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Home My WebLink About1998-10-27 City CouncilCity of Pale Alto City Manager’s Report TO:HONORABLE CITY COUNCIL ATTENTION:POLICY AND SERVICES COMMITTEE FROM:CITY MANAGER DEPARTMENT: PLANNING / October 27, 1998DATE: SUBJECT: CMR:260:98 RECOMMENDATIONS REGARDING CITYWIDE SCHOOL COMMUTE SAFETY STUDY, PHASE 1 FINAL REPORT REPORT IN BRIEF This report transmits the findings and recommendations of Phase 1 of the Citywide School Commute Safety Study, which was authorized by the City Council in response to community concerns about the safety of students walking and bicycling to school along city streets. The Phase 1 study area included the school commute routes for schools in the north part of Pale Alto, including Walter Hays, Duveneck, Addison, and Jord ~ Escondido, Nixon and Pale Alto High. Middlefield Road was one of eight primary school commute corridors selected for evaluation and analysis. The Final Report of the City’s transportation consultant, Fehr and Peers Associates, issued in August 1996 recommended a broad and comprehensive approach to improving safety, including the following four elements: (A) traffic engineering and enforcement solutions, (B) school site circulation improvements, (C) traffic safety education program improvements, and (D) a marketing/community awareness program. Staffhas since conducted public meetings, resident preference surveys, and parking utilization studies along streets where the consultant recommended bicycle lane improvements that would result in changes in the availability of parking on-street parking. A summary table of the complete list of recommendations from the study report and staff recommendations is provided as Attachment B. Many of the recommendations are being administratively implemented by staff. This report focuses on those recommendations that required policy direction from Council or are of particular interest in the community and includes a proposed phasing and implementation program for the projects and programs recommended for implementation by the City. CMR:260:98 Page I of 27 RECOMMENDATIONS Staff recommends that the Policy and Services recommend that the City Council direct staff to take the following actions to improve school commute safety in the study area: Continue an active speed enforcement program along school commute routes, including radar enforcement in school zones, deployment of the radar trailer(s), and regular enforcement of non-speeding violations. Develop a special signage program for one school commute corridor as a test installation, evaluate the community’s response and the success of the program, and report back to Council before extending it to other corridors. Work with Caltrans to further refme the scope of traffic signal, island and curb ¯ alignment improvements at the Stanford Avenue/El Camino Real intersection, and consider recommending a project through the Capital Improvement Program (CIP) process. Restfipe the bicycle lanes on segments of Newell Road, Channing Avenue and Churchill Avenue to conform to Caltrans design standards, which will result in the prohibition of parking at all times on the following street segments: (a)East side of Newell Road from Channing Avenue to San Franeisquito Creek 0a)North side of Channing from Newell Road to Addison Avenue (c)South side of Churchill Avenue from Alma Street to Bryant Street Study the feasibility of installing bicycle lanes on the four lane segment of Middlefield Road in conjunction With the Residential Arterial Traffic Calming Project, and in the interim install signage to designate Guinda Street from Addison Avenue to Palo Alto Avenue as a Class lIl bicycle route. 6.Pui’sue the following measures related to school commute safety along the two-lane segment of Middlefield Road from Oregon Expressway to Channing Avenue: (a)Install a 12-foot ,wide bicycle lane on the west side of the street With parking allowed 24 hours a day, and an 8-foot wide bicycle lane on the east side of the street With parking prohibited 7:00 a.m. to 7:00 p.m., Monday through Friday. (b)Target Middlefield Road as a high priority for a driver education campaign in conjunction with the community awareness campaign recommended in the study report 7.Study the feasibility of installing bicycle lanes on Embarcadero Road in conjunction With the Residential Arterial Traffic Calming Project. CMR:260:98 Page 2 of 27 10. 11. 12. Install signage to designate Stanford Avenue from E1 Camino Real to Park Boulevard as a Class 11I bicycle route. Develop a plan, in coordination with Stanford University, for a jointly sponsored pedestrian sidewalk/path on the north side of Stanford Avenue between E1 Camino Real and Escondido Road and report back through the budget process with recommendations, including City’s share of costs for any CIP projects. Forward the study report and recommendations for school "safety improvements along Stanford Avenue outside the Palo Alto city limits to Santa Clara County, Stanford University and the Palo Alto Unified School Dislrict for further review and action. Forward to the Palo Alto Unified Schol District for further evaluation and action, the study recommendations related to: (a)school site circulation, and (b)traffic safety education improvements. Work with the Palo Alto Unified School District to develop a jointly sponsored Traffic Safety Community Outreach Program to increase community awareness of school commute safety, with the intent to recommend funding of a pilot program in FY 1999- 2000. BACKGROUND In September 1995, the City Council approved a consultant agreement with the firm of Fehr and Peers Transportation Consultants for Phase 1 of a Citywide School Commute Safety Study.. The Phase 1 study area encompassed the area of Palo Alto north of Page Mill/Oregon Expressway, including the attendance areas of five dementary schools (Addison, Duveneck,. Escondido, Lueille Nixon, and Walter Hays), Jordan Middle School and Palo Alto High School. Lucille Nixon is the only school in the study area that lies outside the Palo Alto city limits. A Study Advisory Committee (SAC) was formed in September 1995 to work with the consultant and City staff throughout the study process. The committee was composed of representatives from each of the study schools, City staff, and representatives from the Santa Clara County Traffic Operations Department and Stanford Planning Office. The Committee was comprised of the following members: Yofiko Kishimot0 Kathy Durham Bob Wenzlau Mary Cafiero Phil Turner Katie Shoven Ruth Malen Addison PTA Eseondido PTA Duveneck PTA Walter Hays PTA Jordan PTA Nixon PTA Nixon, Principal Bill Schneiderman Dan Sarouhan Rosemarie Bednar Masoud Akbarzadeh Ted Burr/Charles Caner Jordan, Assistant Principal Palo Alto High, Asst. Principal PAUSD Administration County Tra:ffie Engineer Stanford Planning Office CMR:260:98 Page 3 of 27 The consultants and City staff met with each school’s principal and PTA representative, PAUSD administration, and Stanford staffto discuss specific concerns. In addition, two public forums were held at the beginning of the study process, to solicit input from concerned parents and residents. From this input, the consultant identified five broad areas of concern: (1) traffic volumes and speeds on school commute routes, (2) intersection design and operations, (3) school commute route alternatives to busy arterials, (4) school site drop-off area congestion, and (5) the need for bicyclists, pedestrian, parent and motorist education and awareness. Working with the SAC, a preliminary list of 44 potential study corridors, streets, and intersections was identified. From this list, 12 key corridors and 15 intersections were selected for study, as depicted on Figure 3 of the study report. Duveneck School was also selected as a representative site for a more detailed study of on-street and on-site circulation and access in the immediate vicinity of the school. The approach used by the consultant in this study represents a departure from the way school studies have been conducted previously, wherein individual corridors and intersections were studied independently and solutions were primarily site-specific. In this study, however, the objective was to develop a systematic, but comprehensive, approach to the evaluation of safety of intersections and streets along school commute corridors. The approach involved rating all of the 12 corridors and 15 intersections on a performance index based on quantifiable and objective data which relate directly to potential safety and operational conditions for bicyclists and pedestrians. This objective methodology can be used beyond the scope of this study, as a standard.tool to evaluate corridors and intersections citywide. This "Performance Measure. Evaluation" process utilized a weighted rating of over 20 criteria tailored specifically to address safety conditions for bicyclists and pedestrians. The pedestrian evaluation criteria included crossing widths and signal phasing, as wall as the spacing of controlled intersections, the presence of on-street parking, bicycle facilities, physical condition of sidewalks, eontliets with turning vehicles, and corridor speeds, etc. The bicycle criteria included traffic volumes in relation to the presence or absence of on-street bicycle facilities, adequate bicycle clearance intervals, corridor speeds, right-turn conflicts at intersections, signal phasing, and sight disparate, etc. This methodology produced performance scores for each corridor and intersection based on the ratio of points scored to the maximum possible score, for bicycles and pedestrians. The ratings and relative rankings of the study corridorsand intersections are provided in Tables 3 and 4 in the study report. From this analysis, the consultant identified the major categories of improvements to. address deficiencies and improve the performance rating of a corridor or intersection. CMR:260:98 Page 4 of 27 In addition to this traditional approach focusing on engineering issues, the consultants were also charged with evaluating existing education programs and current community outreach/ awareness efforts and developing recommendations to improve and expand the City and District’s efforts in these areas. Throughout each stage of the study, the consultant met with the SAC to receive input and feedback. After