AGENDA #4e
MEMORANDUM
TO: Mayor and Town Council
FROM: W. Calvin Horton, Town Manager
SUBJECT: N.C. 86/Airport Road Pedestrian and Bicycle Safety Study
DATE: June 27, 2005
This memorandum reviews the findings of the NC 86/Aiport Road Pedestrian and Bicycle Safety Study. (Attachment 1) The Study was prepared prior to the designation of Airport Road as Martin Luther King Jr. Blvd. In this memorandum we continue to refer to the Study by its original title. The memorandum also addresses comments received at the November 22, 2004 Public Forum (Attachment 2) and proposes next steps.
The attached resolution would endorse the general recommendations of the Study and direct the staff to prepare an implementation plan for pedestrian and bicycle improvements within the corridor.
BACKGROUND
The University of North Carolina Highway Safety Research Center completed the N.C. 86/Airport Road Pedestrian and Bicycle Safety Study as part of the Chapel Hill Active Living By Design grant. The Active Living By Design program is intended to increase public awareness of the health impacts of active lifestyles, identify barriers to mobility and promote greater physical activity.
The Study was undertaken in response to Council concerns about pedestrian and bicycle safety along this corridor. The Study was intended to review existing conditions, identify safety concerns and barriers to increased mobility and present possible improvements. The key findings of the Study included:
On November 22, 2004, the Council held a public forum to receive public comment on the recommendations of the Study. Since the public forum Town staff has been reviewing the Study recommendations and developing options for implementing the recommended improvements.
KEY ISSUES
The following issues were raised during the public forum.
A citizen supported the recommendations of the Study and requested that they be implemented quickly.
Comment: We agree that pedestrian and bicycle improvements within this corridor should be implemented as quickly as possible. We believe that additional work is necessary to develop an implementation plan for these improvements.
The North Carolina Department of Transportation has begun work to provide a traffic and pedestrian signal at the Northfield Drive intersection. Town staff has identified several pedestrian improvements in the immediate vicinity of Northfield Drive and we propose to construct a sidewalk in this area, using funds from the regional transportation allocation, prior to the completion of the implementation plan.
A citizen submitted a detailed set of criticisms of the Study recommendations.
Comment: We submitted the critique to the University of North Carolina Highway Safety Research Center for review and comment. Their response (Attachment 3) suggests that the criticisms of the Study are not supported by transportation research and lack objectivity. We believe the recommendations of the Study are consistent with Town policy and should be implemented.
One of the specific criticisms had to do with the proposal to provide bicycle lanes along Martin Luther King Blvd/NC 86. The Town Council has adopted a policy to guide the consideration of bicycle facilities along Town streets. (Attachment 4) This policy provides that striped bicycle lanes normally will be provided along arterial streets. The policy also provides that the design of bicycle facilities should be assessed on an individual basis. We believe that the Study completed has provided an adequate assessment of the need for facilities along Martin Luther King Blvd/NC 86.
STUDY RECOMMENDATIONS
The Study also identifies several strategies to improve pedestrian/bicycle mobility and safety within the corridor. These include:
Comment: The proposal to retrofit medians into the existing continuous center turn lane would improve pedestrian safety. We believe that the provision of a continuous median section is not possible in the short term because of cost and traffic operation considerations. We recommend that the Town pursue the provision of median refuge islands at selected locations to improve pedestrian movement and safety. We also recommend that the program for providing medians at selected locations be done in a manner that would allow for eventual phased implementation of a continuous median to replace the existing center turn lane. The Town will need to coordinate the installation of median sections with the North Carolina Department of Transportation. Once the implementation plan is completed, the Council should consider requesting funding through the Metropolitan Transportation Improvement Program to provide landscaped medians in this corridor.
Comment: The completion of the sidewalk network along NC 86/Airport Road and providing adequate connections from adjacent residential and commercial areas is important to promote increased pedestrian and bicycle activity and safety. We recommend focusing immediate improvements in those sections of the corridor that lack a continuous network of sidewalks, particularly the section between Estes Drive and Homestead Road.
