AGENDA #9
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to: |
Roger L. Stancil, Town Manager |
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from: |
J.B. Culpepper, Planning Director David Bonk, Long Range Planning and Transportation Coordinator Kumar Neppalli, Engineer Services Manager |
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subject: |
Response to Public Forum Comments: NC 86/Martin Luther King Jr. Boulevard Corridor and Town Wide Pedestrian Safety Evaluation Draft Study |
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date: |
May 7, 2007 |
This memorandum responds to comments and questions received at the April 11, 2007, Public Forum on the NC 86/Martin Luther King Jr. Boulevard Corridor/Town Wide Pedestrian Safety Evaluation Study (previously distributed). It also responds to questions and comments provided by Town advisory boards and commissions. The attached resolution would approve the recommendations of the NC 86/Martin Luther King Jr. Boulevard Corridor/Town Wide Pedestrian Safety Evaluation Study and direct staff to begin implementation and provide recommendations for future projects as funds become available. In order to implement any of these measures, staff will begin discussions with the North Carolina Department of Transportation. Because all of the roadways considered in this study are maintained by the State, any action resulting from this project will require State approval.
In 2003, the Town received a $200,000, five-year grant from the Robert Wood Johnson Foundation to establish the Chapel Hill Active Living by Design program. The goal of the Active Living by Design program is to promote physical activity through programming and improved community design. Part of the grant proposal included a study of pedestrian safety issues along the NC 86/Martin Luther King Jr. Boulevard Corridor.
In August 2004, the Highway Safety Research Center prepared a study of the NC 86/Martin Luther King Jr. Blvd Corridor from I-40 to the intersection of North Street. The Study assessed pedestrian barriers and other factors that may limit walking and bicycling along NC 86/Martin Luther King Jr. Blvd Corridor and suggested possible solutions. The Study included “existing pedestrian, bicycle, and transit patterns, identification of critical safety and access problems, and the development of potential countermeasures (treatments) for improving pedestrian and bicycle safety and access and encouraging more walking and bicycling along the corridor.”
On November 22, 2004, after reviewing the NC 86/Airport Road Pedestrian and Bicycle Safety and Mobility Study, the Town Council directed the Town Manager to begin an implementation study along the NC 86/Martin Luther King Jr. Boulevard Corridor based on the recommendations of the Pedestrian and Bicycle Safety Study.
In May 2006, the Town contracted with Lappas and Havener, PA, Landscape Architects to prepare an implementation plan for the NC 86/Martin Luther King Jr. Blvd corridor. In response to concerns about pedestrian safety, as a result of several fatal accidents in the community, the scope of the study was expanded to include 15 additional sites around Chapel Hill identified as having pedestrian safety issues.
These 15 locations are:
On February 26, 2007, the Council referred the Study to the staff and Town advisory boards and commissions for comment and recommendations. The Council held a Public Forum on April 11, 2007.
The following comments were provided at the April 11, 2007 public forum.
1. Two citizens expressed concern about the provision of bicycle lanes on steep descents, as cyclists may be traveling at high speeds and it is difficult for drivers to accurately assess their speed. They suggested that it would be safer to narrow the lanes on the descent and encourage cyclists to use the full lane. Another citizen provided an email comment supporting the implementation of bicycle lanes along Martin Luther King Jr. Blvd.
Comment: The North Carolina Department of Transportation North Carolina Bicycle Facilities Planning and Design Guidelines recommend that “bicycle lanes are not advisable on long, downgrades of four percent or more, where bicycle speeds greater than 48 km/h (30 mph) are expected. As grades increase, downhill bicycle speeds will increase, which increases the problem of riding near the edge of the roadway. In such situations, bicycle speeds can approach those of motor vehicles, and experienced bicyclists will generally move into the traffic lanes to increase sight distance and maneuverability. If bicycle lanes are to be striped, additional width should be provided to accommodate higher bicycle speeds.” We agree that given the steep grade on Martin Luther King Jr. Blvd., a bicycle lane may not provide sufficient width for cyclists traveling downhill at high speeds. For this situation we recommend either no change in roadway striping, or implementation of the shared lane arrow marking on the steep downhill segments of Martin Luther King Jr. Blvd. A striped bike lane for the ascent may also be appropriate. We further recommend that any measures in the area of the intersection with Umstead Dr. be coordinated with the Greenways Master Plan and address the bicycle access connection to the Bolin Creek Greenway from Martin Luther King Jr. Blvd.
