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HomeMy WebLinkAbout1997-10-06 City Council (24)City of Polo Alto Manager’s Report 4 TO: Attention: HONORABLE CITY COUNCIL POLICY AND SERVICES COMMITTEE FROM:CITY MANAGER DEPARTMENT: PLANNING AGENDA DATE: October 6, 1997 CMR:416:97 SUBJECT:STOP SIGN INTERSECTION SYSTEM UPDATE AND RECOMMENDATION TO INSTALL STOP SIGNS AT HALE STREET AND HAMILTON AVENUE RECOMMENDATIONS Staff recommends that the Policy and Services Committee recommend the following to the City Council: Install stop signs on Hale Street at Hamilton Avenue. Not to install stop signs at the following four locations: a. Homer Avenue at Cowper Street, b. Parkinson Avenue at Harriet Street, c. Channing Avenue at Webster Street, and d. Webster Street at North California Avenue POLICY IMPLICATIONS The citywide "Stop Intersection.System" was adopted by City Council several years ago. Consideration of updating the system on a periodic basis is consistent with the Council priority regarding traffic safety. BACKGROUND The citywide "Stop Intersection System" was adopted by the City Council several years ago. (A map of the Stop Intersection System is available for reference in the Transportation Division Office, 250 Hamilton Avenue, sixth floor). Changes in traffic patterns and characteristics, traffic safety needs, and citizen requests, necessitate that the City Council periodically consider whether to update the system. Most cities in California use California Department of Transportation (Caltrans) criteria to determine if the installation of stop signs is warranted. These criteria include review CMR:416:97 Page I of 5 of traffic volumes and traffic accident history. In.Palo Alto, the justification for a stop sign on a Lo__qa! street is based on: 1.The Council-adopted "guard and go" policy (installation of stop signs at every other block to discourage through traffic from neighborhoods), 2. Caltrans criteria (Appendix A of Attachment 1), or 3.Warrants adopted by the City Council in 1973 for installation of traffic control devices near schools (Appendix B of Attachment 1). The justification for a stop sign on a collector street in Palo Alto is based either on Caltrans criteria or Council-adopted criteria for installation of traffic control devices near schools, for safety reasons. The policy for arterial streets has been that they should not have stop signs. Staff receives many requests to install stop signs. All such requests are investigated and evaluated using the above criteria. As a result of such investigations (including field observations and review of accidents, traffic volumes, speeds and other relevant data), safety improvements that diminish the need for stop signs are sometimes made (e.g., painting red curbs, trimming bushes, etc.). While many residents in Palo Alto like stop signs, installation of new stop signs can be controversial because stop signs require motorists to stop day and night, resulting in increased delays, noise and air pollution. Historically, staffhas submitted to the Policy and Services Committee those.requests that: Staff supports and, therefore, a Council resolution is required to install the stop signs; and Staff did not resolve to the satisfaction of residents. The Policy and Services Committee forwards its recommendations to the Council. DISCUSSION This report is a periodic update of the citywide "Stop Intersection System." Included as Attachment 1, is the "1997 City of Palo Alto Citywide Stop Sign Requests, Evaluation, and Recommendations" report, which was prepared to summarize requests from citizens regarding installation of stop signs. Table 1 summarizes staff’s evaluation and recommendations for requests to install stop signs at five locations. CMR:416:97 Page 2 of 5 TABLE 1 SUMMARY 1997 Citywide Stop Sign Request and Recommendation 1.Hale Street/Hamilton Avenue Hale Street 2.Harriet Street/Parkinson Parkinson Avenue Avenue No Yes i Four accidents in 1996 were right i angle- type which are susceptible to i correction by installation of Stop signs. No No 3.Cowper Street/Homer Homer Avenue No No Avenue 4.Webster Street/Channing Channing Avenue ’No No Avenue ............................................................ ! Police Department will provide the i necessary enforcement, as well as place i the mobile speed display trailer on i Channing Ave. to remind drivers of their i speed. 