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HomeMy WebLinkAbout1999-04-12 City Council (16)City City of Palo Alto Manager’s Report TO: Attention: HONORABLE CITY COUNCIL Policy and Services Committee ¯ FROM:CITY MANAGER DEPARTMENT: PLANNING AGENDA DATE: April 12, 1999 CMR:206:99 SUBJECT:STOP INTERSECTION SYSTEM AMENDMENT RECOMMENDATION Staff recommends that the Policy and Services Committee recommend to the City Council to: install stop signs at the following five locations: a. Forest Avenue at Ramona Street b. Melville Avenue at Harker Avenue c. Ash Street at Portage Avenue d. Channing Avenue at St. Francis Drive eo Hopkins Avenue at Wilson Street °not install stop signs at the following five locations: a. E1 Verano Avenue at Ramona Street d. Channing Avenue at Lincoln Avenue e. Birch Street at Chestnut Avenue BACKGROUND The citywide Stop Intersection System was adopted by the City Council several years ago. A map of the Stop Intersection System is available for reference in the Transportation Division office, 250 Hamilton Avenue, sixth floor. The changes in traffic patterns and characteristics, traffic safety needs, and citizen requests, necessitate that the City Council periodically consider whether to update the system. Most cities in California use California Department of Transportation (Caltrans) criteria, to determine if the installation of stop signs is warranted. These criteria include review of traffic volumes and traffic accident history. In Palo Alto, the justification for a stop sign on a local street is based on: The Council-adopted "Guard & Go" policy (installation of stop signs at every other block to discourage ttu’ough traffic from neighborhoods); CMR:206:99 Page 1 of 5 Caltrans criteria (see Attachment B); or Warrants adopted by the City Council in 1973 for installation of traffic control devices near schools (see Attachment B). The justification for a stop sign on a collector street in Palo Alto is based either on Caltrans criteria or Council-adopted criteria for installation of traffic control devices near schools for safety reasons. The policy for arterial streets has been that they should not have stop signs. Staff receives many requests to install .stop signs. All such requests are investigated and evaluated using the above criteria. As a result of such investigations (including field observations and review of accidents, volumes, speed and any other pertinent data), safety improvements that diminish the need for stop signs are sometimes made (e.g., painting red curbs, trimming bushes, etc.). While many residents in Palo Alto like stop signs, installation of new stop signs can be controversial because stop signs require motorists to stop day and night, resulting in increased delays, noise and air pollution. Historically, staff has submitted to the Policy and Services Committee those requests which: staff supports and, therefore, the request requires a Council resolution to install the Stop signs; and are not resolved to the satisfaction of the person(s) making the request. DISCUSSION Table 1 below summarizes staff’s evaluation and recommendations for requests to install stop signs at four locations. CMR:206:99 Page 2 of 5 TABLE 1 SUMMARY 1999 Citywlde STOP Sign Request and Recommendation -.:..-:i.intersection 1.Forest Avenue/ Ramona Street Request:to [ Meets Caltrans Install STOP! -~Warrant? Sign:on Forest Avenue No Install STOP Sign? Yes Pedestrian and vehicular traffic have increased substantially in the past few years. 2.Melville Avenue/Melville Avenue No Yes Harker Street ........................................................... Recommended based on Council-adopted "Guard & Go" policy (installation of stop signs at every other block to discourage through traffic from neighborhoods) 3.Ash Street/Ash Street No Yes Portage Avenue 4.Channing Avenue/Channing Avenue No Yes St. Francis Dr. 5.Hopkins Avenue/Hopkins Avenue No Yes Wilson Street 6.El Verano Avenue/El Verano Avenue No No Ramona Street 7.Channing Avenue/Channing Avenue No No Lincoln Avenue 8.Birch Street/Birch Avenue No No Chestnut Avenue Attachment A includes an informational sheet for each intersection (Figures 1-8) which includes a vicinity map, intersection layout, source of request, background and evaluation information, and staff recommendation. The stop sign requests for three of the eight streets concern speeding. However, stop signs are not speed control devices. They are used to resolve right-of-way problems causedby an excessive amount of traffic or accidents. Staff recognizes that drivers do slow down at stop signs and yield the right-of-way to other vehicles. However, several studies indicate that drivers travel as fast or faster at mid-block locations to make up time lost at stop signs, resulting in increased speeds mid-block. In addition, noise and air pollution caused by vehicles increase. CMR:206:99 Page 3 of 5 The traffic data, which