2. Two citizens disapproved of the provision of a continuous median along Martin Luther King Jr. Blvd., citing among the concerns that it might encourage higher driving speeds and make conditions more difficult for bicyclists.
Comment: We agree that there are multiple disadvantages of a continuous median along Martin Luther King Jr. Blvd. In addition we anticipate that the Chapel Hill Long Range Transit Plan will recommend that portions of the center turn lane be utilized for transit service. We do not recommend a continuous median at this point.
3. One citizen recommended that the first priority should be to complete the sidewalk on the east side of Martin Luther King Jr. Blvd., between Estes Drive and Homestead Road.
Comment: We agree that the creation of a complete, continuous sidewalk along the east side of the corridor is a high priority. There is some uncertainty over right-of-way availability and site conditions that could make it difficult to build a sidewalk along some portions of the missing locations. We will continue to evaluate the feasibility of completing the sidewalk along the eastern side of the corridor in conjunction with other pedestrian improvements.
1. The Commission recommended that implementation of the plan be prioritized such that the following intersections be given priority as a group. These were selected because they would provide access from the east side of Martin Luther King Jr. Blvd. to Homestead Park and the future Aquatics Center. The intersections are also prioritized in order of preference in the event that funds are insufficient to construct all three improvements:
a. Homestead Road
b. Stateside Drive
c. Dixie Lane (with the addition of warning lights and a crosswalk)
Comment: We agree that these improvements will support pedestrian access to Town-owned recreational facilities.
1. Priority should be given to completing the sidewalk along the east side of Martin Luther King Jr. Blvd., between Homestead Road and Estes Drive.
Comment: We support the continuation of the sidewalk along the east side of the corridor.
2. Pedestrian crossings at bus stops should be designed to include high visibility elements such as bold striping and lighting.
Comment: We agree that crossings at bus stops are a high priority, and should include high visibility elements.
1. All crosswalks on streets with four or more lanes should include a pedestrian refuge island midway in the crosswalk, likely coinciding with any median.
Comment: We agree that a pedestrian refuge should be provided in the crosswalks on wide, high speed roads, such as along Martin Luther King Jr. Blvd., NC 54, and US 15/501. We have also identified other locations along East Franklin Street where a pedestrian refuge is necessary.
2. Consider providing advanced pedestrian warning signs with warning flasher for all crosswalks on NC 54 and US 15/501.
Comment: We agree that pedestrian warning signs and flashers should be provided in these locations.
3. Provide a countdown for the crosswalk at the NC 54 and Finley Golf Course Road/Burning Tree Drive.
Comment: As part of the approval of the East 54 project, the developer will upgrade the existing traffic signal with pedestrian amenities on all approaches of the intersection, bicycle-activated loops on side streets, stamped crosswalks, left-turn lanes on NC 54, and signal phasing changes as required by the Town Manager and N.C. Department of Transportation.
4. Provide an advanced pedestrian warning sign with warning flasher on the Manning Drive leg of the Fordham Blvd/Manning Drive intersection.
Comment: We will incorporate this measure into the Study recommendations.
5. Reduce the turning radius on the southbound lane of Weaver Dairy Road, at the Weaver Dairy Road/Erwin Road intersection. Also provide an advanced pedestrian warning sign with warning flasher on the northbound side of the intersection.
Comment: We will incorporate this measure into the Study recommendations.
6. The Board does not believe that a fence will work to direct pedestrians to safe crossing points at the Fordham Blvd/Erwin Road (“Superstreet”) intersection.
Comment: We agree that fencing is not the appropriate treatment to address pedestrian needs at this intersection. This location will require further consideration.
