RECTANGULAR RAPID FLASHING BEACON EVALUATION

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1 CITY COUNCIL CONSENT CALENDAR FEBRUARY 3, 2014 SUBJECT: RECTANGULAR RAPID FLASHING BEACON EVALUATION INITIATED BY: DEPARTMENT OF PUBLIC WORKS n (,J. (Oscar Delgado, Director of Public Work~ (Sharon Perlstein, City Engineer~p DEPARTMENT OF COMMUNITY DEVELOPMENT " () (Stephanie De Wolfe Director, Community Development D~ment;Jf (Melissa Antol Manager, Long Range and Mobility Planni~ (Walter Davis Traffic Specialist, Long Range and Mobility Plann i rigry~ STATEMENT ON SUBJECT: The City Council will consider keeping the Rectangular Rapid Flashing Beacon at three test crosswalk locations and adding the device at three new locations. The Transportation Commission supports the Rectangular Rapid Flashing Beacon. RECOMMENDATION: 1. Keep the Rectangular Rapid Flashing Beacons at the following unsignalized crosswalk locations: Santa Monica Boulevard at Westmount Drive, Santa Monica Boulevard at Orange Grove Avenue, Crescent Heights Boulevard at Norton Avenue. 2. Direct staff to install the Rectangular Rapid Flashing Beacon as a visibility enhancement alternative at the following unsignalized crosswalk locations: Santa Monica Boulevard at Palm Avenue, Santa Monica Boulevard at Hancock Avenue, San Vicente Boulevard at the West Hollywood Library. BACKGROUND ANAYLSIS: Council Directive On May 7, 2012, the West Hollywood City Council directed staff to conduct a trial test of Rectangular Rapid Flashing Beacons (RRFB) at the Westmount Drive crosswalk on Santa Monica Blvd. The device is a CAL TRANS interim approved device consisting of two rectangular shaped lights installed below the pedestrian crossing sign. The lights are activated by a pedestrian push button and provide a wig-wag flashing sequence to enhance pedestrian visibility. Staff also tested the device at two other unsignalized 2 Q AGENDA ITEM

2 crosswalks (Santa Monica Blvd /Orange Grove Ave and Crescent Heights Blvd /Norton Ave) to obtain a better understanding of its effectiveness at different locations. The RRFBs were installed in December of Staff has conducted "before" and "after" studies for the devices. The results of this study are summarized in the Evaluation section of this staff report. Most notably the rapid flash beacon has improved safety by increasing the motorists' awareness of pedestrians at unsignalized crosswalks. The evaluation results show an improvement in the motorists' yielding rate for pedestrians; motorists are braking further away from the crosswalks; and there is less frequency of vehicle sudden braking. Transportation Commission Action Staff has completed its Rectangular Rapid Flashing Beacon (RRFB) study evaluating the device's effectiveness as a visibility enhancement for non-signalized crosswalks and presented the attached report to the Transportation Commission on November 20, See Exhibit A After reviewing staff's findings, the Transportation Commission unanimously supported to maintain the RRFBs and consider the device for other unsignalized crosswalk locations. Additional Locations Identified Based on the findings from the evaluation, staff is also recommending the installation of the RRFB on Santa Monica Boulevard at the Palm Avenue and Hancock Avenue crosswalks, and San Vicente Boulevard at the West Hollywood Library crosswalk. The Santa Monica Boulevard RRFB locations are warranted based on high pedestrian activity, concentration of pedestrian collisions; and having been identified as a key area of concern from the community and from input from the Sheriff's Department. Sherriff Department data listed a total of nine accidents in the past year at these locations: 4 pedestrian accidents and 1 bike accident at the Hancock location; and 3 pedestrian accidents at Palm. Staff is also anticipating more pedestrian crossings at Hancock Avenue generated by the temporary City employee parking location and bus use in the vicinity. The San Vicente Boulevard/West Hollywood Library crosswalk is recommended because the location serves pedestrians using the Library, Park and Pacific Design Center. The additional Santa Monica Boulevard RRFB locations are among several priority locations identified in the Pedestrian and Bicycle Mobility Master Plan Update (currently being finalized) that is scheduled to be presented to the City Council in late spring of The RRFB evaluation report includes documentation of the scope and costs for construction and maintenance of the RRFB devices. Engineering Division staff monitors the day to day operation of the equipment, and repair work is done by a contractor with special expertise in electrical systems and traffic control equipment. In June 2013, the City entered into an annual maintenance contract with Siemens ITS for quarterly preventative maintenance and on-call services for the RRFBs. The 12-month contract for the three intersections is for a not-to-exceed amount of $10,000. The annual contract cost for Siemens to perform quarterly preventative services at the three intersections is $1,500 which divides out to $500 per intersection. The hourly Labor Costs for Siemens to have an Engineering System Technician respond for On-Call services is $95.00 per

