diff -u b/core/modules/toolbar/toolbar.module b/core/modules/toolbar/toolbar.module
--- b/core/modules/toolbar/toolbar.module
+++ b/core/modules/toolbar/toolbar.module
@@ -79,8 +79,6 @@
   $elements = array();
 
   $elements['toolbar'] = array(
-    // Do not build the toolbar if the user does not have access.
-    '#access' => user_access('access toolbar'),
     '#pre_render' => array('toolbar_pre_render'),
     '#theme' => 'toolbar',
     '#attached' => array(
@@ -195,6 +193,7 @@
 function toolbar_page_build(&$page) {
   $page['page_top']['toolbar'] = array(
     '#type' => 'toolbar',
+    '#access' => user_access('access toolbar'),
   );
 }