5.Webster Street!N. California Webster Street No No Avenue For each intersection, there is an informational sheet (Figures 1-5) that includes a vicinity map, intersection layout, source of request, background, an evaluation, and staff recommendation. Detailed information regarding each intersection is contained in Attachment 1; and, for reference, all five intersections have been assigned a number and illustrated on the cover page. All of the requests can be classified into two categories: 1.a perception that there is excessive speeding, and 2.confusion about right-0f-way (R-O-W). Concerns About Speeding The requests for installation of stop signs on Parkinson Avenue at Harriet Street (Intersection No. 2), Homer Avenue at Cowper Street (Intersection No. 3), Channing CMR:416:97 Page 3 of 5 Avenue at Webster Street (Intersection No. 4) and Webster Street at N. California Avenue (Intersection No. 5) are due to concerns about excessive speeding on those streets. However, stop signs are not speed control devices. They are used to resolve right-of-way problems caused by an excessive amount of traffic or accidents. The existing traffic conditions at Intersections 2 through 5 do not meet the stop sign warrant criteria for converting existing two-way stop intersections to four-way stop intersections. Staff recognizes that drivers do slow down at stop signs and yield the right-of-way to other vehicles; however, several past studies have indicated that drivers travel as fast or faster at mid-block locations to make up time lost at stop signs, thus resulting in increased speeds mid-block. In .addition, noise and air pollution caused by vehicles increase. Over the next few months, staff will develop a Neighborhood Traffic Calming Program for both local and collector streets for Council consideration. This program would establish and formalize City policies relating to the protection of neighborhood streets from traffic impacts. The purpose of this program is to be more responsive to resident concerns about traffic problems on local and collector streets, similar to the above speeding concerns. Right-of-Way Issues The request to install stop signs on Hamilton Avenue at Hale Street is due to the apparent R-O-W confusion caused by the existing two-way stop intersection on Hamilton Avenue. There were four right-angle type accidents in 1996, which are susceptible to correction by improving the sight distance or installing stop signs. Since additional signing improvements have been made in the past and visibility is clear at the intersection, installation of stop signs on Hamilton Avenue may help reduce the number of right- angle accidents. FISCAL IMPACT Installation of stop signs and associated signing and striping will be accomplished within the existing budget resources of the Department of Public Works. No additional funds are needed. ENVIRONMENTAL ASSESSMENT Installation of stop signs is categorically exempt trader the California Environmental Quality Act, therefore no Environmental Assessment is necessary. ATTACHMENTS CMR:416:97 Page 4 of 5 1997 City of Palo Alto Citywide Stop Sign Requests, Evaluation, and Recommendation Report. Prepared By:Christopher Thnay, Transportation Engineer Department Head Review: City Manager Approval: KENNETH R. SCHREIBER Director of Planning and Community Environment EMII~ HANSON Assistant City Manager cc:Joan Holland Mr. Warren Kallenbach Mrs. Mello Cheryl Davis Harriet Lehrbaum Janice Banks CMR:416:97 Page 5 of 5 Attachment I 1997 The City of Pa|o Alto Citywide Stop Sign Requests~ Evaluation and ~¢commenda~on Repor~ Prepared By: Transportation Division Christopher Thnay, P.E. Table of Contents Executive Summary .........................................................i Intersection No. 1: Hale Street and Hamilton Avenue ................................1 Intersection No. 2: Parkinson Avenue and Harriet Street ..............................3 Intersection No. 3: Homer Avenue and Cowper Street ...............................5 Intersection No. 4: Channing Avenue and Webster Street .............................7 Intersection No. 5: N. California Avenue and Webster Street ..........................9 Executive Summary This report is the periodic update of the citywide "Stop Intersection System." It includes an evaluation and recommendation in response to requests for installation of stop signs from citizens at five intersections. The citywide "Stop Intersection System" was adopted by the City Council several years ago. Changes in traffic patterns and characteristics, and the need to evaluate safety and respond to citizen requests, necessitates that the City Council periodically consider whether to update the system. Most cities in California