilot.
Component 3: Develop Priority Route Options.
Component 4: Extendthe Proactive Inspection Pilot.
Component 5:ExtendtheAssisted Services for Sidewalkand Windrow Clearing Pilot.
Component 6: Continue to Monitor the Neighbourhood Shared Snow Blower Program.
Component 7:Conduct a Statistically RepresentativeSurvey.
pg. 15
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Program Component 1
Reviewthe Required Level of ServiceStated in By-lawChapter 687 (Snow and Ice)
1.1ObjectiveReview the expected level of service towards a change from bare
pavement to a safe, passable and consistent level of service throughout
the entire city.
Engage and consult the general public and related advisory groups
such as GRAAC, School Board, TriTAG, Age Friendly Kitchener and
Mayors Advisory groups for Kitchener Seniors (MACKS).
Evaluate the results and report back to Council in fall2019.
1.2ScopeThe scope of this recommendation is limited to a review and the result
of this review will not be implemented and/or tested prior to Council
decision in fall2019.
1.3Estimated N/A
Cost
1.4ResourcesCity staff to supervise the project.
City staff to administer and manage the project.
City staff to prepare communication and engagement plans.
1.5RisksThe new definition of the expected level of service may be subject to
interpretation and be more challenging to enforce.
The new standard/by-law may open up the City to liability issues.
With enforcing the new standard/by-law sidewalks could be less
accessible in general which might be a concern to persons with
disabilities.
1.6NotesIn this option, the city staff is only looking for an approval to initiate the
review process. Staff willnot be making recommendationsonthe
expected level of service prior to the review.Staff will report back on the
recommendations during fall,2019.
It is anticipated if revisions are required, they are implemented for the
2019/2020 winter season.
pg. 16
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Program Component 2 Initial Clearing for 8cm Snow Events
1.1ObjectivesIdentify the resource and cost implications of providing sidewalk clearing
services for all sidewalks after snow occurrences of 8 cm or more,
within 24-48 hours through a pilot program on approximately 40km of
representative sidewalk.
Develop process to remediate potential property damage as a result of
city led winter sidewalk maintenance
Collect data on the performance of the pilot
Evaluate the results of the pilot and report back to council in May 2020.
1.2ScopeThe pilot program is intended to only be implemented on 40 km of
representative sidewalk across the City.
This pilot program is intended for snow occurrences of 8 cm or more.
The pilot program is intended to be in place from November 2019 to
April 2020.
1.3Estimated Order of magnitude estimate is $67,500 to contract out clearing of five
Cost(5) 8cm snow events for approximately 40km of sidewalk.
1.4ResourcesThis work will be fully contracted out
City staff to supervise the project
City staff to administer and manage the project
City staff to intake and resolve complaints
1.5RisksContractor performance may not be up to the City standards
The result effectiveness will be dependent on weather conditions and
the number of snow occurrences of 8cm or more therefore may not
result in statistical valid results for the purpose of the pilot
City led winter sidewalk maintenance may result in property damage
As a result of this pilot, sidewalks may not be cleared up to bare
pavement
Selecting pilot areas may be controversial
Supervision resources may not be existing
May be challenging to find a suitable contractor for the pilot
1.7NotesThe selection criteria for the representative40 km sidewalk are as
follows:
It would include different types of sidewalks such as curb face
sidewalks, sidewalks with narrow boulevards, sidewalks with wide
boulevards, etc.
It would include areas with high pedestrian activity such as school
zones.
Comparable programs that foster shared responsibilities at a specific
snow depth threshold were not identified.
pg. 17
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Program Component 3 Develop Priority Route Options
1.1Objective
Develop prioritysidewalk routes through a data driven approach
Identify the selection criteria for the priority routes
Produce an estimated cost associated with winter sidewalk
maintenance on priority routes using information from sidewalks
currently maintained by the City.
Report back to council in May 2020with results and recommendations.
1.2ScopeThescope of this work is limited to a theoretical analysis using existing
data and is not intended to be implemented as a pilot as part of the
evaluation.
1.3Estimated N/A
Cost
1.4Resources
City staff to manage the project
1.5RisksConsidering that this analysis requires large scale data to produce
reliable outputs, there is a risk that all the required data may not be
readily available at the time of the analysis.