3 hour for Regular Time; $ for Overtime. Additionally Siemens has hourly equipment cost for the Technician's Service Truck of $15.00 per hour. Replacement parts for the RRFB equipment will be charged to the City based on supplier costs and mark-up. To date, the RRFB equipment has required minimal maintenance work, and there have been no instances of damage from vandalism or traffic accidents. With the installation of RRFB devices at two additional unsignalized intersections, staff anticipates the FY annual contract for quarterly preventative maintenance and on-call services will need to be increased from $10,000 to $13,000 to cover costs associated with the upkeep of the additional intersections. This will be included in the Engineering Division's preparation of the FY Budget. Pedestrian overhead street lighting Staff is researching various nighttime crosswalk overhead street lighting alternatives to enhance the visibility of pedestrians. Both Hancock and Palm are particularly isolated areas without a lot of lighting from adjacent land uses so the crosswalks could benefit from additional overhead lighting. Overhead lighting has also been identified in the Pedestrian and Bicycle Mobility Master Plan Update as a tool to increase pedestrian visibility. Staff will return with recommendations for additional safety features as part of the plan. CONFORMANCE WITH VISION 2020 AND THE GOALS OF THE WEST HOLLYWOOD GENERAL PLAN: This item is consistent with the Ongoing Strategic Program of TRANSPORTATION SYSTEM IMPROVEMENT. The item is also consistent with General Plan Goal M-3; to maintain and enhance a pedestrian-oriented City. EVALUATION: Listed below are the key points in the RRFB report. The RRFB was evaluated by measuring the motorists' yielding rates for pedestrians crossing, the braking distances from the crosswalk, and the frequency of abrupt braking. Before and after RRFB studies were conducted to show if the device improved the approaching motorists' awareness of pedestrians intending to cross the street. Data was collected at three test locations (Santa Monica/Westmount, Santa Monica/Orange Grove and Crescent Heights/Norton) in September and November of 2012, and July, August, September and November of A team of three technicians was utilized along with volunteers to assist with the staged pedestrian crossings. All members participating in the studies wore plain clothing and communicated with hand signals along with illumination from cell

