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HomeMy WebLinkAboutCC AG PKT 2003-08-11 #G AGENDA REPORT DATE: August 11, 2003 TO: Honorable Mayor and City Council THRU: John B. Bahorski, City Manager FROM: Douglas A. Dancs, P.E. Director of Public Works /City Engineer SUBJECT: COUNCIL POLICY: PUBLIC WORKS — CITIZEN INITIATED TRAFFIC CALMING PROJECTS SUMMARY OF REQUEST: The proposed City Council action will adopt a Council Policy regarding citizen requests for traffic calming within the City of Seal Beach. BACKGROUND: The City has implemented a number of measures to reduce the impacts of traffic and improve the livability of our neighborhoods. Samples include the bulbouts on Main Street and 12 Street, and the roundabout at 5th and Central Avenue. Recently, citizens have approached staff for mid -block crosswalk bulbouts on Main Street and bulbouts on Ocean Avenue. In the future, it is expected the City will receive various requests to "calm" the traffic and provide aesthetic opportunities for enhancement. In order to continue these efforts in a systematic and fair manner for everyone, a citywide traffic calming policy is desirable and necessary. The attached policy outlines the basic principles involving traffic calming, acceptable traffic calming measures and associated costs, the petition process necessary to request a traffic calming study, and the approval and funding process to actually install the traffic calming features. The Engineering Division reviewed different cities traffic calming policies and materials to develop the attached traffic calming policy. There are many variables when dealing with traffic calming issues, every situation is unique and requires a fresh approach, study of the issues, public education, and public input to arrive at the best solution. For these reasons, specific criteria to install traffic calming features (such as required speeds in excess of the posted speed limits or traffic volumes) have not been used in the creation of this policy. Agenda Item FISCAL IMPACT: The staff cost of the first educational meeting would be included as part of the normal operating budget of the City but any remaining costs for necessary traffic calming educational meetings, traffic studies, and preparation of staff reports would be paid for by the project proponents. The attached policy requires that traffic- calming improvements also be funded by the property owners who receive the benefit. The policy also states the necessary approval requirements to install, maintain, and finance approved traffic calming features. RECOMMENDATION: Upon motion of the consent calendar, it is recommended that the City Council approve the policy for Citizen Initiated Traffic Calming Projects. Preparedby 6:7:, Douglas A. Dancs, Director of Public Works /City Engineer N • • 1 ii i P p 'ED r Jo - :.: ahorski, City Manager • Agenda Item COUNCIL POLICY SUBJECT PUBLIC WORKS - TRAFFIC CALMING PROGRAM SECTION INDEX NO. ISSUE DATE REVISION DATE COUNCIL CM APPROVAL APPROVAL 1. Scope Citywide. 2. Purpose and Intent Traffic calming is defined as the combination of policies and measures that reduce the negative effects of motorized vehicle use by improving livability in the surrounding neighborhoods. With traffic calming, accessibility and mobility are not reduced, they are modified to fit the needs of the neighborhood. Traffic calming achieves this by modifying the design of streets to serve a broad range of transportation, social and environmental purposes. With traffic calming there is an attempt to strike a balance between vehicular traffic and everyone else who uses the street (i.e., pedestrians, bicyclists, businesses, and residents). Traffic calming attempts to alter driver behavior in contrast to route modification which changes traffic routing along a street network. This Traffic Calming policy furthers the goals of the Transportation and Circulation Element of the City's General Plan by encouraging traffic routes that minimize adverse impacts on residential neighborhoods and providing a balanced system of circulation that incorporates motor vehicles, pedestrians, bicycles, and other transportation modes. The purpose of this policy is to set forth the process and criteria by which implemented Traffic Calming measures on public streets may be considered. This policy only applies to requests initiated by citizens. It does not apply to traffic calming measures on public streets initiated by the Director of Public Works /City Engineer to address specific traffic safety issues, or to comply with State and Federal standards and warrants. Also, this policy does not apply to temporary changes in traffic that are needed to stage special events in the City. 3. Basic Principles • Directed police enforcement is the first step in traffic calming. Directed enforcement means concentrating traffic control efforts in a particular area to obtain compliance with traffic laws. When City staff observes a traffic problem or it is reported by residents, the Engineering Division refers the problem to the Police Department for Directed enforcement. • Proper education and analysis to study the overall impact