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HomeMy WebLinkAboutStaff Report 5421 City of Palo Alto (ID # 5421) City Council Staff Report Report Type: Consent Calendar Meeting Date: 1/20/2015 City of Palo Alto Page 1 Council Priority: Land Use and Transportation Planning Summary Title: Maybell Bicycle Boulevard and Churchill Enhanced Bikeway Concept Plan Approval Title: Approval of Concept Plan Line and Implementation Plan for the Maybell Avenue Bicycle Boulevard and Churchill Avenue Enhanced Bikeway Projects From: City Manager Lead Department: Planning and Community Environment Recommendation Staff recommends that Council approve the Maybell Avenue Bicycle Boulevard Project and Churchill Avenue Enhanced Bikeway Concept Plan Lines and Implementation Plans as shown in Attachments A and B. Executive Summary The Palo Alto Bicycle and Pedestrian Transportation Plan 2012 (Bike Plan) identifies Maybell Avenue Bicycle Boulevard as an existing bicycle boulevard with Georgia Avenue, Donald Drive, and El Camino Way as bike route connectors in the citywide bicycle route network. The Maybell Bicycle Boulevard project would provide a key link between the Bol Park Path, Gunn High School, the Park Boulevard/Wilkie Way Bicycle Boulevard, and the Park Blvd Bicycle Boulevard. The Maybell Avenue Bicycle Boulevard Project includes traffic calming measures to encourage both bicycle and pedestrian use, branding signage consistent with other bicycle boulevard facilities, high visibility green bicycle markings at key points to the boulevard, and provisions for studies to implement additional improvements at key intersections such as El Camino Real and Orinda Avenue. A new bike lane would be introduced to the west (Southbound) side of El Camino Way as part of this project. For the Churchill Avenue Enhanced Bikeway, coordination with the Palo Alto Unified School District (PAUSD) and the California Department of Transportation – Caltrans is required for City of Palo Alto Page 2 right-of-way access and possible future improvements at El Camino Real. Discussions with each agency will begin following approval of the Concept Plan Line. The City held four community outreach meetings for the Maybell Avenue Bicycle Boulevard project in 2013 and 2014 to develop the proposed concept plan (Attachment A), and two separate community outreach meetings were held as part of the development of the Churchill Avenue Enhanced Bikeway concept plan (Attachment B). The Planning & Transportation Commission voted unanimously to recommend approval of both projects on December 10, 2014. City Council approval will enable environmental review and final design of the Churchill project (currently included in the CIP), as well as installation of simpler improvements with independent utility (such as signage and minor striping) that can be implemented as part of other existing CIP projects. The Maybell Bicycle Boulevard project is not currently funded for environmental review and final design. Background The Bicycle & Pedestrian Transportation Plan 2012 includes a Proposed Bikeway Network of multi-use paths, bicycle boulevards, enhanced bikeway facilities, bicycle lane facilities, and bicycle routes. The Proposed Bikeway Network, provided in Attachment C, is the guiding policy document for the deployment of bicycle facilities in the City of Palo Alto. The Bicycle & Pedestrian Plan was developed through an extensive community outreach process that took place over 18 months through 2011 and 2012. The Council approved the Plan at its July 9, 2012 meeting. Implementation of the plan started in 2013 with the expansion of the Park Boulevard Bicycle Boulevard along Castilleja Avenue and Park Boulevard to Oregon Expressway and followed with the start of the planning phases of the Maybell Avenue Bicycle Boulevard and the Matadero Avenue-Margarita Avenue Bicycle Boulevard Projects. The City Council also authorized up to $1.2M per year over five years as part of the current year Capital Improvement Program (CIP) to help implement the plan. Discussion Maybell Bicycle Boulevard The proposed Maybell Avenue Bicycle Boulevard project would provide additional improvements along an existing Bicycle Boulevard and extend the route to include El Camino Way, Donald Drive, and Georgia Avenue, providing a connection to the Bol Park Class I Path connecting with Gunn High School to the west and the Park Boulevard/Wilkie Way Bicycle Boulevard to the east. At El Camino Way, the projects would expand on existing traffic calming measures and bicycle facilities by adding a new green bike lane as an extension of the existing green bike lane on East Meadow Drive to help improve the ride for school commuters. City of Palo Alto Page 3 The Maybell Avenue Bicycle Boulevard