4 phones used for nighttime hand signals. The evaluation team was inconspicuous to the motorists being observed as their vehicles approached the crosswalk. The findings in the report are based on the motorists' reaction to 600 staged pedestrian crossings observed and recorded at the 3 test locations (200 staged before and after RRFB crossings per location). Yielding compliance rates are based on the motorists' response to slow, stop, or disregard a pedestrian crossing the road. The higher the compliance rate, the more comfortable the crosswalk is for pedestrians. Measuring yielding rates along with the braking distance from the crosswalk are important standards when evaluating crosswalk visibility enhancements. The braking distance is useful in determining how far away from a crosswalk a motorist is aware of a pedestrian crossing. Longer braking distances compared to shorter braking distances highlights a motorist's awareness of the pedestrian in front of the vehicle. The frequency of a motorist braking abruptly for a crossing pedestrian is also useful in determining the RRFB's effectiveness. The frequency of braking abruptly is another measurement in determining the motorists' awareness of pedestrians crossing in their travel path. The daytime after RRFB results show no significant change in yielding rates; however, the before daytime yielding rates were at or above 92 percent, considered to be excellent per California standards. The nighttime after RRFB results showed the device improved motorists' yielding compliance rates at crosswalks by 7 to 20 percent. The Crescent Heights/Norton crosswalk showed the most notable nighttime yielding compliance improvement. The yielding compliance rate changed from 72 percent (before the RRFB) to 92 percent after the RRFB (20 percent difference). Staff believes the significant improvement in Crescent Heights/Norton yielding rates may be attributed to the lack of pedestrian improvements (including shorter pedestrian crossing distances, a median refuge and bulb-outs). The two RRFB locations on Santa Monica have more pedestrian friendly amenities along with slower vehicle approach speeds. Additional enhancements may have less impact in areas where the existing pedestrian comfort level is significantly better. The studies show an overall significant decrease in abrupt braking at the RRFB test crosswalks, except at the Crescent Heights Boulevard/Norton Avenue location. The Crescent Heights curb to curb width, slope in road and proximity to traffic signals may impact the findings. The nighttime RRFB studies show the motorists increased their braking distance by an additional 50 feet away from the crosswalk at all test locations. The studies

5 suggest the motorists became more aware of the pedestrian at a longer distance. The daytime conditions showed no significant change, except at Santa Monica Boulevard/Westmount Drive where the braking distance increased by 50 feet. The results suggest the RRFB installation at unsignalized crosswalks may improve the pedestrian comfort level. The before and after studies show an increase in the number of pedestrian crossings, ranging from 10 to 37 percent suggesting the RRFB may improve the pedestrian comfort level. The studies show that approximately 50 percent of the pedestrians are pushing the button to activate the RRFB before crossing. Continued outreach in pedestrian and motorist education will improve the push button rate. For consistency, pedestrian familiarity and maintenance considerations, the RRFB should be considered as alternative at the other non-signalized locations Citywide. The RRFB is an effective crosswalk visibility enhancement. The device is a costeffective alternative for non-signalized crosswalks, especially at locations where full traffic signals are not warranted. ENVIRONMENTAL SUSTAINABILITY AND HEAL TH: The RRFB project is consistent with the City's Green Building Ordinance in that it involves the installation of low energy Light Emitting Diode (LED) equipment. The equipment at the three test locations is energized by solar power. Additionally, the project's promotion of pedestrians as an important mode of transportation has the following benefits: Improved Air Quality; Emission Reductions; and Improved Health of Pedestrians. OFFICE OF PRIMARY RESPONSIBILITY: Public Works Department (Engineering Division) Community Development Department (Long Range and Mobility Planning Division) FISCAL IMPACT: The total construction cost for the three additional RRFB locations is estimated at $60,000. These funds are included in the FY budget in the Long Range and Mobility Planning Division accounts # Funds for the existing $10,000 annual maintenance contract for the RRFB devices has been included in the Engineering Division's FY Budget for Traffic Signals and Light Maintenance account # As RRFB devices are installed at additional unsignalized crosswalks, future year budgets will need to be increased to cover the additional maintenance costs.

6 EXHIBITS: A. Rectangular Flashing Beacon Report

7 City of West Hollywood Rectangular Rapid Flasher Beacon Study Final Report By Walter Davis, Neighborhood Traffic Specialist Long Range and Mobility Planning Division Community Development Department 8300 Santa Monica Boulevard West Hollywood, CA February 3, 2014 EXHIBIT A

8 Table of Contents Page Introduction... 2 Background Location Characteristics Testing Methodology Test Results Construction and Maintenance of the Rectangular Rapid Flashing Beacons Summary Conclusions and Recommendations References