include traffic volumes, accidents, and visibility, do not indicate substantial right-of-way problems warranting stop signs at the intersections of E1 Verano Avenue/Ramona Street, Birch Street/Chestnut Avenue, and Lincoln Street/Channing Avenue. Controlling speed has been a challenge for a long time. Staff currently uses the radar trailer, the Neighborhood Speed Watch Program, and Council-approved criteria for installation of road bumps. The radar trailer is used as a speed awareness tool to inform motorists about the speeds at which they are traveling. The Police Department uses it at a variety of locations throughout the City. The Neighborhood Speed Watch Program allows citizens to use hand-held radar units to determine the speed of vehicles and note the license of vehicles exceeding the speed limit. The Police Depamnent then sends a letter to the registered owner informing him or her that their vehicle was observed traveling at a speed higher than the posted speed limit. This gives residents an opportunity to personally observe the extent of the speeding problem, as well as a means to address the problem in their neighborhood. Over the next few months, staff will be developing a Neighborhood (Local and Collector Streets) Traffic Calming Program for Council consideration. This program will establish and formalize City policies relating to the protection of neighborhood streets from traffic impacts. The purpose of this program is to be more responsive to resident concerns about traffic problems similar to the above speeding concerns, on local and collector streets. Implementation of any traffic Calming measures will be subject to Council approval and the availability of funds. RESOURCE IMPACT Installation of the stop signs and associated signing and striping will be accomplished within the existing budget resources of the Department of Public Works. No additional funds are needed. POLICY IMPLICATIONS The citywide Stop Intersection System was adopted by City Council several years ago. Consideration of updating the system on a periodic basis is consistent with the Council priority regarding traffic safety. ENVIRONMENTAL REVIEW Installation of stop signs is categorically exempt under the California Environmental Quality Act, and no assessment is necessa~aj. ATTACHMENTS A. 1999 City of Palo Alto Citywide Stop Sign Requests, Evaluation and Recommendation Report. B. Criteria for installation of stop signs CMR:206:99 Page 4 of 5 Prepared By: Christopher Thnay, Transportation Engineer Department Head Review: ED GAWF Director g and Community Environment City Manager Approval: Cole Richmond Gadi Maier Mary Calstead Victoria Bosch Alexis Hamilton Scott Carlson Rick Adams Judy Stikeleather Will Shade Pauline Hayward EMIL HARRISON Assistant City Manager CMR:206:99 Page 5 of 5 ATTACHMENT A 1999 City of Palo Alto Citywide Stop Sign Requests, Evaluation and Recommendation Report 1. Forest Avenue/Ramona Street Request: Install Stop Signs on Forest Avenue at Ramona Street Received From: Ms. Victoria Bosch, Hamilton Avenue Figure I Evaluation/Background: The intersection is adjacent to City Hall and the Downtown Library. Forest Avenue is a two-lane road that carries approximately 6,000 vehicles per day (vpd). All intersections between Alma Street and Waverley Street (six block sections) are stop controlled, except at Ramona Street. Although there are no stop signs on Forest at Ramona Street, many drivers on Forest stop and others do not, which causes confusion. Visibility for southbound traffic on Ramona Street is somewhat limited due to a building on the northwest comer. The exit driveway for the Police Department is located on Ramona Street next to the intersection and sometimes police officers rush out in an emergency and have to stop and wait on Ramona, since Forest does Page 1 of 15 not have stop signs. In addition, pedestrian traffic in this area has increased substantially in the last few years. A stop sign on Forest Avenue would eliminate confusion and provide a safer crossing for pedestrians. Recommendation: Staff recommends installation of stop signs on Forest Avenue at Ramona Street, making the installation an all-way stop-controlled intersection. Page 2 of 15 2. Melville Avenue at Harker Avenue Request: Install stop signs on Melville Avenue at Harker Avenue Received From: Mr. Gadi Maier, Melville Avenue .Channing Av. T Greenwood Av, !" Harker Av. Parkinson Av. Hopkins Av, Figure 2 ~~xistlng Tlafflc Signals Evaluation/Background: Melville Avenue is a two-lane residential street between Channing Avenue and Middlefield Road. There are no stop signs on Melville Avenue within this five- block section. Installation of stop signs on Melville Avenue at Harker Avenue would be consistent with the Council adopted "Guard-and-Go" policy ( i.e. stop sign at every other block). Recommendation: Staff recommends installing stop signs on Melville Avenue at Harker Avenue, making the intersection an all-way stop-controlled intersection. Page 3 of 15 3. Ash Street at Portage Avenue Request: Install stop signs on Ash Street at Portage Avenue. Received From: Will Shade, West Bayshore Avenue Figure 3 Legend ~,,.