Winter Maintenance and Pedestrian Safety in Canada: Implications for an Aging Population

Canadian winters present significant challenges for pedestrian safety and mobility. These challenges are magnified for an aging population due to increased vulnerability to slips, falls, and accessibility barriers. Ensuring safe winter mobility is essential for allowing older adults to maintain independence, health, and social participation as part of age-friendly communities (Government of Canada).  

The Government of Canada describes age-friendly communities as follow: 

“In an age-friendly community, the policies, services and structures related to the physical and social environment are designed to help seniors “age actively.” In other words, the community is set up to help seniors live safely, enjoy good health and stay involved.” 

According to the National Institute of Ageing, a recent study “found that 91 per cent of Canadians of all ages, and almost 100 per cent of Canadians 65 years of age and older, report that they plan on supporting themselves to live safely and independently in their own home as long as possible” (National Institute of Ageing, 2020). As of July 1, 2023, 7.6 million Canadians were aged 65 or older, with about one in five Canadians being of golden age. By 2030, seniors are projected to represent 21 to 23 percent of the total population (Statistics Canada, 2024). As Canada’s senior population continues to grow, urban planners and policymakers must prioritize winter pedestrian safety as a key component of the age-friendly communities we aspire to build. 

Understanding the Risks 

Icy and snow-covered walkways significantly increase the risk of slips and falls, particularly among older adults. In 2018 the annual cost of injurious falls among seniors was estimated to be $5.6 billion, with 18 percent of falls occurring on ice and snow (Public Health Agency of Canada, 2024). Falls among older adults often lead to hip fractures, head injuries, and long-term loss of mobility.  

Responsibility for sidewalk clearing is frequently fragmented between municipalities, private property owners, and contractors, resulting in inconsistent maintenance. Municipal audits reveal delays in snow removal, especially in residential areas not prioritized for early clearing (City of Toronto, 2020). These inconsistencies disproportionately affect seniors who rely on walking or transit access for essential needs. 

Sidewalks on main roads, around transit, hospitals, and schools, tend to get cleared first, while clearing of residential or less used routes lags behind. Snowbanks, plowed piles, and uncleared curb cuts can obstruct access to residential sidewalks, crosswalks, and transit stops, impeding travel around a community. Individuals using mobility aids face compounded difficulties due to surface irregularities and reduced traction, and accessibility can be further hindered by snow-covered tactile paving and important signage. The CNIB notes that “snow removal is an accessibility issue, a mobility issue and a human rights issue).”  (CNIB, 2025). 

Many urban areas prioritize vehicular traffic over pedestrian infrastructure, leading to insufficient winter resilience. As an expert in winter maintenance and a citizen walking to my office and hustling to get my kids to their activities, I’ve seen where this can lead to inadequate levels of service. It tends to make cities less liveable in the winter. Inadequate drainage promotes refreezing, and narrow sidewalks impede snow-clearing equipment. Data from a study performed by the Toronto Rehabilitation Institute in 2012 showed that the presence of snow and/or ice on the ground tended to keep older adults from going out and increased reliance on automobiles. 

Policy and Enforcement Gaps 

Shovelling can be strenuous for everyone. When seniors are expected to maintain sidewalks adjacent to their residences, physical limitations may impact safety. Seniors have a higher risk of injury from shovelling and may lack the strength and stamina to complete big or challenging jobs, particularly if snowplows cast windrows across driveways and/or sidewalks. Rules requiring clearing by certain times (e.g., next morning) may not be feasible if someone is unwell or lacks equipment or assistance. Owners/homeowners in general are often legally required to keep sidewalks safe (clear snow, salt/slip material); however, enforcement of this requirement varies.  

Snow-clearing bylaws vary significantly among municipalities (as shown in Table 1), leading to inconsistent service levels. Reliance on private property owners often results in delayed or uneven clearing of public walkways. An age-inclusive winter maintenance approach requires creating systems that are welcoming and supportive for people of all ages. While winter conditions may vary (wildly) across the country, there remain limited age-inclusive winter maintenance strategies despite commitments to the World Health Organization’s Age-Friendly Cities Framework (WHO, 2007; Government of Canada, 2019). 

Table 1: Comparison of snow-clearing bylaws in four major Canadian cities.  

