Item 9-A
Council Meeting: June 29, 1999
Santa Monica, California
TO: Mayor and City Council
FROM: City Staff
SUBJECT: Recommendation for the City Council to: 1) Approve Crosswalk Enhancements for Montana Avenue, Ocean Avenue, Neilson Way and Barnard Way and authorize staff to prepare construction drawings and specifications; and 2) Authorize the City Manager to Negotiate and Execute an Amendment to the Pedestrian Crosswalk Enhancements Development and Design Contract to Conduct the Phase II Study for Wilshire Boulevard, Santa Monica Boulevard, Broadway and Ocean Park Boulevard.
INTRODUCTION
This staff report recommends that the City Council take the following actions: 1) Approve proposed design of Crosswalk Enhancements for Montana Avenue, Ocean Avenue, Neilson Way and Barnard Way and authorize staff to proceed with selection of a firm to develop construction drawings and specifications; and 2) Authorize the City Manager to Negotiate and Execute an Amendment to the Pedestrian Crosswalk Enhancements Development and Design Contract to Conduct the Phase II Study for Wilshire Boulevard, Santa Monica Boulevard, Broadway and Ocean Park Boulevard.
BACKGROUND
On September 22, 1998, City Council authorized a Pedestrian Crosswalk Enhancements Design and Development contract for site specific analysis and the development of recommendations for Pico Boulevard, Montana Avenue, Ocean Avenue, Neilson Way and Barnard Way. On January 26, 1999 Council approved recommended measures for Pico Boulevard in advance of other Phase I streets so that design and construction could be integrated with the Pico Streetscape Project.
The Phase I study process for Montana Avenue, Ocean Avenue, Neilson Way and Barnard Way was a site-specific evaluation covering the entire length of each street. The process included suggestions and observations from the community, three workshops held in October and November 1998 (Attachments A-1, A-2 and A-3 summarize comments), pedestrian counts, a review of accident and traffic data, and observations of pedestrian patterns and physical characteristics of the streets. Based on all these considerations, preliminary site-specific recommendations were developed.
Once the recommendations were developed, two Community Workshops were held in April, 1999 to obtain comments. The attendees generally expressed strong support for the proposed measures. Specific comments are provided in Attachments B-1 and B-2. These comments were either addressed at the meeting or through additional evaluation.
The community has expressed a desire to rapidly implement the Phase I recommended improvements once they are approved by Council. A full design and construction process, including competitive bidding for both design and construction, will take approximately twenty-one months to complete, which will result in the estimated completion of all the Phase I crosswalk enhancements by March 2001. It is possible that some of the improvements can be implemented more quickly on a temporary basis and staff will explore ways, through the design process, to implement improvements.
This project is an element of the City’s ongoing Community Livability Objective to enhance the pedestrian experience through the development of safe and convenient crosswalk locations. Phase II was originally slated to include Lincoln Boulevard, Ocean Park Boulevard, Santa Monica Boulevard and Wilshire Boulevard. However, since the City is currently working with Caltrans on the possibility of relinquishing Lincoln Boulevard, staff recommends delaying crosswalk analysis for this street until negotiations have been completed. Instead of Lincoln Boulevard, Broadway is recommended for inclusion in Phase II to dovetail with the curb-extension and lighting improvements scheduled for this street. Phase III will include Lincoln Boulevard, Main Street, Colorado Avenue, and a north-south street such as 26th or 11th Street, however, this recommendation will be reviewed closer to commencement of Phase III. Ultimately, the goal is to develop guidelines for enhancing crosswalk locations throughout the City.
An amendment to the Katz, Okitsu & Associates contract for the Phase II study is consistent with the original Request for Proposals and Council report, which identified the Phase II study as an optional element that the City could exercise. The Phase II study will begin with community meetings in Fall 1999 and it is anticipated that the resulting recommendations will be brought to Council in Spring 2000.
RECOMMENDED ENHANCEMENTS
The crosswalk enhancements recommended for Montana Avenue, Ocean Avenue, Neilson Way and Barnard Way are discussed below, summarized in Attachments C-1 and C-2 and located on the maps in Attachments D-1 and D-2.
General Recommendations
A number of recommendations have been developed that are applicable throughout all the study locations, including:
Use a zebra-striping pattern to increase visibility: this pattern consists of section of white vertical striping about two-feet wide alternating with a wide section of unpainted pavement. It’s different than the current "ladder" crosswalks because there is no horizontal line connecting the vertical lines. This is recommended for all non-controlled crosswalks across the major streets.