~Proposed STOP Sign Location ~Existing STOP Sign J~Existing Traffic Signals Evaluation/Background: Portage Avenue is a two-lane road with parking on both sides, which extends from E1 Camino Real into F13z’s Electronics parking lot. Ash Street is a narrow two-lane road with on-street parking allowed on both sides, which intersects Portage Avenue. Page 4 of 15 Currently, traffic on Portage Avenue has stop signs and Ash Street is a through street. This is an unusual arrangement since, typically, stop controls at a T-intersection are placed on the side street. The current arrangement might have worked in the past when traffic volumes were light on both Portage and Ash. However, traffic volumes have substantially increased on Portage due to Portage providing a direct access to Fry’s Electronics. Many drivers on Portage expect drivers on Ash to .stop, which causes confusion. Installation of stop signs on Ash at Portage would help eliminate any potential confusion about who has the fight-of-way at the intersection. Recommendation: Staff recommends installing stop sign on Ash Street at Portage Avenue. Page 5 of 15 4. Channing Avenue at St. Francis Drive Request: Install stop signs on Channing Avenue at St. Francis Drive Received From: Mary Carlstead, Walter Hays Drive Figure 4 Existing Traffic Signals Evaluation/Background: Channing Avenue is a two-lane collector street that runs east-west and carries approximately 6,000 vpd.. St. Francis Drive is a two-lane local residential street that intersects Channing Avenue, folxning a three-legged intersection, with the east-leg coming in at a 45 degree angle. Traffic on St. Francis has a stop sign and Channing is a through street The concern is that vehicles traveling southbound on West Bayshore Road make a quick right-turn on Channing Avenue and then another quick left-turn on St. Francis Drive. Field observations indicate that no visibility problem exists at the intersection. However, some drivers were observed crossing over the centerline on Channing as they make a left- turn onto St. Francis. To address this issue, bott-dotts and a double-yellow centerline were installed on Channing at St. Francis, to discourage drivers fi’om crossing over the centerline. Page 6 of 15 Still, because Channing is not stop controlled and the curb has a wide radius-of-return at St. Francis, eastbound vehicles on Channing generally make quick fight turns at St. Francis. Installing stop signs on Channing would improve the traffic operation of the intersection. Recommendation: Staff recommends installing stop signs on Channing Avenue at St. Francis Drive. Page 7 of 15 5. Hopkins Avenue at Wilson Street Request: Install stop signs on Hopkins Avenue at Wilson Street Received From: Scott Carlson and Rick Adams, Wilson Street Figure 5 Harker Ave. I" Parkinson Ave, Existir~ STOP Sign Evaluation/Background: Hopkins Avenue is a local two-lane residential street, with parking allowed on both sides of the street. The street is a four-block section and is located between Harriet Street and Newell Road. Tlu’ee streets intersect Hopkins Street, as shown in Figure 5 above. An all-way stop control exists in the middle of this four-block section at the intersection of Hopkins Avenue/Cedar Street, and there is a crosswalk on Hopkins to the west of Wilson Street. Page 8 of 15 The concern is, that vehicles are speeding on Hopkins and the crosswalk on Hopkins at Wilson is not safe for children, because it is uncontrolled. Staff did receive information from the resident saying that Walter Hays Elementa12 School supports the stop sign request. The alignment of Hopkins Avenue is straight between Harriet Street and Newell Road and visibility is clear in both directions. Advance pedestrian warning signs exist on both sides of the street on Hopkins Avenue. A review of the accident data for the intersection of Hopkins Avenue and Wilson Street did not show any accidents in the past 13 years, and a 48-hour speed count indicated an 85th percentile speed of 29 mph in the westbound direction and 26 mph in the eastbound direction. Since the intersection is next to Walter Hays and Rinconada park, the area is used by pedestrians throughout the day. A stop sign on Hopkins at Wilson would provide a controlled crossing for pedestrians using this area. Recommendation: Staff recommends installing stop signs on Hopkins Avenue at Wilson Street. Page 9 of 15 6. E! Verano Avenue/Ramona Street Request: Install stop signs on E1 Verano Avenue at Ramona Street to help reduce speeding on Ramona Street. Received From: Ms. Alexis Hamilton, Palo Alto Figure 6 Legend ¯ ~ Proposed STC~ Sign Loccdion ~1~ExL~ng STOP Sign ’ [~E~dsl