HomeMy WebLinkAbout1996-11-18 City Council (11)TO:
City
THE SUBJECT OF
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HONORABLE CITY COUNCIL
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FROM:CITY MANAGER DEPARTMENT:POLICE
TRANSPORTATION
AGENDA DATE: November 18, 1996 CMR:468:96
SUBJECT:Request for Approval to Complete Traffic and Engineering Surveys
to Consider the Establishment of Radar Enforceable Speed Limits and
Status Report on Related Strategies
REQUEST
In early 1995, staff presented the Policy and Services Committee with a list of
recommendations to address the issue of traffic safety. The Committee approved all of the
recommendations in May 1995, including one to establish radar enforceable speed limits not
to exceed 35 miles per hour on three selected streets for a three-month trial basis. Due to
several factors, including the public reaction to the recommendation, staff has taken a
considerable amount of time conducting research to determine if other alternatives were
available to assist in reducing speeds. As a result of that research, staff believes that the use
of radar continues to be an important tool in speed enforcement. Therefore, staff requests
Council direction to conduct traffic and engineering surveys, for the purpose of developing the
necessary information needed to determine whether or not radar enforceable speed limits should
be established on three selected streets for a three month trial period.
RECOMMENDATIONS
Staff recommends that Council direct staff to conduct traffic and engineering surveys, for the
purpose of gathering information that would assist Council in the decision making process of
whether or not to establish radar enforceable speed limits not to exceed 35 miles per hour, on
three selected streets for a three month trial basis. Upon completion and analysis of the surveys,
staff will return to Council in approximately three months with the results of the surveys. If the
information indicates that the posted speed limits should be raised in order to permit the use of
radar, staff will also return with the appropriate ordinance required to raise speed limits.
POLICY IMPLICATIONS
Pending the outcome of the surveys and a City Council decision that radar should be used for
speed enforcement, posted speed limits would need to be increased.
CMR:468:96 Page 1 of 16
EXECUTIVE SUMMARY
In March 1994, the City Council directed staff to review strategies and to develop alternative
methods to address concerns about the overall perceived deterioration of traffic safety
throughout the City. After a Council study session on traffic safety in September 1994, staff
developed a list of recommendations for enhancing traffic safety (CMR:192:95). The
recommendations were presented to, and discussed with, the Policy and Services Committee
at the April 11 and May 24, 1995 meetings. At that time, the Committee voted to recommend
all of staff’s proposals to Council. After considerable discussion, the Committee approved a
revision of staff’s recommendation to establish radar enforceable speed limits on three selected
streets for a six-month trial basis, to a three-month trial basis with posted speed limits not to
exceed 35 miles per hour.
On June 19, 1995, during the approval process for the 1995-96 budget, the full Council
approved all of the recommendations with the exception of the one dealing with speed limits.
As a result of considerable concern expressed by residents about the issue, Council decided to
continue discussion on the issue at a later time.
Since then, staff has conducted research into several issues regarding use of radar, such as the
associated legal restrictions/requirements, other cities’ experience with speed enforcement, and
other tools that have been suggested as possible alternatives to assist in speed reductions. The
discussion section of this report includes a summary of the information that was collected.
Based upon a review of the information, staff believes that the use of radar is a very important
tool that is needed to assist in speed enforcement.
DISCUSSION
Prior to summarizing the information that has resulted in the recommendation regarding the use
of radar and the corresponding potential change in posted speed limits, staff believes it would
be helpfifl to update the Council on the progress of the traffic safety recommendations that have
akeady been implemented. Additionally, Council has requested more information about photo
radar and red light cameras as possible tools that could be used to reduce speeds and enhance
traffic safety. That information is also provided.
Motorcycle Program
After a 23 year absence, the use of motorcycles for traffic enforcement was reestablished after
Council approval in May 1995. Although the process of purchasing and equipping the
motorcycles and training of the five otficers took longer than originally anticipated, the program
was fully implemented with all five officers on July 1, 1996. While the motorcycle officers
CMR:468:96 Page 2 of 16
provide enforcement throughout the City, much of their time is devoted to areas such as
downtown and major arterials, i.e. Embarcadero and San Antonio Roads.
Addition of Two Traffic Officers
During the first quarter of FY 1995-96, two officers were added to the traffic team, bringing the
total number of traffic team members to seven. However, due to the time required for the
motorcycle officers’ training and some injuries, the Traffic Team was not fully operational until
July 1, 1996. As a result of the additional two officers, Traffic Team coverage was expanded
to include evening commute hours and Saturdays.
The addition of the motorcycles and the two officers to the Traffic Team has resulted in a
significant increase in the number of citations issued by the Team. During the first quarter of
FY 96-97, the Team issued 2,779 citations compared to 978 in the same time period the
previous year. Because of the short amount of time the team and motorcycles have been fully
operational, other impacts have not yet been observed.
Flashing Lidats
Yellow flashing lights were suggested by residents to help reduce speeds on certain streets.
While there was little evidence to suggest their effectiveness in reducing speeds, staff did
recommend their installation on Embarcadero Road, on the east and west side of Walter Hays
School, for a trial period.
After Council approval, the lights were installed in November 1995. Speed data in the
westbound direction of Embarcadero was collected prior to the installation, one week after the
installation, and six months after the installation. The data revealed the following:
Time of Survey 8.5th Percentile Speed
Prior to installation
One week after installation
Six months after installation
37 mph
37 mph
36 mph
The data obtained six months after the installation indicated a reduction in speed of one mile
per hour. However, staff believes that this reduction is insignificant in that it is difficult to state
conclusively that it was the result of the installation of the flashing lights. Measurements of
speeds may fluctuate up to two to three miles per hour for various reasons. In view of the above
CMR:468:96 Page 3 of 16
data, staff does not recommend the installation of flashing lights at other locations, but does
intend to leave the flashing lights in place and operational at the location on Embarcadero Road.
Locations that Experience Higher Accident Rates
Based upon the number of accidents reported to the Statewide Integrated Traffic Records
System (SWITRS), a list of the top five Palo Alto locations was prepared. Attachment 1 shows
a four year comparison of numbers of accidents at the locations and the location ranking based
only on actual numbers of accidents. (Property damage accidents that do not result in
investigations are not reported to SWITRS and, therefore, are not included in these numbers.)
Transportation and Police Department staff reviewed the primary collision factors at these
locations to determine what engineering strategies and/or enforcement efforts may be helpful
in reducing the number of accidents at the location (refer to page 8).
Neighborhood Speedwatch Pro_re’am
The Neighborhood Speedwatch Program was initiated in January 1996 for a six month trial
basis. The program allows citizens to use hand-held radar units to record speeds of vehicles on
two lane roadways and document license plate numbers of vehicles exceeding the posted speed
limit. The Police Department uses the information to obtain registered owner information and
then sends letters to violators informing them that their vehicle was observed traveling in excess
of the posted speed limit.
To date, five requests fo~ the program have been received in the Barron Park area (residents
have used radar units to record the speed of vehicles traveling on six different streets in the
neighborhood), one on Middlefield Road and one in the 300 block of Bryant. Over 90 letters
have been sent to registered owners of vehicles who were in violation. While the program has
not been used enough tirnes to determine the impact on actual overall speed reduction, it is
interesting to note that the most frequent violators have been local residents, and in the case of
the Barron Park neighborhood, people dropping off their children at school.
While there has not been an overwhelming number of requests for participation by residents,
staff has continued the program due to the positive feedback from citizens. The program
provides residents with an opportunity to personally address .traffic safety in their
neighborhoods.
Police staff will continue to market the program through community meetings, word of mouth,
the Citizen Police Academy, and the media.
CMR:468:96 Page 4 of 16
Ci.ty Vehicle Safe Driving Program
This is one recommendation that has not been fully implemented to date. While the City
Manager and Department Heads have communicated to their respective staffs the importance
of safe driving and compliance with the rules of the road, phone numbers have not yet been
placed on City vehicles. Staff anticipates that this will occur by next summer.
Long Range Strategies
As part of the March 1995 report, staff recommended that Council provide direction through
its discussions of the Comprehensive Plan draft Transportation goals, policies and programs
regarding long range strategies, such as reduction of residential street widths, downsizing
arterials from four to two lanes, and development of a local transit system.
Since then, as part of the 1996-97 budget process, staff provided Council with a report
(CMR: 180:96) containing information about long-term traffic projects and programs, and the
magnitude of potential costs for future projects. In July 1996, staff also provided Council with
a recommended framework for prioritizing traffic and transportation projects (CMR:336:96).
As a result of this separate process, additional discussion on these items is not included in this
report.
QTHER IMPLEMENTED PROQRAM$/DEVIC,,ES
There have been some other traffic safety-related programs not requiring Council action which
staff has continued and/or initiated. They include the following:
Neighborhood Traffic Officer Pro_re’am - In July 1995, the Police Department’s Traffic Team
started the Neighborhood Traffic Program. Traffic officers are assigned two specific
neighborhoods for which they act as liaisons and for which they are responsible. The
neighborhoods are selected based upon the expressed level of interest on the part of residents
in the area and in the case of certain areas like E1 Camino, Alma and San Antonio Road, upon
the frequency of serious accidents. Officers spend at least one hour per shift working in their
assigned areas conducting enforcement, meeting with the neighbors, placing the radar trailer,
and/or other associated activities. Current assignments include Embarcadero Road, Midtown
area, Barron Park area, Alma Street, Downtown area, University North, San Antonio Road and
E1 Camino Real. The Ventura area is being added to the list.
CMR:468:96 Page 5 of 16
Bo~ Do~ - One mechanism suggested by residents who live along Embarcadero Road was to
install lines of small raised buttons (Bott Dots) at the end of the roadway as drivers exit the
freeway. While Bott dots can be an effective means to alert drivers to certain conditions such
as sharp curves, it is not evident that they are necessarily effective in reducing speeds.
Nevertheless, staff installed them on the east end of Embarcadero Road, east of St. Francis
Drive in the westbound direction to determine their effectiveness in reducing speed in that area.
Survey data from 1991 which indicated the 85th percentile speed to be 40 mph was compared
to the survey data collected after the installation of the Bott Dots. An increase of one mile per
hour was observed. As a result, staff does not intend on installing the dots anywhere else in the
City for speed reduction purposes, but will keep the dots in place on Embarcadero.
Radar Tr~¢r - The Police Department purchased a radar trailer in June 1993 and has used it
as a speed awareness educational tool to inform motorists about the speeds they are traveling.
The trailer has been placed at a variety of locations throughout the City this last year including
different sections of Middlefield, University, Alma, Embarcadero, Arastradero, Hamilton,
Bryant, Heather, Hawthorne, Melville and numerous streets in the Barron Park area. The trailer
has been put into operation for over 1,000 hours over a recent 120 day period.