takes advantage of existing traffic calming features such as speed humps on Maybell Avenue, and bike lanes on East Meadow Drive, creating a connection between neighborhoods on the east side of Alma Street and connecting to Gunn High School, Terman Middle School, and Juana Briones Elementary School. This corridor sees substantial use of bicycle and pedestrian activity as a Safe Route to School, and commuter activities to the west side of Palo Alto. In general, the proposed improvements are separated into two groups: simple improvements that can be implemented easily, and more significant physical changes that would require additional environmental review and a more detailed final design before construction. Below is a summary of the proposed implementation plan for the Maybell Avenue Bicycle Boulevard project: Phase 1 – Traffic Calming Improvements (2015)  Speed Tables – A total of three to five (3 to 5) new speed tables are proposed along Maybell Avenue between Donald Drive and Arastradero Road, including a raised pedestrian crosswalk at the Gunn High School path connection. The number of speed tables is anticipated to start with three tables, and continued speed data collection and outreach would be conducted to determine if additional speed tables would be needed. The Gunn High School path speed table/crosswalk will be implemented later following additional community input during the Design phase.  Bicycle Lanes – A new green bicycle lane is proposed to connect East Meadow Drive and continue to just south of James Way. This bicycle lane would provide an extension to the heavily used green bike lane on East Meadow Drive, which terminates at El Camino Way. Due to limited right of way, a bicycle lane is not proposed for the northbound direction, and instead this plan proposes the use of green-back sharrows to compliment the southbound bicycle lane. On Maybell Avenue, a bike lane in the westbound direction previously ended just west of El Camino Real. Due to existing parking restrictions on the north side of Maybell, this concept plan includes extending the bicycle lane to Amaranta Avenue.  Parking Restrictions near Briones Park – The proposed concept plan includes time of day parking restrictions on the north side of Maybell between Amaranta Avenue and Juana Briones Elementary School. This would affect four single family homes and approximately four parking spaces. In conjunction with this restriction, parking on the south side along Juana Briones Park would be formalized with parking “T” pavement markers.  Share the Road Pavement markings – “Share the Road” pavement markings (sharrow) are a standard pavement treatment for bicycle routes that do not provide a dedicated bicycle lane and are used in Palo Alto and throughout the California. Although still City of Palo Alto Page 4 considered experimental traffic control devices, greenback sharrow markings are proposed to highlight the presence of bicyclists to motorists and to guide bicyclists where to position themselves on the roadway. The City has greenback Sharrows installed along Cowper Street – North of E Meadow Drive and on Channing Avenue – East of Guinda Avenue. This proposed concept plan includes the use of green back sharrows on Maybell Avenue and El Camino Way. Due to local residential characteristics, Donald Drive and Georgia Avenue are proposed to use traditional (non-colored) sharrows.  Bicycle Boulevard Branding and Wayfinding Signage – New signage at every intersection corner to brand the bicycle boulevard facility and wayfinding signage to highlight the path to points of interest. Phase 2 – Bicycle Boulevard Treatment Implementation (Implementation TBD pending Final Design)  Shared Use Path Extension – The existing sidewalk on the north side of Maybell Avenue is at the same height as the vehicle roadway, separated only by a concrete valley gutter in most areas. This concept plan includes providing additional width in the form of a shared path on the asphalt with the use of a textured, colored, or other treatment to distinguish the area for use by pedestrians and/or bicyclists.  Raised Intersections – The proposed concept plan includes raised intersections at the intersections of Maybell Avenue at Amaranta Avenue and at Coulombe Ave. The raised intersection and crosswalks would be at the same height as the sidewalks, and each approach would be ramped up similar to a speed table or raised crosswalk.  