The policy issues of some municipalities become more complex regarding ice control on sidewalks. Ice prevention and control typically require the use of chemicals (i.e., salt) for anti-icing and de-icing. There are generally broad knowledge gaps for layperson homeowners who may lack the level of knowledge required to prevent a chemical refreeze. Yet, in many municipalities, there is an expectation that homeowners keep sidewalks and driveways that are part of the pedestrian route clear of snow and ice. Professional winter maintenance providers take proactive approaches to prevent or mitigate icy conditions, whereas homeowners don’t benefit from same training and familiarity with industry standards. In some cases, a misapplied salt application can contribute to deteriorated conditions. 

In the case of fixed-income seniors, hiring private snow removal, buying deicers, tools or equipment, or paying fines may be burdensome or impossible. Where municipal capacity is limited, volunteer or “buddy” programs (like Snow Angels) help older or disabled people. Do you know someone who needs a snow angel or will need one in the future? Does your community have an app for that? 

Recommended Actions 

While not all areas of the country experience ice storms and snow squalls, the consequences of climate change are being felt broadly and abrupt changes in weather can occur across the country (Environment Canada, 2025). For example, freeze–thaw cycles create unpredictable ice hazards and often cause deterioration of walking surfaces. Additionally, heavier and wetter snowfalls challenge traditional maintenance schedules and equipment, demanding adaptive approaches. 

Municipalities can take the lead, with considerations for increased pedestrian safety include the following: 

• Prioritize High-Risk Areas: Establish priority snow-clearing zones near seniors’ residences, healthcare facilities, and public transit access points.
• Standardize Maintenance Protocols: Implement consistent municipal snow and ice removal standards with regular audits.
• Invest in Infrastructure: Improve drainage, and install non-slip materials in key pedestrian zones.
• Community Support Programs: Support volunteer or neighborhood snow-clearing initiatives that assist older residents.
• Technology Integration: Utilize mobile apps for residents to report hazardous sidewalks or uncleared routes.
• Age-Friendly Planning: Integrate winter mobility in all municipal design and policy frameworks.

As Canada’s population continues to age, ensuring safe and accessible winter environments for pedestrians is a pressing public policy issue. Addressing winter maintenance deficiencies through improved coordination, infrastructure investment, and inclusive planning can reduce injuries, enhance mobility, and improve quality of life for all Canadians, particularly for seniors who rely on safe pedestrian routes year-round.

Article References 

National Institute on Aging. (NIA). Almost 100 per cent of Older Canadians Surveyed Plan to Live Independently in their Own Homes, But Is This Even Possible? Toronto, ON.  

Canadian National Institute for the Blind (CNIB). (2025). “”SnoWay” Snow Removal Campaign”. Toronto, ON: CNIB Foundation.

City of Toronto. (2020). Audit of Winter Rod Maintenance Program – Phase One: Leveraging Technology and Improving Design and Management of Contracts to Achieve Service Level Outcomes. Toronto, ON: City of Toronto Auditor General’s Office.  

Toronto Rehabilitation Institute (2012). “Aging and the Use of Pedestrian Facilities in Winter—The Need for Improved Design and Better Technology.” The New York Academy of Medicine.

Environment and Climate Change Canada. (2025). Be prepared for Winter Weather. Ottawa, ON: Government of Canada.  

Government of Canada. (2025). Age-friendly communities in Canada: Key components and implementation. Ottawa, ON: Employment and Social Development Canada.  

Public Health Agency of Canada (PHAC). (2024). “Surveillance report on falls among older adults in Canada.” , ON: PHAC.

Statistics Canada. (2024). The older people are all right. September 23, 2024. Ottawa, ON: Government of Canada.

World Health Organization (WHO). (2007). Global age-friendly cities: A guide. Geneva: World Health Organization.

References for Table 1 

Calgary City Council. (2024). Snow and ice control bylaw and information. The City of Calgary. Retrieved October 6, 2025.

City of Montréal. (2024). Snow removal from sidewalks and streets. Ville de Montréal. Retrieved October 6, 2025.

City of Montréal. (2024). Snow clearing on private property. Ville de Montréal. Retrieved October 6, 2025.

City of Toronto. (2024. Sidewalk snow clearing trial and winter maintenance program. The City of Toronto. Retrieved October 6, 2025.

City of Toronto. (2024), City of Toronto Winter Road Operations. The City of Toronto. Retrieved October 6, 2025.

City of Vancouver. (2024). Snow removal from city streets and sidewalks. The City of Vancouver. Retrieved October 6, 2025.