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CC - (1) Authorization to (A) Remove the East Marked Crosswalks Across Jefferson Boulevard at Duquesne Avenue and Jordan Way-Summertime Lane; and (B) Remove Parking on the Duquesne Avenue Bridge; (2) Approval of Plans and Specifications for Construction of Left-Turn Traffic Signal Improvements at Seven Intersections, PS-003, HSIPL 5240(032); and (3) Authorization to Publish a Related Notice Inviting Bids.
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Contact Person/Dept: Gabe Garcia/Public Works
Phone Number: (310) 253-5633
Fiscal Impact: Yes [X] No [] General Fund: Yes [] No [X]
Public Hearing: [] Action Item: [X] Attachments: Yes [X] No []
Commission Action Required: Yes [] No [X] Date:
Commission Name:
Public Notification: (E-Mail) Meetings and Agendas - City Council (01/21/16)
Department Approval: Charles D. Herbertson, Public Works Director/City
Engineer (01/19/16)
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RECOMMENDATION
Staff recommends the City Council:
1. Authorize the removal of the east marked crosswalk across Jefferson Boulevard, at the following two intersections:
A. Jefferson Boulevard/Duquesne Avenue; and
B. Jefferson Boulevard/Jordan Way-Summertime Lane.
2. Authorize the removal of parking on the Duquesne Avenue bridge; and
3. Approve the plans and specifications for the Construction of Left-Turn Traffic Signal Improvements at seven intersections, PS-003, HSIPL 5240(032); and
4. Authorize staff to publish a related Notice Inviting Bids.
BACKGROUND
In July 2013, the Public Works Department/Engineering Division submitted a competitive grant application for the Highway Safety Improvement Program (HSIP) for Cycle 6. The purpose of the HSIP grant is to improve the safety of pedestrians and all roadway users.
The City was awarded a grant in the amount of $944,900, and Caltrans will contribute local funds in the amount of $105,100 towards a total project cost of $1,050,000 to improve safety at seven intersections by installing left-turn arrows (or split phasing, depending on geometrics, lanes available, etc.). The seven intersections are:
1. Centinela Avenue/Washington Boulevard
2. Centinela Avenue/Washington Place
3. Duquesne Avenue/Jefferson Boulevard
4. Jefferson Boulevard/Jordan Way-Summertime Lane
5. Jefferson Boulevard/Machado Road
6. Sepulveda Boulevard/Washington Boulevard
7. Sepulveda Boulevard/Washington Place
DISCUSSION
A Request for Proposals (RFP) was released for the design of this project to the firms on the City Council approved on-call traffic engineering consultant list. Staff administratively selected KOA Corporation to design the improvements to the aforementioned intersections.
The analysis performed by KOA Corporation indicates that the improvements may be constructed at five of the seven intersections. However, the analysis indicates that two of the seven intersections require the removal of one marked crosswalk (out of two), on the east leg of the intersection, at the following two locations:
1. Duquesne Avenue/Jefferson Boulevard;
2. Jefferson Boulevard/Jordan Way-Summertime Lane;
For the City’s consideration, the analysis identified four options for Duquesne Avenue/Jefferson Boulevard and three options for Jefferson Boulevard/Jordan Way-Summertime Lane. Not all options are equal. Following is a detailed description of the analysis for each of the two intersections:
1. Duquesne Avenue/Jefferson Boulevard
Existing Conditions
The volume of left turns from southbound Duquesne Avenue to eastbound Jefferson Boulevard is high throughout the day, particularly during evening rush hours. As a result, there is substantial conflict with northbound motorists coming down from Culver City Park as well as with pedestrians in the east crosswalk of the intersection. During the Morning Peak Hour, the left-turn volume is 239 vehicles and during the Afternoon Peak Hour, the volume is 371 vehicles.