use California Department of Transportation (Caltrans) criteria (Appendix A), to determine if the installation of stop signs is wan’anted. These criteria include review of traffic volumes and traffic accident history. In Palo Alto, the justification for a stop sign on a local street is based on the following: (1) (3) The Council-adopted "guard and go" policy (installation of stop signs at every other block tO discourage through traffic from neighborhoods), Caltrans criteria, or Warrants adopted by the City Council in 1973, for installation of traffic control devices near schools (Appendix B). Stop signs cannot be installed in all circumstances, because they cause traffic delays, air and noise pollution, and create a general disregard for other traffic signs, when installed where they are not justified. The last staff report concerning this issue was forwarded to Council in 1995. Since then, staff has received many requests to install stop signs. Many of these requests were denied after conducting detailed investigations at the location. This report focuses on five locations where Council consideration is requested by the residents. Four of the five requests concern speeding, and one relates to apparent right-of-way (R-O- W) confusion. The purpose of stop signs is to assign right-of-way. A stop sign is not a speed control device. Past studies have shown that to make up time lost stopping at stop signs, drivers increase their speed mid-block between stop intersections. Staff has thoroughly investigated each site and recommends installing stop signs on Hale Street at Hamilton Avenue. A summary for each intersection follows. Hale Street/Hamilton Avenue: This request has been made by several area residents to .address the apparent right-of-way (R-O-W) confusion caused by the existing two-way stop intersection. Page i In 1996, there were four accidents at this intersection, all of which were fight-angle type accidents, which are susceptible to correction by improving the sight distance or installing stop signs. Since signing improvements have been made in the past and visibility is clear at the intersection, installation of stop signs on Hamilton Avenue may help reduce the number of right-angle accidents. Parkinson Avenue/Harriet Street: This request was made by several residents to help reduce speeding on Parkinson Avenue. Speed survey data indicate the 85 percentile speed fox" both directions of travel to be approximately 30 mph, which is similar to or lower than many residential streets in Palo Alto. Since stop signs are not speed control devices and the location does not meet Caltrans or "guard and go" criteria, staff does not recommend installing stop signs on Parkinson Avenue at Harriet Street. Homer Avenue/Cowper Street: This request was made by a resident to help reduce speeding on Homer Avenue and facilitate crossing Homer. As a result of the 1995 Stop Sign Request, Evaluation, and Recommendation Study, new stop signs were installed on Homer Avenue at Webster Street. Webster Street is only one block east of Cowper Street, therefore, vehicles that stop on Homer at Webster provide additional time gaps for pedestrians and vehicles at Cowper to cross Homer. Since stop signs are not speed control devices and the ¯ location does not meet Caltrans or "guard and go" criteria for installation of all-way stop signs, staff does not recommend installing stop signs on Homer Avenue at Cowper Street. Channing Avenue/Webster Street: This request was made by a resident to help reduce .speeding on Channing Avenue and facilitate crossing Channing. The resident indicated that there are a number of disabled and senior citizens who experience difficulty crossing Channing at Webster, due to the high speeds of vehicles traveling on Channing. Field observations indicate that adequate time gaps exist in traffic on Channing at Webster and crossing Channing Avenue does not appear to be difficult. Since stop signs are not speed control devices and the location does not meet Caltrans or "guard and go" criteria for installation of all-way stop signs, staff does not recommend installing stop signs on Channing Avenue at Webster Street. In addition, the Police Department has been providing enforcement in the area of Channing and Webster and has begun placing the mobile speed display trailer on. these streets to remind drivers of their speed, in an effort to control speed. Webster Street/N. California Avenue: This request was made by several residents to help reduce speeding on Webster Street. The residents also reported