On the average, it takes a minimum of one hour of staff time to set up and take down the trailer
each time it is used. When the trailer is in place, it serves to slow down traffic to a certain
extent as motorists become more aware of the speeds they are traveling.
On Going Traffic Safety Impr0vcmcnt~
Based upon a review of high accident locations and residents’ concerns, staff continues to make
minor and major traffic safety improvements, such as increasing traffic visibility by prohibiting
parking within certain distances from intersections or trimming bushes/trees, installing stop
signs, and installing or modifying traffic signals.
Currently, staff is developing plans to provide a left-turn green arrow indication for drivers
traveling southbound on Alma to eastbound Churchill, in order to reduce left-turn related
accidents. Plans are also being developed to provide left-turn green arrow indications for east
and westbound Embarcadero traffic turning left at both Newell and Middlefield Roads.
KED LIGHT CAMERA
In the staff report presented to Council in March 1996 (CMR: 180:96), staff indicated that
additional work was being done regarding the possible use of red light cameras at intersections.
CMR:468:96 Page 6 of 16
Since then, staff has extensively researched this alternative. The research has included meetings
with vendors who manufacture and sell the equipment, discussions with agencies across the
country who have used the cameras and!or who considered using them, and discussions with
representatives of the Santa Clara County Traffic Court.
Summary_ 0fRed Light Camera Operation - Red light camera systems consist of two parts. The
first part is a high-speed industrial camera and flash unit combined with a computer and digital
loop signal processor. One of these units is needed for each direction of vehicular traffic that
enforcement is to occur. For example, if red light violations were occumng at four directions
of travel at a particular intersection, four units would be required. The second part of the
system consists of the wiring and detection loops that are installed in the roadway, again for
each direction enforcement is to occur. The system is activated when a vehicle is detected
entering an intersection after the signal light has turned red. At the time of activation, the
camera photographs the rear license plate of the vehicle. Currently, improvements to the
systems are being conducted to produce a clear photograph of the front plate and the driver of
the vehicle.
Use of Cameras bv Other Agencies - Red light cameras have been used around the world for
about the last 15 years. The device was designed to be operated at intersections that
demonstrated a high incidence of accidents caused by people running red lights. While the
cameras have been utilized in places like Australia, China, and the Philippines for some time,
they have been in use in the United States only for about five years. According to the
information obtained by s .taft; New York City Department of Transportation has been using the
cameras the longest (since 1992). They installed about 15 cameras at intersections where
people running red lights were causing a significant number of accidents. While they have
experienced about a 10-15 percent decrease in the number of violations, only 60 percent of the
photos were suitable for prosecution purposes. Also, only 23 percent of the violators were sent
a notice of liability, because many of the vehicles were traveling either too fast or too slow.
Because the cameras are triggered to photograph front and rear plates during a specific time
period, vehicles traveling too fast were out of range and vehicles traveling too slow were still
in the crosswalk and not in the camera’s view.
It is interesting to note that almost all agencies in this country, outside of California, classify
red light violations similar to parking citations and not moving violations and as a result have
associated fines of only about $50.
Use by California Agencies - Prior to the beginning of this year, the use of red light cameras
in California was not legal except at railroad crossings. Senate Bill 833, effective January 1,
1996, amended California Vehicle Sections 210 and 21455.5, so that notices to appear may be
CMR:468:96 Page 7 of 16
issued in the absence of police officers. Additionally, the bill allows local agencies to install
red light cameras with the following requirements: signs must be posted at all major entrances
to the City; requires a 30-day education and a 30-day wamingperiod after commencement of
a red light program; and the registered owner and/or driver of a vehicle in violation must be
permitted to review the photographic evidence of the alleged violation. The bill authorizes the
Department of Motor Vehicles to withhold the registration, for three years, of the vehicle owned
by a person cited for running a red light, when a camera is used to record the violation and the
citation is ignored. The bill sunsets January 1, 1999.
While some agencies, such as the Los Angeles Metropolitan Transportation Agency, have used
red light cameras at railroad crossings for several years, due to the recent legislative change,
only one California agency has actually begun using the cameras for enforcement at
intersections. The City of San Francisco was to have begun a pilot program about eight months
ago at six intersections where they were experiencing a high number of accidents caused by
people running red lights. The cameras were to be installed by three different vendors. Due
to a number of problems they encountered, they just initiated a year’s pilot program at the end
of October. Cameras have been installed at four intersections by two vendors. According to
San Francisco City staff, there are still a number of processing questions that need to be worked
out. For example, San Francisco will send notices of violation to the registered owner of the
vehicle that is photographed. Because SB 833 does not include language that holds the
registered owner responsible, if the photograph is taken by the camera cannot be matched with
the driver’s license of the registered owner, prosecution will not take place. They are also
working on how to process cites for company and rental cars. They are hoping for a
considerable amount of cooperation from citizens.
Issues Regarding the Use of Red Light Cameras - Based upon the research staff has conducted
into the use of red light cameras, a number of issues and concerns have been raised. They
include the following:
1)Technical issues - as noted earlier, other jurisdictions around the country have used the
cameras to photograph only the rear license plates of vehicles. The technology to
photograph the front plate and a clear, identifiable picture of the driver is still being fully
developed in order to meet the legal requirements.
2)Legal issues - Because the State of California requires that citations for red light
violations be processed as a notice to appear for moving violations and not as parking
citations, identification of the driver of the vehicle at the time of the offense (instead of
the registered owner of the vehicle) is required prior to issuance of a citation.
CMR:468:96 Page 8 of 16
Not only have the technological problems mentioned above been difficult to master for
identification purposes, in discussions with representatives of the Santa Clara County
Court and District Attorney’s Office, the issue of Due Process and Constitutional Rights
are still a matter of concern. As an example, when a person signs a traffic citation
personally issued by a police officer, he/she is actually signing a notice to appear. If the
person does not appear in court, the courts have grounds to issue failure-to-appear arrest
warrants. In the case of citations sent through the mail for violations documented by a
camera, the violators do not make any promise to appear, and therefore, if they fail to
appear in court, the only legal action that can occur is for the District Attorney’s office
to file a complaint. Workload associated with this process alone is monumental, but the
burden of proof to establish receipt of the complaint and notice to appear is onerous.
3)Vendor issues - There are several issues involving vendors of red light cameras that are
important to note. While staffhas determined that vendors are certainly amenable to the
sale of the equipment, they actually prefer to provide the equipment and recoup their
costs through the processing of the actual citations. As an example, one vendor charges
$25 per citation or 90 percent of the amount of citation revenue the City receives. Palo
Alto currently receives an average of $14 per citation. Using this formula, Palo Alto
would receive $1.40.
In discussions with vendors, staff has learned that they are hesitant to enter into any
short-term agreements with cities using this formula, as it is not cost-effective for them
to install the equipment for short periods of time. Based upon the City’s previous
experiences with parking citation process vendors and the associated fmancial losses that
occurred due to criminal and negligent activities, staff would have some concerns about
entering into such an agreement with vendors of red light cameras.
The cost to equip an intersection with one camera (capable of photographing one
direction of travel only) is about $70,000. That does not include the costs to install the
traffic loops in the roadways.
4)Use at intersections with high accident rates - One common trend that staff has
identified, after researching red light cameras, is that those agencies across the country
who have installed them have done so only at intersections where there is a high
incidence of accidents caused by people running red lights.
A review of accident data for Palo Alto over the last few years reveals that there were
only two intersections that experienced up to four accidents caused by red light
CMR:468:96 Page 9 of 16
violations, Middlefield and Lytton and Alma and Homer. The following is a breakdown
of the number of accidents where the primary collision factor was nmning a red light:
19941993
27
38
65
25
Non-Injury 70
Total 95
1995
28
51
79
5)
6)
Arrests associated with traffic stops - While there is no statistical data available, a
concern about the use of red light cameras is that a number of arrests for offenses
ranging from driving under the influence, to possession of concealed weapons,
possession of illegal substances, warrants, etc., frequently occur as the result of an
officer malting vehicle stops for traffic offenses such as red light violations. The use of
cameras for enforcement of these violations, as well as for speeding (photo radar),
eliminates this contact and, therefore, reduces the number of associated arrests.
Stafffime - The amount of stafftime associated with the operation of a red light camera
depends upon the type of arrangement with the vendor, the number of cameras in
operation, and the number of people who contest their citations in court. If an agreement
is made with the vendor for processing the citations, the vendor handles the film
exchange (daily) and equipment maintenance. It is probable that an officer’s signature
would be required on the notice to appear in Santa Clara County Court. San Francisco
has just implemented a part of their process in which an officer reviews and signs all of
the citations before they are sent to the violators.
Since there is not a city in Santa Clara County using a red light camera, there is still
some uncertainty regarding the requirement of an officer appearing in court to testify
when violators contest their citations. Based upon information received from the
County’s Traffic Commissioner, however, this requirement is very likely. If a number
of people contest their citations, considerable staff time would be spent in court. One
thing is clear, however, and that is staff time would be needed to assist people who
wished to view the photograph associated with the vehicle license numbers. Based upon
the experience of agencies like New York City (photographs only rear plate), only 60
percent of the photographs were useable for prosecution in a year due to factors
CMR:468:96 Page 10 of 16
including the speed of the vehicles (if a vehicle is traveling much faster or slower than
the speed limit, the camera is unable to take the required two photographs), license plate
obstructions, weather, and equipment malfunction.
Based upon all of this information, staff does not recommend pursuing the use of red
light cameras at this time. Staff will continue to monitor the use by other agencies as
they work out technical, logistical and legal issues.
PHOTO RADAR
Staffhas conducted considerable research in the use and operation of photo radar equipment.
Cities who are using, have used, or considered using photo radar were contacted for
information. Additionally, discussions were held with representatives of the Santa Clara
County District Attorney’s Office and Traffic Courts.
Summary of Photo Radar Operation - A photo radar system is usually mounted on a trailer or
in the rear of a van-type vehicle. It consists of two components, a programmable computerized
camera and a radar unit. After a speed is programmed into the system, using a narrower, less
powerful radar beam compared to hand-held radar guns, the photo radar unit reads and
photographs the driver of oncoming vehicles exceeding the preset speed. The photograph
captures the front license plate and the driver’s face together with the time, date, location and
the speed in which the vehicle was traveling.
The film is processed and the registered owner is identified through checks with the Department
of Motor Vehicles.
Use by Other Agencies - Only about seven other cities in the state have used or are using photo
radar for speed enforcement. Attachment 2 provides a summary of the cities.
Council will note that a number of cities have considered the possibility of using photo radar,
but have decided against it due to costs, legal issues, vendor problems, and concern over poor
public relations. These cities include Livermore, Walnut Creek, Menlo Park, Santa Cruz, Los
Altos, San Leandro, Richmond, Mountain View, San Mateo, and Pleasanton. The cities of
Danville, Folsom, and Pasadena have actually discontinued using photo radar due to reasons
ranging from contractual problems with vendors to negative public response.