ng Traff c Signals Evaluation/Background: Ramona Street is located to the east of Alma Street and runs north- south. The block of Ramona between E1 Verano Avenue and East Meadow Drive is approximately 1,000 feet long and 30 feet wide with parking on both sides, and it carries approximately 600 to 650 vpd. The 85th percentile speed is 32 mph. Page 10 of 15 During a five year period (1993 to 1997), two right-angle accidents, which are susceptible to correction by installation of stop signs or improving visibility, were reported at the intersection of Ramona Street and E1 Verano Avenue, one in 1995 and another in 1996. Visibility has already been improved by moving the stop bar ahead. This neighborhood is typical of Palo Alto neighborhoods, (narrow streets with parking allowed on both sides, 85th percentile speed ranging between 28 and 33 mph, and traffic volumes having a large variation with an upper limit beyond 2,000 vpd). Like Ramona, Palo Alto Avenue, Barron, La Donna, and Marion Avenues, all have an 85th percentile speed of 32-33 mph. Some people may be using this block of Ramona Street as a short cut to avoid the signal at Alma Street and East Meadow Drive, which commonly happens on streets that are close to a major intersection. One way to control speeding is to make the street narrower, but in this case Ramona Street is already narrow. The existing stop sign installation on E1 Verano is consistent with the "Guard and Go" policy because stop signs exist on E1 Verano Avenue at Bryant Street, one block to the east of Ramona, and at Emerson Street one block west of Ramona. Stop signs already exist on Ramona at E1 Verano and East Meadow Drive. Stop signs could be installed on E1 Verano, but the installation would not meet the stop sign wan’ant, nor would it affect speeds in this block, which is 1,600 feet long; although it might make drivers who are turning right from E1 Verano Avenue to Ramona Street take the turn at a lower speed. Road bumps could be installed on this street, but the street does not meet one of the Council- approved criteria (accident criteria, similar to Ross Road). Installation of road bumps will help reduce speed on Ramona Street, but installation of road bumps may shift traffic on other parallel streets such as Bryant and South Court. Also, at least two-thirds of the residents on the street need to support installation of road bumps. Other non-engineering suggestions include utilizing the Radar Trailer and/or the Neighborhood Speed Watch Program. Recommendation: Staff does not recommend installing stop signs on E1 Verano Avenue since it would not reduce the speeding problem on Ramona Street. Page 11 of 15 7. Channing Avenue at Lincoln Avenue Request: Install stop signs onChanning Avenue at Lincoln Avenue. Received From: Judy Stikeleather, Fife Avenue and Pauline Hayward, Channing Avenue Figure 7 Channing Av !. Ha~ker Av Legend ~.~ Proposed STOP Sign Location Existing STOP Sign Existing Tra(fic Signals Evaluation/Background: Channing Avenue is a two-lane collector street with parking on both sides. The nearest stop signs on Channing Avenue exist at Guinda Avenue and at Center Street. A crosswalk exists to the west of Addison Avenue. The concern is about the speed of vehicles on Channing Avenue. Staff collected 48-hour speed count data, which show the 85th percentile speeds of westbound and eastbound traffic to be 34 mph and 33 mph, respectively. These speeds are comparable to that of speeds observed on most collector streets in Palo Alto. Staff conducted pedestrian and bicycle coums for half-hour periods in the moming on two separate days during the school commute period. On the first day, staff observed three pedestrians and two bicyclists crossing nero" the Channing crosswalk to the west of Addison. On the second day, eight pedestrians and tlu’ee bicyclists were observed. No pedestrians or bicyclists were observed crossing Channing at Lincoln Avenue. Both pedestrians and bicyclists seemed to be able to cross the staeet safely. Page 12 of 15 A review of accident data for the intersection for the past five years showed three accidents (one in 1994 and two in 1995). No accidents have been reported since 1995. All three accidents are due to vehicles on Lincoln Avenue failing to yield the right-of-way to traffic on Channing Avenue. This type of accident is susceptible to correction by making the intersection an all-way stop. The accident history does not indicate a substantial safety problem on Channing at Lincoln. In summary, Channing is a collector street, no visibility problems exist at Lincoln and the accident and volume data do not meet Caltrans criteria for installation of stop signs on Channing, which is a collector street. Recommendation: Staff does not recommend installing stop signs on Channing Avenue at Lincoln Avenue. Page 13 of 15 8. Birch Street at Chestnut Avenue Request: Install stop signs on Birch Street