Photos posted on Twitter appear to show the mayor reading a document while driving on the Gardiner Expressway.
When asked about the snapshots at a news conference Tuesday, Ford didn't deny it happened, but said he still kept his eyes on the road.
He cited his busy schedule and said he uses the commute to catch up on his work.
In a post on their official Facebook page, Toronto police say they would not be able to lay charges because Ontario's distracted driving legislation applies only to electronic devices.
However, police are urging Ford to get a driver.
"On behalf of all the citizens of Toronto that value road safety, Mr. Mayor... please get a driver," the post said.
"It is obvious that you are busy enough to require one and no amount of money you are saving by not having one is worth the life of one of your citizens."
It's not the first time Ford's driving has come under scrutiny.
He clashed with a Toronto Transit Commission driver last month after allegedly driving past a streetcar's open doors, and was accused last year of talking on his cellphone while driving.
A woman who reported the cellphone incident alleges the mayor made a rude gesture at her when she told him to hang up, but Ford maintains that wasn't the case.
He hasn't been fined or charged in either incident.