9 Introduction The City of West Hollywood is a dense municipality with a population of 34,399 in a 1.9 square mile area. The dense nature of the community in the midst of a large metropolitan area presents challenges with balancing travel mode use, capacity and flow. The Mobility Section of the West Hollywood General Plan 2035 states the quality, comfort, safety, walkability, livability and bikeablity of the City's streets, sidewalks and multi-modal transportation system are of utmost importance to the future of the City. Managing the multi-modal transportation system; including pedestrians, bicyclists, transit and autos; is a delicate balancing act for the City. One of the most difficult tasks in managing the system has been minimizing the potential conflicts between motorists and pedestrians. The safety record at any crossing is dependent on the visibility at the location and the judgment skill of motorists and pedestrians. Consideration of various potential pedestrian design treatments for further evaluation is consistent with the General Plan's vision. Background The purpose of the Rectangular Rapid Flashing Beacon (RRFB) study is to evaluate the RRFB effectiveness as a visibility enhancement alternative for the City of West Hollywood's non-signalized crosswalks. On May 7, 2012, the West Hollywood City Council directed staff to conduct a trial test of Rectangular Rapid Flashing Beacons (RRFB) at the Westmount Drive crosswalk on Santa Monica Blvd. The device is a CAL TRANS interim approved device consisting of two rectangular shaped lights installed below the pedestrian crossing sign. The lights are activated by a pedestrian push button and provide a wig-wag flashing sequence to enhance pedestrian visibility. Staff also tested the device at two other unsignalized crosswalks (Santa Monica Blvd /Orange Grove Ave and Crescent Heights Blvd /Norton Ave) to obtain a better understanding of its effectiveness at different locations. The testing of RRFB devices was previously recommended for consideration in reports presented to the Transportation Commission and Public Safety Commission in February On September 4, 2012, the City Council awarded a construction contract for the installation of the RRFB at three locations along with authorizing landscape improvements on Santa Monica Boulevard to enhance crosswalk visibility. 2

10 The RRFB was installed at the three locations in December of The device is manufactured by TAPCO. The RRFB is programmed to flash after activation for 30 seconds which exceeds the minimum crosswalk standards of the Manual on Traffic Control Devices (MUTCD). Test Locations The test sites evaluated include Santa Monica Blvd/Westmount Dr., Santa Monica Blvd/Orange Grove Ave., and Crescent Heights Blvd/Norton Ave. The test crosswalks were chosen to get a better understanding of the RRFB's effectiveness under different crossing conditions. All locations are MUTCD compliant with the required crosswalk road markings, pedestrian signs, and advance yield road markings and signs. Location Characteristics 1. Santa Monica/Westmount crosswalk The Santa Monica/Westmount crosswalk is next to a tee intersection with stop controls on the Westmount Drive leg. The median only allows right turns from southbound Westmount to westbound Santa Monica. The daytime traffic flow varies from free flowing to slow moving with queues. The pedestrian activity is heavy with 119 to141 crossings per hour during the peak times. The pedestrian type breakdown includes the following: Pedestrian Type Crossing at Santa Monica/Westmount Type Percentage Adult 84% Senior 8% Cyclist 3% School Kid 3% Disabled 2% Adjacent Land Use - Land use in the vicinity is relatively dense, includes a gym, hotel and various restaurants and retail businesses including Trader Joe's and Starbuck's. Transit - MTA and Cityline bus stops are located approximately 300 west of the crosswalk at the Santa Monica/Westbourne intersection. Lane Geometrics, Width and Striping: -Santa Monica has a curb to curb width of approximately 105 feet. The marked crosswalk extends across four lanes, two parking lanes, two bike lanes, and a median refuge area. There are sidewalk bulb-outs on both 3

