March 2, 2004
SUBJECT: Blair Avenue Area Traffic Calming Study - Approval of Temporary Installation
REPORT IN BRIEF
The City of Sunnyvale has conducted a traffic calming study for the Blair Avenue Neighborhood. The study concludes that, based on the volume and speed of vehicles, traffic calming measures are warranted on Blair Avenue between Bernardo and Mary Avenue, as well as Grape Avenue between Blair and Heatherstone Avenue (See Attachment A for a map of the Study Area). The Blair Avenue Neighborhood Traffic Calming Study developed alternatives for possible traffic calming solutions. Two public meetings were held in order to build consensus on a preferred alternative.
The preferred alternative consists of the construction of four speed humps along Blair Avenue and two speed humps along Grape Avenue. In addition, a median island would be constructed at the intersection of Blair and Mary. Bulb-outs would also be installed at the intersection of Blair and Bernardo. Lastly, parking will be restricted along Blair Avenue between Mary Avenue and Melon Court (one hour parking during the daytime weekday hours). Attachment B illustrates the conceptual design of the above measures and the proposed location of the speed humps.
The neighborhood voted on whether or not to approve the temporary installation of the preferred alternative. A majority of the respondents were in favor of the temporary installation. For this reason, staff recommends that the proposed measures be implemented. Staff is recommending installation of temporary devices to allow for evaluation of effectiveness and impact on surrounding neighborhood streets after installation. Staff will then come back to the City Council for approval of permanent installation if appropriate, as well as funding for capital construction.
At this time, staff asks that Council approve the temporary installation of traffic calming measures on Blair Avenue and Grape Avenue.
BACKGROUND
In February 1997, the City Council adopted a traffic calming policy to address residential neighborhood traffic concerns and complaints. The policy outlines the process under which circumstances staff is to conduct traffic calming studies. It also delineates thresholds of significance to determine "real" rather than perceived traffic problems, and sets forth a variety of acceptable Stage I and Stage II traffic calming methods. Stage I methods are generally comprised of studies, observations, education, public involvement, enforcement efforts, and changes in signing and pavement markings in an attempt to reduce the problem and improve the situation. They do not include the use of physical controls or impediments on the roadway system. Stage II methods are generally projects which physically alter the nature or configuration of a neighborhood street such as speed humps, traffic circles, diverters, chokers, or cul-de-sacs. The City's policy outlines an extensive community outreach and participation process for Stage II actions. The administrative process for doing studies is on a first come first served basis.
The Blair Avenue Area traffic calming study was initiated to address concerns of Blair and Grape Avenue residents with regard to excessive vehicular speeds, cut-through movements, and spill-over parking generated by the traffic associated with commercial developments in the area, specifically automobile dealerships. As required in the City’s Traffic Calming Policy, City staff initially attempted to address the issues through the installation of additional 25mph Speed Limit signs and legends, "no through traffic" signs, increased Public Safety enforcement, and use of the City’s radar speed trailer.
The item was escalated with the approval of a 118 room motel development at 606 South Bernardo Avenue on the northeast corner of Bernardo Avenue and Blair Avenue. The Green Valley Corporation, the motel developers, contributed the funding for this traffic calming study in order to expedite completion of the study through hiring of outside resources.
Consequently, the Blair Avenue Neighborhood Traffic Calming Study was initiated. The study area included all streets bounded by Bernardo Avenue on the west, El Camino Real to the north, Mary Avenue to the east, and Heatherstone Avenue to the south in order to capture all streets potentially subject to effects of traffic calming. After conducting volume studies, speed studies and field observations, the study concluded that traffic calming measures were warranted on Blair Avenue between Bernardo and Mary Avenue; as well as Grape Avenue between Blair and Heatherstone Avenue. This determination was based mostly on the volume of traffic driving on the two streets, but was also based on the 85th percentile speed (the speed at which 85% of the vehicles drive, or drive slower than). Blair Avenue showed an average weekday traffic volume of 1266 vehicles and an 85th percentile speed of 32 mph. Grape Avenue had an average weekday traffic volume of 1105 vehicles and an 85th percentile speed of 34 mph. These are both over the City’s threshold for consideration of traffic calming of 1000 vehicles per day and 32 mph. As a result of the volume and speed data gathered, Blair Avenue and Grape Avenue continue to meet the minimum criteria needed to consider Stage II traffic calming actions.
In addition to the recommendations to reduce speeding and cut-through traffic, additional concerns were also studied and addressed within the report. Specifically these concerns relate to non-neighborhood parking demands, the speeds at which vehicles turn onto Blair Avenue, and the visibility at the intersection of Mary Avenue and Blair Avenue.
The Blair Avenue Neighborhood Traffic Calming Study developed 4 alternatives for possible traffic calming solutions. Two public meetings were held (November 18, 2002 and July 16, 2003) in order to build consensus on a preferred alternative. Between 20 and 25 residents attended each meeting. At this time, staff and the community have reached consensus on an approach to address the problem.