the Draft Report was issued in May 1996, a public forum, which was widely advertised and noticed, was held to share the consultant’s recommendations with the public. This forum, however, was .not well attended, and few residents outside of the SAC participated. DISCUSSION The following sections provide a discussion of the specific staff recommendations in each of these areas. Speed Enforcement Measures The consultant conducted speed surveys that showed that the prevailing speeds on the study corridors were well in excess of the posted speed limit. The recorded speeds on Embarcadero and Middlefield Roads were slightly higher than the speeds recorded during the recent speed limits study (CMR:160:98). To reduce speeds, the consultant recommended increased police enforcement on the major arterial and collector streets. These actions should be supplemented with use of mobile radar trailers along school commute corridors and an aggressive/proactive marketing campaign to alert the community to school corridor speed enforcement, including the possible use of special signs along these corridors. CMR:260:98 Page 5 of 27 Street Segment Embarcadero Road east of Newell Middlefield Road south of Melville California Avenue near Barbara Channing Avenue near Heather Newell Road near Hopkins Stanford Avenue near Mears Court PostedSpeed 25 25 25, 25 25 25 85th,Percentile Speed dur, ingscnoo! commute perioos 1995AM7:45-8:15 35 35 33 33 35 39 1995PM2:00-3:00 41 39 31" 34 34 39 1997Off-PeakSpeed Survey 33-37 33-36 NA NA NA NA Staff supports the direction of this recommendation to continue to provide a visible enforcement presence on school commute routes and to reinforce these actions with some type of permanent signage, to remind motorists to be attentive to school cormnute routes. School zones are exempt from the speed trap laws, and radar can be used for speed enforcement purposes only during periods when students are going to and from school. It should be noted that since this report was completed, the Police Department has increased the level of enforcement on school commute routes throughout the city, which probably has resulted in slightly lower speeds recorded in 1997, as indicated in Table 1. In addition, the Department has applied for grant funding to purchase a second radar trailer in 1998-99. Having two radar trailers will allow more flexibility in deploying one of the radar trailers along school commute corridors. The consultant also evaluated the need for new adult crossing guards at the study intersections, and concluded the Eseondido/Stanford intersection was the only study intersection to meet the City’s adopted criteria for adult crossing guard. The crossing guard warrants for a signalized intersection require a minimum of 20 students use the crossing, and a minimum of 300 vehicular turning movements through the crosswalk during the hour period when students are commuting to and from school. However, staff recently reevaluated this location and determined that this intersection does not meet either criteria. Staff has reviewed this finding with the City/School Traffic Safety Committee. CMR:260:98 Page 6 of 27 Signage and Pavement Marking Maintenance Improvements The consultant recommended the City review existing signage to ensure that Standard regulatory warning and advisory signage is provided on Churchill Avenue, Newell Road, Channing Avenue, and Stanford Avenue. Staff has reviewed all signage and markings along these corridors and is in the process of making any necessary changes. Ln addition, staff supports the consultant’s proposal that the City develop a school commute route signage program to heighten motorists’ awareness of school routes and implement the program on one corridor as a test installation. For example, signs could indicate active speed enforcement and the amount of frees for excessive speed, or could designate "school commute routes." Such signs would supplement standard Caltrans regulatory signs. The program would be evaluated in terms of its effectiveness and community response, before extending it to other corridors. The report also recommends that special attention be given to street and sidewalk maintenance along school commute corridors. The report identifies particularly poor pavement conditions in the bicycle lanes along segments of Churchill (from Alma to E1 Camino Real) and Stanford Avenues (from El Camino Real to the city limits). The Public Works Department, through the Street Resurfacing Program, has designated funding for specific resurfaeing needs along.bicycle routes. One section of Churchill Avenue (from Alma Street to Bryant Street) was resurfaced in 1997. The entire length of Stanford Avenue from El Camino Real to the westerly city limits (identified by the ¯ consultant in this report) was included in the 1998 Street Resurfaeing Project recently completed. The remaining section of Churchill Avenue between Alma Street and El Camino Real, which is in poor condition, will be addressed in future resurfacing projects. Intersection Improvements The report recommends a standard package of intersection and signalization improvements to improve the s~ety of student pedestrians and bicyclists, for selective application where needed, to improve sight lines and reduce conflicts with vehicular traffic. Staff supports all of the recommended improvements: increase all-red signal clearance intervals to 2 seconds set stop bars back 2-3 feet from crosswalks provide pedestrian signals on all approaches install signs prohibiting right turns on red when children are present at a crossing provide ADA ramps on all comers and crosswalks across all legs of intersections provide adult crossing guards where warrants are met A table listing the locations of these improvements is provided on page 92 of the study report. Staff has already completed the signal modifications and is in the process of CMR:260:98 Page 7 of 27 implementing the remaining recommended improvements at intersections within the City’s jurisdiction. In addition to the standard package of improvements at signalized intersections, the study recommended adding protected left-turn phases on Embarcadero Road at Middlefield Road. This work has already been programmed into the Capital Improvement Program budget and is expected to be completed by December 1998. Staff will need to coordinate with Caltrans and with Santa Clara County to implement the specific signing, striping and signal timing recommendations at E1 Camino Real/Stanford Avenue (Caltrans), and at Middle field Road/Oregon Expressway. Stanford Avenue/E! Camino Real Improvements In addition to the generic recommendations identified above, more substantial signal phasing modifications and right-turn channelization improvements are recommended for the Stanford Avenue/El Camino Real intersection. This intersection received the lowest performance rating of the intersections studied by the consultant. Students have difficulty negotiating this intersection due to: (1) the lack of ADA ramps at the comers, (2) high speed, free right-turn lanes, (3) conflicts with left-turning vehicles from the side streets when students are crossing El Camino Real, and (4) the absence of pedestrian signals and pushbuttons at all four comers. All of these deficiencies would be corrected by a major improvement project which would include changing the signal phasing to provide protected left turns (eight-phase operation), installing ramps and pedestrian signals, and reconstructing the curb lines on the southwest and northwest comers to eliminate the free fight turns entirely or convert the turn lanes to a slower design speed (see Figure 15 in the study report). The estimated cost of the intersection improvements is $130,000. This intersection is under the jurisdiction of Caltrans. Staff will work with Caltrans to develop a project at this intersection and pursue funding to complete the project through the City’s CIP process. Typically, in this type of situation, the City would execute a cost-sharing agreement, to do the project (the City’s share being 50 percent of the total cost). With a cost-sharing agreement, the City’s estimated share of the cost would be $65,000. Upgrade Bic_vcle Lanes on Channing Avenue, Newell Road, and Churchill Avenue, The consultant recommended improved bicycle facilities in conjunction with other enforcement, signing and maintenance improvements to enhance the performance rating these corridors. Several of the study corridors have bicycle lanes that were installed in the early 1970’s before Caltrans developed standards for bikeway design. The collector streets in question, Stanford Avenue between E1 Camino Real and Escondido, Channing Avenue between Addison and Newell, Newell Road between Channing and San Francisquito Creek, and Churchill Avenue between Alma and Bryant, are all 36 feet wide. For the latter three streets, one side of the street has a narrow (6-7 foot wide) bicycle lane which CMR:260:98 Page 8 of 27 is in effect during the period of 7:00 a.m. to 7:00 p.m., after which it reverts to a parking lane. On the opposite side of the street the bicycle lane is wider (10-11 foot wide), with parking allowed all day and night. The situation is similar on Stanford Avenue, where the narrow bicycle lane is 4-5 feet wide with parking prohibited at all times, and the bicycle/parking lane is 11 feet wide. On all the streets, the shared bicycle/parking lanes are narrower than the Caltrans bicycle lane design standard of 12 feet. The consultant considered four alternatives to bring these routes into compliance with current standards (as depicted in Attachment C, Figure 11 of the study report). These options ranged from eliminating the bicycle lanes in favor of wide shared vehicular lanes, to retaining bicycle lanes, but prohibiting all on-street parking during the daytime. In consultation with the SAC, the consultant recommended restriping the streets to provide one 12 foot wide bicycle/parking lane, one 5 foot wide bicycle lane and two 9 foot 6 inch wide traffic lanes. (See Figure.I). This recommendation would result in the loss of parking at all times in the 5 foot wide bicycle lanes on the north side of Channing, east side of Newell, and south side of Churchill. The striping can be implemented on Stanford Avenue without any loss of parking because the parking is currently restricted in the narrow bicycle lane on the north side of the street adjacent to the undeveloped Stanford campus lands. 