As an interim measure, staff has adjusted the signal timing so that pedestrians in the east and west crosswalks receive an advance “Walk” before motorists can start on the circular green signal indicator. This advance “Walk” (or delayed green) enables pedestrians to be more readily seen and advance well into the crosswalk before motorists begin their movements. However, given the substantial volume of turning traffic, this interim measure is not a long-term solution.
Alternatives
1. Staff directed the City’s traffic engineering consulting firm to examine the feasibility of providing a southbound left-turn arrow while retaining both crosswalks on Jefferson Boulevard. Their analysis showed that the addition of a green left-turn arrow in combination with the retention of both crosswalks across Jefferson Boulevard would result in a substantial increase in delay for all traffic movements at the intersection, including those on Jefferson Boulevard. This result is due to the available timing at the intersection having to be divided into more phases than exist today, since the pedestrian crossing movement on the east leg would have to be exclusive and separate from the proposed southbound left-turn movement. Due to the new phase, other phases would receive less green time.
Any significant additional delay to Jefferson Boulevard, where critical speeds are in the 43-45 mph range, could compromise traffic safety (a result which is counter-productive to the goals of improving traffic safety at this location). Also, any significant additional delay to Duquesne Avenue could encourage motorists to take a bypass route via the residential streets of Lucerne Avenue and Higuera Street (counter-productive to the goals of improving residential livability by minimizing commuter traffic along these neighborhood streets).
2. As a result, staff then directed the City’s consultant to examine options that would avoid significant increases in delay to traffic at the intersection. After considerable review of striping and signal phasing alternatives, an option was developed that would add an additional southbound left-turn lane and that would remove the crossing conflict in the east leg. Under this scenario, pedestrians would cross Jefferson Boulevard in the west crosswalk only. They would start their crossing when southbound Duquesne Avenue receives a green arrow, and would complete their crossing when northbound Duquesne Avenue receives a green signal. By sharing the pedestrian crossing time among the opposing movements on Duquesne Avenue, there would be no increase in delay at the intersection, and the length of the southbound queue (stopped vehicles on approach to the intersection) would be substantially reduced. Additionally, it would prevent driver frustration from extended queues and delays once they arrive at the intersection, where otherwise, drivers may make decisions that may compromise safety, such as continuing to cross once the movement receives a red indication, and not yielding to pedestrians. This intersection does have red-light enforcement cameras only for Jefferson Boulevard.
Staff recognizes that there would be some inconvenience to pedestrians who wish to access the nearby eastbound bus stop on the south side. In this regard, we note the following:
• The crosswalk on the east leg accommodates only 19 persons per hour, according to data collected for the analysis.
• The crosswalk on the west leg, which would be retained, is more utilized than the one on the east leg.
• There is no benefit in using the crosswalk on the east leg to access the park along Duquesne Avenue since the sidewalk does not continue into the park -- there is only a sidewalk on the west side.
• There is no need to use the crosswalk on the east leg to access the park at Hetzler Road since pedestrians can walk along the north side of Jefferson Boulevard and then cross at Hetzler Road, where traffic signal control and a high-visibility marked crosswalk has been provided to accommodate pedestrian crossings.
Conclusion and Recommendation Regarding Duquesne Avenue/Jefferson Boulevard
In consideration of all the factors, in the professional engineering judgment of staff, we believe that the proposal of Split Phase, Remove East Crosswalk, which has been developed over many months of evaluating various options, is a good solution overall, which accomplishes the goals of the safety grant and improves the experience of all users of the intersection. We believe that the proposal to provide a southbound left-turn arrow with a new second southbound left-turn lane, in combination with the removal of the pedestrian conflict on the east leg, is the best option to improve pedestrian safety and improve traffic circulation at this intersection, while minimizing pedestrian inconvenience, avoiding new conflicts, and reducing neighborhood impacts.