EXISTING POLICY
The following documents contain policy direction on this issue:
Land Use and Transportation Element C3: Attain a transportation system that is effective, safe, pleasant, and convenient.
Land Use and Transportation Element N1.5: Support a roadway system that protects internal residential areas from City-wide and regional traffic.
Land Use and Transportation Element N1.5.2: Utilize the City's residential neighborhood "Traffic Calming" techniques to address specific neighborhood traffic concerns.
Land Use and Transportation Element N1.5.3: Discourage non-neighborhood traffic from using residential neighborhood streets by accommodating traffic demand on city-wide and regional streets.
DISCUSSION
The Blair Avenue Neighborhood Traffic Calming Study developed 4 alternatives for possible traffic calming solutions. Two public meetings were held (November 18, 2002 and July 16, 2003) in order to build consensus on a preferred alternative. Between 20 and 25 residents attended each meeting. The preferred alternative that City staff and the residents supported consisted of the following elements:
1. Road traffic signs and markings that complement traffic calming goals.
2. A bulb-out/choker on Blair Avenue at the intersection of Blair and Bernardo. This measure aims to reduce the speed in which vehicles turn onto Blair from Bernardo, reduce the crossing distance of Blair, and create a neighborhood gateway effect.
3. A median island on Blair Avenue at the intersection of Blair and Mary. This measure aims to reduce the speed in which vehicles turn onto Blair from Mary, improve visibility for vehicles turning onto Mary from Blair, prevent parked vehicles from encroaching onto Mary, reduce the crossing distance of Blair, and create a neighborhood gateway effect.
4. One hour daytime/weekday parking restrictions along Blair Avenue from Mary Avenue to Melon Court. This measure aims to eliminate non-neighborhood parking.
5. Removal of the right turn lane on Blair Avenue to northbound Grape Avenue
6. 4 speed humps on Blair Avenue
7. 2 speed humps on Grape Avenue
The residents were asked to vote on the preferred alternative. A ballot was sent to all the property owners and tenants who live within the study area. The ballot described the proposed measures and asked the resident/property owner to vote on whether or not to approve the temporary installation of the measures. A total of approximately 538 surveys were mailed directly to owners and tenants. A total of 197 surveys were returned (a response rate of 37%). 62 percent of the respondents voted in favor of the temporary installation of the proposed traffic calming measures. 38 percent of the respondents opposed the installation.
Although there were many reasons why some of the residents opposed the traffic calming measures, one main concern was that the proposed measures would shift the traffic to other neighborhood streets. Others believed that these measures simply aren't necessary. Some residents do not believe that the extent of the speeding or volume warrants the proposed actions.
Staff has analyzed the extent to which the proposed traffic calming devices would impact other surrounding neighborhood streets and estimates that diverted traffic would be negligible. Analysis of diverted traffic was based on the difference in travel time on Blair and Grape under current conditions and with the addition of traffic calming devices. Based on these estimates, it was determined that between 30 percent to 50 percent of the cut-through traffic (i.e. non-neighborhood) would be shifted off of Blair Avenue and Grape Avenue and onto existing collector and arterial streets, for the most part El Camino Real. There is some concern that some of this traffic may be diverted onto Heatherstone Avenue. For this reason, traffic volume and speed data has been collected for this street so that the extent of diversion can be monitored. Staff has also collected volume and speed data for other neighborhood streets. These include Mango Avenue, Parkington Avenue, Lynn Avenue and Lois Avenue. Staff believes that it is important to conduct studies after the measures are installed to assure that diversion is not taking place. Staff plans to conduct the studies approximately 6-12 months after installation.
Staff recommends the use of temporary measures for all Stage II traffic calming installations. This is a way to gauge the response of drivers and neighborhood residents to the devices without committing the large costs of a permanent capital project. All temporary traffic calming devices are funded through the operating budget and can be reused. After installation in one neighborhood, they can be used for other neighborhood traffic calming projects. Staff proposes that temporary installation of Stage II measures become standard operating procedure for all Stage II installations. After installation, staff will evaluate effectiveness and impacts of the measures.
The Department of Public Safety has participated in the development of traffic calming alternatives and does not object to the installation of calming devices as proposed.
Criteria for Study:
The success of the traffic calming installation will be based on the factors listed below.
1. 85th percentile speeds reduced below 32 miles per hour on Grape Avenue and Blair Avenue. If the speeds are not reduced the installation will be considered unsuccessful.
2. Traffic volume reduced below 1000 vehicles per day on Grape Avenue and Blair Avenue. If the volumes are not reduced, the installation will be considered unsuccessful.