36’ ~ S’IREET BII~E LANES EXISTING STRIPING 7# Parking is prohibited 7 a.m. to 7 p.m. in 7’ wide bike lane Parking is allowed 24 hours a day in 10’ wide bike lane Wide bike lane is substandard Figure 1 PROPOSED STRIPING L 12’ ~smd [ 9;6" ! 9;6" Bike/Pa,~lg Travel lane Travel lane Parking would be prohibited 24 hours a day in 5’ wide bike lane Parking would be allowed 24 hours a day in 12’ wide bike lane Both bike lanes would meet current standards CMR:260:98 Page 9 of 27 Public M~eting On February 11, 1998, a meeting notice with information about the bicycle lane proposal was marled to a total of 152 residents on Channing, NeweR, and Churchill Avenues. On March 5, a public meeting was held at Jordan Middle School to discuss the bicycle lane issues. Five members of the public attended. Those in attendance expressed concerns about the loss of parking on Channing and Churchill, but also about the nature and speed of traffic on these, streets and the need for police enforcement of the speed limit and parking prohibitions in the bicycle lanes. Survey of Resideots ~ On April 8, survey material was sent to the same residents of the affected segments of Churchill, Channing, and Newell. This material included: (1) an introductory cover letter, (2) an attachment describing the proposed changes and impacts, and (3) a pre- addressed postcard survey. The results of the survey are summarized in Table 2 below, and the complete results are provided as AttachmentD. CHANNING AVENUE # Responses % Responses (35)% Total Surveyed (69) Support Do Not Support No Comment CHURCHILL AVENUE ¯ St~pport Do Not Support No comment NEWELL ROAD Support Do Not Support No Comment 20 14 1 # Responses 5 8 0 Responses 16 7 1 57% 40% 3% % Responses (7) 38% 62% % Responses (24) 67% 29% 4% 29% 20% 1% % Total Surveyed (38) 13% 21% % Total Surveyed (45) 36% 16% 2% Parking Surveys Due to the impact on adjacent properties, staff conducted parking surveys on Newell, Channing and Churchill at various times of the day and evening, to determine the extent of on street parking. The complete results of the parking surveys are provided in Attachment E. Overall parking patterns were remarkably consistent from day. to day. The surveys conducted during the daytime and weekday evenings on these three streets indicate that parking is very light. Remarkably, few ears were parked in the narrow bicycle lane during the evening hourswhen it is permitted, and at times there were no CMR:260:98 Page 10 of 27 cars parked on the street. The heaviest parking recorded occurred in the block of Channing between Harriet and Hutchinson (up to 11 vehicles), but even in that block the parking demand can be accommodated on one side of the street. Discussion The City adopted a bikeway system in the early 1970s, before there were accepted design standards for bicycle facilities that featured striped bicycle lanes on collector and arterial streets. For children and less skilled bicyclists, providing designated space for bicycle traffic in the roadway is recommended over wide, shared lanes with vehicles, especially as traffic volumes and speeds increase. The existing striping plan strikes a balance between bicycle safety and provision of convenient parking for residents. The consultant has identified a striping plan for these streets that conforms to current State design standards and recommended engineering guidelines for bicycle lanes. From a technical perspective, this is a superior plan for promoting bicycle safety to the existing striping plan. The proposed bicycle lane plan would eliminate parking for all X~ehicles on one side of the street, including parking for residents and visitors, as well as for commercial vehicles, which are currently allowed to park for 5 minutes, if no off-street parking is available. Even such short-term parking would no longer be allowed, as such vehicles would protrude out of the bicycle lane and into the adjacent vehicle lane, presenting a safety hazard to both vehicles and bicycles. This change would most directly impact approximately 23 residences on the north side of Channing, 10 on the east side of Newell, and 11 on the south side of Churchill, who would lose parking directly adjacent to their properties, excluding comer lots which also have side street frontage for parking. Residents have expressed c, oneem about the level of police enforcement that would be provided if parking is prohibited permanently in the 5 foot wide bicycle lane. They have observed that current enforcement is sporadic and are concerned that a less safe environment would be created ffparking regulations are not strictly enforced. The Police Department indicates that, in addition to enforcement by patrol officers, Commtmity Service Officers (CSOs) will also be assigned, as calls for service allow, to enforce parking restrictions in bicycle lanes. This will result in a somewhat higher level of enforcement than previously provided solely by patrol officers. The Department will monitor the number of violations and evaluate the adequacy of staffing levels. Staffbelieves that there are two alternatives for Council to consider: (1) implementing the study recommendation or (2) maintaining the status quo. The advantages and disadvantages of each alternative are summarized in Table 3 below. CMR:260:98 Page 11 of 27 Option 1.Implement Study Recommendations 2.Maintain Status Quo Advantages Bicycle lanes meet Caltrans standards for design and safety Safe, ty for bicyclists in the new 12’ wide bicycle lane will be enhanced as bicyclists will have adequate width when riding adjacent to parked cars Par, king surveys indicate the existing parking demand can be accommodated on one side of the street Bicycle lanes on both sides of street would be in effect 24 hours a day ¯No change in current parking situation for residents, visitors or commercial vehicles. ~Disadvantages ¯Loss of parking for residents, guests, commercial vehicles on one side of street 24 hours a day ¯Will require more active police enforcement of illegal parking in bicycle lanes ¯Residents on other side of street will have the burden of all of the street parking ¯Bicycle lane with parking is substandard ¯Wide bicycle lane is not as convenient and sate when ears harked Conclusion The fundamental issue is whether the benefit to bicycle safety outweighs the further loss of on-street parking, .which would result from the extension of the parking prohibition from 12 hours to 24 hours a day on one side of the street. The change in the bicycle lane striping will improve the safety environment for those student cyclists riding in the bicycle lanes, but such benefits are not as tangible or demonstrable as the impact of the loss of parking for adjacent residences. Given Council’s priority on Traffic Management and Safety and the stated purpose of this study, which" was to identify recommendations to improve bicycle, pedestrian, and vehicular safety, and reduce conflicts, accident potential, and traffic congestion along school commute routes, staff supports the proposed restriping of the bicycle lanes on these three collector streets as an appropriate technical engineering solution. Staff recognizes that this is not a solution without real impacts to residents of both sides of the street. Proposed Bicycle Lanes on the Four-Lane Segment of Middlefield Road (Channing Avenue to Palo Alto Avenee) The consultant has recommended that the four lane section of Middlefield (from Channing to Palo Alto Avenue) be converted to two lanes a center turn lane, and two 6 foot bicycle lanes as depicted in Attachment F, Concept C of Figure 12 of the study report. In response to staff’s request, a Level of Service analysis was performed to determine the impact on the Middlefield/University intersection. This intersection operates at LOS C (21 see/vehicle average delay) in the morning peak hour and LOS D (28 see/vehicle average delay) in the afternoon peak hour. The proposed lane CMR:260:98 Page 12 of 27 modifications would result in an average delay increaseof 3 seconds per vehicle in the morning peak and 4 seconds per vehicle in the afternoon peak. As an alternative to bicycle lanes in this segment, the consultant identified two parallel routes which could be designated as alternatives to Middlefield Road. On the east side, Guinda could be signed as a Class I1I bicycle route; and on the west side, the Bryant Street bicycle boulevard would serve the same function. Staff does not support the reduction in the number of traffic lanes on Middlefield from Channing to the north City limits at this time. During peak morning and afternoon periods this area is heavily congested. The impact of the loss of lanes requires further detailed evaluation, not funded as part of this study, including an operational analysis of the three signalized intersections at .Hamilton, University, and Lytton. It is recommended that this work be incorporated into the Residential Arterial Traffic Calming Project for Middlefield Road. Until such time as a study is completed, staff recommends designating Guinda Street from Addison Avenue to Palo Alto Avenue as an alternate Class HI bicycle route. Proposed Bicycle Lanes on the Two-Lane Segment of Middl¢field Road (Oregon Expressway to Channing Avenue) This section of Middlefield Road is 41 feet wide, which is insufficient width to accommodate two standard 10 foot wide traffic lanes and two 12 foot wide bicycle lanes, with parking allowed at all times. Therefore, the striping plan recommended by the consultant for the two lane section of Middlefield from Oregon to Channing calls for two 10 foot-6 inch wide traffic lanes, one 12 foot wide bicycle lane with parking allowed all day, and one 8 foot wide bicycle lane with parldng prohibited from 7:00 a.m. to 7:00 p.m., Monday-Friday (see Attachment E, Concept B). Between 7:00 p.m. and 7:00 a.m. and on weekends, parking would be allowed in the narrow 8-foot wide bicycle lane. This plan would provide on-street bicycle facilities directly adjacent to three study area schools: Jordan, Walter Hays and Addison Schools. This proposal would not be inconsistent with the City’s previous actions establishing bicycle lanes with parking restrictions on arterial streets. On-street bicycle lanes are the core of the city’s bikeway network on arterial streets, including the southerly section of Middlefield Road. Other residential arterial streets, including Arastradero, Charleston, and University Avenue also have on-street bicycle lanes with parking permitted full time on one side of the street, but limited to 7:00 p.m. to 7:00 a.m. on the opposite side of the street. Among the residential arterials, University Avenue is the closest comparison to Middlefield Road, in terms of width (45 feet wide), lane configuration, and traffic volumes. Among collector streets, Loma Verde from Middlefield to Bryant Street is comparable in terms of street width and lane configuration (40 feet wide). CMR:260:98 Page 13 of 27 Table 4 below provides a comparison of bicycle lanes and traffic lanes on these streets. # Veh.Wid~Wid~24-ho~ L~es B~e L~es Veh. L~es Tr~e Proposed Street Segment Middlefield Road (Embarcadero to Oregon) Existing Street Segments University Avenue (east of Guinda) Arastradero Road (west of Coulombe) Middlefield Road (south of Loma Verde) Loma Verde fwe~t of Middlefield~ 2 12t~ & 8f[10’6" 13ft & 8t~ 13ft & 7ft 13ft & 7ft 12’0" 10’0" 10’0" 13,000 - 17,000 26,000 18,950 17,900 2 12fl: & St:10’0"4,500 Public Meeting and Residents’ Proposal On February. 