11 the north and south sides of Santa Monica Blvd. The crossing distance between the median and curb on both sides is 30 feet. Posted and Prevailing Speeds -The posted speed limit on Santa Monica between Doheny and Croft is 35 miles per hour. The 2011 survey shows an average speed of 30 miles per hour, with an 85th percentile speed at 34 miles per hour. Accident history -In the 3 year history before the installation, there was 1 pedestrian accident at this intersection. The accident history for the RRFB crosswalk is not available because it has only been installed for approximately one year. Sight Distance - Sight Distance from the crosswalk was evaluated based on stopping sight distance standards contained in the Caltrans Highway Design Manual. For the posted 35 mph speed limit, 250 feet is required. Proximity of Existing Traffic Control Devices-The nearest raffic signal is located approximately 350 feet west of the crosswalk at Santa Monica Boulevard/Westbourne Drive. Proximity of existing unsignalized crosswalks- An unsignalized marked crosswalk at Santa Monica/West Knoll is located approximately 300 feet east of the Santa Monica/Westmount crosswalk. Traffic Volumes- Traffic surveys shows Santa Monica carries 53,400 vehicles daily, with an AM peak of 2,979 vehicles per hour and PM peak of 3,015 vehicles per hour. 2. Santa Monica/Orange Grove crosswalk The Santa Monica/Orange Grove crosswalk is located next to a tee intersection with stop controls on the Orange Grove legs on the north and south sides of Santa Monica Boulevard. The median only allows right turns from southbound Orange Grove to westbound Santa Monica and northbound Orange Grove to eastbound Santa Monica. The daytime traffic flow varies from free flowing to slow moving with frequent westbound queues backing up from the Santa Monica/Fairfax traffic signal. The pedestrian activity is medium-heavy with 45 to 57 crossings per hour during the peak times. The pedestrian type breakdown includes the following : Pedestrian Type Crossing at Santa Monica/Orange Grove Type Percentage Adult 66% Senior 30% Cyclist 2% School Kid 1% Disabled 1% 4

12 Adjacent Land Use - Land use in the vicinity includes a Whole Foods grocery store, various restaurants, car repair shop, a cafe, neighborhood retail businesses and a residential area on Orange Grove Avenue. Transit - The MTA and Cityline bus stops are located approximately 250 west of the crosswalk at the Santa Monica/Fairfax intersection. This area is a heavy transfer point for transit riders, with four different transit connections at the Santa Monica/Fairfax i nte rsectio n. Lane Geometrics. Width and Striping: - Santa Monica has a curb to curb width of 60 feet. The marked crosswalk extends across four lanes, and has a median refuge area. The crossing distance between the median and curb on both sides is 24 feet. Posted and Prevailing Speeds -The posted speed limit on Santa Monica Boulevard at Fairfax is 30 miles per hour (mph). The 2011 survey shows an average speed of 29 miles per hour, with an 85th percentile speed of 32 miles per hour. Accident history -In the 3 year history before the installation, there were 6 pedestrian accidents. The RRFB crosswalk accident history is not available because it has only been installed for approximately one year. Sight Distance - Sight Distance from the crosswalk was evaluated based on stopping sight distance criteria contained in the Caltrans Highway Design Manual. For the posted 30 mph speed limit, a stopping distance of 200 feet is required. Proximity of Existing Traffic Control Devices- The nearest traffic signal is located approximately 250 feet west of the crosswalk at Santa Monica Boulevard/Fairfax Avenue. Proximity of existing unsignalized crosswalks- An unsignalized marked crosswalk at Santa Monica/Ogden is located about 300 feet east of the Santa Monica/Orange Grove crosswalk. Traffic Volumes- Traffic surveys shows Santa Monica Boulevard at Fairfax Avenue carries 46,500 vehicles daily, with an AM peak of 2,389 vehicles per hour and PM peak of 2,933 vehicles per hour. 3. Crescent Heights Boulevard/Norton A venue crosswalk The daytime traffic flow varies from free flowing to slow moving with queues. The pedestrian activity is light with 16 crossings per hour during the peak times. The pedestrian type breakdown includes the following: 5