of traffic calming measures in a specific neighborhood is necessary early in the process. • Traffic calming measures will not be installed if the problem may be shifted to another street. • Some traffic calming measures which result in congestion and restricted traffic flow are generally not intended for main arterial streets (i.e., street closures, rumble strips, etc.). Arterials carry the traffic burden of the City, and they should not be compromised. Where there is congestion at peak hours or a history of congestion - related accidents, it is important to keep traffic moving in the most efficient manner. • Some traffic calming measures that result in congestion and restricted traffic flow on collector streets are generally not desirable and must be considered carefully (i.e., street closures, rumble strips, etc.). This is especially true where there is no reasonable alternate route and congestion is likely during peak traffic hours. • Arterials and collectors must remain open for emergency vehicles. • Some traffic calming measures that control traffic could have a negative impact on emergency vehicle access while, at the same time, improve safety for pedestrians and bicyclists. Before any traffic calming measure is implemented, the City, in conjunction with Police and Fire Departments, will analyze and evaluate the overall impact of proposed measures. • Speed bumps or speed humps are not an approved speed control device in the State of California. Speed bumps or speed humps will not be used until such time they are state - approved for use as a speed control device, or there have been settled lawsuit actions which limit city liability. • Different measures require various levels of effort. For instance closing a street requires an in -depth legal process and requirements whereas implementing a neighborhood speed watch program can be achieved without a great deal of effort. Examples of Acceptable Traffic Calming Measures (see attached glossary for definitions of these measures) • Traffic and pedestrian signal (must meet state mandated warrants) • Neighborhood speed watch programs • Traffic signs and control devices (warranted) • Rumble strips (must be balanced with the noise impact to the locality) • Narrower lane striping (including separate bike and parking lanes) • Reduction in street width • Reduction in number of travel lanes 2 • Semi - diverters with minimal landscapings • Median island at entrance to neighborhood • Traffic roundabouts • "Neckdowns ", "bulbs" and other road and sidewalk changes • Semi- diverters with brick landscaping • Traversable barriers with brick landscaping • Enhanced pedestrian facilities • Traffic signage /signals • Raised intersection • Roundabouts with landscape and drainage • Full medians 4. Liability The implementation of traffic calming measures can result in varying degrees of liability exposure to the City. Thus, the Engineering Division must analyze all the impacts of a measure taken to slow traffic. The traffic calming measures must use engineering design features and practices so as not to result in unacceptable liability exposure for the City. As necessary, staff will consult with the City Attorney to determine if the traffic calming measures are acceptable in terms of liability. 5. Procedure: Citizen Initiated Requests to Study Traffic Calming Measures All concerns regarding excessive speeding and/or traffic volumes on residential streets must be submitted to the Director of Public Works /City Engineer in writing. The Director of Public Works /City Engineer shall request that the Police Department begin Directed enforcement as the first step in the process. If Directed enforcement does not resolve the problem, other traffic calming methods can be explored as outlined below. a. The person(s) requesting traffic calming measures will be the responsible party for preparing a petition and collecting the necessary signatures. The petition shall be prepared and signed by three- quarters majority (75 %) of the affected property owners. In general, as a starting point, directly affected property owners are defined as those residents whose properties front onto the street where the traffic calming measure is installed. b. A neighborhood meeting will be held to educate the property owners about possible traffic calming measures and funding options. The person(s) spearheading the request shall set up a meeting with the affected property owners. The City will provide necessary staff to attend the educational meeting. c. After the meeting is held, the person (s) requesting traffic calming measures shall submit to the City a minimum deposit of $500. This money will be placed in a trust deposit account and used to pay for staff time and necessary consulting services if required. This deposit may be waived by the Director of Public Works /City Engineer 3 if the scope of the proposed traffic calming measures is small such as a neighborhood speed watch program. Larger projects such as full street narrowing, neckdowns, traffic circles or other improvements may require a larger deposit as determined by the Director of Public Works /City Engineer. d. A