that some children traveling on N. California Avenue on their way to Jordan Middle School do not stop at the stop sign on N. California as they cross Webster Street, which might create a potentially dangerous situation. Field observations indicated that no visibility problems exist at the intersection. Also, a review of accident data did not indicate that there is a substantial safety or speeding problem at the intersection. Page ii 1997 Stop Sign Requests, Evaluations and Recommendations Study Intersection No. 1: Hale Street and Hamilton Avenue Figure 1 Hamilton Av. Fife Av Legend <~]Proposed SignSTOP Location Existing STOP Sign Request: Install stop signs on Hale Street at Hamilton Avenue. Requested By: Several area residents. Existing Conditions: Hale Street and Hamilton Avenue are two-lane local streets. Hale Street is a through street, while both the eastbound and westbound approaches on Hamilton are controlled by stop signs. As Shown above in Figure 1, stop signs currently exist on Hale Street one block north and one block south of Hamilton Avenue. Field observations indicate that the intersection is wide and visibility is clear on all approaches to the intersection. The stop control on Hamilton is clearly visible as a vehicle approaches from either direction. Page 1 199 7 Stop Sign Requests, Evaluations and Recommendations Study Evaluation: A review of accident data for the past six years indicates that seven accidents have occurred at this location; one in 1991, two in 1994, and four in 1996. All four accidents in 1996 were right-angle type, which are susceptible to correction by improving the sight distance or installing stop signs. In an attempt to improve the apparent R-O-W confusion, "2-way" supplemental signs were installed in December 1990. After the installation of the new signs, the number of accidents was reduced substantially, except in 1996. Since signing improvements have been made in the past and visibility is clear at the intersection, installation of stop signs on Hamilton may reduce the number of fight-angle accidents. Recommendations: Hamilton Avenue. Staff recommends that stop signs be installed on Hale Street at Page 2 199 7 Stop Sign Requests, Evaluations and Recommendations Stu@ Intersection No. 2: Parkinson Avenue and Harriet Street l! Channr~g AV ’l Walte~ Hays Schoo~ Figure 2 Cultural CenterCultural Center Legend ~ Proposed STOP Sign Location ~xisthg STOP Sign Request: Install stop signs on Parkinson Avenue at Harriet Street. Requested By: Ms. Joan Holland, Parkinson Avenue, Mr. Warren Kallenbach, Harriet Street and Mr. Rich Baker, a former resident on Parkinson Avenue. All parties expressed concern that vehicles travel at excessive speeds on Parkinson Avenue. Existing Conditions: Parkinson Avenue and Harriet Street are two-lane local streets. Parkinson Avenue nms east-west, between Melville Avenue to the west and Newell Road to the east. It is a tree-lined street with parking on both sides. Both streets serve a predominantly residential area, as well as several public facilities such as the Lucie Stern Community Center, Children’s Library, Rinconada Park, Main Library and the Cultural Center. As shown above in Figure 2, stop signs currently exist on Parkinson at Melville Page 3 1997 Stop Sign R, equests, Evaluations and Recommendations Stud), Avenue, one block to the west, and at Cedar Avenue, approximately one block to the east. Evaluation: Staff collected speed survey data on Parkinson Avenue to determine the extent of the speeding problem. The data indicate that the 85th percentile speed is 29 mph in the westbound direction and 30 mph in the eastbound direction. The 85th percentile speed on Parkinson Avenue is similar to or lower than many residential streets in Palo Alto and does not indicate any substantial speeding problem. The stop sign installation on Parkinson Avenue is consistent with the Council-adopted "guard and go" policy. Stop signs already exist on Parkinson at every other block. A review of accident data for the past six years showed no accidents at the intersection. In addition, the accident and volume data indicate that the location does not meet Caltrans criteria for converting a two-way stop intersection to a four-way stop intersection. Use of speed control devices, such as road bumps, is more appropriate to help resolve a speeding problem. Council previously adopted a set of criteria for installation of road bumps. Staffhas also evaluated this request for installation of road bumps, but the request does not meet the adopted