3. Traffic diversion- Traffic on surrounding neighborhood streets will be monitored to determine if volume is increased due to the traffic calming installation. If volumes increase above the current traffic calming threshold of 1000 vehicles per day on a residential street in the neighborhood, then the installation will be considered unsuccessful. Because of the location of Cherry Chase Elementary School, Heatherstone Avenue can be expected to carry slightly higher volumes. Staff will take this into consideration when analyzing volumes on Heatherstone Avenue.
If the project is deemed unsuccessful on any of the above levels, then as per the Traffic Calming Policy, staff will continue to evaluate additional traffic calming measures in order to address the problem while still meeting the traffic calming goals.
When the evaluation is complete, staff will return to the City Council for approval of a permanent installation if appropriate, as well as, to request funding for capital construction. Staff estimates the cost of permanent installation at $90,000.
If the temporary installation is deemed successful and funding is not available for permanent installation, the following are a number of options for Council to consider.
The first option would be to leave the temporary installation in place until capital project funding becomes available. The positive aspect of this alternative is that the installation will be able to remain in place indefinitely with no fiscal impact (the City has materials for temporary installation in stock). There are negative aspects to this alternative as well. The temporary devices will not stand up as well as permanent devices to long term wear and tear. Therefore the City can expect to get less use out of them as originally planned for. Additionally, the City will not be able to use the temporary devices for traffic calming projects elsewhere in the City. There are currently two other traffic calming studies underway which could benefit from the temporary traffic calming devices. If they are used indefinitely for the Blair Avenue Neighborhood Traffic Calming, then other neighborhood traffic calming studies may be delayed.
The second option would be to remove the temporary installation and consider funding the capital project when funds become available. This option would put the achievements and goals of the Blair Avenue Traffic Calming Project on hold, and may be considered disappointing for neighborhood residents. However, the temporary devices will be available for other neighborhoods as intended. Stage I traffic calming actions could be continued indefinitely in the Blair Avenue neighborhood.
A third option would be to program and implement capital construction without a trial installation of temporary measures. This option would acknowledge that traffic issues have been sufficiently documented and neighborhood consensus achieved on addressing traffic. It would also address the issue of capital funding in the short term. Staff does not recommend this alternative as unanticipated results sometimes occur, and considerable expense would likely result if modifications of a permanent installation were necessary. Use of temporary devices allows for risk-free removal of the devices in the event of an unsuccessful trial. At this time, no funds have been identified for permanent installation of traffic calming measures in the Blair Avenue neighborhood or any other neighborhoods. Traffic calming is identified in the Ten Year Resource Allocation Plan as an Unfunded Project. Should the City Council elect to address permanent capital construction and funding, a funding source would need to be identified at this time.
A final option would be to change the street classifications for Blair and Grape Avenues. Currently these streets are classified in the General Plan as neighborhood streets. Council could chose to recognize that traffic characteristics of Blair and Grape Avenue are more appropriate to function as neighborhood collector streets that feed traffic to and from the neighborhood to the surrounding major street system. Collector streets by policy are not candidates for traffic calming.
FISCAL IMPACT
There is no fiscal impact associated with the temporary installation of the proposed traffic calming measures for the Blair Avenue Neighborhood. All costs will be covered through the existing operating budget. Should the temporary measures prove to be successful and acceptable to residents, staff will return to Council with a request to fund permanent installation. Staff estimates the cost of permanent installation at $90,000. No funding has been identified for permanent installation of traffic calming devices in the Blair Avenue neighborhood. Funding would likely come from the General Fund or Gas Tax Fund, and would represent a negative fiscal impact to one of these funds in the amount of $ 90,000.
There are a limited number of discretionary outside grant sources that could be pursued for traffic calming; however staff believes that is unlikely that Blair Avenue traffic calming could qualify for outside grant funding. Staff does not recommend that capital construction be budgeted based on anticipated, unrealized outside grant funding.
PUBLIC CONTACT
Public contact was made through posting of the Council agenda on the City's official notice bulletin board, posting of the agenda and report on the City's web page, and the availability of the report in the Library and the City Clerk's Office. In addition, notices were mailed directly to property owners and tenants within the Blair Avenue Neighborhood study area.
ALTERNATIVES
1. Approve the temporary installation of traffic calming measures in the Blair Avenue Neighborhood and direct staff to return to the City Council one year after completion of a trial installation of temporary devices for consideration of the installation of permanent traffic calming measures.
2. Do not approve the temporary installation of traffic calming measures in the Blair Avenue Neighborhood and direct staff to pursue other actions to address traffic in the Blair Avenue neighborhood.
RECOMMENDATION
Staff recommends Alternative #1.
Prepared by:
Jack Witthaus
Transportation and Traffic Manager
Reviewed by:
Marvin A. Rose
Director, Public Works
Approved by:
Amy Chan
Acting City Manager
Attachments
A. Map of Study Area (pdf format 14mb)
B. Traffic Calming Implementation Plan