Upgrade all signalized locations in the study area with large pedestrian push buttons and information placards.
Add limit lines outside each crosswalk to encourage the motorist to stop before the crosswalk rather than in the crosswalk.
Add "Ped Xing" markings in the pavement, in advance of uncontrolled crosswalks.
Use single-line parallel pavement markings to identify crosswalks, parallel to the major street, at every cross-street along the major street.
Mark all alleys, at the approach to a sidewalk, with a limit line and a painted "stop" in the pavement.
Paint crosswalks near schools the characteristic yellow rather than white.
Install new or repositioned handicapped ramps where it is determined that they are required in conjunction with the installation of a new crosswalk.
Locate at least two pedestrian crossing signs at every uncontrolled crosswalk in the study area, one in advance of the crosswalk and one at the crosswalk,
Montana Avenue
The recommendations were developed based on a combination of considerations including the volumes of pedestrian traffic, the street’s lane configuration and the speed of traffic. All the intersections in the commercial area between 7th and 17th Streets meet the necessary criteria for installing a marked crosswalk, based on the facts that the pedestrian volumes are high, there is only one travel-lane in each direction and speeds are slower in the commercial area. Within the residential areas on both sides of the commercial area, the pedestrian volumes are lower and only a few targeted improvements are recommended.
Commercial Area:
The crosswalk improvements recommended for the commercial area will serve the high level of pedestrian volumes by establishing clearly marked pedestrian zones with curb extensions at the non-signalized locations to provide added visibility. The recommended crosswalk improvements in this report are the components considered necessary to provided a safe environment for the pedestrian. These recommendations could be elaborated as part of any subsequent the urban design planning process with improvements such as crosswalk pavers, commercial gateway elements and sidewalk treatments. The recommendations for the commercial area between 7th and 17th are as follows.
Curb Extensions: Curb extensions are recommended at the six uncontrolled intersections within the commercial area to bring the pedestrian out beyond the row a parked cars and increase the sight line for both the motorist and the pedestrian. Curb extensions add emphasis on the pedestrian by heightening their presence to the motorist and shortening the crossing distance within the street. The recommended locations are: all four corners at 10th Street, 12th Street, Euclid, 15th Street and 16th Street and the west side of the intersection at 9th Street (this is a school crossing guard location so only one side of the intersection is recommended in order to channel students.)
The curb extensions will be designed in a way to provide an easy turning radius for the motorist and to minimize the loss of parking. The curb extensions will be limited to the areas that are currently painted red and should not impact the number of parking spaces within the commercial area. There are two locations, at Euclid and Fifteenth, where the curb extensions will be extended to also serve as the bus stop. This will incorporate the current bus stop area and should not require additional parking. This configuration will allow the bus to stop without pulling all the way over to the curb, thus shortening the time duration of the stop. The stopped bus will impede the bicycle lane, but will not block the through traffic lane.
Zebra-Striping: Recommendations include marking all intersections between 7th and 17th Streets with distinctive zebra striping to emphasize the area as a pedestrian zone, heightening motorist awareness and encouraging pedestrians to cross at corners rather than jaywalking (a constant complaint at community meetings.) Striping the signalized intersections provides added emphasis on the fact that the entire area is a pedestrian zone.
Several additional requests were evaluated but not recommended:
A request was made at the April Workshop for the City to consider installing in-pavement or mounted flasher treatment at Montana and 15th Street, since 15th Street is at the crest of a hill and there are a large number of pedestrians crossing at this location. This location was re-evaluated. Placing a flasher at 15th Street and not at the other non-signalized locations in the commercial district along Montana would tend to diminish the effectiveness of treatments at the other locations. The use of an in-pavement flasher is generally preferred in locations that have a combination of low pedestrian volume and high traffic speeds and/or volumes. The curb extensions combined with zebra striping and signage provide the necessary visibility for motorists. To address the hill issue, an additional limit line will be added in the eastbound direction, proceeding uphill toward the 15th Street crosswalk. Community members at the meeting generally agreed that they were not in favor of a signal at this location, since it could change the character of the neighborhood. This location can be monitored to evaluate whether a signal should be installed in the future.
Several community members suggested that mid-block crosswalks in the commercial area could help to minimize the number of jaywalkers. Mid-block crosswalks are not recommended in this area because of the block configuration. The blocks are characterized by a short total length (about 350 feet), intersected in half by an alleyway. Mid-block crosswalk would be installed on either side of the alley rather than directly in the middle of the block and the resulting crosswalk placement could produce an undesirable back-up into the corner intersection.