11, 1998, a meeting notice with information about the bicycle lane proposal was mailed to approximately 188 residences on Middlefield Road between Oregon Avenue and Channing Avenue. On February 26, a public meeting was held at Jordan Middle School to discuss the bicycle lane proposal. Approximately 50 residents attended. Those in attendance were strongly opposed to the bicycle lane plan, but also used this meeting as the opportanity to express their concerns to staff about larger issues, including the speed of traffic on Middlefield, perceived lack of adequate police enforcement, opposition to raising the speed limit, too much truck and bus traffic, and concerns about rumors of the City’s intent to convert this section of Middlefield to four lanes. Residents also questioned the suitability of Middlefield for school-age bicycle traffic and opposed the loss of parking on one side of the street. Members of the neighborhood suggested an alternative plan, as a means to preserve on- street parking on both sides of the street and accommodate bicycle lanes. The alternative striping plan (see Figure 2) would have two 9 foot 6 inch wide traffic lanes and two 11 foot wide bicycle lanes. Since the meeting, staff has received over 40 letters from residents in support of such an alternative. CMR:260:98 Page 14 of 27 1VIDDLI~IELD ROAD BIKE LANES EXISTING STRIPING PLAN Figure 2 / / I.~nad~d I 12’-6"12’6" Tavel lane ’I, avel lane Pa~ng L~nel~ Parking is allowed 24 hours a day on both sides of street No separate on-street bike faoilitics CONSULTANT’S PROPOSED’ STRIPING PLAN 12’..0"8’..0" lane ,..~ ’Iavel[ane ~., Tavell.ane ,~., Biz~l.ane I I / Paddng would be prohibited 7 a,m - 7 p.m., Monday-Friday in 8’ wide bike lane Parking would be allowed 24 hours a day in 12’ wide bike lane All bike lanes and travel lanes would meet State standards RESIDENTS’ALTERNATIVE STRIPING PIAN 11’-0" 11’-0" I:kddnglane ~. TravelLane ~. Tmvel[ane ~j¢ I:k~nglane III Parking would be allowed 24 hours a day on both sides of the street Bike lanes would be substandard Travel lanes would be substandard CMR:260:98 Page 15 of 27 Staff has reviewed the residents’ alternative plan and determined it would have the following impacts: Bicycle lanes would be substandard. The Caltrans mandatory minimum design standard for a shared bicycle/parking lane on a street with vertical curbs is 12 feet. Eleven foot wide bicycle lanes would be substandard. Creating substandard width does not allow bicyclists adequate area within the bicycle lanes, adjacent to parked cars. To avoid opening car doors, bicyclists would need to merge into the adjacent traffic lane. Traffic lanes would be sub-standard. The Caltrans standard minimum traffic lane width is 12 feet but can be reduced to 10 feet on local arterial streets. Due to the volume of traffic, use of Middlefield as a bus route and a moderate level of truck traffic, staff cannot support a plan with traffic lanes less than 10 feet wide. The proposed 9 foot-6 inch wide vehicle lane would not provide sufficient width for traffic maneuvers, unless there is a separate buffer on either side of the narrow vehicle lanes, such as a center median turn lane on one side and a standard bicycle lane on the other. (The consultant proposed one option with 9 foot-6 inch wide travel lanes for Middlefield Road, but only where there was a center turn lane that acted as a buffer and where the bicycle lanes were standard width. This option was not recommended as it required a complete ban on parking on both sides of the street). Alternative Plan would not improve safety. The impetus for this study was to improve safety conditions for student-age bicyclists and pedestrians. By combining substandard bicycle lanes with sub-standard traffe lanes, the resulting conditions would not promote safety. Potential exposure to liabili _ty. The City endeavors to comply with accepted State design standards for roadway engineering, signing, and striping whenever feasible. This can be achieved by the consultant’s proposed plan, but not by the alternative ’ plan. The City’s exposure to liability could increase if sub-standard bicycle lanes and traffic lanes were installed. Surve.v of Residents On April 16th, survey ~matedal was sent to a residents of the affected segment of Middlefield Road. The survey material included: an introductory cover letter, an attachment describing the proposed changes and impacts, and a pre-addressed postcard survey response form. The results of the survey are summarized on Table 4, and the complete survey results are provided on Attachment D. CMR:260:98 Page 16 of 27 Response to Consultant Proposal Support Do Not Support No Comment Total # Responses % Responses (88) 14 72 88 16% 82% 2% 100% % Total Surveyed (188) 7% 38% __tl% 46% Parking Surveys: Parking Surveys were conducted along Middlefield Road at various hours of the day and night to ascertain the existing demand for on street parking and to identify any particular problems. The complete parking survey data is included as Attachment E. Parking is very light on most of Middlefield Road during the day and evenings. The most intense parking occurs in the vicinity of the Lucie Stem Community Center, where parking can be heavy on both sides of the street when a special event is occurring at the Community Center. Such events normally take place in the evening or on the weekends. On typical weekdays between 7 a.m. and 7 p.m., the parking demand could be accommodated in the Lueie Stem parking lot and on the west side of the Middle field Road. During the public meeting and in the postcard surveys, residents living across from Lucie Stem indicated that parking is also intense in the early evenings. Consequently staff conducted further parking surveys from 6:00 p.m.-7:00 p.m. During this period, there was light parking (6 cars or less) on the east side of the street in front of the Community Center, while at the same time there was ample vacant parking available in the Lucie Stem parking lot. Discussion The City’s practice of providing bicycle lanes on arterial streets is consistent with the principle that less skilled or pre-teen bicyclists benefit from a well-deEmed separation of vehicles and bicycles (e.g., bicycle lanes) on collector or arterial streets or low speed, low traffic streets that provide direct access to destinations. It is important to recognize that school age bicyclists (particularly middle school students) travel city streets on a regular basis to school and to after school activities, recreation, etc. On Middlefield Road, older preteen and teenage bicyclists use the sidewalk, where they otherwise might use bicycle lanes. Past studies of bicycle accidents in Palo Alto have indicated that sidewalk bicycle riding, especially wrong way riding, places bicyclists at substantially greater risk than roadway bicycle tiding, primarily due to the presence of frequent intersections and driveways, which are points of conflict for bicycle and vehicular traffic. State and national guidelines for bikeway design discourage the use of sidewalk bikeways along streets with such characteristics. The Council has approved funding for the removal of signs from all ofPalo Alto’s sidewalk bicycle paths, through CIP Project CMR:260:98 ’Page ’i7 of 27 #19524, and a separate report will be forwarded to Council on this subject in the coming months. The presence of bicycle lanes along Middlefield Road will also signal to motorists that it is a route on which to expect bicycle traffic, and will reinforce that it is a school corridor. A key concern of the Middlefield Road residents is that speeds will increase if’the proposed striping plan is implemented. Staff believes that the striping could have the opposite effect, as the effective width of the vehicle lanes will bereduced from 12 feet 6 inches to 10 feet 6 inches. This should create the perception of narrowing the roadway to motorists, which is an inherent component of traffic calming programs. Staff does not feel there is a basis for the neighbors’ concern that motorists will mistake the 8 foot wide bicycle lane for a travel lane. The lane will be well marked with bicycle lane legends and striping to distinguish it from a vehicle lane. On other corridors similar to Middlefield, there is no pattem of such behavior. Should the Council approve staff’s recommendation to install bicycle lanes on Middlefield Road, staff will resurvey Middlefield between Channing and Oregon after installation of the bicycle lanes to ascertain if the striping has contributed to any change in prevailing speeds and will report the survey results to Council, to ascertain if the striping has contributed to any change in prevailing speeds. Staffhas identified three potential courses of action in response to this recommendation: (1) implement the study recommendation, (2) maintain the stares quo, or (3) defer action .and incorporate this issue into Residential Arterial Traffic Calming Project for Middlefield Road. The advantages and disadvantages of these alternatives are summarized in Table 5 below. CMR:260:98 Page 18 of 27 Option Implement Study Recommendations 2. Maintain Status .Quo