There are several issues that are important to note concerning photo radar. They include:
CMR:468:96 Page 11 of 16
1)Legal issues - Like the use of hand-held radar units, the use of photo radar may be used
only for enforcement on those streets that are in compliance with the 85th percentile
requirement. Also, similar to the red light camera, there is concern about the lack of due
process and difficulty associated with violators receiving notices in the mail to appear,
rather than receiving the notices in person.
2)Stafffime - Information received from other agencies indicates the amount of staff time
associated with the operation of photo radar is significant. Legally, the unit must be
staffed full time while in operation. Agencies use either police or community service
officers for this purpose. Officers are also required to appear in court when violators
contest their citations. Experience of a number of agencies demonstrates an increase of
20 to 50 percent in the number of people who choose to go to court.
3)Costs - Vendors usually provide three types of options for use of their photo radar
equipment.
Turnkey - With this option, the vendor provides all the equipment, sets up the
unit, develops the photographs, and processes the citations. The agency only
provides the staff to monitor the unit during operation and for court. In return,
the vendor’s compensation is 100 percent of the agency’s portion of the traffic
fines. Vendors normally require that the trait be deployed for a minimum number
of hours per week (usually 130), using this option.
Lease - Using this option, the vendor provides only the equipment, while the
agency must provide staff to set up, monitor and process the citations. Lease
costs average about $60,000 per year per intersection.
Purchase - The purchase cost of a radar unit is approximately $80,000. This does
not include film purchase and development or the vehicle needed to transport the
unit.
4)Public Relations - As noted above, one of the biggest downsides to the use of photo
radar (and a red light camera) is negative public relations. When citizens receive notices
in the mail to appear for traffic offenses, they are precluded from confronting an officer
at the time of the violation, and as a result, perceive photo radar very negatively. It is
for this reason that most agencies experience the increase in the number of people who
contest their citations in court.
CMR:468:96 Page 12 of 16
As noted under the information about red light cameras, there is also a reduction in the
number of arrests associated with speed enforcement traffic stops.
While the use of photo radar receives some positive reports for speed reduction in
certain areas, based upon the information provided above, staff does not recommend
implementation of photo radar at this time.
ESTABLISHMENT OF RADAR ENFORCEABLE SPEED LIMITS
As detailed in attached CMR:439:94, there are three methods that can be used to conduct speed
enforcement within the City of Palo Alto, pacing, individual radar and group radar. Because
of the safety issues associated with pacing, staff believes that radar is the most effective speed
enforcement tool available. In order for radar to be used, compliance with the commonly
referred to "85 percentile" regulation found in the California Vehicle Code (CVC) is required.
Since May 1995, staff conducted additional research into the CVC regulations and the legal
ramifications associated with the use of radar. Staff believes that this information would also
be beneficial for Council for its consideration on the proposed recommendation.
Section 40801 CVC prohibits the use of a speed trap for the purpose of arresting a violator or
for securing evidence that could be used in the prosecution of a violator. This provision was
adopted so that local entities would not set speed limits arbitrarily, but would do so based upon
certain consistent criteria. A speed trap is defined for city streets as those sections of a roadway
with a prima facia speed limit, which is provided by the CVC or by local ordinance, which
speed limit is NOT justified by an engineering and traffic survey conducted within five years
of the violation and where enforcement involves the use of radar or other electronic devices.
The three elements of engineering and traffic surveys as defined in CVC Section 627 are: 1)
speed surveys, 2) non-apparent road conditions, and 3) accident records. The speed surveys
provide the basis for determining the 85th percentile speed. The speed limit normally should
be established at the first five mile per hour increment below the 85th percentile speed.
However, in matching existing conditions with the traffic safety needs of the community,
policies and procedures contained in the Caltrans Traffic Manual permit consideration of further
reduction in the speed limit of 5 mph. For example, in an area with an 85th percentile speed
limit of 39 mph, the speed limit would be posted at 35 mph. However, it could be lowered to
30 mph based on 1) a high number of speed-related accidents and/or 2) non-apparent road
conditions, such as inadequate stopping distance, presence of pedestrians without a sidewalk,
super elevation, etc. According to the CVC, radar may be used for speed enforcement in school
zones when children are present, on streets that are posted with a speed limit that is justified by
a traffic and engineering study according to the 85th percentile speed, and on all local
CMR:468:96 Page 13 of 16
residential streets (not arterial or collector streets) that meet all of the following criteria: 1) are
not more than 40 feet wide, 2) have only one lane in each direction, and 3) have a traffic control
device (e.g., stop sign, traffic signal) at least every one-half mile of uninterrupted length.
Staff obtained information from representatives from the California Highway Patrol, the Santa
Clam County District Attorney’s Office and Traffic Commissioner concerning the use of radar
and general speed enforcement issues. The consistent message that staff has received from all
those agencies contacted is that the courts have clearly stated that radar cannot be used for
speed enforcement efforts, if the particular roadway is not in compliance with the 85th
percentile regulation. Some agencies have tried to do so in the past, but when challenged by
violators who have received citations, the Appeals Courts have continually not upheld
convictions when the posted speed limits are not consistent with the CVC requirements. The
courts have also upheld challenges to citations that have been issued for what the courts
consider unreasonably lower speeds. While there is not a specific defmition for these
unreasonable lower speeds, it is the consensus of opinion that depending upon conditions,
unreasonably lower speeds usually include anywhere between two to five miles over the posted
speed limit. It is for this reason that the 85th percentile regulation was established.
It should be noted that the California Legislature adopted two exceptions to the speed trap
section of the vehicle code for a period of three years. In 1995, AB 843, exempting one specific
street (Chase Street) in the City of E1 Cajon, and SB 574, exempting one (Mast Boulevard) in
the City of Santee, were adopted. The reasons that led to these two exceptions include the
following:
¯ Mast Boulevard - This is a four lane residential collector with three elementary schools
along it. A large increase in traffic volume was expected during the construction of a
new state highway interchange that fed onto the roadway. The City of Santee hired a
lobbyist who was able to assist in getting the legislation adopted. According to
information from Santee City staff, while they are currently using radar per the
legislation, it is under review for possible court challenge by the Automobile
Association.
Chase Street - This street was a two lane roadway that was widened to four lanes. The
posted speed limit had been 40 mph, which was determined by traffic and engineering
surveys to be the safe speed. Due to a severe curve in the roadway, residents requested
the speed limit be reduced to 35 mph with continued use of radar enforcement. The city
attempted to get some changes made to the CVC through the State Legislature, but due
to some strong opposition from various other groups, the initial attempt was not
successful. A private citizen who lived along the street was able to convince the
CMR:468:96 Page 14 of 16
legislator to sponsor a bill exempting the street from the CVC requirement. The
legislator was successful and the bill was passed. It expires, however, in 1999.
Based upon this information, staff concludes that radar is the most cost-effective means for
enforcement of speeding violations on the major arterials. Currently, based upon surveys that
have been completed in the last five years, radar is used on many streets, such as Alma Street,
University Avenue, San Antonio Road, Sand Hill Road, and Oregon Expressway as they meet
the 85th percentile requirement. Official surveys have not been conducted on Middlefield Road,
Embarcadero Road, Arastradero Road and Charleston Road since the early 1990s. Traffic
Team members have recently been using radar to stop and warn drivers who are exceeding
posted speed limits by 10-15 miles per hour. While this is a good educational tool, motorists
soon learn that radar cannot be used on those roadways to issue citations and as a result, overall
speeds do not appear to be decreasing. Therefore, staff seeks Council approval to conduct
traffic and engineering surveys on these roadways, in order to obtain information needed to
determine whether or not posted speed limits should be raised in order to permit the use of
radar.
FISCAL IMPACT
The costs associated with the recommendations in this report would be the staff time required
to conduct the traffic and engineering surveys. Pending the results of the surveys, if the Council
were to adopt an ordinance that changed the posted speed limits, additional costs associated
with the replacement of the speed limit signs and the pavement legends would be incurred.
ENVIRONMENTAL ASSESSMENT
Establishment of radar enforceable speed limits is not considered a project under CEQA and,
therefore, no environmental assessment is necessary.
ATrACHMENTS
Attachment 1: Four Year History of the Top 5 Accident Locations
Attachment 2: Photo Radar Use by Other Agencies
Attachment 3:CMR:439:94
PREPARED BY:Lyrme Johnson, Assistant Police Chief
Ashok Aggarwal, City Traffic Engineer
Don Hartnett, Traffic Lieutenant
CMR:468:96 Page 15 of 16
KENNETH R. SCHREIBER, Director of Planning and Community
Environment
CHRIS DURKIN’, Police Chief
CITY MANAGER APPROVAL:
FLEMIN(city
CMR:468:96 Page 16 of 16
ATTACHMENT 1
TOP ACCIDENT LOCA~ONS
Number I
Number 2
Number 3
Number 4
Number 5
1992
(# of accidents)
Middlefield!
San Antonio
(12)
University/
Guinda (11)
E1 Cammo
Real/Page Mill
(11)
Middlefield!
Lytton (11)
Hamilton/
Waverley (8)
1993
(# of accidents)
E1 Camino
Real/California
Avenue (16)
E1 Camino
Real/Charleston
(14)
Charleston/
San Antonio
(14)
Alma/Churchill
(14)
E1 Camino
Real/
Embarcadero
(13); E1 Camino
Real/Page Mill
(13)
1994
(# of accidents)
University/
Seneca (15)
E1 Camino
Real/Charleston
(14)
Embarcadero/
Middlefield
(14)
Charleston/
San Antonio
(13)
East Bayshore/
Embarcadero
(12)
1995
(# of accidents)
E1 Camino Real/
Charleston (17)
Middlefield/
San Antonio (16)
Charleston/
San Antonio (16)
East Bayshore/
Embarcadero (15)
E1 Carnino Real/
Embarcadero (14)
Numbers of accidents based upon the number reported to the Statewide Integrated Traffic
Records System (SWITRS). Accident locations are calculated based upon accidents that
occur within 400 feet on each side of the intersection.
°~
City of Palo Alto
City Manager’s Report
TO:
FROM:
HONORABLE CITY COUNCII~
CITY MANAGER DEPARTMENT:Police
AGENDA
DATE:
SUBJECT:
September 26, 1994
Traffic Safety
CMR:439:94
REQUEST
In March 1994, the City Council requested that staff schedule a Council Study Session on
traffic safety due to concerns that not enough efforts to assure traffic safety in the City were
being considered and/or implemented. Staff was directed to present strategies and suggest
policy alternatives for possible Council consideration.
RECOMMENDATIONS
This is an informational report and no recommendations are presented at this time.
POLICY IMPLICATIONS
Any policy implications result from direction for the Council.