1.6NotesN/A
pg. 18
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Program Component 4Extend the ProactiveInspectionPilot
1.1ObjectivesProactive by-law enforcement of sidewalks through winter months
Develop methods to maximize the number of inspected properties
Refine based on lessons learned
1.2ScopeTo engage 4 part time, temporary staff between approximately
November and April each year to proactively monitor for and enforce
compliance with the City sidewalk by-law
1.3Estimated Approximately $140,000.(Note: costs are reduced from June 2018
Costrecommendation based on experience through winter 2018/19)
1.4ResourcesFunding for part time by-law officers (4 month temp position grade 7
step 4)
City staff to supervise the project
City staff to administer and manage the project
City staff to intake and resolve complaints
1.5RisksPublic perception and complaints
Any potential change to the by-law could have impacts on the
effectiveness of enforcement activities (for example, if a less strict level
of service introduced room for greater interpretation of the standard).
By-law officers can only cover a small fraction of the city
1.6NotesIt is important to note that the effectiveness of this program is closely
correlated with the recommended program component 1 Change the
Required Level of Service in By-law.
If approved by Council, based on the year 1 pilot experience, this
program will be refined to maximize the number of inspected properties.
From theyear 1pilot experience, officers using discretion to target
worst offenders was identified as a way to improve the efficiency and
effectiveness of the program.
The City of Waterloo practices a comparable program which includes
two seasonal proactive enforcement by-law officers and shows that
warning in proactive areas have been reduced significantly from 450 in
year one to 200 in year two and to less than 100 in year three. The
second warnings carry a fee of $80 in this program.
pg. 19
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Program Component 5
Extend the Assisted Services for Sidewalkand Windrow ClearingPilot
1.1Objective
Sidewalk and windrowclearing services for eligible seniors 65+ and
residents living with a disability
1.2ScopeService is available city wide
Proof of eligibility would be required
This would cover approximately 50 properties
Explore options to reduce operational costs
1.3Estimated $25,000 per year
Cost
1.4ResourcesContract management
Administration and project management
Complaint intake and resolution
1.5RisksContractor/Working Centreperformance may not be up to the City
standards
Clears only a small portion ofthe network at approximately $500 per
house
1.6NotesBased on discussions with the Working Centre, the cost for the program
is estimated to be higher than the pilot year which may result in a
reduction in the program capacity.
Staff mayexplorea full range of options for delivery of this service. This
will include considering the existing model (through the Working Centre)
and may exploreother potential options (such as a private contractor).
Staff will look for potential added value services throughthese
discussions (such as supporting fixed rate domestic clearing
opportunities for residents in the program).
income was a factor in the eligibility criteria,
no proof was requested from the applicants;an honor systemapproach
was taken in enforcing the application criteria. If this program
component is approved by Council, this approach will no longer be
taken and the income criteria will be evaluated using information already
available that are being used on other programs within the City to
determine the low income threshold.
pg. 20
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11 - 20
Program Component 6
Extend Monitoring of the Neighbourhood Shared Snow Blower Program
1.1Objective
A pilot to evaluate the effectiveness and cost implications of providing
$500 grants towards the purchase of a snow blower to be shared in a
neighbourhood with a minimum of four (4) group members
1.2ScopeContinue to monitor for another year do not provide additional grants.
1.3Estimated N/A
Cost
1.4ResourcesSupervision
Administration and project management
Complaint intake and resolution
1.5RisksN/A
1.6Notes
N/A
Program Component 7Statistically Representative Valid Survey
1.1ObjectiveConduct a statistically representative survey to gain a better
understanding of the general opinion on winter sidewalk maintenance
maintenance program.
1.2ScopeThe survey would be statistically representative of the entire population
of the city.
1.3Estimated Approximately $45,000to be delivered by an independent third party.
Cost
1.4Resources
Supervision
Administration and project management
1.5Risks
Depending on the time at which the survey is conducted the results may
be subject to recall/memory bias.
1.6Notes
N/A
Program Component Locations
Through the 2019/2020winter season, the proposed winter sidewalk maintenance program will
change the level of service within the evaluation areas of ProgramComponent2(initial snow
clearing for 8cm snow events). As identified above, theevaluation area will include approximately
40km of sidewalk. Staff will use historic data as a primary input to determine the most appropriate
locations for evaluation areas. This data includes locations of resident complaints, slip and fall
pg. 21
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11 - 21
incidents, by-law infractions, curb face sidewalk locations, and other challenges in the urban
environment that require evaluation.
Salt Management
The City of Kitchener recognizes the importance of effective salt management andis committed
to best practices andcontinuous improvementin salt management.This approach isreviewed
annually and revised as necessary to achieve effective salt managementand allcity winter
maintenance staff are trained in this regard. Winter maintenance of sidewalks presents some
different challenges than winter maintenanceof roads due to: lack of drainage facilities, no vehicle
traffic (which aids in snow melt), and salt spreading mechanisms are not as advanced as road
equipment.