The Town has secured approximately $250,000 in Surface Transportation Program Direct Allocation funds for pedestrian improvements in this area of Martin Luther King Blvd/NC 86. We propose to utilize this funding to provide pedestrian and bicycle improvements consistent with the recommendation of the Pedestrian and Bicycle Safety Study and the implementation plan.
We propose using a portion of these funds, estimated at $49,000 to provide pedestrian improvements around the area of the Northfield Drive intersection. The North Carolina Department of Transportation recently agreed to allow the installation of a traffic signal at this location. We believe that by coordinating the implementation of the traffic signal with associated pedestrian improvements and recommendations of the Pedestrian and Bicycle Study the Town can improve pedestrian and bicycle safety in this section of Martin Luther King Blvd/NC 86.
Comment: The NC 86/Airport Road Study identifies the need to improve the pedestrian environment as important as providing pedestrian facilities. The Study suggests that the provision of adequate vegetated buffers between the vehicle travel lanes and pedestrian facilities is important to increase the perception of safety for pedestrians and encourage greater pedestrian activity. We believe the provision of appropriate buffers, including street trees and other vegetation, would enhance pedestrian safety and use.
We recognize that the creation or expansion of buffers between the sidewalk and street would be difficult in sections of the corridor that already have sidewalks. We recommend that planted buffers be provided between the sidewalk and roadway in those areas in which we will be constructing new sidewalks. We anticipate that the implementation plan would provide more detailed information on the appropriate design of these buffers.
Comment: The Study points out that accommodation of bicyclists within the Martin Luther King Blvd/NC 86 corridor varies, including 5’ bikelanes and wide outside lanes. In some portions of the corridor there is no provision for bicyclists. The Study recommends that the Town pursue the development of a continuous system of bicycle lanes throughout the corridor.
The implementation of a comprehensive bicycle network in the Martin Luther King Blvd/NC 86 corridor would require close coordination with other related improvements, such as sidewalk construction and provision of pedestrian refuge median treatments. We believe that the provision of bicycle facilities should also be coordinated with resurfacing and restriping projects. The NC 86/Airport Road Study points out that in certain sections of the corridor a combination of restriping and limited roadway widening could provide enough space for bicycle lanes. We will coordinate with the North Carolina Department of Transportation to pursue any opportunities to provide additional space for bicycle through restriping.
Comment: The Study identified a range of problems with existing intersections in the corridor. Among these problems were limited sight distance, excessive curb radius and lack of pedestrian facilities. Coupled with the high traffic volumes and travel speeds these intersections create undesirable conditions for pedestrians and bicyclists and may contribute to accidents within the corridor.
The Study suggests assessing conditions at intersections, including driveways and unsignalized intersections and developing a program of improvements. These improvements could include the narrowing of curb radi and installing improved pedestrian facilities. We agree that improvements should be made to the intersections within the corridor as part of the overall program to enhance pedestrian and bicycle safety.
Comment: Excessive automobile speed within the Martin Luther King Blvd/NC 86 corridor was highlighted by the Study. The Study suggests that high speeds within the corridor create problems for pedestrians and bicyclists. The Study proposes several short term and long term solutions. These include:
We believe that all these solutions should be considered for implementation. In the short term increased law enforcement and signage improvements may help reduce speeding. We believe that the physical modification of the roadway, through lane reductions, median treatments and planted buffers between the roadway and sidewalk would have a more long term impact on speeding. We agree that the recommendations of the Study to provide medians and landscapped buffers could contribute to the goal of reducing speeds.