EXECUTIVE SUMMARY
Over the last year, Council members received considerable feedback from citizens regarding
a perceived deterioration of general traffic safety throughout the community. Specifically,
the concerns focused on the speed at which vehicles were travelling, the failure to obey the
rules of the road, and an increased risk to pedestrians and bicyclists. As a result of these
concerns, Council directed staff to review current strategies that are being used to address
traffic safety and suggest potential other ideas for increasing safety in the community.
Since receiving the assignment, Transportation and Police Department staff have gathered
a considerable amount of information concerning traffic safety issues. Staff has approached
this assignment from a two phase approach. This report and the discussion represents the
first phase. Based upon the feedback and direction received from Council, staff would
CMR:439:94 Page 1 of 3
return in phase two with specific suggested recommendations and more detailed information
about strategies that could be pursued.
For the purposes of this report, "traffic safety" refers to the safe and orderly flow of
pedestrian, bicycle and vehicular traffic. The information, provided in the attached
documentation, has been divided into six major topics: speed, traffic volume, accidents,
school commute, commercial vehicles, and CalTrain grade crossings. For each major topic,
a list of general public perceptions is presented. The list of perceptions were developed
from letters and-telephone calls that have been received over the last year regarding traffic
complaints. Factual data was obtained from Police and Transportation records as well as
State information. The list of existing strategies includes all the programs and procedures
that are currently used in the City. Per Council direction, staff has provided a list of
potential other strategies. It is important to note that these strategies are presented without
discussion about their feasibility, cost, practicality, etc. While a considerable amount of
information is provided, staff believes that it is important for Council to have this
information as a basis for discussion and possible future direction.
FISCAL IMPACT
Any fiscal impact would be dependent upon the direction that Council may wish to pursue.
ENVIRONMENTAL ASSESSMENT
While there are environmental issues that are associated with many of the potential
strategies, the specific assessments would be presented on a case-by-case basis.
ATTACHM NTS - Data Document
PREPARED BY:Jon Hernandez, Lieutenant
Marvin Overway, Chief Trans~tm~tion Official
Lynne Johnson, Assi/s~t/P61ice ~hief
Ashok Aggarwal,~.ty ~T~ffic/EEnginee~._._
DEPARTMENT HEAD REVIEW: -
CHRIS DURKIN
Police Chief
CMR:439:94 Page 2 of 3
CITY MANAGER APPROVAL:
KEN SCHREIBER
Dir~tor of Planning
C1~!R:439:94 Page 3 of 3
FORMAT
~OPIC:
Each of several topics/issues to be discussed.
A.PERCEPTION:
A statement or description concerning what we think is the
perception of the public regarding the topic. Numbers in
parentheses refer to factual data associated and/or strategy
information items.
B.FACTUAL DATA/INFORMATION:
Data, information, professional opinion, that helps provide
background and understanding of the topic/issue.
C.EXISTING STRATEGIES:
Identification and brief description of methods/procedures
currently used to address the topic/issue,including
enforcement, physical, and education measures.
D.POTENTIAL OTHER STRATEGIES:
Identification and brief description of methods that might be
possible.
TOPIC: SPEED
SPEED - The rate at which vehicles travel on/through City
streets
A.PERCEPTIONS:
Traffic generally travels too fast within and
through the City. (B2,B3)
People are not obeying the posted .speed
limits. (B2,B3)
Speeds are increasing. (B3)
There is insufficient traffic enforcement and
police are not visible enough and, as a
result, people continue to speed. (BS)
Speed enforcement is not a priority for the
police department. (B5)
Posted speed limits are enforceable.
(B2,B3,B4,B7)
City vehicles are habitual offenders when it
comes to exceeding the speed limit. (B8)
Increasing the posted speed limit increases
the actual travel speed. (B6)
FACTUAL DATA/INFORMATION:
Radar enforceable speed limits are based upon
the 85th percentile speed (that speed below
which 85 percent of the traffic is moving).
This is based on the premise that 85 percent
of the people are able to accurately assess
features of the roadway and characteristics of
the adjacent area and will adjust their speed
accordingly to what is reasonable and safe.
Speeds higher than the 85th percentile are not
considered reasonable and safe.
Speed survey data from a sample of arterial
and collector streets is as follows:
Arterial Streets
Alma (3 sections)
Hillview
Oregon
Page Mill
Sand Hill (2 sections)
University
85th Posted
Percentile Speed
Speed Limit
42/43/44 35
43 35
43 35
43 35
40/41 35
33 25
Collector Streets
Colorado (2 sections)
Fabian Way
Hanover
Hillview
Loma Verde (3 sections)
Louis (2 section)
Meadow (3 sections)
Newell (2 sections)
Welch
West Bayshore
(3 sections)
33/34 25
39 30
36 30
39 30
33/34/34 25
34/34 25
34/34/33 25
32/33 25
34 25
39/42/41 30/35/35
Travel speed data monitored at several
locations indicates insignificant changes over
a period of 13 years, as shown below:
85th Percentile Speed Posted
1977 1978 1983 1990 Limit
University 36 36 35 33 25
West of Hale
Middlefield 41 37 40 -25
No. of Montrose
Middlefield 38 35 35 -25
No. of Kingsley
Middlefield 38 36 35 -25
So. of Hawthorne
Embarcadero 40 40 41 40 25
at Morton
Embarcadero 41 38 39 37 25
East of Cowper
Legal limitations on speed enforcement:
Section 22350 of the Vehicle Code, the "Basic
Speed Law," says no person shall drive at a
speed that is unsafe for the roadway
conditions. This ~ection makes no reference
to exceeding the posted speed limit. When
o
testifying in court, an officer must prove the
speed was unsafe, not just in excess of the
posted limit. This law applies to any speed
above or below the posted limit in relation to
the safe speed dictated by the roadway
conditions.
Section 22349 of the Vehicle Code, the
"Maximum Speed Limit," says no person shall
drive faster than 55 mph. This law applies to
city surface streets, as well as the freeway.
Due to this law dictating the maximum speed
limit, regardless of roadway conditions, any
person driving faster than 55 mph is in
violation.
Section 40802 of the Vehicle Code, "Speed
Trap," defines how speed enforcement can be
conducted. This section prohibits the use of
time distance calculations to determine speed.
This section also requires a speed limit to be
determined by an "engineering and traffic
survey" in order to use radar to enforce a
speed limit. There are exceptions to this
requirement such as school zones with children
in the area and non-federal aid local streets.
During fiscal year 1991-92, the Palo Alto
Police Department issued 7,351 speed-related
citations. In fiscal year 1992-93, 4,724
speeding citations were issued. The number of
speed-related citations has decreased over the
last three years as a result of the
department’s change of traffic enforcement
tactics. In fiscal year 1991-92, emphasis was
placed on group radar enforcement, sometimes
as often as three or four times a day. Group
enforcement results in more citations being
issued in shorter periods of time. In 1992-
93, the department’s focus began to change.
Enforcement emphasis was directed to areas and
intersections with the highest number of
accidents. Additional hours were spent on
safety presentations at elementary and middle
schools and additional attention was given to
school zones.
In 1993-94, the Traffic Team began devoting
additional hours to commercial vehicle
enforcement and inspections, due to the number
of trucks being stopped with serious equipment
defects. Also during that time, the Traffic
Team worked with only one sergeant and three
officers (instead of one sergeant and five
officers). This was the result of a higher
than normal number of injuries (five officers
during a ten-month period) within the
department which affected minimum staffing
requirements on all patrol shifts. Traffic
Team officers were also assigned to supplement
daily patrol positions for injured officers
throughout the year.
Technical studies and experience in other Bay
Area communities indicates that raising posted
speed limits to conform with the results of
prescribed Engineering and Traffic surveys
does not result in a corresponding increase in
overall speed.
It is unrealistic to set artificially low
speed limits and expect a majority of the
drivers to naturally accede to such limits.
It is equally unrealistic to expect that
through enforcement, a majority of drivers can
be forced to conform to artificially low speed
limits. Furthermore, experience has shownthat artificially low posted speed limit signs
have little, if any, significant influence on
driver behavior.
The City Manager has reinforced with
Department Heads the importance of City
employees driving City vehicles according to
the speed limits.
C.EXISTING STRATEGIES:
i.Speed Enforcement
General traffic enforcement is conducted
by all patrol officers.
The Police Department’s Traffic Team is
staffed by five officers and one
sergeant. The primary responsibility of
the Traffic Team is to deal with all
traffic-related problems within the City.
Traffic Team members regularly work
daytime hours, but occasionally adjust
their schedules to address traffic
problems during evenings and weekends.
Officers target areas known to have
speed-related problems and conduct high
profile enforcement in efforts to reduce
speeds and accidents. Officers conduct
speed-enforcement in three ways:
individual radar, group radar and pacing.
Individual radar enforcement is when an
officer, working alone, uses radar to
obtain a violator’s speed and then stops
the vehicle and issues the driver a
citation.
Group radar is when one officer operates
radar from a stationary location and
radios to other officers down the road.
These other officers stop the violators~
and issue citations.
Pacing is conducted by officers in marked
patrol cars and requires them to drive
behind a violator. The officer must
reach the violator’s speed and then
maintain the pace for a sufficient
distance to prove in court the actual
violator’s speed. Because of safety
concerns, the pacing method is used on a
limited basis and usually only during
periods of light traffic.
Officers also concentrate enforcement
efforts in areas that have been reported
by citizens as having speed problems.
Depending on the location and resources
available, the most appropriate
enforcement method will be used.
High profile enforcement stops are also
used by the Traffic Team to educate
citizens. The purpose is to give verbal
warnings and educate the public about
their unsafe driving and to give a
"police presence" to the problem area.
Phantom cars (empty marked patrol cars)
are parked on the side of the road in
problem areas, to again, give a police
presence without depleting staffing.
The mobile radar trailer is placed at
different locations throughout the City
to advise motorists of their actual
speeds.
6
2.Road Bump Proqram
In 1991, Palo Alto established a Road Bump
Program. The purpose of the program is to use
road bumps to lower speeds on local
residential streets. The program identifies
criteria (basic, neighborhood support, and
operational) that must be met and standards
for the location and design of road bumps.
Road bumps cost about $5,000 per bump and are
often installed as a series of two or more.
The only locations at which road bumps (8
total) have ~been installed to date are on
Cowper, Colorado and Marion in the Midtown
area. Few, if any, comments, favorable or
unfavorable, have been received regarding the
existing road bumps.
Do ’POTENTIAL OTHER STRATEGIES:
i.City Vehicle Pace Car Program
All city vehicles could have "I drive the
LIMIT" bumper" stickers. Included on the
sticker could be a phone number for citizens
to report how the City vehicle was being
driven.