Crosswalk Improvements – Enhanced crosswalk markings at the Gunn High School/Bol Park Path on Georgia Avenue, and at the intersections of Maybell Avenue/Donald Drive and Georgia Avenue/Donald Drive. Phase 3 – Future Year Improvements (No Schedule)  Caltrans Project Study Report – Begin a study with Caltrans to determine the level of improvements at the El Camino Real & Maybell Avenue/El Camino Way intersection that are acceptable to the State of California. Churchill Avenue Enhanced Bicycle Way The proposed concept plan for the Churchill Avenue Enhanced Bikeway project would provide an improved connection between the Castilleja-Park Bicycle Boulevard to the existing Class I bicycle path that runs parallel to the Caltrain tracks on the west side. The proposed concepts would also extend the Class 1 path along Churchill Avenue up to the intersection with El City of Palo Alto Page 5 Camino Real, where an improved crossing at El Camino Real would connect to the future Stanford Perimeter Trails and onto the Stanford University campus. The Churchill Avenue concept plans would provide improved facilities for all modes including bicycles, pedestrians, and motor vehicles turning into Palo Alto High School. This corridor sees substantial use of bicycle and pedestrian activity as a Safe Route to School and use by automobile commuters who travel north and south through Palo Alto. Below is a summary of the proposed implementation plan for the Churchill Avenue Enhanced Bikeway project: Phase 1 – Traffic Calming Improvements (2015)  Time of Day Parking Restrictions – City Staff would outreach to the neighbors on the south side of Churchill Avenue between Castilleja Avenue and Miramonte Avenue and seek to incorporate time of day parking restrictions (no parking 7 AM to 7 PM). This would provide a wider area for bicyclists and or vehicles that want to turn right onto southbound Alma Street.  Bicycle Lane Ramp Connection – The proposed concept plan includes a small ramp for bicycles that wish to connect from the westbound bicycle lane onto the existing Class 1 pathway and/or to the pathway connecting to the Palo Alto High School campus without having to travel through the intersection of Castilleja Avenue and Churchill Avenue. The path connector ramp would be located approximately 30 to 50 feet east of the Palo Alto High School driveway. Phase 2 – Intersection Modification and Extended Pathway (Implementation TBD pending Final Design)  Intersection Modifications – The proposed concept plan line includes a substantial traffic signal modification at the intersection of El Camino Real and Churchill Avenue, with removal of the existing “pork chop” island, the addition of a pedestrian crosswalk across the north leg of the intersection, and the addition of a right-turn vehicle lane. Textured or color treatments, enhanced detection, and connection to Stanford University campus and trails are also proposed as part of this modification, which would require consultation with Caltrans, PAUSD, and Stanford.  Raised Pedestrian Crosswalks – The intersection of Castilleja and Churchill Avenues would also receive intersection modification treatments that include raised crosswalks that act as a speed table. A raised crossing is proposed as an option, both for crossing Churchill Avenue and the Palo Alto High School Driveway. In addition, a sidewalk extension (bulb-out) on the south-west corner is proposed to reduce the pedestrian crossing distance and accommodate rectangular rapid flashing beacons. Similarly, a raised enhanced crosswalk with optional bulb-out at Madrono Avenue is proposed. City of Palo Alto Page 6  Class I Pathway Extension – The proposed concept plan line includes extending the existing pathway that currently terminates at the Palo Alto High School Driveway, to the west and terminating at El Camino Real where the modified traffic signal would be designed to accommodate users the pathway crossing El Camino Real. This aspect of the project would also require consultation with Caltrans, PAUSD, and Stanford. Outreach and Planning and Transportation Commission Discussion and Recommendation The City held four community outreach meetings for the Maybell Avenue Bicycle Boulevard project in 2013 and 2014 to develop the proposed concept plan. Two separate community outreach meetings were held as part of the development of the Churchill Avenue Enhanced Bikeway concept plan, and both projects were reviewed by the Palo Alto Bicycle Advisory Committee (PABAC) and a Technical Advisory Committee comprised of representatives from PABAC, the Planning and Transportation Commission (PTC), and others with specific, technical expertise in the planning and design of bicycle facilities. On December 10, 2104, the PTC reviewed the proposed projects and voted unanimously, 7-0, to provide a recommendation for approval of the Concept Plan Line alignments to the City Council for both the Maybell Avenue Bicycle Boulevard and Churchill Avenue Enhanced Bikeway projects. The Planning & Transportation commission reviewed, asked questions, commented, and provided to City Staff and consultants on the concept plan lines. As part of the review, several key questions, comments and suggestions were discussed, and included the following:  Consider Time of Day parking restrictions on the west side of El Camino Way during the AM school commute peak,  Why is Mariposa/Churchill not included as a designated crossing for the project?  