Other options will negatively increase vehicle delays up to 40.5 seconds (on the average - some would be less and others would be more) or lengthen the vehicle queues up to 271 feet back from Jefferson Boulevard. Although all options will decrease the average queue on Duquesne Avenue from 408 feet, the recommended option of Split Phase, Remove East Crosswalk, will reduce the queue to nearly one half (to 210 feet), and is the only one that will provide a southbound right-turn lane with a protected overlap green arrow. Additionally, other options not recommended could compromise the intersection safety and operations as discussed above.
Removal of Parking on the Duquesne Avenue Bridge
In order to reduce congestion on Duquesne Avenue and to take advantage of the proposed new, second southbound left-turn lane, staff recommends that parking be removed from the southbound direction on the Duquesne Avenue Bridge. Currently, the southbound-to-eastbound left-turning traffic backs-up and impedes traffic destined to turn right at Jefferson Boulevard from continuing to the intersection. The removal of parking on the southbound side of the bridge will contribute to the reduction of the queue on Duquesne Avenue.
Similarly, staff recommends that parking on the northbound side of the bridge be removed. Currently, the eastbound to northbound left-turn lane from Jefferson Boulevard onto Duquesne Avenue frequently extends beyond the capacity of the left-turn lane and impedes the eastbound through movement in the number one lane on Jefferson Boulevard. By removing parking on the bridge, those destined to turn right onto eastbound Lucerne Avenue will not be delayed by the through traffic queue on Duquesne Avenue. Additionally, the northbound queue capacity on Duquesne Avenue will be increased, and may decrease the frequency and length of the queue on the Jefferson Boulevard left-turn lane from overflowing onto the number one lane.
Currently, the parking spaces are primarily used by City employees who do not have an assigned parking space in any City parking facility. In September, staff implemented the use of parking meter Smart Cards for such employees, as approved by the City Council. These employees may now park on Jefferson Boulevard, at no cost, instead of on the bridge. Although the majority of those who park on the bridge, based on staff’s observations, are City employees, there are other employees of the nearby businesses who park on the bridge as well, but they also can park on Jefferson Boulevard. Jefferson Boulevard has metered parking at the rate of $0.25 per hour.
An added benefit to the removal of parking on the bridge is the availability of adding a new northbound bicycle left-turn lane onto the La Ballona Creek Bike Path. Based on staff’s initial field investigation, there appears to be adequate width to stripe such a lane. However, the removal of parking on the bridge will contribute to having a greater buffer distance between bicyclists in the future bicycle left-turn lane and through traffic. The striping of the bicycle left-turn lane was proposed in a recent grant application to the Baldwin Hills Conservancy as part of the Parks to Playa project. The City was awarded the grant.
2. Jefferson Boulevard/Jordan Way-Summertime Lane
Existing Conditions
Due to the high number of left turns from southbound Jordan Way to eastbound Jefferson Boulevard, there are two traffic safety issues that have arisen over the years which are proposed to be addressed as part of the subject safety grant-funded signal improvements:
1. There is conflict between left-turning motorists southbound on Jordan Way and through motorists northbound on Summertime Lane. The conflict is a result of the substantial volume of left turns (the current analysis counted 211 during the evening peak hour) The proposed signal improvement addresses this safety issue by separating the movements and allowing Jordan Way traffic to turn with a green left-turn arrow before Summertime Lane receives a green signal indication.
2. There is also a conflict between pedestrians who use the crosswalk on the east leg of the intersection and left turning motorists, given the left-turn volume experienced at this intersection. The conflict at this intersection needs to be addressed.
Alternatives
1. Staff directed KOA Corporation to consider the left-turn arrow for Jordan Way, while retaining both crosswalks. Their analysis showed that the addition of the green left-turn arrow in combination with retention of both crosswalks across Jefferson Boulevard would result in substantial delay for all movements at the intersection, including those on Jefferson Boulevard. This result is because the timing at the intersection would have to be divided in three distinct pedestrian phases versus the existing two-way operations today. The average delay for all vehicles at the intersection would increase from the present 19 to 79 seconds.