Residential Areas:
The following recommendations are for the residential portions of Montana Avenue between the eastern City limit and 17th Street, and between 7th Street and Ocean Avenue.
New Striping: At Stanford, which is controlled by a three-way stop, new painted crosswalk striping is recommended at all three legs of the intersection. Currently there are no crosswalk markings at this intersection.
Four-way Stop: A four-way stop will be studied at the intersection of Harvard/Burlingham and if warranted, installed.
Median Islands: Three median islands between 20th and 24th Streets are recommended to slow traffic and create a refuge for pedestrians. Landscaping would be developed with visibility in mind and would be kept light and airy.
In-Pavement Flasher: To address the attraction to the one commercial establishment at 21st Street, given the generally low level of pedestrian traffic in this area, it is recommended that a pedestrian push-button activated in-pavement flasher be installed at the site of the existing crosswalk at 21st Street.
Add Push Buttons to 4th Street Signal: At the 4th Street signal a pedestrian must currently wait the full traffic signal phase to cross with the light. It is recommended that the signal phasing be revised so that a pedestrian can push a button to activate the "walk" phase.
New Zebra-Striped Crosswalks: Based on pedestrian volume, zebra-striped crosswalks are recommended at 2nd and 3rd Streets to facilitate the pedestrians crossing Montana.
Ocean Avenue, Barnard Way and Neilson Way
There is a high level of pedestrian traffic in the coastal area during the summer and on week-ends year-round. A number of crosswalk improvements are recommended to accommodate the popular coastal destinations such as Palisades Park, the Pier, the hotels and the south beach area. Specific recommendations for Ocean Avenue, Barnard Way and Neilson Way are as follows:
Intersection Re-engineering: At San Vicente a new northern crosswalk is recommended and the southern crosswalk is shifted northward to create more flexibility in crossing to the corners or median of San Vicente. The stop signs will be relocated to be closer together. The arrangement will transform the intersection to a scale that is more pedestrian friendly. The islands directing and protecting the crosswalks will be raised and planted to replace the current painted medians.
New Crosswalks: On Ocean Avenue between Georgina and Washington, zebra-striped crosswalks are recommended at all the uncontrolled intersections, including Georgina, Margarita, Alta, Palisades, Idaho and Washington. At the southern end of the coastal area zebra-striped crosswalks are recommended along Ocean Avenue/Barnard Way for Bay (new crosswalk on north side), Bicknell (new crosswalk on south side), Pacific, Strand, Wadsworth, and mid-way between Hart and Fraser. The two southern-most of these crosswalks will require cutting through the planted median. Regular crosswalk striping is recommended for the south side of Hollister and both sides of Ocean Park Boulevard, which are controlled by stop signs.
The crosswalk on the north side of Bay Street was added in response to a community comment that the current crosswalk on the south side connects to an area where there is no sidewalk. Bay Street will be a major pedestrian entrance to the B.I.G. improvements in the South Beach ocean walk area. The crosswalk on the south side will remain since it connects with the park and there is generally a heavy level of pedestrians at this location. The additional northern crosswalk will require cutting through a median area and removing several parking spaces. The parking spaces will be replaced on the west side of the median.
Elimination of Free Right Turns and other Corner Adjustments: The free right turns on both sides of the crosswalk at the top of the California Incline will be eliminated. The reconfiguration will eliminate the islands, square-off the park corners and generally create a less stressful crossing experience for the pedestrian. The changes can be incorporated into the California Incline seismic upgrade project. Reconfiguration and expansion of the northwest corner of Bicknell at Ocean Avenue is recommended to relocate the crosswalk at the top of the parking lot driveway. The crosswalk is currently located on the down-slope, which is less visible and creates difficulty for the many seniors in the area. Moving it eastward toward the intersection will flatten it out. Elimination of free right turns is also recommended at Hollister and the beach parking lot driveway just south of Ocean Park Boulevard.
Signal Phasing Revisions: Revisions in signal phasing are recommended for Montana, Wilshire, Arizona, Santa Monica, Broadway, the Pacific Coast Highway and Pico Boulevard. Generally, the plan is to adjust the signal phase to provide a walk phase slightly in advance of the traffic. This provides a buffer from right-turning cars. If the soon-to-be-implemented all-pedestrian phase at Ocean Avenue and Colorado is effective, the City should consider converting the two additional locations at the end of the Transit Mall, Ocean/Santa Monica and Ocean/Broadway to operate with an all-pedestrian phase because of the heavy level of pedestrian traffic and conflicting vehicle turning movements.