2.Speed Watch Program
Bellvue, Washington and Portland, Oregon have
volunteer-based Neighborhood Speed Watch
Programs. These public awareness programs are
intended to make drivers aware of residents’
concerns regarding the impact of speeding on
neighborhood safety and livability. This
awareness occurs by sending letters to the
registered owners of speeding vehicles noted
by residents. The cities provide radar guns
and training to participants; participants
collect license plate numbers and vehicle
information on those cars traveling in excess
of 5 mph over the speed limit; city staff
obtains owner’s names and addresses from
Department of Motor Vehicles and sends a
letter to the vehicle’s owner. The program is
used only for lower volume, two-lane streets
and not on busier four lane streets where it
is more difficult to record information and to
use radar to properly assess a vehicle’s
speed.
3.Neiqhborhood Traffic Manaqement Proqram
A number of cities have formal neighborhood
traffic management programs to serve as a
means to address neighborhood residents’
concerns about speed, safety and other traffic
related issues. While Palo Alto in fact has
had such a process for many years, it lacks:
the formal structure and presentation
materials, and
an annual commitment of dollars for
implementation of physical measures,
characterized by the current higher
profile models in other cities.
Reduction of Neiqhborhood Street Width
One of the factors that influences driver
perception about what is a reasonable and safe
speed, is the width of the travel lanes and
the presence and proximity of objects along
the side of the travel lane. For example, a
driver has a very different sense of what is a
reasonable and safe speed on the quite narrow
streets with on-street parking in the
Southgate neighborhood as compared with the
wider streets, rolled curbs, cars parked in
driveways or up on the curb/sidewalk that
typifies some residential areas in Palo Alto.
One strategy to reduce speeds could be to
narrow existing wide streets. This could be
done on a full block-by-block basis or at
periodic locations (e.g., use of bulbouts)
along a block. Either approach could be
accompanied by significant roadway drainage
and design considerations.
Downsize Arterial(s) from Four Lanes to Two
Lanes
Conversion of current four lane "residential"
(proposed CPAC designation) arterials
(Embarcadero, Middlefield, Charleston and
Arastradero) to:
a two-lane roadway with a continuous
center turn lane (or an optional
landscaped median),
Do bike lanes, and
on-street parking, while maintaining
current lane configurations at major
intersections, could possibly have the
effect of reducing travel speeds by about
5 mph. A rough cost estimate to restripe
(continuous center turn lane option) the
full length of Embarcadero Road (2.2
miles) is $250,000; a rough cost estimate
for a fully landscaped center median
option would be $1.5 million.
Safety Checkpoints
Officers using the group enforcement method
could work high volume roads for safety
violations. These violations would include
seat belts, child safety seats and mechanical
violations.
7.Use of Photo Radar
This device is similar to the City’s current
Radar Trailer; however, the unit could be
hidden and equipped to take photographs of
violators, their vehicle and license plate.
Citations would then be mailed out to the
registered owner with the photo of the driver.
8.Radar Drones
Radar drones could be installed on city power
poles. These drones would transmit a radar
signal which would in turn set off a driver’s
radar detector. Once a driver using a radar
detector thinks radar is being used in the
area, he/she would presumably slow down.
Police Motorcycles for Traffic Enforcement
Motorcycles could be used for working heavily
congested areas such as downtown and
intersections along E1 Camino Real,
Embarcadero and Alma. Motorcycles are smaller
and. much quicker than full-size patrol cars,
and allow officers to quickly and safely enter
traffic, catch up to, and stop violators. In
addition to being used in heavily congested
areas, motorcycles are effective in less
congested areas due to their smaller size.
When a patrol car is parked in a problem area,
i0.
ii.
most drivers see the vehicle and obey the
laws. When drivers don’t see a patrol car,
they may be less prone to follow the rules of
the road.
Establish R@alis~..ic/Radar Enforceable Speed
Limits
In order for the police department to use
radar for speed enforcement, the speed limit
could be posted in accordance with an
engineering and traffic survey as required by
the California Vehicle Code. While posting
speed limits per survey requirements may
result in higher posted speed limits, studies
indicate that travelling speeds do not
increase and it provides a means for police to
enforce speed limits in a cost efficient and
safer manner.
Increase Number of Officers Dedicated to
Enforcement
Increasing the size of current Traffic Team is
another option. Currently one sergeant and
five officers work Mondays through Fridays,
6:30 a.m. to 4:30 p.m., (times of day and days
of week adjusted from time to time). By
increasing the size of the Team, there would
be more officers to focus on enforcement of
all Vehicle Code regulations, increase the
number of commercial vehicle inspections, and
dedicate time to routine traffic complaints.
This would also allow for the Team to expand
enforcement efforts to a night shift and
weekends more frequently. While increasing
the number of officers dedicated to traffic
enforcement would result in more citations
being issued and a corresponding decrease in
the number of accidents, no guarantee exists
that the number of violators would decrease.
i0
II.TOPIC: VOLUME
VOLUME: - The number of cars travelling on and through City
streets.
A. PERCEPTIONS:
The volume of vehicle traffic is too high.
(BI,B2,B3)
The volume of vehicles is increasing rapidly.
(BI,B3)
A significant portion of traffic volume is due
to non-Palo Alto residents. (B4)
The City is not doing much to control the
increase in traffic volume. (BI,B2,B3,B4)
B.FACTUAL DATA/INFORMATION:
In the past 25 years, traffic volumes on the
major roadways in Palo Alto have been
increasing at an annual rate ranging from 0.5
percent to 3 percent. Citywide traffic volume
flow maps for 1969 and 1993 are presented in
Appendices A and B.
Typical traffic volume ranges for various
types of streets are as follows:
Freeways and 18,000-150,000 vehicles/day
expressways
Arterial streets 10,000-45,000 vehicles/day
Collector streets 1,000-i0,000 vehicles/day
Local streets i00- 2,500 vehicles/day
As part of the followup to the Citywide Land
Use and Transportation Study, traffic volumes
at ii major intersections in Palo Alto are
monitored on a one- to two-year cycle. The
data collected in 1985, 1990, 1992 and 1993
indicates the following:
1992 p.m. peak hour traffic volumes, at
all but one intersection, were less than
the previous recorded volumes (1990), and
1993 p.m. peak hours traffic volumes at
all ii intersections are less than or
equal to values anticipated and approved
a spart of the Citywide Study.
ii
Census data (1990) provides some helpful
indicators of travel characteristics.
The total number of vehicle trips is
about 600,000/day.
Do About i0 percent of vehicles are just
passing through the City.
The remainder is split:
45 percent attributable to Palo
Alto/Stanford residents and
45 percent attributable to non-Palo
Alto/Stanford residents.
The 45 percent Palo Alto/Stanford
residents portion is about:
25 percent within the Palo
Alto/Stanford area and
20 percent outside the Palo
Alto/Stanford area.
C. EXISTING STRATEGIES:
i.Land Use Policies that Reduce Growth Potential
In 1989, the Citywide Land Use and
Transportation Study resulted in actions by
the City of Palo Alto to address community-
wide concerns about increasing traffic
congestion resulting from continuing
commercial and industrial development. At
that time, development potential was reduced
from 25 million square feet to 3 million
square feet. The 3 million square feet
represents an 88 percent reduction in
development potential and only a 12 percent
increase over existing development in 1987.
Trip Reduction Ordinance
Palo Alto adopted a Citywide Transportation
Demand Management (TDM) ordinance in 1990, as
one of five "Golden Triangle Task Force"
cities in Santa Clara County. Recently, the
Bay Area Air Quality Management District
(BAAQMD) adopted Regulation 13, Rule i, ("Trip
Reduction Requirements for Larger Employers")
which supersedes all loca! city and county TDM
ordinances. The rule applies to all public and
private employers with work sites of i00 or
12
more employees. The average vehicle ridership
(AVR) performance objectives for the zone in
which Palo Alto is located, increases from
i.i0 in 1993 (ii0 employees/100 vehicles) to
1.35 in 1999 (135 employees/100 vehicles).
This represents a 23 percent reduction in the
number of private vehicles driven to work,
compared to 1993 conditions.
Stanford University Efforts to Reduce Sinqle
Occupant Vehicles
Stanford University has, and continues, to
make notable efforts toward reducing single
occupant automobile use though a variety of
transportation-related programs and services
(incentives and disincentives) that influence
travel mode choices. As part of their 1988
Santa Clara County General Use Permit (County
lands), there is a requirement that new
development cannot contribute any new
automobile trips beyond the number allowed in
1988. This is monitored and reported on by
Stanford on an annual basis and, to date, they
have met that requirement.
~ity Support for Alternative Transportation
Modes
Palo Alto has long-standing policies and a
notable record of actions and achievements
that emphasize, encourage and facilitate the
use of alternative modes to the automobile
(walking, biking, car/vanpools, transit).
These policies and actions, consistently
applied over an extended period of time, have
made a favorable difference in the utilization
of several transport components and,
therefore, have resulted in lower volumes of
traffic.
D.POTENTIAL OTHER STRATEGIES:
Support Reqional
Strategies
Market Based Pricinq
Market-based pricing mechanisms that
accurately reflect the costs of travel, choices
could significantly change travel mode choices
and reduce the volume of automobiles during.
peak periods. The same concept is already an
integral part of our daily lives as we make
13
choices about the use of telephones, water,
power, airline travel, etc.
Develop Local Transit Marquerite-Type System
A local area Marguerite-type small bus system
serving neighborhood areas and major
destination points could reduce the number of
automobile trips in Palo Alto.
Pursue Extension of Liqht Rail Transit from
Mountain View to/through Palo Alto
An extension of Light Rail Transit from
Mountain View through Palo Alto to Menlo Park
along E1 Camino Real would serve a number of
destinations and related trips that would
otherwise be made by automobile. It would
also provide the possibility for a strong
emphasis on transit-oriented development along
E1 Camino Real in conjunction with the ten or
so stations that would be part of the LRT
system, thereby accommodating future
development without the same traffic-related
impacts associated with traditional non-
transit development.
14
III. TOPIC: ACCIDENTS
ACCIDENTS:Motor vehicle versus motor vehicle, bike
versus motor vehicle, pedestrian versus motor
vehicle.
A.PERCEPTIONS:
Palo Alto streets are unsafe and are getting
worse. (BI,B2)
Accidents are normally caused by excessive
speed and a disregard for traffic control
devices. (B5)
A serious accident has to occur before the
City does something to prevent accidents.
(B2,B6,C2,C3)
Effective traffic enforcement reduces the
number of accidents. (B6)
The City can engineer and control safety
through the use of signs and other physical
devices. (CI,C5)
City streets should be safe for children to
play in. (B4)
An increase in the number of vehicles
increases the number of accidents, especially
more pedestrian involved accidents. (B7)
FACTUAL DATA/INFORMATION:
Between 1989 and 1993, the injury accident
rate in Palo Alto has remained relatively
unchanged (average of 557 accidents per year).
During the same period, the fatal accident
rate in Palo Alto has remained at three per
year, except in 1990, when there were six.