Defer implementation and address through Residential At~-ial Traffic Calming Project for Middlefield Road Advantages Bicycle lanes meet accepted engineering standards for design/safety B!cyclists have room adjacent to parked cars in wide bicycle lane Bicycle lanes are most needed on major streets with higher traffic volumes/speeds compared to more local streets AOther major streets, including University, Charleston, Arastradero, Meadow, Loma Verde have similar striping plans and parking restrictions Project maintains 2 lanes of traffic in this segment of Middlefield Road Striping could have traffic calming effect as effective width of vehicular lanes reduced from 12’6" to 10’6". Bicycle lanes promote riding on the right, with the flow of traffic Bicycle lanes give drivers visual cue to expect bicycle traffic on street On-street parking surveys indicate weekday daytime parking demand is low throughout corridor and can be accommodated on one side of the street No change in parking for residents, visitors or oommemial vehicles Maintains parking to both sides of street - .. Bicycle lanes would be considered in coordination with other traffic calming measures as part of the study Disadvantages No parking for residents or visitors on one side of street weekdays from 7 a.m. to 7 p.m. Commercial vehicle parking limited to 5 minutes (per P.A. standard bicycle lane signing) Residents on east side of Middlefield will be affected by 5 minute limit on commercial vehicle’parking (deliveries, repair vehicles, ete) Parking between Melville and Embarcadero can be heavy on east side when heavy nsage/large events occur. Most of these are during evening (theater performances) or on weekends when parking would be permitted on both sides of street. The presence of bicycle lanes will need to be considered during future consideration oftratlic calming on Middlefield Road. No improvement for bicyclists Bicyclists are at greater risk on sidewalk, especially when riding wrong way No potential traffic calming effect Traffic Calming Project on Middlefield Road is not scheduled; could be severalyears away No short term improvement in bicycle safety along this school commute corridor Conclusion: Staff believes that Alternative 1, the consultant’s proposal, is an appropriate and beneficial safety improvement along a major street corridor that serves three schools. This project can be implemented in the short term, whereas the Residential Traffic Calming Project for Middlefield Road is several years away, at best, and funding is currently not progr~ ed. However, staff further acknowledges that the neighborhood’s concerns related to speeding need to be addressed. In the spirit of this study and its recommendations, a comprehensive approach to traffic safety is required in order to achieve the most positive results along Middlefield Road. Therefore, staff recommends that the Council authorize staff to pursue the following actions: CMR:260:98 Page 19 of 27 o Install a 12-foot wide bicycle lane on the west side of the street with par.king allowed 24 hours a day, and an 8-foot wide bicycle lane on the east side of the street with parking prohibited 7:00 a.m. to 7:00 p.m., Monday through Friday. Target Middlefield Road as a high priority for a driver education campaign, in conjunction with the community awareness campaign recommended in the study report. t Proposed Bicycle Lanes on Embarcadero Road The consultant evaluated three different segments of Embarcadero Road for potential bicycle lane improvements. The consultant’s recommended striping plans for these sections are shown on Attachment G, Figure 14 in the study report. Bicycle lanes were not recommended for the 45 foot wide segment of Embarcadero Road from Middlefield to Alma, as it would be necessary to reduce the number of travel lanes. For this segment of Embarcadero, the consultant recommended an alternative bicycle route via Coleridge, Bryant and Churchill. Bicycle lanes were recommended for the 50 foot wide section of Embarcadero from Middlefield to Newell. The recommended striping plan is to maintain the four lanes of traffic and install two 5 foot wide bicycle lanes. Parking would need to be restricted on both sides of the street. For the 56 foot wide section of Embarcadero Road from Newell to St. Francis Drive, the consultant recommends retaining the four lanes, and installing two ,8 foot wide bicycle lanes, effective from 7:00 a.m. to 7:00 p.m weekdays, with parking permitted overnight. As an alternative, the consultant recommends further vehicular capacity analyses to determine if it would be feasible to reduce the number of vehicle lanes from four to three, including two travel lanes and one center turn lane, without significant impacts to intersection levels of service. If feasible, it would allow for the installation of 12 foot wide bicycle/parking lanes on both sides of the street Staff agrees in principle that bicycle lanes would be an important school commute safety improvement for bicyclists on Embarcadero Road, and would provide overall benefit to the bicycling public if implemented. However, the scope of this study did not afford the opportunity for the detailed level of analysis that would be required to determine the impact of the proposed and alternative lane configurations On capacity and delay at each of the signalized intersections, nor to assess the support for parking restrictions on adjacent residents. Staff is aware of the concems of residents in the vicinity of Rinconada Park related to the impact on residential streets of parking by visitors to the park. The installation of bicycle lanes on Embarcadero Road between Newell and Middlefield would reduce the number of parking spaces adjacent to the park. CMR:260:98,Page 20 of 27 Further, Council guidance to staffindeveloping the transportation policies and programs for the Comprehensive Plan and for the Residential Arterial Traffic Calming Project has been to maintain the 4-lane configuration of Embarcadero Road. One of the alternatives for the segment of Embarcadero east of Newell would resdt in a reduction in the number of traffic lanes, which would be a departure from previous Council direction. For all of these reasons, staff recommends addressing the issue of bicycle lanes on Embarcadero Road as part of the Residential Arterial Traffic Calming Project for Embarcadero Road (CIP Project 19814), which is expected to begin in November 1998. New Signed Bike Route on Stanford Avenue between E! Camin0 Real and Park Boulevard This would fill in a gap in the bikeway system between the bicycle lanes on Stanford Avenue west of El Camino Real and the bicycle lanes on Park Blvd. It is a logical extension of the Stanford Avenue biking corridor used especially by College Terrace students en route to Jordan Middle School via the California Avenue underpass. New Sidewalk/Path Improvements on Stanford Avenue from El Camino to Escondido Ave~lue The lack of a sidewalk or walking path on the north side of Stanford Avenue (adjacent to Escondido Village) was identified as a deficiency in the pedestrian facilitiesin this corridor. Ideally, the sidewalk should be separated by a landscaped buffer of at least 5 feet. The City right-of-way extends approximately 12 feet behind the face of curb. The estimated cost of the sidewalk improvement is $85,000. Staff recommends that this subject be studied further and discussed with Stanford University to determine the most appropriate type of walkway, path or sidewalk for this corridor and the potential sources of funding for the project. Staff would report back to Council through the budget process with recommendations for a CIP project. 10.Stanford Avenue outside City Limits The consultant worked closely with parents of Lucille Nixon Elementary School, Stanford Planning staff and the Santa Clara County Traffic Engineer to identify a package of recommendations to improve conditions outside the Palo Alto city limits on Stanford Avenue. The consultant has recommended that the primary pedestrian-bicycle approach to the school be via an off-road bicycle path between Peter Courts Road and Raimundo Drive. This path needs significant maintenance and safety improvements, including directional signing, repaying and widening, railings and fencing. At the Raimundo/Stanford intersection, eonsiderati0n should be given to implementing an all- pedestrian phase in conjunction with the provision of an adult crossing guard and/or turn restrictions. The proposed improvements will require the cooperation of several parties to implement: the road, intersection and traffic signals along Stanford Avenue are under the jurisdiction CMR:260:98 Page 21 of 27 of the County; the off-road paths are the responsibility of either Stanford or the PAUSD; and speed enforcement is the responsibility of the California Highway Patrol. Staff recommends that the study findings for this area be referred to the appropriate agencies for evaluation and implementation. lla.School Site Circulation Improvements Duveneck School was selected by the consultant and Study Advisory Committee, as a representative example of schools in the District for a more detailed evaluation of the on- and off-site circulation around the school campus. The purpose of this focused study was to identify specific traffic safety and circulation issues and to develop policies and guidelines for the circulation and access that could be applied more universally to other schools in the District. The consultant has identified six key objectives for improving access and circulation at school sites: ¯ ¯ ¯ ¯ ¯ Direct student drop off/pick-up traffic in a more orderly procedure Separate pedestrians and bicyclists from vehicles Reduce the mount of traffic using the primary drop-off area Reduce speed on-site and on adjacent streets Educate parents and students of the preferred circulation, parking and loading protocol. To meet these objectives the study report identifies specific actions and tools to be utilized by the District on-site, including reducing the number of lanes in the school parking lots, providing fencing or physical separation between bicycle/pedestrian paths and vehicle circulation patterns, providing secondary drop-off areas to reduce congestion at school entrances, enforcing and monitoring traffic circulation protocols, and providing parent!student education and awareness