Currently, the two pedestrian phases are: first, the north and south crosswalks (Jefferson Boulevard) and then the east and west crosswalks (Jordan Way/Summertime Lane). However, with the addition of the left-turn arrow, there would be three distinct pedestrian phases: first, the north and south crosswalks (Jefferson Boulevard), then the west crosswalk (when Jordan Way has a left green arrow), followed by the east crosswalk (when Summertime Lane has a green signal). The additional delay from the existing average of 19 seconds to 79 seconds would significantly impact traffic on Jefferson Boulevard between Overland Avenue and Jordan Way-Summertime Lane. This, in turn, would encourage even more traffic to try to bypass the intersection of Overland Avenue/Jefferson Boulevard and use Virginia Avenue and Jordan Way as a cut-through route. This would be counter-productive to the goals of improving safety for pedestrians and other users of the intersection, by increasing the potential for additional left-turning volume, rear-end collisions, and delays, and therefore is not a viable option.
2. As a result of this analysis staff directed KOA Corporation to consider how best to keep the signal effectively two-phase. They found that this could be accomplished by having one crosswalk for crossing Jefferson across the west leg only. Under this scenario, there would be only two pedestrian phases: north-south crosswalks (Jefferson Boulevard) followed by the west crosswalk (Jordan Way green arrow) followed by Summertime Lane. Pedestrians crossing Jefferson Boulevard across the west leg would begin crossing when Jordan Way receives a green left-turn arrow and would not be in conflict with that movement. Pedestrians would complete their crossing when Summertime Lane receives a green signal. Under this scenario, according to the analysis, the average delay for all vehicles at the intersection would increase slightly from 19 seconds to 23 seconds, but would still be relatively low and manageable.
The proposed removal of the east leg crosswalk versus the west leg crosswalk would minimize inconvenience to pedestrians and transit users as the retention of the crosswalk on the west leg would better serve persons destined to the bus stop on Jefferson Boulevard at Overland Avenue.
Possible southbound Overland Avenue left-turn improvement
Finally, in the long term, staff proposes the improvement of the left-turn capacity for southbound Overland Avenue at Jefferson Boulevard. This could be accomplished by removal of the raised median on the north leg of the intersection, along with striping and signal modifications. Increasing the left-turn capacity at this intersection would reduce the volume of traffic which sometimes access Virginia Avenue and Jordan Way as a cut-through route. Staff has identified this modification as a possible mitigation measure for a development project outside of Culver City. However, the opportunity to actively pursue this proposal with outside funding is several years in the future.
Conclusion and Recommendation Regarding
Jefferson Boulevard/Jordan Way-Summertime Lane
In consideration of all the factors, in the professional engineering judgment of staff, we believe that the proposal of Split Phase, Remove East, which has been developed over many months of evaluating various options is a good solution overall, which accomplishes the goals of the safety grant and improves the experience of all users of the intersection. The proposal to provide a left-turn arrow for traffic on Jordan Way with the removal of pedestrian conflict on the east leg is the best option to improve pedestrian safety and improve traffic at this intersection, while minimizing pedestrian inconvenience, avoiding new conflicts, and avoiding gridlock on Jefferson Boulevard.
Other options will negatively increase vehicle delays up to 78.7 seconds (on the average - some would be less and others would be more) or lengthen the vehicle queues up to 404 feet back from the intersection. Although all options will decrease the average existing queue of 411 feet, the recommended option will reduce the queue to 348 feet, on the average. Other options will either increase intersection delay or queuing. However the recommended option of Split Phase, Remove East Crosswalk, is the only one that will significantly reduce left-turn and pedestrian conflicts, while keeping delay and queuing at reduced or manageable levels.
Public Input
The California Manual on Traffic Control Devices (CA MUTCD), directs the method and content of notification to the public for consideration of the removal of crosswalks. The CA MUTCD is adopted by the State’s legislature and is applicable statewide. It contains standards and guidelines for traffic control devices.