Technical committee will be formed to study possible traffic calming measures in the affected neighborhood. The committee will be made up by the Deputy City Engineer or his/her designee, the Police Captain or his/her designee, a representative from the Orange County Fire Authority, the Associate Planner and other parties as invited by the Technical committee. (e.g., AAA, Caltrans, business owners, bicycle groups). This committee will also discuss the process for approvals from the Coastal Commission for those triggering projects within the Coastal Zone. e. The Technical committee shall make a recommendation to the Director of Public Works /City Engineer on whether or not to implement traffic calming measures. If measures are warranted, the committee shall recommend specific measures for the affected area. f. Another community meeting shall be held to present the Technical committee's findings to the affected citizens. g. After gathering the input from the community meeting and the Technical committee's findings, the Director of Public Works /City Engineer will forward a report to the City Council for consideration of the citizen initiated traffic calming project. 6. Recommendations and Property Owner Approvals for Citizen Initiated Traffic Calming Projects. Upon Council approval of the citizen initiated traffic calming project, all directly affected property owners shall be sent a notice. Each of the directly affected property owners, as determined by the Director of Public Works /City Engineer on a case by case basis, shall sign the petition expressing their interest in funding the proposed measure(s), and submit the petition to the Director of Public Works /City Engineer. In order for the measure(s) to be undertaken, three- quarters of the directly affected property owners must sign the petition in favor of the measure(s) and payment. 7. Cost/Payment Option The cost of Traffic Calming measures can range from as low as $5,000 to over $250,000. The cost of funding traffic calming measures requested by residents throughout the City could cost thousands of dollars each year, which the City cannot afford to pay without negatively impacting other programs. All costs related to the funding, installation, and maintenance of traffic calming measures will be the responsibility of the directly affected property owners. The Director of Public 4 Works /City Engineer shall determine the directly affected property owners on a case by case basis. Directly affected property owners shall be determined based on the special benefit to the property (e.g., safety and impact on property values). At the discretion of the City, one of the following procedures shall be used to pay for installation costs of said traffic calming measures. 1. Full Payment Option After the petition has been submitted to and formally approved by the Director of Public Works /City Engineer, the Director of Public Works /City Engineer shall allocate costs among each of the determined directly affected property owners (as defined above). Each property owner shall present the City with full payment of his/her allocated costs not more than sixty (60) days after receiving notification of costs due to the City. If full payment is not received within sixty days, the measure(s) will not be undertaken. All money shall then be refunded in full to those property owners who have already submitted payment. 2. Assessment Option The assessment option may be used only if the cost of the approved traffic calming measure(s) exceeds $100,000. In compliance with Proposition 218, a notice to form the proposed assessment district and a description of the assessment proceeding shall be sent to the affected property owners (as defined above). This notice shall identify the amount of the assessment and any administrative costs associated with implementation of the traffic calming measures. The affected property owners will be given an opportunity to vote on the assessments. The votes shall be weighted based on a one dollar, one vote apportionment. A simple majority of the votes cast must be in favor of the assessment in order for the assessment to be levied and installation to occur. A public hearing shall be held no less than 45 days after the notice of proposed assessment has been mailed to property owners. This hearing shall provide an opportunity for property owners to express public views regarding the proposed assessment. 8. City Council All funding mechanisms used for installation of traffic calming measures are subject to City Council approval and/or revision. The City Council is also responsible for initiating assessment elections and holding the necessary public hearings. 5 9. Implementation No traffic calming measures will be implemented under this program unless the City has first received all the necessary funding to implement. Larger type capital projects will be progranuned into the following year's Council approved Capital Improvement Program. 