Use of in pavement, flashing lights versus rectangular rapid flashing beacons (RRFB),  Were there any community concerns that could not be addressed or conflicts?  Location of bike lane ramp to path on Churchill Avenue,  Consider dashed center line on El Camino Way to make passing safer (compared to existing double yellow).  Include adequate wayfinding signage,  Suggestion for instructional videos for new features and traffic devices. Resource Impact The near-term Phase 1 improvements that consist of simple striping, signage, or other approved traffic devices could be implemented in the immediate future using allocated funds to the Bicycle and Pedestrian Transportation Plan Implementation CIP (PL-04010). The Phase 2 improvements for the Churchill Avenue Enhanced Bikeway are currently funded for environmental review and final design as part of the El Camino Real & Churchill Avenue Intersection Improvements (PL-14000). The Maybell Avenue Bicycle Boulevard project is not City of Palo Alto Page 7 yet funded for environmental review and final design. The Phase 2 improvements for both projects are included in the Infrastructure Plan as approved by Council in June 2014. Policy Implications The Comprehensive Plan goals, policies, and programs that support the development of the Maybell Bicycle Boulevard and the Churchill Avenue Enhanced Bikeway project include:  Goal T-1: Less Reliance on Single-Occupant Vehicles  Goal T-3: Facilities, Services, and Programs the Encourage and Promote Walking and Bicycling  Program T-19: Develop, periodically update, and implement a bicycle facilities improvement program and a pedestrian facilities improvement program that identify and prioritize critical pedestrian and bicycle links to parks, schools, retail centers, and civic facilities.  Program T-22: Implement a network of bicycle boulevards, including extension of the southern end of the Bryant Street bicycle boulevard to Mountain View.  Policy T-25: When constructing or modifying roadways, plan for usage of the roadway space by all users, including motor vehicles, transit vehicles, bicyclists, and pedestrians.  Policy T-34: Implement traffic calming measures to slow traffic on local and collector residential streets and prioritize these measures over congestion management. Include traffic circles and other traffic calming devices among these measures. The Bicycle and Pedestrian Transportation Plan 2012 lays out the development of the Bicycle Boulevard network and prioritizes the corridors for development of these facilities. The Bike Plan objectives that are furthered by the development of the Maybell Avenue Bicycle Boulevard and Churchill Avenue Enhanced Bikeway include:  Objective 1: Double the rate of bicycling for both local and total work commutes by 2020 (to 15% and 5%, respectively).  Objective 2: Convert discretionary vehicle trips into walking and bicycling trips in order to reduce City transportation-related greenhouse gas (GHG) emissions 15% by 2020.  Objective 3: Develop a core network of shared paths, bikeways, and traffic-calmed streets that connects business and residential districts, schools, parks, and open spaces to promote healthy, active living.  Objective 4: Plan, construct, and maintain ‘Complete Streets’ that are safe and accessible to all modes and people of all ages and abilities.  Objective 5: Promote efficient, sustainable, and creative use of limited public resources through integrated design and planning. Environmental Review City of Palo Alto Page 8 A Mitigated Negative Declaration was approved by City Council for adoption of the Bicycle Plan on July 9, 2012. Certain aspects of Phases 2 of the Maybell Avenue Bicycle Boulevard project and the Churchill Avenue Enhanced Bikeway will require additional environmental review at a later time. Attachments:  Attachment A: Maybell Avenue Bicycle Boulevard Concept Plan (PDF)  Attachment B: Churchill Enhanced Bikeway Concept Plan Line (PDF)  Attachment C: Bike Network Map (PDF) PTC Packet Page 13 of 19 PTC Packet Page 14 of 19 PTC Packet Page 15 of 19 PTC Packet Page 16 of 19 PTC Packet Page 17 of 19 PTC Packet Page 18 of 19 ATTACHMNT B PTC Packet Page 19 of 19 Recommended Facilities and Conditions | 6-3 Alta Planning + Design Chapter 6 Map 6-1. Proposed Bikeway Network PTC Packet Page 11 of 19 6-4 | Bicycle + Pedestrian Transportation Plan City of Palo Alto Chapter 6 PTC Packet Page 12 of 19