Comment: Specific sections of the Martin Luther King Blvd/NC 86 corridor have many driveways or minor roadway intersections. Accident records suggest these areas are problematic for pedestrians and bicyclists. The Study suggests that the Town review the feasibility of possible physical improvements at these intersections. It also recommends that the Town take advantage of opportunities to consolidate or minimize driveway intersections. We agree that the Town should evaluate opportunities to modify driveway access when possible and review possible improvements to increase pedestrian and bicycle safety.
Comment: Martin Luther King Blvd/NC 86 is a primary transit corridor, utilized by four transit routes that pick up or discharge over 2000 transit riders each day in the corridor. Many of the proposed pedestrian improvements within the corridor are intended to improve mobility and access to public transit stops. We agree that pedestrian improvements should be coordinated with transit stop locations and that the transit stops should be upgraded. We will evaluate the need for upgraded transit amenities in conjunction with sidewalk and median improvements in the corridor.
Comment: We believe there will be continued opportunities to encourage greater pedestrian activity in the Martin Luther King Blvd/NC 86 as development and redevelopment occurs. The Town’s 2000 Comprehensive Plan identifies the possible development of transit nodes at major activity centers along this corridor. We suggest integrating the recommendations of the Report into the Town’s review of future development in corridor.
ADVISORY BOARD RECOMMENDATIONS
Planning Board Recommendation: (Attachment 5) The Planning Board recommended the Council consider the suggestions of the N.C. 86/Airport Road Pedestrian and Bicycle Safety and Mobility Report. The Board recommended that prioritization of the recommendations needed to be done in the context of budget and related Town plans such as the Capital Improvements Program. The Planning Board offered the following observations and comments:
· Board priorities for implementing the Study include:
o Pedestrian crosswalks
o Moving bus stops to intersections
o Roundabouts/traffic circles
· The Board liked the different pavement treatment for bike lanes shown on page 31.
· The Board endorses the idea of raised crosswalks.
· The Board supports painting crosswalks and adding flashing lights.
· The Board believes the proposed redesign of Weaver Dairy Road to add a continuous median by Timberlyne Shopping Center may have negative safety impacts. Drivers making U-turns may affect the pedestrian safety on Airport Road.
· The Board suggests implementing ways to cut down on drivers turning right on red, a safety problem for pedestrians.
· The Board suggests paying close attention to the visual impact of changes/additions to the area.
· The Board suggests coordinating this study with the Martin Luther King Blvd/Columbia Street project to enhance pedestrian safety.
· The Plan should take note of the potential impact of Carolina North on the corridor.
Comment: We agree with many of the recommendations of the Planning Board. However, some of the suggestions, such as the proposal to install raised pedestrian cross walks along the corridor, will require additional study and agreement from the North Carolina Department of Transportation. We will attempt to incorporate the design elements identified by the Planning Board into the redesign of Martin Luther King Blvd/NC 86 corridor.
Transportation Board Recommendation: (Attachment 6) The Transportation Board recommended the Council implement the recommendations of the Plan. The Board also suggested that the Town:
· develop a detailed implementation plan for the improvements
· Prepare realistic timeframe for implementing priority elements of the improvement program
· Include funding for these improvements in the Town Capital Improvement Program
· Include implementation of roundabouts and traffic circles at key intersections.
Comment: We agree that an implementation plan for the entire corridor, I-40 to North Street, is necessary to ensure coordination of the various types of improvements. The implementation plan would also include cost estimates and allow the Town to request funding from federal and State sources for improvements within the corridor.
The Town has received approximately $250,000 for pedestrian improvements between Homestead Road and Estes Drive. We recommend using these funds to implement the recommendations of the NC 86/Airport Road Pedestrian and Bicycle Safety Study. We will develop a proposal to develop a more comprehensive implementation plan for the Council’s consideration.
Active Living By Design Advisory Committee: (Attachment 7) The Committee reviewed the NC 86/Airport Road Study and voted 12-0 to endorse the Study and recommend that the Town Council develop an implementation plan that would include cost estimates and a schedule for implementing specific elements of the recommendations.
Comment: We agree that the development of an implementation plan is necessary.