at Chestnut Avenue Received From: Cole Richmond, Chestnut Avenue Figure 8 Access for northbound only Evaluation/Background: Bfl’ch Street is a two-lane north-south local residential street that connects Lambert Avenue to Fernando Avenue. Chestnut Avenue runs east-west and intersects Park Boulevard. The concern is that vehicles using Bbch StTeet between Lambert Avenue and Femando Avenue are speeding, and this creates an unsafe situation for pedestrians on Chestnut Avenue Page 14 of 15 who cross Birch Street on their way to a neighborhood park. Field observations showed visibility at the intersection is clear. Staffhas collected 48-hour speed and volume data on Birch Street. The speed count data showed the 85th percentile speed for the northbound and southbound Birch to be 28 mph and 26 mph, respectively. This range of speed is lower than many local residential streets in the Palo Alto. A review of the accident data for the intersection did not show any accidents for the past five years. Recommendation: Staff does not recommend installing stop signs on Birch Street at Chestnut Avenue. Page 15 of 15 ATTACHMENT B ® Multiway STOP signs The "Multiway Stop" installation may be useful at some locations. It should ordinarily be used only where the volume of traffic on the intersecting roads is approx- imately equal. A traffic control signal is more satisfactory for an intersection with a heavy volume of traffic. POLICY Any of the following conditions may warrant a multi- way STOP sign.installation: ,2. Where traffic signals are warranted ahd urgently needed, the multiway stop may be an interim measure that can be installed quickly to control traffic while arrangements are being made for the signal installations. An accident problem, as indicated by five or more reported accidents within a 12 month period of a type susceptible to correction by a multiway stop installation. Such accidents include right- and left-turn .collisions as well as right-angle collisions. Minimum traffic volumes (a) The total vehicular volume entering the inter- section from all approaches must average at least 500 vehicles per hour for any 8 hours of an average day, and (b) The combined vehicular and pedestrian volume from the minor street or highway must average at least 200 units per hour for the same 8 hours, with an average delay to minor street vehicular traffic of at least 30 seconds per vehicle during the maximum hour, but (c) When the 85-percentile approach speed of the major street traffic exceeds 40 miles per hour, the minimum vehicular volume warrant is 70 percent of the above requirements. AN EXCERPT FOR STOP SIGN JUSTIFICATION FROM THE CITY COUNCIL ADOPTED WARRANTS FOR TRAFFIC CONTROL DEVICES NEAR SCHOOLS R~commendations and assign priorities to the City Manager and/or the Superintendent of the P~,.m Alto Unified School District for the application of traffic control devices. The analysis of the need for some form of special protection for a school crossing depends upon the following two assumptions: ao The maximum delay a child should be expected to accept should be no greater than that which would be experienced if a traffic control signal, timed so as to provide an adequate crossing interval, were located at the crossing under study. bo Some form of device is essential when "the number of adequate gaps in the traffic stream during the period the children are using the crosswalk is less than the number of minutes in that same period of time. That is, gaps less frequent than one per minute represent a situation that may require some form of warning or control device or measure. Information developed from field studies and measured against the various traffic control device warrants will determine the type of protective measure that will be physically installed or established at the crossing. Generally, the policy for the installation of these devices is as follows: A.School pedestrian non-control measures 1. Types available Signs and Markings Flashing Signals Pedestrian Walkways Variable Speed Zones o The above devices will be installed at those school locations wherein the condition of traffic, i.e., speed, volume, street width and vehicle gap, having been reviewed by an engineering survey, are found to: a.Produce frequent and adequate Vehicle gaps such that pedestrians may safely cross the street without additional controls being present. The unobstructed sight distance to the crosswalk is more than that shown for speeds indicated: 25 mph 170 feet 30 mph 200 feet 35 mph 235 feet 40 mph 275 feet B.School pedestrian traffic control measures and devices 1. Types available Pedestrian grade separation School safety patrol Separated walkways Stop intersection Traffic signal system Transportation 2.The foregoing control measures and devices are to be considered when the conditions of traffic exceed those conditions listed under warning devices (non-control measures).