(See Appendices C and D)
The surveyed Bay Area cities show a
significantly lower per capita and injury
accident rate when compared to the state
accident rate as a whole. The fatal and
injury accident rates for the state have
decreased over the last five years. This can
be attributed in part to the mandatory seat
belt law, vehicle supplemental restraint
systems (air bags), mandatory motorcycle
15
helmet law, bicycle helmet law, a~d stricter
DUI enforcement.
Listed below are the seven areas with the most
traffic accidents in the last five years:
i00 block E1 Camino Real (55 accidents);
29 occurring at the Stanford Shopping
Center entrance.
200-300 University Avenue (36 accidents)¯
2600-3000 Middlefield Road (33
accidents).
400-600 Middlefield Road (32 accidents);
12 occurring at the intersection of
Hamilton Avenue.
500-600 Embarcadero Road (32 accidents);
ii occurring at the intersection of
Middlefield Road.
400-600 Alma Street (31 accidents); ii
occurring at the intersection of Hamilton
Avenue.
800-900 University (31 accidents).
Streets are designed for vehicle traffic, not
for children to play in.
For the past two years, the single highest
cause of injury/fatal accidents is violation
of the basic speed law. (Appendix E)
National Highway Traffic Safety Administration
studies have shown that effective traffic
enforcement reduces the number of accidents at
specific locations. It is to this end that
the Police Department has changed enforcement
tactics and focuses its efforts at
intersections or areas with the highest number
of accidents.
There is no current factual data to support or
deny the perception that an increase in the
number of vehicles increases pedestrian
involved accidents.
16
c,EXISTING STRATEGIES:
Annual Hiqh Accident Location Analysis
Periodically, staff performs a systematic
review of locations where the highest number
of accidents occur. Total number of accidents
are determined, accident rates are calculated,
and the ten highest locations are studied in
detail. Such study includes preparation of
collision diagrams illustrating the type of
accident, direction of travel, time of day,
etc. and field investigation and evaluation of
each location to determine contributing
factors. Specific actions are then identified
and implemented and these areas are included
in targeted enforcement locations.
Tarqet Area Enforcement/Hiqh Accident
Locations
The Traffic Team focuses enforcement efforts
on locations and intersections with the
highest accident rates. Team members give
warnings and citations in these target areas.
Patrol officers are also directed to these
locations.
3.Accident Investiqation and Analysis Procedures
Police officers investigate all reported
traffic accidents. Two types of reports are
used. The more involved report is used when
one or more of the following factors are
present:
injuries
more than two vehicles involved
unlicensed/suspended drivers
pursuits, reckless driving or
contests
drunk drivers
hazardous material spills
hazardous mechanical violations
prosecution for CVC violations(s) is
sought
speed
A briefer form of report is an "Exchange of
Information Report." It summarizes minor
property damage accidents when the above
criteria are not met. Exchange of Information
Reports serve insurance purposes and are not
17
sent to the statewide reporting system.
Parties receive a copy of this report at the
scene of the accident, and a copy is
maintained by the Police Department.
The Specialized Traffic Accident
Reconstruction Team responds to assist with
fatal and major injury accidents. The team
collects evidence, photographs the scene and
reconstructs the accident. The team seeks
prosecution through the District Attorney’s
office when appropriate.
Accident data is computerized and plotted on
an accident pin map according to type and
location.
Education
The Traffic Team works in cooperation with the
department’s School/Traffic Safety Committee,
the Fire Department, School Resource Officer
and school principals to educate students on
bicycle and pedestrian safety. Early in the
school year, the Police Department provides
middle and elementary schools with high
visibility traffic direction.
Physical Improvements
In response to requests and complaints and as
a result of other investigations and
evaluations, physical improvements are made at
¯ various locations to address specific issues
at such locations. These physical
improvements include: parking restrictions,
restricted turns, increased sight distance,
stop signs, traffic signals, etc.
POTEI~TIAL OT~ER STRATEGIES:
i.Informational Leafletinq
Informational leafleting could occur near
intersections where a greater number of
accidents occur. Handouts given at safety
checkpoints would inform motorists of the
problem and would solicit cooperation relating
to safe driving techniques. The checkpoints
would be advertised in the Weekly.
18
2.at High AccidgntIncreased Enforcement
Intersections
Due to current workload demands, Traffic Team
members devote time at five area/intersections
with the greatest number of accidents in the
last six-month period. This number could be
modified to include the top eight or ten areas
in the last three months. Patrol officers
from all three shifts could be assigned to
monitor these areas for a set amount of time
during each shift and have their time logged
as a call for service.
19
IV.TOPIC: SCHOOL COMMUTES
SCHOOL COMMUTES:The travel
students.
to and from schoold by
PERCEPTIONS:
It is unsafe for children to walk and/or bike
to school. (BI,B2)
There are an inadequate number
crossing guards..(B3,B4)
of adult
There is insufficient traffic enforcement in
school zones, especially during school hours.
(B5)
B.FACTUAL DATA/INFORMATION:
i.Accidents at or Near Schools
During the last five years, there have been a
total of 27 reported accidents (eight with
injuries) involving students, bicyclists and
vehicles in school parking lots and/or
adjacent to schools on the roadway. Twenty of
the 27 accidents have occurred in or around
Gunn High School (13, 5 with injuries) and
Palo Alto High School (7, 2 with injuries).
Accidents Involving School Children
During the last five years, there have been a
total of 320 injury accidents involving
children between the ages of five and 18:
a.1989 - 65
b.1990 - 57
c.1991 - 57
d.1992 - 79
e.1993 - 62
Breakdown of their involvement by age group:
(See Appendix F)
There are currently ii adult crossing guards
working at Ii specific intersections (Appendix
G) during the morning and afternoon school
commute periods.
There are 28 children serving as traffic
patrols at 13 specific intersection (Appendix
2O
G) during the morning and afternoon school
commute periods. Two of the intersections
also have adult guards.
C.EXISTING STRATEGIES:
City/School Traffic Safety Committee
The~ City/School Traffic Safety Committee
serves as a forum and focal point for
identifying, evaluating and making
recommendations to the City Manager and the
School District Superintendent regarding
school traffic safety issues. The seven member
Committee is comprised of representatives from
the City (2), the School District (2) and the
PTA Traffic Safety Board (3).
Adult Crossinq Guards
The City of Palo Alto supervises and funds the
Adult Crossing Guard Program. Requests are
submitted to the City/School Traffic Safety
Committee for review and recommendation.
Criteria for evaluating the need for an adult
crossing guard include consideration of: the
number of elementary school-age pedestrians
per hour (20 minimum), appropriateness of use
of a Junior Traffic Patrol, and intersection
control and vehicle volume warrants.
Currently, there are adult crossing guards at
ii intersections during the morning and
afternoon school commute periods. Training
and field supervision are provided by the
Police Department, and the adult crossing
guards wages ($5,000/year/person) are included
in the Police Department’s budget. At the
present time, there are requests outstanding
for adult crossing guards at two additional
intersections.
3.Junior Traffic Safety Patrols
The Palo Alto Unified School District
administers the Junior Traffic Safety Patrol
Program. The purpose of the program is to use
trained students (generally 5th graders) to
assist pupils in safely crossing streets near
the school. Currently, there are 28 children
serving as patrol members at 13 intersections
during the morning and afternoon school
commute periods.
21
4.School Bike Safety Instruction Proqram
The school bike safety instruction program is
under the direction of a Fire Department
Captain. Each year, he conducts bicycle
safety classroom presentations for all third
and fifth graders. He also provides both
middle schools with a yearly slide and video
safety presentation. Each fall the Fire
Captain coordinates a Bicycle Rodeo to promote
bicycle safety and awareness for children.
The Fire Captain also conducts the juvenile
bicycle offender program. Juveniles who
receive their first citation attend a bicycle
safety class in lieu of having the violation
appear on their record.
~gsponses to Site-Specific Issues and Requests
City staff routinely responds to requests from
the Palo Alto Unified School District,
City/School Traffic Safety Committee,
individual schools, and PTA groups throughout
the year on a variety of traffic safety
issues. These are generally site-specific
issues related to traffic circulation and
parking, safety patrols,adult crossing
guards, traffic controls,etc., in the
vicinity of individual schools.
School Commute Corridor Studies/Actions
The Meadow/Charleston School Corridor Safety
Study was completed in early 1993. The
purpose of the study was (i) to take a
comprehensive look at traffic safety issues
and concerns related to the safety of students
traveling along public streets between J.L.
Stanford Middle School and the Barron Park
Neighborhood and (2) to develop consensus and
support for a program of short-term and long-
term recommendations. The study identified 26
individual actions with support for
implementation. Many of these actions have
already been completed and most of the others
are in process, either as current projects in
the City’s Capital Improvement Program or
through agreements with Caltrans for E1 Camino
Real.
At Council’s direction, staff has worked with
22
Do
the appropriate parties (City/School Traffic
Safety Committee, principals and PTA
representatives) to identify issues and
consider alternative approaches for proceeding
with additional school commute safety studies.
The consensus of opinion is to recommend
proceeding with a two part area-wide study
process rather than a focused single corridor
study, similar to the Meadow/Charleston Study
(Appendix H).
7.Enforcement
Enforcement priorities are generally directed
throughout the school year in consultation and
discussions between the City/School Traffic
Safety Committee and the Police Department.
The Police Department also responds to
requests from individual schools on specific
traffic-safety concerns as well.
Information Packets Provided Prior to School
Opening
Every August, the School District sends
parents a packet of materials which includes
information regarding school commute safety
issues, including bike route maps.
9.Annual Maintenance
Each year, prior to school opening, the City
repaints all school cross-walks and pavement
legends, as well as maintenance of school
related signs on and along City streets.
POTENTIAL OTHER STRATEGIES
Intersections which meet the City Council
adopted guidelines for employing additional
crossing guards at intersections used by
elementary age students ($7,000/year per adult
guard) could be proactively surveyed.
Student safety patrol programs could be
expanded to include all ii elementary schools.
Education programs could be expanded for
parents and students regarding traffic safety
issues specific to individual school sites.
23
V.TOPIC: COMMERCIAL VEHICLES
COMMERCIAL VEHICLES - Trucks and other large vehicles carrying
goods and equipment and making deliveries/pick-ups in the
City.
A.PERCEPTIONS:
The number of truck
increasing. (B9)
route violators is
There is insufficient enforcement of truck
route violations. (BI,B2,B3)
There~ is an increase in the
commercial vehicles. (B7)
speed of
When commercial vehicles are involved in
accidents, the seriousness of those a~cidents
increases. (B8)
Commercial enforcement field activities create
additional traffic hazards. (Cl)
The allowable weight limit is too high for
Palo Alto streets. (B4,B5,B6)
Menlo Park and Stanford commercial traffic is
being diverted through Palo Alto due to
differences in the cities’ weight limits.