13 Pedestrian Crossing at Crescent Heights/Norton Type Percentage Adult 80% Senior 7% Cyclist 11% School Kid 1% Disabled 1% Adjacent Land Use - Land use in the vicinity includes a multi-family residential area and various neighborhood restaurants and businesses within 300 feet. Transit-MTA and CityLine bus stops are located approximately 300 feet south of the crosswalk at the Santa Monica/Crescent Heights. intersection. Cityline bus stops are located on the southwest and southeast corners of Crescent Heights at Norton Avenue. Lane Geometrics. Width and Striping -Crescent Heights Boulevard has a curb to curb width of 70 feet. The marked crosswalk extends across four lanes, two parking lanes and a left turn pocket to Norton Avenue. Posted and Prevailing Speeds -The posted speed limit on Crescent Heights Boulevard is 35 miles per hour (mph). The 2011 survey shows an average speed of. 35 miles per hour, with an 85th percentile speed of 39 miles per hour. Accident history -In the 3 year history before the installation, there were no pedestrian accidents. The RRFB crosswalk accident history is not available because it has only been installed for approximately one year. Sight Distance - Sight Distance from the crosswalk was evaluated based on stopping sight distance standards contained in the Caltrans Highway Design Manual. For the posted 35 mph speed limit, 250 feet is required. Proximity of Existing Traffic Control Devices-The nearest traffic signal is located approximately 300 feet south of the crosswalk at Santa Monica Boulevard/Crescent Heights Boulevard, as well as 900 feet north at Fountain Avenue/Crescent Heights. Proximity of existing unsignalized crosswalks- There are no other unsignalized marked crosswalks on the Crescent Heights Boulevard road section between Santa Monica Boulevard and Fountain Avenue. Traffic Volumes- Traffic surveys shows Crescent Heights Boulevard carries 33,500 vehicles daily, with an AM peak of 2, 192 vehicles per hour and PM peak of 2,257 vehicles per hour. 6

14 Testing Methodology The RRFB was evaluated by measuring the motorists' yielding rates for pedestrians crossing, the braking distances from the crosswalk, and the frequency of abrupt braking. Before and after RRFB studies were conducted to show if the device improved the approaching motorists' awareness of pedestrians intending to cross the street. Data was collected at three test locations (Santa Monica/Westmount, Santa Monica/Orange Grove and Crescent Heights/Norton) in September and November of 2012, and July, August, September and November of A team of three technicians was utilized along with volunteers to assist with the staged pedestrian crossings. All members participating in the studies wore plain clothing and communicated with hand signals along with illumination from cell phones used for nighttime hand signals. The evaluation team was inconspicuous to the motorists approaching the crosswalk. Evaluations were conducted during the weekdays and weeknights. The daytime studies were conducted between 11am and 4:30pm, when the traffic was free flowing and the daylight was available. The nighttime studies were held between 7:30pm and 10:30pm, when the traffic was free flowing and after the dusk times. The sunset time changes with the seasons. The traffic queue or backup from traffic signals downstream from the test RRFB crosswalks on Santa Monica Boulevard and Crescent Heights Boulevard varied throughout the day and early evenings. At times, there is very limited free flowing traffic at the crosswalk which inhibits the data collecting. 200 staged pedestrian crossings and observations were conducted at each RRFB crosswalk location. One "before RRFB installation" day and night session and one "after RRFB installation" day and night session were conducted at each location. Each session consisted of 50 staged crossings and observations (25 for each approach of the crosswalk). The following behavior of the driver in the first vehicle (Motorist A) closest to the crosswalk and the second driver in the abutting travel lane (Motorist B) reaching the crosswalk were observed and recorded to determine: If the driver closest to the crosswalk (Motorist A) yielded or did not yield to the pedestrian, 7