criteria. Recommendations: Staff recommends that stop signs not be installed on Parkinson Avenue at Harriet Street. Page 4 1997 Stop Sign Requests, Evaluations and Recommendations Stu~ Intersection No. 3: Homer Avenue and Cowper Street Figure 3 Request: Install stop signs on Homer Avenue at Cowper Street. Requested By: Mrs. Mello, Cowper Street. Mrs. Mello is concerned that vehicles are traveling too fast on Homer Avenue making it unsafe to cross Homer Avenue. The same request was submitted by Mrs. Mello a couple of years ago. The request was. evaluated at that time, and a recommendation was included in the 1995 Stop Sign Requests, Evaluation, and Recommendation Study to the Council. At that time, the location did not meet Caltrans criteria for installing stop signs. Page 5 199 7 Stop Sign Requests, Evaluations and Recommendations Study Existing Conditions: Homer Avenue is a one-way collector street running in the westbound direction. As shown above in Figure 3, both the northbound and southbound approaches of Cowper Street at Homer are controlled by stop signs. In addition, stop signs currently exist on Homer one block east of Cowper, at Webster Street, and one block west of Cowper, at Waverley Street. Evaluation: As a result of the 1995 Stop Sign Requests, Evaluation, and Recommendation Study, new stop signs were installed on Homer Avenue at Webster Street on September 20, 1995. Since vehicles stop on Homer at Webster, which is only one block east of Cowper, this provides additional time gaps for pedestrians and vehicles at Cowper to cross Homer. In addition, the accident and volume data indicate that the location does not meet Caltrans criteria for installing stop signs. Recommendations: Staff recommends that stop signs not be installed on Homer Avenue at Cowper Street. Page 6 199 7 Stop Sign Requests, Evaluations and Recommendations Study Intersection No. 4: Channing Avenue and Webster Street Figure Request: To install stop signs on Channing Avenue at Webster Street. Requested By: Ms. Cheryl Davis, Channing Avenue. Ms. Davis indicated that there are a number of persons with disabilities and senior citizens who have experienced difficulties crossing Channing Avenue near Webster Street, due to the high speed of vehicles traveling on Channing. Existing Conditions: Channing Avenue is a one-way collector street running in the Page 7 1997 Stop Sign Requests, Evaluations and Recommendations Study eastbound direction, with posted speed.limits of 25 mph. As shown above in Figure 4, traffic signals exist on Channing one block east of Webster, at Middlefield Road, and two blocks west of Webster, at Waverley Street. In addition, the northbound and southbound approaches of Webster Street at Channing are controlled by stop signs Evaluation: Field observations indicate that no visibility problems exist at the intersection. The level of pedestrian and bicycle activity is low. A review of accident data for the intersection over the past six years showed only an average of one accident per year. Of these, only one accident (which occurred in 1994) could be attributed to traveling at an unsafe speed. The number of accidents does not indicate that there is a substantial safety or speeding problem at this intersection. In addition, the accident and volume data indicate that the location does not meet Caltrans criteria for installing stop signs. In addition, the Police Department has been providing enforcement in the area of Channing and Webster, and has begun placing the mobile speed display trailer on these streets to remind drivers of their speed, in an effort to control speed. Recommendation: Staff recommends that stop Signs not be installed on Channing Avenue at Webster Street. Page 8 199 7 Stop Sign Requests, Evaluations and Recommendations Study Intersection No. 5: N. California Ave and Webster Street Figure 5 David Starr Jordan Jr, High Request: To install stop signs on Webster Street at N. California Avenue. Requested By: Mrs. Harriet Lehrbaum, N. California Avenue and Ms. Janice Banks, Webster Street. Existing Conditions: Webster Street is a two-lane, north-south, residential street with posted speed limits of 25 mph. Webster Street is a through street, while both the eastbound and westbound approaches of N. California Avenue are controlled by stop signs. As shown Page 9 199 7 Stop Sign Requests, Evaluations and Reeommendations Study above in Figure 5, stop signs currently exist on Webster Street one block nol~h and one block south of N. California Avenue. Field observations indicate that no visibility