programs. These recommendations were forwarded to the Dislliet’s project manager for the Building for Excellence Program in 1996, for consideration by the design team that will be developing improvement plans for each of the schools.. At Duveneck, the School District has implemented the first recommendation, installing planters to narrow the driveway and to reduce the number of drop off lanes on site, and creating a new path from the Alester/Dana intersection to the crosswalk on the school grounds. The long-term improvement at the school entry, supported by City staff and the District, has been incorporated it into the conceptual plans for the Building for Excellence improvements at Duveneck. llb.Traffic Safety_ Education Improvements The consultant study credits the City, PTA and School District as partners in an existing, effective bicycle and pedestrian safety education program, including classroom safety CMR:260:98 Page 22 of 27 presentations, on-bike rodeos, bicycle traffic school, etc. Nevertheless, the study recommends that the approach to safety education be more comprehensive, more consistent from school to school, and expanded to more grade levels. The consultant has focused on relatively low to moderate cost proposals. Key recommendations include the following: Develop a clear message and materials for parents to emphasize the impact of school- related vehicle trips on safety. Develop and produce safety materials for the schools that are consistent District- wide, including a safety handbook with school circulation map and carpool matching program information. Re-organize on-bike training sessions in third grade, to limit training to one class at a time. Monitor and evaluate the effectiveness of the student safety patrol program. Expand bicycle education and training beyond grades currently covered. The District has the primary responsibility for the education program, with substantial support from the City’s Fire and Police Departments. In response to some of these recommendations, the District has undertaken several initiatives to enhance communication to parents and students about traffic safety, and to encourage carpooling. The City’s role is one of support and continued liaison with the District. The City may also be able to assist in the securing of grant funds for the safety education initiatives. Recently, the District and the City have jointly funded the hiring of Altrans, a transportation management association, to implement a trip reduction pilot program at J.L Stanford Middle School, and Hoover and Fairmeadow Elementary Schools. Should that program be successful, the City could continue to assist the District in securing ongoing grant funding for an expanded program. The City’s role in the broader community outreach and marketing effort, as recommended in the study report, would complement theDislrict’s efforts to work directly with the school community to improve traffic safety. 12.Traffic Safety_ Community Outreach Program With this study, staff initiated a new approach to school commute studies, by expanding the objectives of the study and scope of work beyond traffic engineering solutions. The emphasis on a comprehensive, integrated study approach complements and furthers the work of the PTA Traffic Task Force, whose 1995 "System Approach to Addressing On~ Site and Commute Traffic Issues at Palo Alto Public Elementary and Middle Schools" addressed the underlying behavioral and attitudinal issues related to school commute mode choices. A small portion of the project budget was allocated to develop an integrated plan for a public awareness strategy, which would educate diverse sectors of the community regarding the impact of their actions on school commute safety. ~The target audience includes motorists, neighborhood residents, parents, local businesses and employers, etc. The objectives of the public awareness campaign would be to raise CMR:260:98 Page 23 of 27 consciousness about school traffic safety, establish a sense of communal responsibility for student safety, and address the subject on a citywide basis. The cousultant recommends a two-year strategy which begins with the identification of a theme for the safety campaign and development of promotional materials and a public information/media campaign. This tool has been used successfully in other local communities including Oakland ("Drive Smart") and San Leandro ("Walk and Ride on the Safe Side"). The School Safety Marketing/Outreach Program is similar in concept to a more general. "Traffic Education Program" that was identified in the Transportation/Traffic Projects Framework (CMR:336:96). The objective of both programs is to inform and influence the public’s understanding and behavior with regard to traffic operations and safety. Both programs were envisioned as being phased in over a one to two year period, with the expectation that they would lead to sustained, on-going, institutionalized programs. In either case, it would be necessary to retain a marketing consultant to develop the theme, materials, and marketing tools to reach a broad segment of the community. The cousultant recommended that such a program be jointly sponsored by the City and School District, with the specific responsibilities and funding obligations of each agency clearly defined. Staff recommends that this issue be referred to the School District staff for further discussion of the scope and content of a joint City/School Traffic Safety Community Outreach Program, with the intent to propose funding of a pilot program in 1999-2000. ALTERNATIV!~S The Committee, or Council, may choose to consider specific elements or projects to recommend for implementation. RESOURCE IMPACT The recommendations in this report suggest the necessity for a multi-year funding and phasing approach. An estimated cost of $300,000 for the implementation of the recommendations from this study was identified in the staff report on the Proposed Framework for Prioritizing Traffic/Transportation Projects (CMR 336:96) as the highest priority Traffic Management and Control Project to be funded through General Fund and/or Street Improvement Fund monies. In September 1996, the City Council approved incorporating the implementation element of the Citywide School Commute Safety Study into the Infrastructure Management Plan. However, traffic safety projects are pdoritized within the overall Infrastructure Management Plan. Some improvements, such as signal timing adjustments and minor signing and striping changes either have been or will be accomplished with existing funding and staff resources. Others require commitment of capital or operating budget resources, and lead time to develop the project design or consult with other parties (Caltrans, County and Stanford University). CMR:260:98 Page 24 of 27 In anticipation of this project moving forward earlier, $150,000 was included in the 1997-98 Capital Improvement Program budget for School Commute Safety Improvements (CIP 19813). The funding was identified for bicycle lane improvements on collector streets and intersection signing and striping improvements. Funding for the other capital improvements, including bicycle lanes on Middlefield Road, intersection improvements at Stanford/El Camino and the sidewalk improvements along Stanford Avenue will be considered as a part of capital project planning and recommendations in future years. FundLng for the latter two projects would require cost-sharing agreements with Caltrans and Stanford University, respectively. PROJECT FY 1997-98 Future Year Funding Upgrade Bicycle Lanes on Collector Streets (pending $125,000 Council approval) Middlefield Bicycle Lanes $75,000 Signing, Striping and Signal Improvements at Study $25,000 IIntersections IStanford Avenue/El Camino Signal and Intersection $65,000 Improvements Stanford Avenue Sidewalk $85,000 TOTAL $150,000 $225,000 Marketing~Outreach Program TBD The above table does not reflect existing Police Department or Transportation Division staffing resources committed to school safety programs. Staff will monitor staffing levels and report back to Council, if necessary, during the FY 1999-01 budget process. ENVIRONMENTAL ASSESSMENT An environmental assessment will be completed following the Policy and Services Committee review and prior to Council. action. POLICY IMPLICATIONS The actions considered in this report are consistent with, and further a number of 1998-2010 Comprehensive Plan Transportation policies. CIVlR:260:98 Page 25 of 27 Policy T-30 in the Comprehensive Plan also supports the designation of residential medals, and the need to address the impacts of through traffic without "appreciably reducing capacity or diverting traffic onto local neighborhood streets." The conclusions and recommendations in the study report identified actions to reduce certain sections of Middlefield Road from four lanes to two lanes, in order to provide for bicycle lanes. This proposal has not been recommended by staff. Staff is also recommending that the study report recommendation regarding the installation of bicycle lanes on Embarcadero Road, which could impact the number of traffic lanes, be addressed as a part of the Residential Arterial Traffe Calming Study of Embarcadero Road, which is expected to begin in November 1998. An additional policy issue’relates to the potential loss of on-street parking for residents of three 36 foot wide collector streets (Churchill, Newell and Channing) and on the two lane segment of Middlefield Road (between Oregon Expressway and Channing Avenue). The recommendations to upgrade the bicycle lanes on 36 foot wide collector streets to Caltrans standards will result in the permanent loss of parking on one side of the street where parking is presently allowed from 7:00 p.m. to 7:00 a.m., a situation that has been in effect for approximately 25 years. The proposal to install bicycle lanes on the two lane segment of Middlefield Road would result in the prohibition of parking on one side of the street from 7 a.m. to 7 p.m., on weekdays~ STEPS FOLLOWING APPROVAL The recommendation of the Policy and Services Committee will be forwarded to the City Council for its re{riew and action. After the City Council takes action on these study recommendations, staff will pursue implementation of recommended actions through the - existing CIP and operating budgets, and return to Council with information on new CIP projects through the budget process. Because the Building for Excellence project will impact school sites and typical school commute patterns over the next two to three years, staff will continue to work closely with District staff to address specific school commute issues and apply the recommendations from the report in other areas. Staff will return to Council with recommendations on the next phase of the study (covering South Palo Alto) through the budget process. ATTACHMENTS/EXHIBITS A. Citywide School Commute Safety C. D. E. F. G. Study, Fehr & Peers Associates, Inc., August 1996.