15 The distance in advance of the crosswalk at which Motorist A applies the brakes, If the Motorist A stopped at the yield bar (typically located 25 feet or more from the crosswalk), If Motorist A braked abruptly If the driver in the abutting travel lane (Motorist B) stopped for the pedestrian If Motorist B travelling in the abutting lane stopped at the yield bar If Motorist A and/or B did not stop for pedestrians, were they distracted or on a cell phone. If other motorists attempted to pass a stopped or yielding vehicle Auxiliary pedestrian observations conducted including the following: Type of Pedestrian crossing (Adult, Senior, Children, Disabled, Cyclist) If the pedestrian pushed the RRFB button before crossing, Yielding Observations An approaching motorist was recorded as yielding to a pedestrian if the vehicle slowed or stopped to allow a pedestrian to cross. Motorists were recorded as not yielding if the vehicle passed in front of the pedestrian. The motorists not yielding would have sufficient reaction time and distance to stop for the crossing pedestrian based on standards established by the California Highway Design Manual. The Highway Design formula considers driver reaction time, deceleration rates, and posted speed limits for a motorist to safely stop. This formula can be applied to a motorist yielding for a crossing pedestrian. In order to observe yielding distances, cones were placed at 50 foot intervals starting from the crosswalk (referenced as 0 feet) and extended to the stopping distance determined by the Highway Design formula. The intervals were marked by placing cones on the sidewalk. The cones were not visible to the motorists because they were blocked by trees, parked vehicles and other fixtures in the public-right-way. The posted speed limits at Santa Monica/Westmount and Crescent Heights/Norton are 35 miles per hour. The 85th percentile speeds are 34 and 39 mph, respectivelt The posted speed at Santa Monica/Orange Grove is 30 miles per hour, with an 85t percentile speed of 32.mph. Based on the Highway Design formula and the prevailing speeds, the stopping distance was determined to be 250 feet for the Santa Monica/Westmount and Crescent Heights/Norton crosswalks and 200 for the Santa Monica/Orange crosswalk. Pedestrian crossings were staged utilizing specific protocol to ensure consistency in data collection. During the before RRFB crosswalk studies, the observer signaled the staged pedestrians to cross as the vehicle reached the designated 250 foot or 200 foot stopping distance mark from the crosswalk. During the after RRFB crosswalk studies, the observer signaled the staged pedestrian to push the button as soon as the vehicle reached the designated stopping distance mark from the crosswalk. 8

16 If other vehicles pulled out of a side driveway, maneuvered to make a turn or if an unforeseen disruption occurred including a pedestrian who started to cross before the stage pedestrian was signaled, the crossing was voided and no data was collected. Once the crosswalk and street section between the observation point and crossing was cleared, the team would resume the data collection. Typically, the observer would wait for the traffic signal upstream from the crosswalk to change from red to green before initiating the staged pedestrian crossing. Motorists that were observed had adequate time to stop safely, and were recorded as either yielding or not yielding. Yield Rates Based on similar studies conducted throughout California, motorist yield rates at unsignalized pedestrian crosswalks can vary within a wide range at different locations. Yield rates provide an insight on pedestrian crossing conditions and comfort level. Below is a chart for characterizing yielding rates. Yield Rates at Uncontrolled Pedestrian Crosswalks Rates Characterization < 50% Undesirable crossing conditions 50-70% Poor crossing conditions 70-80% Marginal crossing conditions 80-90% Good crossing conditions >90% Excellent crossing conditions The characterization of yield rates and associated crossing conditions is generally accepted by municipalities throughout California where similar studies have been conducted. Yielding Distance Two measurements were recorded for vehicle yielding distances. The first included the distance at which the motorists approaching the crosswalk reacted to a staged pedestrian crossing and/or applied their brake. The second included the distance from the crosswalk where the motorists yielded. Because of the inconsistent traffic flows due in part to the backup queues from traffic signals downstream, traffic conditions in West 9