New Pedestrian Signals: Two new pedestrian activated (push button) signals are recommended for Ocean Avenue between Pacific Coast Highway and Pico Boulevard. Numerous comments were made concerning the need to provide a safe way to cross the street from curb-side parking and the bus stop on the east side of the street to the hotels and other destinations on the west side. These new pedestrian signals are spaced at approximately block-length intervals, just before the exit driveways of the two hotels, to minimize pedestrian-vehicular conflict.
Increased Visibility and Traffic Calming through Physical Improvements: In order to increase visibility for the crosswalk across Ocean Avenue just south of Pico Boulevard, the triangular gore point between Ocean and Neilson Way will be extended to relocate the crosswalk closer to Pico Boulevard. The triangle will be widened to reduce the through traffic from two lanes to one lane, to slow traffic in this highly concentrated pedestrian area and provide additional parking along the west side of the median (the spaces will be added as part of the City’s Coastal Parking and Circulation Study.) The median in Neilson Way, just south of Pico Boulevard, will be extended north to abut the crosswalk across Neilson and provide a refuge for the pedestrian.
Full Signals: Three full traffic signals will be installed on Neilson Way to address the heavy pedestrian demand at Bay, Pacific and Strand. Each of these locations experience very high pedestrian usage in conjunction with beach traffic. Neilson experiences a high volume of fast moving traffic and a traffic light will ensure an easy and safe crossing. These signals will be timed to coordinated with the many other signals along Neilson Way.
A request was made to consider adding a signal along Neilson Way at Pier Avenue or Kinney Avenue to facilitate people who cross for the bus stop on the east side of the street. These locations were re-evaluated through additional observations and pedestrian counts. There was not sufficient demand to justify a signal at these location and the signalized crosswalk at Marine is adequate to serve the demand from the senior housing on Marine.
BUDGET/FINANCIAL IMPACT
A preliminary estimate to design and construct the recommended improvements for Montana Avenue, Ocean Avenue, Neilson Way and Barnard Way has been developed based on the conceptual plans and is estimated at approximately $1.65 million, including a 25% contingency. Funding of $1.2 million is included in FY 1999-2000 CIP. This will cover the Phase II study cost of $198,000 and the anticipated Phase I design costs (approximately $250,000).
The cost estimate for the Phase II study has been developed and evaluated based on the Phase I experience. There are approximately 20 percent more miles in the Phase II study area and the costs are consistent.
RECOMMENDATIONS
Staff recommends that the City Council take the following actions:
Authorize staff to proceed with the selection of a firm to develop construction drawings and specifications for the recommended crosswalk enhancements described above for Montana Avenue, Ocean Avenue, Neilson Way and Barnard Way.
Authorize the City Manager to negotiate and execute an amendment to the Katz, Okitsu & Associates Pedestrian Crosswalk Enhancements Development and Design Contract in an amount not to exceed $198,000 including contingencies, to conduct a study and develop crosswalk enhancement recommendations for Wilshire Boulevard, Santa Monica Boulevard, Broadway, and Ocean Park Boulevard.
Prepared by:
Suzanne Frick, Director of PCD
Ellen Gelbard, Deputy Director
Planning and Community Development Department
Craig Perkins, Director of EPWM
Anthony Antich, City Engineer
Attachment A-1: Montana Avenue: Community Comments and Observations
Attachment A-2: Ocean Avenue (North of Pico): Community Comments and Observations
Attachment A-3: Ocean Avenue (South of Pico), Neilson Way & Barnard Way: Community Comments and Observations
Attachment B-1: Community Meeting Comments on Recommended Measures for Montana Avenue
Attachment B-2: Community Meeting Comments on Recommended Measures for Ocean Avenue, Neilson Way and Barnard Way
Attachment C-1: Summary Table of Recommended Montana Avenue Crosswalk Enhancements
Attachment C-2: Summary Table of Recommended Ocean Avenue, Neilson Way Barnard Way Crosswalk Enhancements
Attachment D-1: Map of Recommended Montana Avenue Crosswalk Enhancements
Attachment D-2: Map of Recommended Ocean Avenue, Neilson Way Barnard Way Crosswalk Enhancements