Communication and Engagement Plan
A comprehensive communications plan will be developed over the summer of 2019. The
objectives of this plan will be to share information, increase awareness, manage expectations and
collect feedback on the recommended winter sidewalk maintenance program and each of the
program components. In addition to communicating information about the current winter
maintenance program to the broader public, specific messaging will be developed for those
residing in program evaluation areas. Staff will use both digital and traditional advertising tools to
convey key information about the program, and use a targeted approach for evaluation areas to
ensure roles and responsibilities are clearly communicated to property owners.
Collecting public input will be a critical input for the evaluation of the 2019/2020winter sidewalk
maintenance program. Engagement activities will work to manage public expectations and
summarize the level of public support for the program components. The public will have the
opportunity to base their responses on the performance and cost of the program as demonstrated
through the 2019/2020winter season. Engagement activities will commence before the winter of
2019/2020and continue into spring 2020. Engagement activities will include online engagement
surveys, targeted surveys, andcity wide statistically representativesurvey, which are further
detailedinAppendix E.
Project Schedule
In early 2018, staff initiated the Winter Sidewalk MaintenanceReview project. The project had
been planned in two stages. Stage 1 was the Program Development andEvaluationwhich was
planned to begin in winter 2017/2018 and to be completed by end of spring 2019. Stage 2 was
the Program Implementationwhich was planned to begin in spring 2019 and to be completed in
summer/fall 2019.Based on the evaluation results, the project stages were modified and
summarized inFigure 7.At the time of writing this report, Stage 1 of the project has been
completed and Stage 2 has begun.
pg. 22
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11 - 22
Stage 1 Year 1 Program Development and Evaluation
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Figure 7Work Plan Flow Chart
Next Steps & Implementation
If approved by Council, Program Component 1 will be initiated in summer 2019 and the results
and recommendations will be reported back to Council in fall2019. Detailed development of the
rest of theapproved programs will take place Junethrough October 2019, in preparation for
implementation in the winter of 2019/2020. This includes obtaining resources such as staff and
equipment, selecting and coordinating routes, developing engagement and communication
materials, administration, and developing an evaluation system. Each program will be evaluated
for performance in achieving clear sidewalks, cost, time to complete, salt usage, resident and
stakeholder satisfaction, and resident support. The outcome of this evaluation will be presented
to Council in spring of 2020to support an informed decision about the winter sidewalk
maintenance program for the 2020/2021winter season and beyond. The recommended long term
winter sidewalk maintenance program will includeprogram(s)that achieve the best results, in the
most cost effective and timely manner, and with the greatest amount of public support.
pg. 23
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11 - 23
ALIGNMENT WITH CITY OF KITCHENER STRATEGIC PLAN:
The recommendation of this report supports the
the delivery of core service by:
Improvingthe design and delivery of city services so that they provide what citizens want
in the most reliable, convenient and cost-efficient way;
Developing a network of safe, comfortable and linked pedestrian facilities;
Strengtheningthe capability and capacity within the organization to manage all of the city's
assets;
Creating more opportunities for citizen dialogue on community issues and introducingnew
ways for people to getinvolvedin decisions that affect them;
Strengtheningcommunication on issues of interest to the public and proactively publishing
related documents in an accessible format to give citizens the information they needto
understan.
FINANCIAL IMPLICATIONS:
Table 3identifies total funding requirements for the 2019/2020winter season, including each of
the program components and activities. Availablefunding sources are:
Balance remaining from the initial pilot is approximately $55,000. This saving was realized
through;
o Later on boarding of by-law staff than anticipated
o Reduced grant for snow blowers
o Not needing to use contingency allowances from first pilot
Total balance remaining in the winter control reserve is $300,000
Table 3Sidewalk Winter Maintenance Program Funding Requirements
Program2019/2020
1. Change the Required Level of Service Stated in theBy-law-
2. Initial Clearing for 8cm Snow Events$67,500
3. Develop Priority Route Options-
4. Proactive Inspection$140,000
5.Assisted Services for Sidewalk and Windrow Clearing$25,000
6.Neighbourhood Shared Snow Blower -
7.Statistically RepresentativeSurvey$45,000
8. Communications and Engagement budget to support the above work$20,000
Total$297,500
pg. 24
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COMMUNITY ENGAGEMENT:
CONSULT In 2018/2019staff met with advisory committees and advocacy groups including
Mayor's Advisory Council for Kitchener Seniors, Kitchener Cycling and Trails Advisory Committee,
Kitchener Youth Action Council, Grand River Accessibility Advisory Committee, and Tri-
CitiesTransportActionGroup. Through these sessions staff received valuablefeedback
regarding winter sidewalk maintenance practices including pilot options, data collection, and
evaluation.