(B5,B6)
FACTUAL DATA/INFORMATION:
The Police Department has three CHP-certified
Commercial Vehicle Inspectors. These officers
are assigned-to the Traffic Team and are able
to adjust their work hours to address any
problem areas. On average, a total of 60
hours per week is devoted to commercial
enforcement.
While the Traffic Team officers concentrate on
commercial violations, all patrol officers are
trained in basic commercial enforcement.
Areas of enforcement include truck route
violations, moving violations, mechanical
violations and driver safety violations, such
as the number of hours a driver works in a
given day. The Palo Alto Police Department
works closely with the CHP and other Bay Area
law enforcement agencies involved with
24
commercial vehicle enforcement.
During Fiscal Year 1993-94, the Traffic Team
issued 328 citations and during Fiscal Year
1992-93, 492 citations for commercial
violations.
Current regulations restrict trucks of 7 tons
(maximum gross Weight) or more to use only
designated truck routes. Trucks weighing less
than 7 tons are not restricted. Designated
truck routes are illustrated in Appendix I.
Data from a survey of trucks on University
Avenue just east of Middlefield Road on
July 15, 1993 is as follow:
During a 12-hour survey period (5:00 a.m.
to 5:00 p.m.), a total of 328 commercial
vehicles were counted, 176 westbound and
152 eastbound.
The volume of commercial vehicles varied
throughout the day, as illustrated below,
with a low of i0 in the early morning and
a high of 44 in the late morning period.
Volume of Commercial Vehicles by Time of
5-6 a.m.i0 11-12 a.m.36
6-7 a.m.20 12 noon-i p.m. 37
7-8 a.m.23 1-2 p.m.30
8-9 a.m.35 2-3 p.m.25
9-10 a.m.34 3-4 p.m.21
i0-ii a.m.44 4-5 p.m.13
The. police obtained unladen (no cargo)
weight information for 183 (56 percent)
of the total number of 328 vehicles. The
remainder could not be successfully
matched to DMV records due to incomplete
or incorrect recorded field data. Since
the recorded weights are unladen weights,
the commercial vehicle officers added
probable cargo weights to determine laden
(full cargo) weights for each vehicle.
These are summarized below:
Commercial Vehicles by Laden Weiqht (full
25
cargo)
Under 3 tons 19 vehicles 10%
From 3 to 7 tons 115 vehicles 63%
Over 7 tons 49 vehicles 27%
It is important to point out that the
above data is based upon an assumption
that each truck is fully loaded.
Realistically, not all of the vehicles
noted as being "over 7 tons" are illegal,
since a sizable proportion could be
carrying only a partial load at that
point in their delivery schedule.
During the 12-hour survey period, four
westbound vehicles were observed turning
right at Middlefield Road and proceeding
north into Menlo Park. While there were
more westbound vehicles that did turn
right on the Middlefield, they also made
a left turn from Middlefield onto Lytton
and proceeded westbound on Lytton.
Information from Other Cities
Mountain View - The City of Mountain View
defines a truck as 3 tons or more; has
designated truck routes (unrestricted
weight) in the north-south direction
similar to Palo Alto; and designated
truck routes (unrestricted weight) in the
east-west direction at both ends as well
as the middle of the City.
Santa Clara - Santa Clara has no weight
limit except for limited segments of five
existing streets which have a 3-ton
weight limit.
Sunnyvale - The City of Sunnyvale defines
a truck as 3 tons or more; has a
substantial north-south and east-west
grid of designated unrestricted highways
and supplemental designated truck traffic
routes.
dQ Menlo Park - Menlo Park has i) no weight
limit on several roads (Sand Hill Road,
Alpine, E1 Camino Real, and roadways
serving the industrial area east of
Bayshore Freeway; 2) a 3-ton limit for
26
trucks not serving Menlo Park,
unrestricted weight limit if serving
Menlo Park, on Santa Cruz, Oak Grove,
University, Menlo Avenue, Ravenswood and
Middlefield; and 3) a 3-ton weight limit
for trucks serving Menlo Park and total
prohibition of trucks serving Palo Alto
on Willow Road between Middlefield and
Route I01.
Mountain View and Sunnyvale define a
truck as 3 tons AND have a reasonable
grid of designated routes for trucks to
use.
By comparison, Palo Alto defines a truck
as 7 tons A~D has a reasonable number of
designated routes in the north-south
direction,but not in the east-west
direction.
There is no current factual data to support or
deny the perception that there is an increase
in the speed of commerical vehicles.
There is data to support the perception that
accidents involving commercial vehicles are
usually serious. This is in large part due to
the difference in size and weight between
trucks/tractors and passenger vehicles.
Though there is factual data from the state to
support that truck accidents make up ii
percent of total state accident fatalities and
four percent of total state accident injuries,
we do not have accident data for the city or
county to compare with the state information.
Citations for truck route violations for the
last two fiscal years have totalled 193, and
199 respectively.
EXISTING STRATEGIES:
i.Commercial Enforcement
Commercial vehicle enforcement ranges" from
officers finding violations during regular
patrol, to the use of CHP-assisted commercial
checkpoints. These checkpoints often involve
up to seven other agencies, including the
Public Utilities Commission.
27
During a commercial vehicle enforcement stop,
a complete safety inspection is conducted on
the vehicle. The driver’s licensing, medical
certification and time on the road are all
investigated. Due to the fact that commercial
trucks are very large vehicles, often on roads
not designed for such sized vehicles, traffic
congestion can occur at the site of a
commercial inspection. The proper use of
cones and signs ensures a safe zone for the
officers to work and shows a large police
presence to not only the general public, but
to the commercial drivers as well.
The Police Department responds to complaints
from citizens on truck route violations,
commercial vehicle moving violations and
reported unsafe loads. Members of the Traffic
Team have also worked with citizen groups to
better educate them in regard to weight and
size limits.
2.Commercial Education
In an attempt to gain compliance from the
trucking industry, the Police Department
provides a truck route map to drivers and
trucking companies explaining how ~they can
legally operate within the city. Safety talks
and vehicle inspections for companies wishing
to be in compliance are also provided.
The Police Department was instrumental in
developing the South Bay Commercial Officers’
Group. This group of commercial officers,
from seven South Bay agencies, works together
to enforce commercial violations throughout
the greater South Bay with a regional
approach.
The Police Department is in the process of
purchasing portable scales to better work
weight violations. With these scales, not
just total vehicle weight may be determined,
but individual axle weight as well. Many
safety violations regarding weight do not
involve total weight, but rather improperly
positioned loads. These portable scales
enable a better determination of such
violations.
D.POTENTIAL OTHER STRATEGIES:
28
i.Reduction in Weiqht Limits/Chanqe Truck Routes
A reduction in the weight limit definition for
trucks and/or change in designated truck
routes could be made. If the weight limit in
Palo Alto was to be reduced from 7 to 3 tons,
thereby affecting many more trucks, serious
consideration should be given to designating
additional east-west route(s) as truck routes
(e.g., Oregon would be one such possibility;
Embarcadero or University would be another).
Limit Downtown Truck Deliveries
Truck deliveries could be limited in the core
of the downtown area to certain hours of the
day, (e.g., Ii:00 p.m. to ii:00 a.m.) in order
to reduce the effects of truck travel, parking
and loading/unloading on pedestrian environ-
ment, traffic flow, parking, and safety during
the more intense and important periods of the
commercial/retail business day.
29
VI.TOPIC : CALTRAIN
CALTRAIN CROSSINGS/RIGHT OF WAYS - Locations where CalTrain
railroad tracks and roadways cross.
A. PERCEPTIONS:
The crossings of CalTrain right of ways are
unsafe for pedestrians and bicyclists. (B2)
Measures can provide failsafe solutions to
prevent accidents at these locations. (BI,B2)
It is unsafe for students to cross major
arterials and rail crossings. (B2)
B.FACTUAL DATA/INFORMATION:
CalTrain service presently is comprised of 60
train trips per day. Current proposed plans
call for electrification of the system and
service increases up to 120 train trips per
day. Longer range efforts to replicate a BART-
type service would result in 160 or more train
trips per day.
There have been four train accidents during
the last five years, one fatal accident
involving a juvenile bicyclist (11/6/91) and
three train/auto accidents with no injuries.
Information confirmed between Palo Alto Police
Department Amtrak records.
3. Vehicle, and pedestrian/bike data:
Daily
Traffic Volumes
Charleston 16,000
Meadow 9,000
Churchill ii,000
Alma 30,000
Peak Hour
Ped/Bike Volumes
AM P__M
70 40
150 130
c.EXISTINGSTRATEGIES:
Operation Lifesaver
California OPERATION LIFESAVER is a nationwide
program directed at the prevention of death
3O
Q
and injury at railroad grade crossings
throughout the country.The program is
administered by the California Office of
Traffic Safety in conjunction with a broad
spectrum of representation from
transportation, law enforcement, and parent-
teacher organizations. Annually,
representatives from Operation Lifesaver visit
local schools to provide training and
education to students on the dangers and safe
practices of train track crossing safety.
Pedestrian Gate Installation
Pedestrian crossing gates have been in use at
the Churchill at-grade crossing for many
years. More recently, pedestrian crossing
gates were added at the Meadow and Charleston
at-grade crossings. In conjunction with the
pedestrian crossing gates, chain link fencing
has been used to channel pedestrians to the
safe crossing point and away from unprotected
areas at the street crossings.
Pedestrian/Bike Grade Separation Feasibility
Stud~
As part of the 1994-95 Capital Improvement
Program, the Council approved a project
(19502) for a feasibility study to assess the
various options for providing pedestrian/bike
grade separations at the Joint Powers
Board/CalTrain railroad tracks and Alma Street
at four different cross-street locations:
Charleston Road, Meadow Drive, Churchill
Avenue and Palo Alto Avenue. The study will
identify and develop information including
functional designs, costs, right-of-way,
utilization, environmental issues, traffic
impacts, economic impacts and emergency
response impacts for various options. Subject
to the findings of the study and subsequent
Council direction, design and construction of
a project at one or more locations may follow.
Work on the feasibility study will commence in
October with the formation of a study advisory
committee, followed by selection and retention
of a consultant team.
4.Crossing Guards
An adult crossing guard monitors the
31
Meadow/Alma intersection and
crossing.
railroad
D. POTENTIAL OTHER STRATEGIES:
Underqround CalTrain
One alternative that is often mentioned for
permanently resolving CalTrain safety issues
would be to underground the system. This
would have the added advantages of solving
noise-related concerns as well as traffic
delays incurred while crossing gates are down.
It would also provide a wonderful opportunity
for creative reuse of the surface for any
number of possible worthwhile uses. The cost
of such an alternative is very high ($750
million for 4.5 miles and 2 stations), and
would~ not be a realistic possibility until
such time that it was part of some broadly
based regional transit funding program.