(Note: The consultant’s full report is attached to a limited number of copies of this staff report. Additional copies of the Consultant!s report are available for viewing in the Transportation Division office, sixth floor, Civic Center, 250 Hamilton Avenue, Palo Alto.) Summary of Study Report Recommendations Figure 11 of Study Report Results of Postcard Surveys Regarding Bicycle Lane Parking Proposals Parking Survey Results Figure 12 from Study Report Figure 14 from Study Report CMR:260:98 Page 26 of 27 PREPARED BY: Gayle Likens, Senior Planner DEPARTMENT HEAD: CITY MANAGER APPROVAL: Director of P ~g and City Manager City/School Traffic Safety Committee Study Advisory Committee Donald Phillips, Superintendent of Schools PTA Presidents and Traffic Safety Representatives PAUSD Principals Masoud Akbarzadeh, Santa Clara County Traffic Engineer Charles Carter, Stanford University Planning Office Middlefield Road Residents Association Residents who attended public meetings and/or mailed correspondence re study CMR:260:98 Page 27 of 27 . ,, ATTACHMENT B CITYWIDE SCHOOL COMMUTE SAFETY STUDY Summary of Study Report Recommendations 2 4 Bicycle and Pedestrian Corridor Improvements Implement Speed Reduction Measures; Provide Consistent Corridor-wide Sil~ning and Markings Churchill (Alma to El Camino) Modify Bike Lane Striping to comply with safe design standard (no change in on-street parking) S~agrees Staff agrees Improve pavement maintenance in bike lanes Staff agrees and will pursue through Street Resurfaeing Program in future years Churchill (Alma to Bryant) Modify bike lanes in 36’ wide section to meet Caltrans design/safety standards; - restripe with one 12’ and one 5’ bike lane; prohibit parking in 5’ bike lane 24 hours aday Staff agrees, but recognizes the inconvenience and impact loss of parking will have on this street for residents. Middlefield Road (2 lane segment) Install bike lanes; prohibit parking from 7 a.m. to 7 p.m. Monday-Friday, on east side of street Staff agrees, but recommends that this plan be implemented with an upgraded speed enforcement and driver education campaign 7 Middlefieid Road (4 lane segment) Install bike lanes; reduce travel lanes from 4 lanes to tow travel lanes, one center turn lane and two 6’ wide bike lanes. Identify Guinda Street as an Alternative Class Ill’ signed bike route Further evaluation is needed to determine the Operational impacts of this proposal, especially on the signalized intersections at University, Hamilton and Lytton. Staff recommends that the issue be addressed in the Residential Arterial Traffic Calming study of Middlefield Road S~agrecs Newell Road (Creek to Channing) Modify bike lanes in 36’ wide section to meet Caltrans design/safety standards; - restripe with one 12’ and one 5’ bike lane; prohibit parking in 5’ bike lane 24 hours aday Staff agrees. In addition, staffwill restripe wider section of Newell from Channing to Embarcadero to bring bike lanes up to Caltrans standards (does not require changing existing parking) Stanford Avenue (with City Limits) Modify Bike lanes between El Camino and city limits and Improve pavement condition in bike lanes Staff agrees. This recommendation will not result in any loss of parking on Stanford Avenue. These improvements were implemented through Street Resurfaeing Project in Fall, 1998. 10 11 12 13 14 15 16 17 18 Stanford Avenue (East of El Camino Real) Install Class Ill signed bike route from El Camino Real to Park Blvd. Staff agrees Channing Avenue Modify bike lanes in 36’ wide section to meet Caltrans design/safety standards; - restripe with one 12’ and one 5’ bike lane; prohibit parking in 5’ bike lane 24 hours aday Staff agrees, but recognizes the inconvenience and impact loss of parking will have on this street for residents. Dana Avenue Provide consistent corridor signing and striping Staff agrees Embarcadero Road Alma to Middlefield - no bike lanes recommended Middlefield to Newell - install 5’ wide bike lanes; maintain ~t vehicular lanes; restrict parking on both sides of street Staffdoes not support at this time and recommends that the study recommendations be considered in conjunction with the Residential Arterial Traffic Calming Project for Middlefield Road, which is scheduled to begin this fall Newell to St. Francis; reduce traffic lanes from 4 to 3 and install 2- 12’ bike/parking lanes Stanford Avenue (Outside city limits) Install bike lanes fi~om City limits to Peter Coutts Way; repave off-road path between Peter Coutts and Stanford Avenue and Peter Coutts and L. M. Nixon school and install railings; implement speed reduction measures; Staff agrees and recommends referral to Stanford and Santa Clara County for action Use Guidelines for Intersection Signalization changes: Protected Left Turn Phasinff, All pedestrian phasing; Right Turn on Red Prohibitions; All Red Clearance Interval Increase All Red Signal Clearance intervals to 2 seconds at 7 study intersections Staff agrees S~agrees Implement Protected Left Turn Signal Phasing at 2 study intersections S~agrees Set Stop Bars back 2-3 feet fi~m Crosswalks at 5 study intersections Prohibit Right Turns on Red When Children are Present at 9 study Intersections Provide Crosswalks on all approaches at Middlefield/Addison S~agrees Staffagrees Staffagrees 19 Provide an Adult Crossing Guard at Escondido/Stanford Staff disagrees. Staffreevaluated this intersection in September 1998 and it does not meet the adult crossing guard warrants. 20 Provide ADA compliant handicap ramps at four study intersections Sta~ agree.s 21 22 Provide Pedestrian Signal Heads on all approaches at Stanford/Raimundo and Stanford/El Camino Eliminate High Speed Turns at Stanford/El Camino Real Staff agrees. Staff will work with Caltrans to develop improvement project for Stanford/El Camino Real intersection and return to Council with a recommended CIP project at a future time. Staff will refer Stanford/Rairnundo recommendation to PAUSD and Santa Clara County Traffic Engineer Staff agrees and will’work with Caltrans to develop improvement project for Stanford/El Camino Real intersection and return to Council with a recommended CIP project at a future time. 23 Improvements for Special Circumstances at Stanford/Raimundo including new ADA rams, signing, trimming of vegetation, possible all- pedestrian phase Staff, agrees and recommends that this matter be referred to the PAUSD, Stanford University and County Traffic Engineer for consideration and implementation 24 Implement School Circulation Improvements at Staff agrees in concept with the improvements proposed Duveneck School using objectives outlined in report by the consultant (with the exception of the relocation of the school crosswalk) and recommends referral tothe PAUSD for consideration in the Building for Excellence Program 1 Maintain City/School Traffic Safety Committee Staff agrees and recommends referral of all education 2 Traffic Safety Education in Classrooms -consider improvements to the PAUSD expansion to more grades and program should incorporate consistent educational materials and reinforcement and monitoring of quality of program 3 Maintain consistent educational materials and teaching methods; reenforeement of program through all grades Develop and Implement a Traffic Safety Public Awareness Campaign to promote safety, increase awareness of school commute safety, encourage safe driving habits, etc. The campaign would have a Theme and Logo, and could include, but not be limited to Public Information/Media Campaign, Public Service Announcements; Video announcements; Display Ads; Press Releases and Editorials; Public Education; Town Meetings, Incentive Programs Staff agrees and recommends further discussions with the Palo Alto Unified School District to develop a jointly funded marketing and community awareness program, with funding of a pilot program in 1999-2000, i I 4 | | Concept A ATTACHMENT C 8’-0" I 10’-0" I 10’-0"Parking/Travel Lane Travel LaneBike Lane 81.011 Parking/ Bike Lane Type: Bike Lane (Class II) Max ADT: 10,000 Max Speed: 40 mph Impacts:Requires prohibiting parking from 7am to 7pro weekdays B Type: Bike Lane (Class II) Max ADT: 2,000 - 10,000 Max Speed: 25 mph Impacts: Loss of 1/2 on-street parking C ~ 5’-0" I 13’-0"~+13’-0"I 5’-0"I Bike I Travel Lane I Travel Lane I Bike"l Lane I I I Lane~ <--’+’I <¯ I<’I<--+’~ Type: Bike Lane (Glass II) Max A~T: Over I 0,000 Max Speed: 40 mph Impacts: Loss of all on-street parkinQ D l 8’-0" I 14’-0"I 14’-0"Parking I Travel Lane I Travel Lane Type: Bike Route (Class III) Max ADT: 10,000 Max Speed: 30 mph Impacts: Loss of 1/2 on-street parking Source:Selecting Roadway Design Treatments to Accommodate Bicyclists, USDOT, 1994 Caltrans Design Manual, Chapter 1000: Planning and Designing Bicycle Facilities FIGURE 11 846-163-02 BICYCLE IMPROVEMENT OPTIONS FOR A 36’ STREET ~-pFehr & Peers Associstes, Inc.Transportation Consulmnt~ 53 ATTACHMENT D CITYWIDE SCHOOL COMMUTE SAFETY STUDY Results of Postcard Survey of Residents Regarding Bike Lane/Parking Proposals for Channing Avenue, Newell Road, Churchill Avenue and Middlefield Road April 1998 MIDDLEFIELD ROAD RESIDENT SURVEY RESULTS Postcard Requested response to following statement: Please note your address above and #idicate your preference by marking one of the boxes below regarding the recommendation in the School Commute Safety Study report to install bike lanes on Middlefield Road from Oregon Expressway to Charming Avenue, including prohibiting parking on one side of the street from 7 a.m. to 7p.m., Monday to Friday. # of Responses % of Total Responses % of Residents Surveyed (88) (188) I Support proposal 14 16%7% I do not support 72 82%38% proposal No opinion 2 2%1% TOTAL 88 100%46% No response 100 --54% Written Comments In Support -Concerns