INFORM -e agenda in advance of the
council / committee meeting. A copy of thisreport has been provided to the Mayor's Advisory
Council for Kitchener Seniors, Kitchener Cycling and Trails Advisory Committee, Kitchener Youth
Action Council, Grand River Accessibility Advisory Committee, Tri-CitiesTransportActionGroup,
and previous delegates where contact information is available.
PREVIOUS CONSIDERATION OF THIS MATTER:
In November 2016, reportnumber INS-16-087was submitted to City Council which identified the
impact of city-wide sidewalk snow clearing practices, including order of magnitude costs. This
report recommended that existing winter sidewalk maintenance practices be maintained until the
changes to the provincial minimum maintenance standards were adopted.
In June 2018, report number INS 18-023 was submitted to City Council which identified pilot
programs to be implemented and evaluated in the 2018/2019 winter season. Two of the pilot
programs including the proactive by-law inspection and theassisted services for sidewalk and
windrow clearingwere approved by Council to be implemented and evaluated during the
2018/2019 winter season. In addition to these pilot programs,Council introduced and approved
program to be implemented and evaluated during
the 2018/2019 winter season.
ACKNOWLEDGED BY: Denise McGoldrick, General Manager, Infrastructure Services
pg. 25
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11 - 25
APPENDIX A
Policies/GuidelinesApproval Comments
Year
Sidewalk Infill Policy2015Highlights the importance of a well-connected
pedestrian environment by requiring continuous
sidewalks on both sides of the City of Kitchener roads
where possible
Transportation 2013Focuses on creating a pedestrian friendly and less car
Master Plandependent environment through enhancing other modes
of travel such as walking and cycling and public transit
Official Plan2011Defines a well-established transportation system as a
system that moves pedestrian, cyclists, transit and
vehicles safely and efficiently
Transportation 2011Focuses on a travel mode shift from driving to walking,
Demand cycling and public transit
Management Plan
Development 2010Requires newly constructed neighborhoods to
Manualaccommodate sidewalks on both sides of the streets to
promote a well-connected and safe pedestrian network
throughout the City
Pedestrian Charter2005Indicates the importance of a well-connected pedestrian
friendly environment for a community with less car
dependency, more public transit usage, less
environmental impacts and better air quality.
pg. 26
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11 - 26
APPENDIX B
See Attached.
APPENDIX C
1.How did you hear about the neighbourhood shared snow blower program?
Direct mail flyer
website
Word of mouth
Media (The Record, Kitchener Post, CTV Kitchener, Kitchener Today, etc)
Other
2.Please rate your experience with the neighbourhood-shared snow blower program.
Please rate your experience with the ExcellentVery GoodFairPoor
neighbourhood-shared snow blower program.good
Sharing the snow blower with the neighbours
Working with the neighbours to clear the sidewalks
committed to in the application
The application process
The program in general
3.Would you support an extension of the program for future winter seasons?
Yes
No
Other
4.Is there anything you would like to change/improve in this program?
5.Is there anything else you would like to add?
pg. 27
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APPENDIX D
1.How did you hear about the assisted services program this winter?
Direct mail flyer
Word of mouth
Media (The Record, Kitchener Post, CTV Kitchener, Kitchener Today, etc)
Other:
2.Please rate your experience with the assisted services program.
(Excellent Very Good Good Fair Poor)
The application process
The snow clearing response time (from the end of the snow event to sidewalk being
cleared)
The quality of work
The program in general
3.Would you support an extension of the program for future winter seasons?
Yes
No
Other:
4.Is there anything you would like to change / improve in this program?
5.Is there anything else you would like to add?
pg. 28
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APPENDIX EEngagement Plan
1.TargetedSurveys and Statistically RepresentativeSurvey
Targeted SurveyFall 2019, Targeted surveys mailed to property owners residing in
Winter control areas for program component 2. The intent is to
2019/20, understand expectations and perceptions.
and Spring
2020
In person Summer/Fall
engagement 2019provide input to by-law review and priority map process.
sessions
Statistically Valid 2019City wide statistically representativesurvey completed
Surveyby a third party research and analytics provider.
Questions in this survey will be informed by the data and
findings from the 2018/2019 winter season.
2.Online Platform and Open Survey
Engage Kitchener Fall 2019, Online survey available to all residents throughsummer
Winter 2019 andwinter 2019/2020, andspring 2020. The online
2019/20, platform will serve as a project page for information
and Spring pertaining to winter sidewalk maintenance initiatives and
2020a tool for publicfeedback.
pg. 29
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11 - 29
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