problems exist at the intersection. Evaluation: A review of accident data for the intersection over the past six years showed an average of less than one accident per year. The number of accidents does not indicate that there is a substantial safety or speeding problem at this intersection, and the accident and volume data indicate that the location does not meet Caltrans criteria for installation of stop signs. In addition, the stop installation on Webster Street is consistent with the Council- adopted "guard and go" policy, because stop signs exist one block away from N. California Avenue in each direction. Recommendation: Staff recommends that stop signs not be installed on Webster Street at N. California Avenue. Page 10 CALTRANS STOP SIGN WARRANT Multi way STOP signs The "Multi way Stop" installation may be useful at some locations. It should ordinarily be used only where the volume of traffic on the intersecting roads is approximately equal. A traffic control signal is more satisfactory for an intersection with a heavy volume of traffic. POLICY Any of the following conditions may warrant a Multi way STOP sign, installation: Where traffic signals are warranted and urgently needed, the Multi way stop may be an interim measure that can be installed quickly to control traffic while arrangements are being made for the signal installations. An accident problem, as indicated by five or more reported accidents within a 12 month period of a type susceptible to correction by a Multi way stop installation. Such accidents include right and left-turn collisions as well as right-angle collisions. 3.Minimum traffic volumes (B) (c) The total vehicular volume entering the intersection from all approaches must average at least 500 vehicles per hour for any 8 hours of an average day, and The combined vehicular and pedestrian volume from the minor street or highway must average at least 200 units per hour for the same 8 hours, with an average delay to minor street vehicular traffic of at least 30 seconds per vehicle during the maximum hour, but When the 85th-percentile approach speed of the major street traffic exceeds 40 miles per hour, the minimum vehicular volume warrant is 70 percent of the above requirements. Appendix B AN EXCERPT FOR STOP SIGN JUSTIFICATION FROM THE CITY COUNCIL ADOPTED WARRANTS FOR TRAFFIC CONTROL DEVICES NEAR SCHOOLS Rccommendations and assign priorities to the City Manager and/or the Superintendent of the P,,ao Alto Unified School District for the application of traffic control devices. The analysis of the need for some form of special protection for a school crossing depends upon the following two assumptions: ao The maximum delay a child should be expected to accept should be no greater than that which would be experienced ifa traffic control signal, timed so as to provide an adequate crossing interval, were located at the crossing under study. bo Some form of device is essential when ’the number of adequate gaps in the traffic stream during the period the children are using the crosswalk is less than the number of minutes in that same period of time. That is, gaps less frequent than one per minute represent a situation that may require some form of warning or control device or measure. Information developed from field studies and measured against the various traffic control device warrants will determine the type of protectivemeasure that will be physically installed or established at the crossing. Generally, the policy for the installation of these devices is as follows: A.School pedestrian non-control measures 1. Types available Signs and Marl~ings Flashing Signals Pedestrian Walkways Variable Speed Zones ~2.The above devices will be installed at those school locations wherein the condition of traffic, i.e., speed, volume, street width and vehicle gap, having been reviewed by an engineering survey, are found to: a.Produce frequent and adequate vehicle gaps such that pedestrians may safely cross the street without additional controls being present. b. The unobstructed sight distance to the crosswalk is more than that ’ shown for speeds indicated: 25 mph 170 feet 30 mph 200 feet 35 mph 235 feet 40 mph 275 feet B.School pedestrian traffic control measures and devices 1. Types available Pedestrian grade separation School safety patrol Separated walkways Stop intersection Traffic signal system Transportation 2.The foregoing control measures and devices are to be considered when the conditions of traffic exceed those conditions listed under warning devices (non-control measures).