In compliance with the requirement of the CA MUTCD, a 2-foot x 3-foot notice was placed at each end of the crosswalks that one of the options in analysis showed required removal. The notice provided information about the consideration, invited input, and provided a phone number and an email address. Above and beyond the requirements of the CA MUTCD, a public meeting was scheduled and the notice invited input at a public meeting of the Traffic Committee scheduled for Wednesday, September 30, 2015, in the Council Chambers, at 7 pm.
Traffic Committee
The Traffic Committee is established by Culver City Municipal Code Section 7.01.135(A) as an advisory body composed of the Chief of Police, City Engineer, City Planner, Fire Chief and the Public Works Director or each of their designees. Among the Traffic Committee’s duties, Section 7.01.135(B), includes “to recommend to the City Council, to the Chief of Police, to the City Engineer, and to other City officials ways and means for improving traffic conditions and the administration and enforcement of traffic regulations.”
Staff presented the consultant’s analysis and recommendations, contained in the attached Technical Memorandum, to twelve members of the community in attendance at the meeting of the Traffic Committee.
The members of the Traffic Committee reviewed the various options, and after receiving public comments, and careful consideration and evaluation, and questions of staff, unanimously voted to recommend to the City Engineer and to the City Council the option that best safeguards the public’s safety, health and welfare, while concurrently maintaining a balance with the need for the safe and efficient traffic operations of the two signalized intersections:
The Traffic Committee stressed the need to reduce the recurrent delay that occurs during several hours of the day along southbound Duquesne Avenue so as to improve emergency response times by Police and Fire Department personnel to the southern part of the City. The Traffic Committee unanimously voted to recommend staff’s selected options indicated previously in this report. Additionally, the analysis was also discussed with the City Council’s Ad Hoc Traffic and Parking Subcommittee, and staff’s recommended options were supported by them.
Should the City Council determine to not authorize the removal of the subject crosswalks as part of the recommended safety improvements, then the Plans and Specifications would need to be revised and motions 4 and 5 must be deferred.
Approval of Plans and Specifications
Plans and specifications for the project have been completed, and staff is prepared to publish a Notice Inviting Bids. Prior to advertising the project for bids, staff will secure Caltrans’s federal expenditure approval.
The cost estimate for the construction of this project is $940,000.
The plans and specifications, if the City Council approves the recommendations, will be posted on the City’s website after approval, to prevent publishing otherwise unapproved plans and specifications. At that time, the plans may be reviewed or downloaded from www.culvercity.org <http://www.culvercity.org>. A hardcopy is available for review at the Public Works counter on the second floor of City Hall, 9770 Culver Boulevard.
FISCAL ANALYSIS
Funding is available in the City Council Adopted Budget for Fiscal Year 2015/2016 to fund the estimated project costs. The construction estimate is 100% funded by the Federal Highway Safety Improvement Project (HSIP) Grant and Caltrans funds. Should the City Council authorize staff to publish a notice inviting bids, then the actual costs of project construction would be discussed in more detail in the staff report presented to the City Council recommending construction contract award.
ATTACHMENTS
1. Traffic Committee Staff Report, Wednesday, September 30, 2015
2. KOA Corporation, Technical Memorandum, September 23, 2015
RECOMMENDED MOTION(S)
That the City Council:
1. Authorize the removal of the east marked crosswalk across Jefferson Boulevard at the intersection of Jefferson Boulevard/Duquesne Avenue; and,
2. Authorize the removal of the east marked crosswalk across Jefferson Boulevard at the intersection of Jefferson Boulevard/Jordan Way-Summertime Lane; and,
3. Authorize the removal of parking on the Duquesne Avenue bridge, to relieve congestion and accommodate a northbound bicycle striped left-turn lane on La Ballona Creek Bike Path; and,
4. Approve the plans and specifications for the Construction of Left-Turn Traffic Signal Improvements at seven (7) intersections, PS-003, HSIPL 5240(032); and,
5. Authorize staff to publish a Notice Inviting Bids.