1. The highest priority for implementation of the plan should be improvements to the intersection of Martin Luther King Jr. Blvd. and Umstead Drive.
Comment: This location is of particular importance because of its connection to the Bolin Creek Greenway. While it is located outside of the area for which the currently available funds are allocated, we will consider this area for future funding requests.
1. The Town should provide additional signage and enforcement of speed limits in conjunction with the proposed improvements.
Comment: We agree that these are important provisions, and we continue to encourage additional signage and enforcement of speed limits. In addition, several of the measures recommended in this study, such as landscaping, striping, and signage, are intended to serve to narrow the field of vision for drivers, which should result in a reduction of vehicle speed.
2. Left turns from northbound Martin Luther King Jr. Blvd. to North Columbia Street should be prohibited.
Comment: We believe that the proposed design at this intersection will adequately address traffic and speeding concerns. The proposed design will extend the sidewalk on North Columbia Street into the intersection, thereby greatly reducing the width of the intersection and requiring the driver turning left to turn more sharply. We believe this will slow down the traffic. We will continue to monitor this location to determine if additional improvements are warranted.
3. The proposed inclusion of street trees to buffer pedestrians from adjacent automobile traffic and provide shade should be designed so that they do not interfere with street lighting.
Comment: We agree and will address this concern when creating final landscaping and streetscape plans.
4. The proposed pedestrian improvements should be coordinated with development proposals to ensure completion of the proposed pedestrian facilities.
Comment: We agree that it is essential to coordinate these improvements with development activities. Such coordination will ensure that new facilities are built according to the Town’s goals, and will also more efficiently use limited Town resources, as it will prevent the Town from building facilities that are subsequently removed. Adoption of the Study will allow the staff to incorporate improvements in development and redevelopment projects.
5. The Town should consider the potential impact of existing truck traffic at locations proposed for intersection radius reductions.
Comment: We will coordinate with NCDOT regarding intersection radius reductions and provisions to accommodate truck traffic. All locations where this measure is recommended have multiple travel lanes, which may allow for additional necessary roadway space for turning trucks.
6. The Town should also improve pedestrian access to the NC 86/Martin Luther King Jr. Blvd. corridor from adjacent neighborhoods.
Comment: We will identify opportunities to improve access to the NC 86/Martin Luther King Jr. Blvd. corridor. The Northern Area Task Force has been asked to provide recommendations on bicycle and pedestrian improvements along NC 86/Martin Luther King Jr. Blvd. from Homestead Rd. to Interstate 40.
7. Provision of bus pull-offs should be a lower priority than pedestrian improvements.
Comment: We agree that provision of bus pull-offs should be of relatively low priority. However, if there are locations where sidewalks will be constructed and that would benefit from a bus pull-off, their construction should be coordinated so that the sidewalk will not need to be rebuilt to accommodate the pull-off.
8. Pedestrian refuge islands should be provided as part of the proposed improvements along NC 54.
Comment: We agree that a pedestrian refuge should be provided in the crosswalks on wide, high speed roads, such as along Martin Luther King Jr. Blvd., NC 54, and US 15/501.
1. Signals and crossings should be constructed at the bus stop between Estes Drive and Piney Mountain Road
Comment: We agree that mid-block crossings are a high priority, and this location is of particular importance, given the proximity to an apartment complex with high numbers of transit users.
2. Sidewalk segments should be completed between Estes Drive and Homestead Road.
Comment: We support the continuation of the sidewalk along the east side of the corridor.
3. A pedestrian crossing and signal should be added at Dixie Road.
Comment: We agree that improvements in this location will support pedestrian access to Town-owned recreational facilities.
4. Trees should be added along NC 86 as shown in Figure B on page 27.
Comment: We believe that this landscaping design option, which features a narrow planting strip between the sidewalk and roadway and planting of larger trees behind the sidewalk, is probably the most realistic in many locations along the corridor. We believe that the protection provided by the other alternative, which features smaller trees planted between sidewalk and travel lanes is preferable in some ways, but site characteristics in many locations may not permit this configuration.