Full Vehicle Grade Separation(s)
Another alternative that is often mentioned
for addressing the CalTrain safety issues
would be to construct full vehicular grade
separations at one or more of the existing
four cross-street locations. This could be
done as a fully depressed roadway under-
crossing, or one where CalTrain is partially
elevated and ~the.roadway is only partially
depressed. Given the proximity of Alma and
the consequent need to include grade
separation for Alma, as well as the visual
blight of.a partially elevated CalTrain on a
raised embankment, the fully depressed cross-
street option is less problematic than the
partial up/down option. The costs of such an
alternative are substantial ($i0 to $20
million per cross-street plus right-of-way)
and the impacts, in terms of residential
property acquisition, altered and restricted
access to some residences, visual appearance,
traffic diversion, etc. are very significant
and render such an alternative impractical.
3.Crossinq Guards
Another option would be to initiate a
volunteer parent crossing guard program to
assist at the Charleston/Alma railroad
32
crossing. Due to the disproportionately small
number of students that use this crossing,
available resources are currently devoted to
other locations where the combination of a
much larger number of students and a
significant danger exists.
Use of crossing guards during the morning and
afternoon school commute periods, at a cost of
$5,000 per year per individual, is another
alternative. Each cross-street would require
two crossing guards at the train tracks, at a
cost of $i0,000 per year per cross-street.
Expanding this concept to include two
additional crossing guards at Alma as well,
the total cost per cross-street location would
be $20,000 per year. Capitalized at 5
percent, $20,000 per year requires a one-time
investment of $400,000 per cross street.
33
2600
IIO0
APPENDIX A
NOTES~ ALL COUNTS TAKEN DURING MARCH-M~Y AND
SEPTEMBER-NOVEMBER, BEFORE OPENINGOF
OF JUNIPER0 SERRA FREWAY NORTH O~
PAGE MILL EXPRESSWAY.
SUMMER VOLUME-DOESNOT REFLECT SEASONAL
CHANGES.
WINTER VOLUME -DOES NOT REFLECT SEASONAL
CHANGES
UNIVERSITY ~VENUE
BUSINESS DISTRICT
MIDDLE’~’I EL D
4000
$ r_" ~, FORD U~v/VE~’S/TY
490~
5100
B,~RROh’
MICDLEFIELD RD.
MTN VIeW
LOS ,~LTOS
$C,~ L E
vEHIcLES PER 2’:, ~OUR$(THOUSAN~$}
5O
LOS ,4LTOS #’ILLS
NOv I.~&~
OFFICE
CITY OF
1969-MAJOR
OF TRE TRAFFIC ENGINEER
P A LO A LTO.CALIFORNIA
STREET TRAFF! C FLOW
HOUR COUNTS
MENLO PARK
STANFORD UNIVERSI7’."
SCALE
50& OvE~
VEHICLES PER Z~- HOURS
(T HOUSANOS)
SUMMER VOLUMES ONLY - SEASONAL
vARI~.TIONS AR£ NOT REFLECTE0
HIGHWAYS 101 & 280 - NOT TO SCALE
1500
Mwy 101 NOt 10 $¢=1e
BAYSHOREFR£ E wAY
Hwy 280
Not to Scale
Actual size of 25~
CITY OF PALO ALTO. CALIFORNIA
FLOW
COUNTS
APPENDIX C
Persons Injured in Traffic Accidents by City & State
(Per i0,000 capita)
City/PopulationI
Palo Alto/57,324
Menlo Park/29,407
Mr. View/70,047
Los A!tos/27,040
Redwood City/69,9!7
San Mateo/89,355
Santa Clara/96,36!
Sunnyvale/122,149
State of California
1989/28,670,5021
1989
553
(97.0)
228
(78.6)
767
(109.6)
163
(60.4)
709
(i0! .3)
894
(lOO .4)
1035
(107.8)
1088
(89.2)
363,645
(126.8)
1990
569
(99.8)
309
(106.6)
784
(112.0)
167
(61.9)
791
(JiB.O)
976
(!09.7)
!05~
(iiO .3)
i054
(86.4)
1991
54O
(94.7)
341
(117.6)
728
(i04.0)
!7!
(63.3)
748
(106.9)
862
(96.9)
818
(85.2)
1003
(82.2)
1992
581
(101.9)
392
(i35.2)
737
(105.3)
158
(58.5)
668
(95.4)
895
(ioo.6)
770
(80.2)
1008
(82.6)
1993
543
(95.3)
349
(120.3)
749
(107.0)
201
(74.4)
674
(96.3’
727
(81.7)
815
(84.9)
824
(67.5)
State of California 365,758
1990/29,489,2721 (124.0)
State of California 350,068
1991/30,351,029!(115.3)
State of California 338,154
1992/30,990,8241 (109.1)
State of California 315,154
1993/31,436,2591 (100.2)
iState Controller’s Office
APPENDIX D
Persons Killed in Traffic Accidents by City & State
(Per I0,000 capita)
City/Popu!ationi
Palo Alto/57,324
Menlo Park/29,407
Mr. View/70,047
Los Altos/27,040
Redwood City/69,9!7
San Mateo/89,355
Santa Clara/96,361
Sunny-vaie/!22,149
State of California
!989/28,670,502i
State of California
!990/29,489,272i
State of California
i991/30,35i,029i
State of California
!992/30,990,824!
State of California
1993/3!,436,259i
1989
3 (0.5)
5 (1.7)
4 (0.6)
1 (o.4)
2 (0.3)
8 (o. 9)
12 (!.9)
4 (0.3)
5,381
(1.9)
1990
6 (i. I)
2 (O.7)
7 (1. o)
o
1 (o.1)
1 (o. 1)
6 (o. 6)
B (0.2)
5, !73
(1.8)
1991
3 (0.5)
1 (0.3)
5 (0.7)
0
0
3 (0.3)
6 (0.6)
4 (0.3)
4,649
(1.5)
1992
3 (0.5)
2 (0.7)
5 (0.7)
i (0.4)
5 (0.7)
5 (0.6)
4 (o.4)
6 (0.5)
4,185
(1.4)
1993
(0.5)
(0.7)
(i. o)
(0.4)
(0.4)
(o.4)
(0.5)
(0.5)
4,163
(i.B)
iState Controller’s Office
APPENDIX F
Driver Total for Aqe Group/Primary Collision Factor
Age
18
15
14-10
9-5
Total
Driver Total
/DII
70/46
s~/34
44/32
4/2
--0--
--0--
Bicyclist
Total/BlI Pedestrian
Total/PlI
6/s
6/2
~o/s
7/6
57/37
~OllO
96/65
4/’v
2/1
111
111
9/5
26/14
Passenger
Total2
9
12
9
15
27
81
IAt fault for the accident
2Passenger in vehicle/bicycle involved in accident
34
APPENDIX G
TRAFFIC PATROL
Addison
Briones
Duveneck
E1 Carmelo
Escondido
Fairmeadow
Hays
Hoover
JLS
Nixon
Ohlone
Palo Verde
Addison/Middlefield
Arastradero/Coloumbe
E1 Camino/Los Robles
2
ADULT
!
1
TOTAL’
3
1
1
Alester/Hamilton
Alester/Dana
Alester/Channing
Newell/Dana
Loma Verde/Bryant
E1 Carmelo/Bryant
Escondido/Midblock
Escondido/Stanford
Stanford/Hanover
Stanford/Bowdoin
Meadow/Cowper
2
2
0
0
3
3
1
2
1
2
0
0
i
i
0
0
0
0
0
0
2
2
1
1
3
3
1
2
1
2
2
Midd!efield/Embarcadero
Embarcadero/Newell
E1 Centro/Barron
Meadow/Alma
Amarillo/Louis
Amarillo/Schoo!
crosswalk
Louis/Midblock
Louis/Loma Verde
TOTAL
4
0
0
0
0
0
2
2
0
28
!
!
i
!
0
!
0
0
!
5
!
1
1
0
1
2
2
1
5 CALIF ADMIN CODE, ARTICLE 572:
"School Safety Patrols may be used only at those locations where the nature of traffic wilt permit
safe operation. The locations where school safety patrols are used should be determined by
joint agreement between the school district and the local police agency."
8~11194
APPENDIX H
FURTHER SCHOOL CORRIDOR SAFETY STUDIES
In March 1993, Council formally reviewed the Meadow/Charleston
Schoo! corridor Safety Study Recommendations and directed staff to
(a) proceed with the implementation of severa! recommended actions
and (b) to work with appropriate parties to identify and prioritize
other potentia! study corridors. In November 1993, staff sent an
inforr~ationa! status report (CMP.:599:93) to the Counci! reporting
on the sixth month status of the implementation of recommended
actions, as wel! as the progress being made toward recommendations
on the further study of school commute corridors.
Staff has sent a letter to the principal and PTA president of each
of the 15 PAUSD schools, requesting their forma! input on their
school community’s concerns about traffic safety issues and
potentia! schoo! corridor study issues. The broad range of issues
the schools have identified include signing, striping, street
maintenance needs, on-site traffic circulation problems, major
street corridor safety concerns, motorist behavior problems, and
requests for safety patro! and adult crossings guards.
Staff has worked with the City/School Traffic Safety Committee to
review the list of issues identified by the schools and consider
alternative approaches for proceeding with further study. This
process has involved several daytime meetings over a four-month
period as well as one night meeting, to encourage more partici-
pation by schoo! and PTA representatives.
The alternative study approach possibilities include: (a) a focused
single corridor study, similar to the Meadow/Charleston Study, (b)
an area-wide corridor study, and (c) a comprehensive citywide
study. The consensus of opinion at this time is to recommend
proceeding with a two part area-wide study process. Part A would
address the needs of schools !ocated in the area north of Oregon
and Part B would address the needs of schools located in the area
south of Oregon. A consultant would be hired to do only Part A,
with the provision that if the City decided to proceed with Part B,
subject to the satisfactory work of the consultant on Part A, the
City could choose to negotiate a contract for Part B, without
having to repeat the consultant selection procedures.
The scope and conduct of the study would be similar for each part,
and would include the following elements:
¯
¯
¯
¯
¯
Issue Identification/Verification
Data Collection and Analysis
Evaluation of Alternatives
Conclusions and Recommendations
Action Plan
APPENDIX I
CITY OF PALO ALTO, CALIFORNIA
TRUCK ROUTE MAP
Chapter 10.48 P.A.M.C.
NOTE: MIDDLEFIELD RD.
IN MENLO PARK HAS
3 TON W/EIGHT LIMIT.
Palo Alto Police Department
Traffic Division: (415) 329-2687
~LEGEND~
PALO ALTO CI,TY LIMITS
THROUGH TRUCK ROUTE
LOCAL TRUCK ROUTE (7A.M.to 7P.M. Only)
SPECIAL TRUCK ROUTE
MULTIPLE DELIVERY ZONE
ENTRY-EXIT POINT