AGENDA #

AGENDA #4d

MEMORANDUM

TO: Mayor and Town Council

FROM: W. Calvin Horton, Town Manager

SUBJECT: Follow-Up Report Regarding Orange Flag Crosswalk Pilot Projects

DATE: September 12, 2005

This is a follow-up report on the Orange Flag Crosswalk pilot projects implemented as directed by the Town Council at the intersections of Martin Luther King Jr. Boulevard/Hillsborough Street and NC 54/Hamilton Road.

We recommend that the pilot projects be terminated and that the flags and signs be removed. The Transportation Board also recommends terminating the projects. Adoption of Resolution A would terminate the Orange Flag Crosswalk pilot projects.

If the Council wishes to continue Orange Flag Crosswalk pilot projects in Chapel Hill, adoption of the Resolution B would direct the Manager to relocate the existing pilot projects to un-signalized, mid-block crosswalk locations.

No action by the Council is necessary if it wishes to continue the pilot projects at the current locations.

BACKGROUND AND DISCUSSION

At its January 10, 2005 meeting, the Town Council received a report from the Manager regarding Orange Flag Crosswalk programs in other communities around the country. In his report, the Manager did not recommend implementing Orange Flag Crosswalk pilot projects in Chapel Hill because:

No standard procedures have been identified to measure the effectiveness of such pilot projects
Research suggests that less than 15% of pedestrians use the flags where they have been provided in other communities around the country
The Town would incur costs to establish and maintain the pilot projects

However, the Town Council approved implementation of Orange Flag Crosswalk pilot projects, as recommended by the Transportation Board and Bicycle and Pedestrian Advisory Board, at the intersections of Martin Luther King Jr. Boulevard/Hillsborough Street/Umstead Drive and Raleigh Road (NC 54)/Hamilton Road. A copy of the January 10, 2005 Council report is provided in Attachment 1.

The orange flags and signs were installed at both intersections in late July, 2005. As of September 6, 55 flags were lost and have been replaced by the Town staff. Approximate cost of each flag is $4.25.

On August 8, 2005, Dr. Douglas Robertson of Highway Safety Research Center (HSRC) sent a letter to the Mayor (Attachment 2) expressing the following concerns about the Orange Flag Crosswalk pilot projects:

Crosswalk flags should be used only on low-speed, low-volume, two-lane roads, typically at un-signalized intersections or mid-block crosswalk locations.
The signs at the pilot project locations (“Look left and right when crossing. For added visibility, carry orange flag across with you”) could give pedestrians the false impression that they can pick up a flag and step into the intersection during a DON’T WALK phase on the traffic signal and expect motorists to stop for them. (Dr. Robertson suggested revising the wording on the signs to include “Cross only during WALK signal”.)
The use of orange flags and associated signs at pedestrian crosswalks is still in the experimental and such installations are not supported by national safety standards for pedestrian crossings in the Manual on Uniform Traffic Control Devices (MUTCD).

A copy of the letter from Dr. Robertson along with a response from the Town Engineering Director is provided in Attachment 2. Town staff revised the signs at the existing pilot project locations to include “Cross only during WALK signal”. Please see Attachment 3 for a photo of the revised sign.

CONCLUSION

We recommend that the existing Orange Flag Crosswalk projects in Chapel Hill be terminated for the reasons stated previously. However, if the Council wishes to continue with Orange Flag Crosswalk pilot projects, we recommend that they be relocated to un-signalized mid-block crosswalk locations that could include:

· Mid-block Crosswalk on Rosemary Street between Church Street and Mitchell Lane

· Mid-block Crosswalk on Pittsboro Street between McCauley Street and University Drive

· Mid-block Crosswalk on Ridge Road at the Rams Head parking deck

· Mid-block Crosswalk on Raleigh Street between Cameron Avenue and South Road

Of these, we suggest selection of the Rosemary Street and Pittsboro locations where drivers often can be observed failing to stop for pedestrians in the crosswalk.

Transportation Board Recommendation: At its August 16, 2005 meeting, the Transportation Board voted 7-0 recommending that the Council terminate the Orange Flag Crosswalk pilot projects as soon as possible. A copy of the action by the Transportation Board is provided in Attachment 4.

MANAGER’S RECOMMENDATION

The Manager recommends adoption of resolution A that would terminate the Orange Flag Crosswalk pilot projects.

If the Council wishes to continue Orange Flag Crosswalk pilot projects in Chapel Hill, adoption of the resolution B would direct the Manager to relocate the existing pilot projects to un-signalized mid-block crosswalk locations.

ATTACHMENTS

1. January 10, 2005 Council Report (p. 6).

2. Letter from Highway Safety Research Center and the Town Staff Response (p. 15).

3. Revised Sign for Orange Flags Crosswalks (p. 19).

3. Transportation Board Action (p. 20).

RESOLUTION A

A RESOLUTION DIRECTING THE TOWN MANAGER TO TERMINATE EXISTING ORANGE FLAG CROSSWALK PILOT PROJECTS IN CHAPEL HILL(2005-09-12/R-4a)

WHEREAS, the Council is interested in improving pedestrian safety at marked crosswalks in the Town; and

WHEREAS, the Council directed the Manager on January 10, 2005 to implement Orange Flag Crosswalk pilot projects at two locations; and

WHEREAS, the Orange Flag Crosswalk pilot projects were implemented in July 2005; and

WHEREAS, the Council received a letter from the Highway Safety Research Center expressing concerns about the pilot projects and the selected project locations; and

WHEREAS, the Council has received a follow-up report from the Manager recommending termination of the existing Orange Flag Crosswalk pilot projects; and

WHEREAS, the Council received a recommendation from the Transportation Board to terminate the Orange Flag Crosswalk pilot projects as soon as possible;

NOW, THEREFORE, BE IT RESOLVED by the Council of the Town of Chapel Hill that the Council directs the Manager to terminate the existing Orange Flag Crosswalk pilot projects in Chapel Hill.

This the12^th day of September, 2005.

RESOLUTION B

A RESOLUTION DIRECTING THE TOWN MANAGER TO RELOCATE THE EXISTING ORANGE FLAG CROSSWALK PILOT PROJECTS AT TWO CROSSWALK LOCATIONS FOR A TRIAL PERIOD OF 12 MONTHS (2005-09-12/R-4b)

WHEREAS, the Council is interested in improving pedestrian safety at marked crosswalks in the Town; and

WHEREAS, the Council directed the Manager on January 10, 2005 to implement Orange Flag Crosswalk pilot projects at two locations; and

WHEREAS, the Orange Flag Crosswalk pilot projects were implemented in July 2005; and

WHEREAS, the Council received a letter from the Highway Safety Research Center expressing concerns about the pilot projects and the selected project locations; and

WHEREAS, the Council has received a follow-up report from the Manager recommending termination of the existing Orange Flag Crosswalk pilot projects; and

WHEREAS, the Council received a recommendation from the Transportation Board to terminate the Orange Flag Crosswalk pilot projects as soon as possible;

NOW, THEREFORE, BE IT RESOLVED by the Council of the Town of Chapel Hill that the Council wishes to continue pilot projects involving Orange Flag Crosswalk at locations other than those currently selected.

BE IT FURTHER RESOLVED that the Council directs the Manager to relocate the orange flags and signs from the existing pilot project locations to the following un-signalized, mid-block pedestrian crosswalk locations:

BE IT FURTHER RESOLVED that the Council directs the Manager to monitor the use and effectiveness of the orange flag installations and to report back to the Council with his findings and recommendations following a twelve month trial period.

This the12^th day of September, 2005.