Bicycle and Pedestrian Advisory Board: (Attachment 8) The Bicycle and Pedestrian Advisory Board make the following comments:
· The study should have given more prominence to and also defined an overall multimodal vision for Martin Luther King Blvd.
· The study is an important resource in relation to preparing for development at Carolina North.
· The Board was hoping that the study would provide more site specific recommendations to improving the facilities for pedestrians at bus stops, especially at Shadowoods, Chapel Ridge, Timber Hollow and Brookstone apartments. The study could have provided typical details and recommendations of where bus stops should be located in relation to crossings.
· The Board would have liked to see a recommended cross section of the street in problem areas.
Comment: The Study did recommend improvements at transit stops within the corridor. We will work with Chapel Hill Transit to ensure that transit passenger amenities will be improved in conjunction with other pedestrian and bicycle improvements.
Greenways Commission: (Attachment 9) The Commission recommended that the Council implement the recommendations of the Study. The Commission identified specific issues related to the integration of the Bolin Creek Greenway into overall improvements.
Comment: We will incorporate integration of the Bolin Creek Greenway into the corridor improvements. We will coordinate with ongoing work by the Greenways Commission and Parks and Recreation Department to develop options for pedestrian crossings of Martin Luther King Jr. Blvd at the Bolin Creek Greenway.
NEXT STEPS
If the Council adopts the attached resolution, Town staff would proceed to implement the recommendations of the Study. We would complete an implementation plan for the corridor between I-40 and North Street and present the plan to the Council for consideration in the fall.
RECOMMENDATIONS
The NC 86/Airport Road Pedestrian and Bicycle Safety and Mobility Report highlights a number of issues along this corridor. We believe that the recommendations of the Report should be pursued, in cooperation with the North Carolina Department of Transportation.
We believe that a detailed implementation plan should be developed to guide the design and scheduling of improvements in the corridor. This plan would provide additional design and engineering detail for the proposed improvements and more specific cost estimates for the various improvements. With the plan, we will be able to recommend priorities for the improvements and coordinate implementation with available funding sources. We have identified funds in the annual transportation planning grant the Town receives to prepare the implementation plan. We expect to use a combination of Town staff and consultant assistance to complete the plan. We anticipate completing the plan over the summer and present the recommendations to the Council in October, 2005.
We have secured approximately $250,000 from regional transportation funds for bicycle and pedestrian improvements in the Martin Luther King Jr. Blvd./NC 86 corridor. The implementation plan will allow the Town focus those funds on critical projects within the corridor.
Manager’s Recommendation: That the Council adopt the attached resolution endorsing the recommendations of the Study and directing staff to proceed with the completion of an implementation plan for improvements between I-40 and North Street for Council consideration.
ATTACHMENTS
A RESOLUTION ENDORSING THE RECOMMENDATIONS OF THE NC 86/AIRPORT ROAD PEDESTRIAN AND BICYCLE SAFETY AND MOBILITY STUDY (2005-06-27/R-4)
WHEREAS, Martin Luther King Jr. Blvd/NC 86 corridor is an important transportation corridor for the Town of Chapel Hill; and
WHEREAS, the NC 86/Airport Road Pedestrian and Bicycle Safety and Mobility Report Card provides an assessment of current conditions within the corridor; and
WHEREAS, Study has identified improvements within Martin Luther King Jr. Blvd/NC 86 corridor that would improve safety and mobility for pedestrians and bicyclists.; and
WHEREAS, the Town Council has reviewed the recommendations of the NC 86/Airport Road Study;
NOW, THEREFORE, BE IT RESOLVED by the Council of the Town of Chapel Hill that the Council endorses the general recommendations of the NC 86/Airport Road Pedestrian and Bicycle Safety and Mobility Study.
BE IT FURTHER RESOLVED that the Council directs the Manager to develop a plan to implement the recommendations of the Study.
This the 27th day of June, 2005.