10. Issuance Approved by City Council Attachment 1: Glossary of Terms 6 ATTACHMENT 1 Glossary of Terms The following definitions are provided to further clarify the terms used in the City's traffic calming policy statement. This glossary is outlined in the Public Technology Institute's publication entitled, Slow Down, You're Going Too Fast: The Community's Guide to Traffic Calming. Arterials Roadways that conduct vehicular traffic between collector streets and highways. Traffic is supposed to move on a sequence through the "hierarchy" of streets: residential to collector to arterial to highway, and then back down the hierarchy. Arterials in Seal Beach are those streets designated as such in the City's Circulation Element of the General Plan. Bulbout A bulbous extension of the curb, usually at an intersection, that narrows the vehicular pathway and inhibits fast auto turns. Chokers A narrowing of the street, often in mid - block, sometimes at an intersection. May be done with curb extensions, landscaping, or islands set in the street. Collector The intermediary streets that funnel vehicular traffic from residential Streets streets to arterials and back. They are typically 40 feet wide. Collectors in Seal Beach are those streets designated as such in the City's Circulation Element of the General Plan. Curb Curbs that stick out into the roadway, narrowing the path for Extensions vehicles. They reduce pedestrian crossing distances, prevent passing of turning vehicles, and require no deviation from a straight line. Diagonal A partition that connects two diagonally opposite curbs, bisecting Diverter the intersection, to force motor vehicles to slow down and turn. A traversable barrier allows emergency vehicles, as well as bicyclists and pedestrians, to cross over. Diverters Road barriers that force traffic to turn. Semi - diverters, one -way chokers, or half - closures are all used to prevent entrance into an otherwise two -way street. Entry Mostly alterations in the pavement surface such as brick, Treatment/ stamped concrete or different colors, signaling to the driver 7 Gateways that he or she is entering a neighborhood or community that may have slower speeds. Pillars and archways are also used. Median An island in the center of the street or intersection to protect pedestrians and provide landscaping. Medians prevent passing and left turns, separate opposing travel lanes and provide visual enhancement. Median Slow Center - located barriers dividing opposing roadway travel Points lanes at either intersections or midblock. Neckdown Curb extensions at the corner of intersections to slow motor vehicles and give pedestrians a shorter distance to cross. Sometimes called "bulbouts" or "knockdowns ". Neighborhood Comprehensive guidelines for dealing with traffic problems Traffic in an area -wide fashion. To avoid emotional appeal, they Management usually set forth clear criteria and step -by -step approval Plan process for adopting a traffic - calming solution, typically including traffic studies, petitions, area -wide ballot, and municipal approval. Photo radar, Unmanned units that automatically measure speed of Speed board, approaching vehicles. Speed wagon Raised crosswalk A traditional pedestrian crossing area purposely raised — like a long flat- topped speed hump — to give better vision of the crossing area. It interrupts a driver's momentum and signals a yielding to pedestrians. Also see "speed bumps." Roundabout A small island in mid - intersection, as small as 16 to 25 feet in diameter, that forces traffic to slow and negotiate the curve. Mostly used in residential areas, they can be landscaped for aesthetic or barrier purposes, and may have mountable curbs to facilitate emergency vehicles. A "rotary" — the larger, wider circle that often merges motor vehicle traffic on arterial roads or highways. Rumble Strips Paving that creates a change of texture in the road surface, signaling the driver to slow down. Signage Traffic and roadway signs. Speed bumps, Raised pavement designed to slow traffic speeds. These Speed humps, terms are used interchangeably by the public. A speed Tables "bump" is a narrow, abrupt strip found mostly in parking Tots, 8 speed "humps" are gently rounded and 14- or 22 -feet from start to finish, and speed "tables" have a 10 -foot flat- topped section. All are about 3 inches high. A 14 -foot hump is jolting at speeds above 25 mph; a 22 -foot hump requires speeds lower than 45 mph. A table with 6 -foot ramps on each side of the bump allows speeds between 25 and 35 mph. Speed watch Neighborhood program in which volunteers are outfitted with radar guns and record the license tags of cars that speed through their community. Speeders are typically sent a "reminder" letter from the municipality to slow down. Traffic Calming Methods used to reduce vehicular speed and volume, and increase the sharing of streets by pedestrians and other users. Generally refers to physical measures and roadway design changes, but enforcement and education can be components. Traffic mitigation Used interchangeably with "traffic calming." Warrants The minimum criteria necessary to "warrant" a roadway solution, such as installation of a stop sign or traffic calming device. Typically required are objective measures such as speed surveys, traffic volume studies, and accident experience. 9