are volume, speed of traffic, red light running -Safety is my priority; enforce 25 mph speed limit Opposed Middlefield is not safe for children on bikes (4) Middlefield would not be safer with bike lanes -Parking restrictions until 7 p.m. do not benefit school children -Do not want to lose daytime parking -Bike lanes do nothing to enforce speed limit (3) -Do not support bike lanes as proposed -Do not mix bike traffic with car traffic on Middlefield -Middlefield problem is lack of police presence and enforcement -Keep existing striping and enforce 25 mph speed limit (3) -Bike lanes would encourage students to use Middlefield; we should encourage alternative routes (2) -Support bike lanes, but not this proposal -Need parking because driveway can’t accommodate 2 cars -Bike lanes not needed, but speed enforcement is needed (4) -Support residents’ alternative plan (6) -Campaign to prevent 2-way sidewalk riding needed -Traffic calming road design and enforcement needed before encouraging bike use Using sidewalk is safer than bike lanes Middlefield has too much traffic for bike lanes Hidden agenda to raise speed, limit rather than gain control of the traffic; want to be able’to park in front of house without crossing street -Unsound idea to put bike lanes on street with 45 mph traffic -Currently inadequate parking for community center; concern for people crossing the street if parking restricted adjacent to center -Further study needed of alternatives conducive to 25 mph speed. -Plan will create parking problem near apartments in the 1000 block (2) -Plan will leave wider perceived traffic lanes -Consider flashing lights to reduce speed during school arrival/departure times Bikes need bells to protect pedestrians Put bike lanes on Webster Street Traffic is out of control; traffic has been diverted from neighborhoods onto Middlefield Parking is needed when residents and guests competing with community center parking No Opinion -support proposal to reduce speed; difficult to get out of driveway -turning Middlefield to 4 lanes will encourage speeding CHANNING AVENUE RESIDENT SURVEY RESULTS Postcard Requested response to following statement: Please note your address above and indicate your preference by marking one of the boxes below regarding the proposal to restripe the bike lanes on Chroming Avenue from Addison Avenue to Newell Road and to prohibit parking at all times on the north side of the street I Support proposal I do not support proposal # of Responses % of Total Responses % of Residents Surveyed (35)(69) 57%29%20 14 40%20% No opinion 1 3%1% TOTAL 33 100%50% No response 50% Written comments InSuppor~ Thanks for supporting some overnight parking Rules should be enforced so contractor’s extra wide vehicles are not a hindrance tO cyclists Would like bike lane/no parking on south side of street as well Consider banning continuous parking of RVS and off-road vehicles on Channing Need to enforce 25 mph speed limit Agree bike lane on south side is too narrow Opposed -Already feel the parking shortage; would be extremely inconvenient -Service trucks should be able to park next to curb when necessary -Need guest parking on street -Speeding and parking shortage already problems; make Channing one-way -Reroute bike lane to Greenwood (2) -Turns into driveways would be more difficult with 5’ bike lane (2) -Enforce speed limit -Parking surveys showing light parking are erroneous NEWELL ROAD RESIDENT SURVEY RESULTS Postcard Requested response to following statement: Please note your address" above and indicate your preference by marking one of the boxes below regarding the proposal to restripe the bike lanes on Newell Road from San Francisquito Creek to Channing Avenue and to prohibit parking at all times on the east side of the street I Support proposal I do not support proposal # of Responses % of Total Responses % of Residents Surveyed (24) (45) 16 67%36% 7 29%16% No opinion 1 4%2% Total 24 100%54% No response 21 --46% COMMENTS: Support Only concern is if lane shift will affect the driving habits at the bend in road between Channing and Arcadia -Greater traffic problems at Duveneck School in the morning -Speed enforcement by whatever means needed Do Not Support -Wants two 12’ bike/parking lanes -Crossing street to parked car is more dangerous than current striping CHURCHILL AVENUE RESIDENT SURVEY RESULTS Postcard Requested response to following statement: Please note your address above and indicate your preference by marking one of the boxes below regarding the proposal to restripe the bike lanes on Churchill Avenue from Alma Street to Bryant Street and to prohibit parking at all times on the south side of the street I Support proposal I do not support. proposal # of Responses % of Total Responses % of Residents surveyed (12)(38) 5 38%13% 8 62%21% No opinion 0 .... Total 13 100%34% No response 26 -- ¯66% Written comments In Support -Enforcement will be needed; contractor truck frequently violate zones -Support for bike safety, but speed control at Alma/Churchill more important Opposed -Most cyclists coming from Paly ride the wrong way against traffic on the north side -Inadequate parking between Emerson and Alma -No danger riding on thee two blocks -Modest safety enhancement doesn’t justify loss of parking -Move the 12’ wide bike lane to south side of Churchill ATTACHMENT E CITYWIDE SCHOOL COMMUTE SAFETY STUDY Results of Parking Surveys on Middlefieid Road, Channing Avenue, Neweli Road and Churchill Avenue SCHOOL COMMUTE SAFETY STUDY PARKING SURVEY CHANNING AVENUE Block 900 1000 1100 1200- 1400 EASTBOUND (South side) # CARS PARKED Tues [Tues I Thu [ Wed [ Sun7:30p 9:30p 2:45p 7:30p 1:45p. Addison-Lincoln 5 5 3 0 7 Lincoln-Melville 1 1 0 8 0 Melville-Harriet 4 5 2 1 3 Harriet-6 5 4 11 11 Hutchinson Hutchinson-Newell 2 5 0 6 5 WESTBOUND (North side) # CARS PARKED 7:30p 9:30p 2:45p 7:30p 1:45p Addison -0 0 1 6 Lincoln Lincoln -0 0 0 0 Church Church-0 . 0 0 0 Lincoln Church -1 0 0 0 Center Center -0 0 0 0 Sharon Ct. Sharon - Newell 0 0 0 0 NEWELL ROAD Block 400’ 500 600 7OO 7OO 7OO 8OO SOUTHBOUND # CARS PARKED (Westside) 7:30 p 9:30 p 2:45 p 7:30 p 2:00p Creek to Edgewood 0 0 0 0 0 Edgewood -0 0 0 0 2 Hamilton NORTHBOUND (Eastside) Creek to Edgewood Edgewood - Hamilton # CARS PARKED 7:30 p 9:30p 2:45p 7:30p 0 0 0 0 o o o 0 Hamilton -Dana Dana - Kings Lane Kings Lane - Pitman Pitman- Arcadia Arcadia - Channing o 0 o o 2 o 0 o o 0 O"0 0 0 0 0 0 1 0 0 0 0 1 0 0 Hamilton - Dana 0 ~, 0 Dana - Louisa.0 0 Louisa - Newell PI Newell PI-Newell 0 0 0 0 0 0 0 0 0 0 0 Sun 2:00p 0 0 0 0 SCHOOL COMMUTE SAFETY STUDY PARKING SURVEY MIDDLEFIELD ROAD BLOCK 900 1000 1100 1200 1300 1400-1500 1600-1700 1800 1800 1900 2000-2100 2200-2300 SOUTHBOUND (West side) # CARS PARKED Thu [ Fri [ Wed ~Sun 2:30p 3:30p 7:30 p 2:00p Channing - Addison 3 6 5 Addison o Lincoln 1 0 2 Lincoln -Kingsley 0 0 1 Kingsley - Melville 2 3 2 4 2 0 3 13" 16’ 0 0 3 1 0 NORTHBOUND (East side) # CARS PARKED Thu I Fri2:30p 3:00p Channing to Addison 5 1 Addison - Lincoln 7 2 Lincoln - Kingsley 3 1 Kingsley - Melville 0 0 IWed 7:30p 3 5 0 1 2 12 1 Melville - Kellogg 2 0 2 Kellogg-Embarcadero 3 5 3 Embarcadero - Lowell 1 0 0 Lowell-Tennyson 0 2 2 Tennyson - Scale 2 2 0 Scale to Santa Rita 0 0 3 Santa Rita to 0 0 0 California California to Oregon 1 2 1 *Sunday afternoon event at Lueie Stern Community Center Melville - Embarcadero 7 3 Embarcadero -1 1 Tennyson Tennyson -Seale 0 0 Seale to Portal 1 2 Portal to California 1 0 Califomia to Garland 0 0 Garland tO Oregon 1 0 1 0 MIDDLEFIELD ROAD AT LUCIE STERN COMMUNITY CENTER Sun2:00p 1 5 0 1 32* 1 2 1 1 0 BLOCK 1300 1400-1500 Melville to Kellogg Kellogg to Embarcadero CARS PARKED Westside (southbound) Thu 4/30 6 p.m. 0 Mon. 5/11 ,6:15 pm Thu 5/14 6:20 pro. Melville to Lueie Stem Dwy at Kellogg Lucie Stem Dwy to Embarcadero CARS PARKED Eastside (northbound) Thu 4/30 6 p.m. 6* Mon 5/11 6:15 p.m. 4" 0 Thu 5114 6:20 p.m. l* *space available in off-street parking lot SCHOOL COMMUTE SAFETY STUDY PARKING SURVEY CHURCHILL AVENUE BLOCK 100 200 EASTBOUND (South side)* Alma to Emerson Emerson to Bryant # CARS PARKED Fri Thu Tue 3:00p 9:00a 9:30 p 0 0 0 0 0 0 WESTBOUND (North side) * # CARS PARKED Fri Thu Tue 3:00p 9:00a 9:30 p 5 5 6 4 4 4 ATTACHMENT F Concept A I 8’-0"12’-6"I 12’-6"I 8’-0" I Parking/Travel Lane ]Travel Lane J Parking/ I,BikeLane ~,1,,1 BikeLane Type:Bike Route (Class II) Max ADT:2,000 - 10,000 Max Speed: 40 mph Impacts:Requires prohibiting parking from 7am to 7pm weekdays B 8’-0"4’-0"10’-6"10’-6"8’-0"I Parking I aik. I Trave~Lane I Trave~Lane I Parking/. Type:Bike Lane (Class II) Max ADT:Over 10,000 Max Speed: 40 mph Impacts: Loss of 1/2 on-street parking be~een 7am to 7pm weekdays "I 6’-0"I 9’-6"I 10’-0"I 9’-6"I 6’-0"I Bike I Travel Lane I Canter Turn Lane I Travel Lane I Bike~ne I I " I I L.ne Type:Bike Lane (Class II) Max ADT:Over 10,000 Max Speed: 40 mph ~ Impacts: Loss of all on-street parking Soume:Selecting Roadway Design Treatments to Accommodate Bicyclists, USDOT, 1994Caltrans Design Manual, Chapter 1000: Planning and Designing Bicycle Facilities FIGURE 12 ~46-182-02 ! BICYCLE IMPROVEMENT OPTIONSFOR A 41’ STREET ~--pFehr & Peers AssociateS, Inc.Tr~nspo~atio~ Co~s~tsqts 55 ATTACHMENT G p, Travel Lane Travel Lane Travel Lane Travel Lane Embarcadero Road Alma to Middlefield45’ Curb to curb Above Section Not Recommended as a Bicycle Route Alternative Cross-section for 45’ Segment: I 6’-0"I ~ 11’-6"I 10’-0"I 11’-6"6’-0" I Bike [Travel Lane I Turn Lane I Travel Lane Bike I Lane 14 > I<">1~> Lane "’"1-~~.’ ......~- Requires further study as to affect on traffic capacity 5’-0"t 10’-0"I 10’-0"=10’-0"~10’-0"~ 5’-0"Bike I Travel Lane I Travel Lane I Travel Lane I Travel Lane J BikeLaneIIIIIL~ne Embarcadero Road Middlefield to Newell 50’ Curb to curb 8’-0"10’-0"I 10’-0"10’-0"~10’-0"~8’-0" ~Parking/Travel Lane I Travel Lane Travel Lane I Travel Lane I Parking/ IBike Lane I I I Bike Lane l Embarcadero Road Newell to West Ba, yshore 56’ Curb to curb Require prohibiting parking from 7am to 7pm weekdays Alternative Cross-section for 56’ segment: 8’-0"I 4’-0" i 11’-0" . I 10’-0" ~ 11’-0" ~ 4’-0" ~ 8’-0"Parking i BIkel Trave, Lane I Tum Lane I TravelLane I Bikel Parking I Requires further study as to affect on traffic capacity FIGURE 14 846-164-02 RECOMMENDED BICYCLE IMPROVEMENTS FOR EMBARCADERO ROAD ~-=pFehr & Peers Associates, Inc.Transportation Co~sull~nls