After adoption of the Study, we will begin to implement the recommendations outlined in the Study. The Town has secured $200,000 from the Durham-Chapel Hill-Carrboro Metropolitan Planning Organization for improvements to NC 86/Martin Luther King Jr. Boulevard, in the section between Estes Drive and Homestead Road. The Town must also contribute $50,000 to match the allocated funding. This local match has already been allocated from bond funds. This initial funding will allow us to begin implementation of a limited selection of the improvements.
Pending Council approval of implementation priorities, we will pursue additional funding opportunities for future projects. This would include requesting funds from the Durham-Chapel Hill-Carrboro Metropolitan Planning Organization and inclusion of projects in the Town Transportation Improvement Program Priority List. Upon approval and adoption of the Study, staff will also identify opportunities to include elements from the Study in the construction of new development and redevelopment projects within the corridor or other 15 locations.
After adoption of the Study by the Town Council, we will also begin discussions with the North Carolina Department of Transportation to begin implementation of the recommended pedestrian and bicycle safety improvements.
Parks and Recreation Commission: On March 21, 2007, the Parks and Recreation Commission voted 9-0 to recommend that the Council approve the NC 86/Martin Luther King Jr. Boulevard and Town Wide Pedestrian Safety Evaluation Study, with the provisions discussed above (Attachment 2).
Transportation Board: On March 22, 2007, the Transportation Board voted 6-0 to recommend that the Council approve the NC 86/Martin Luther King Jr. Boulevard and Town Wide Pedestrian Safety Evaluation Study, with the provisions discussed above (Attachment 3).
Bicycle and Pedestrian Advisory Board: On March 27, 2007, the Bicycle and Pedestrian Advisory Board voted 8-0 to recommend that the Council approve the NC 86/Martin Luther King Jr. Boulevard and Town Wide Pedestrian Safety Evaluation Study, with the provisions discussed above (Attachment 4).
Greenways Commission: On March 28, 2007, the Greenways Commission voted 7-0 to recommend that the Council approve the NC 86/Martin Luther King Jr. Boulevard and Town Wide Pedestrian Safety Evaluation Study, with the provisions discussed above (Attachment 5).
Planning Board: On April 3, 2007, the Planning Board voted 9-0 to recommend that the Council approve the NC 86/Martin Luther King Jr. Boulevard and Town Wide Pedestrian Safety Evaluation Study, with the provisions discussed above (Attachment 6).
Active Living by Design Advisory Committee: On April 12, 2007, the Active Living by Design Advisory Committee voted 5-0 to recommend that the Council approve the NC 86/Martin Luther King Jr. Boulevard and Town Wide Pedestrian Safety Evaluation Study, with the provisions discussed above (Attachment 7).
Staff Recommendation: We recommend that that Council adopt the NC 86/Martin Luther King Jr. Boulevard and Town Wide Pedestrian Safety Evaluation Study with the following changes:
Given the limited funding available at this time, it will likely be feasible to construct only one or two of the improvements recommended in the study. Cost estimates for the entire Martin Luther King Jr. Blvd. corridor, smaller intermediate projects on the corridor, and the 15 locations are provided in Attachment 2. We propose the following for immediate implementation using the available funds:
Mid-block crossing plus sidewalk construction on Martin Luther King Jr. Blvd., between Estes Dr. and Homestead Rd. Estimated cost: $120,000 for mid-block crossing; $250,000 for full sidewalk construction (the amount that could be built with the remaining funds would depend on site conditions and available right of way).
This option would require a request to the Durham-Chapel Hill-Carrboro Metropolitan Planning Organization to shift some of the allocated funds. The crossing would include a striped crosswalk, median refuge, in-ground warning lighting, and overhead lighting. We recommend construction of the crossing near Piney Mountain Rd, to provide access to the bus stop on the west side of the road, from residential areas east of the road. We could build some portion of sidewalk with the remaining funds. In the event that NCDOT will not approve the mid-block crossing on Martin Luther King Jr. Blvd, then we would use all of the money for sidewalk construction.