17 Hollywood, the braking distances and yielding distance are both considered to get a better understanding of the RRFB effectiveness. Sudden Braking A motorist was recorded as braking abruptly if the front-end of the vehicle was observed dipping sharply downward. Test Results Overall, the RRFB showed an improvement in motorists' yielding rates at the three test crosswalks. The before RRFB daytime studies Santa Monica Boulevard at Westmount Drive and Orange Grove and Crescent Heights at Norton Avenue crosswalks showed yielding rates above 90 percent. The after daytime studies RRFB showed no significant change with the yield rates. The before RRFB yielding rates at the test locations are rated by California standards to be excellent. Location Daytime motorists' yielding percentage rate at crosswalk Before RRFB After RRFB % Change Santa Monica Blvd. /Westmount Dr. 98% 97% -1% Santa Monica Blvd. /Orange Grove Ave. 98% 96% -2% Crescent Heights/Norton Ave. 92% 96% +4% The before RRFB nighttime yielding rates on Santa Monica Boulevard at Westmount Drive and Orange Grove were at 87 and 84 percent, respectively (good crossing conditions). The before RRFB yielding rates on Crescent Heights Boulevard at Norton Avenue was at 72 percent (marginal crossing conditions). The after RRFB nighttime yielding rates showed improvements ranging from a yielding rate increase from 7 to 20 percent. The after RRFB studies showed excellent nighttime yielding rates of 92 or 94 percent. 10

18 Nighttime motorists' yielding percentage rate at crosswalk Before RRFB After RRFB % Change Location Santa Monica Blvd. /Westmount Dr. 87% 94% +7% Santa Monica Blvd. /Orange Grove Ave. 84% 92% +8% Crescent Heights Blvd. /Norton Ave. 72% 92% +20% During the RRFB after studies, 3 to 8 percent of the motorists did not yield to pedestrians. Of those motorists who failed to yield to pedestrians, 50 percent were observed to be distracted and/or talking on the cell phone. The other 50 percent not yielding appeared to intentionally disregard the pedestrians' right to cross. Location Daytime motorists' abrupt braking occurrences at crosswalk Before RRFB After RRFB Change Santa Monica Blvd. /Westmount Dr Santa Monica Blvd. /Orange Grove Ave Crescent Heights Blvd. /Norton Ave. * 19 N/A *No davtime abrupt braking data was collected for southbound traffic approaching the crosswalk due to southbound motorists coasting towards backed up traffic at Santa Monica/Crescent Heights traffic signal, located approximately 300 feet south of the test location. In addition, the slight slope in the road and anticipated braking for the traffic signal may impact the data collection. I 1

19 Nighttime motorists' abrupt braking occurrences at crosswalk Before RRFB After RRFB Change Location Santa Monica Blvd. /Westmount Dr Santa Monica Blvd. /Orange Grove Ave Crescent Heights Blvd. /Norton Ave The studies show a decrease in abrupt braking occurrences at the crosswalk on Santa Monica Boulevard at Westmount Drive and Orange Grove Avenue. The abrupt braking occurrences data on Crescent Heights Boulevard at Norton Avenue is difficult to pinpoint, but may be attributed to the road slope, and proximity of the traffic signal downstream. Crescent Heights Boulevard has a curb to curb road width of 72 feet. The crosswalk has no median because there is a left turn pocket onto Norton Avenue that provides access into the neighborhood. The other test locations have a double faced RRFB in the median in addition to a RRFB near the curb. Location Daytime motorists' typical braking distances from crosswalk, feet (ft.) Before RRFB After RRFB Change Santa Monica Blvd. /Westmount Dr. 50 to 100 ft. 100 to 150 ft ft. Santa Monica Blvd. /Orange Grove Ave. 50 to 100 ft. 50 to 100 ft. No change Crescent Heights Blvd. /Norton Ave. 100 ft.* 100 to 150 ft. N/A *No daytime braking distance data was collected for southbound traffic approaching the crosswalk due to southbound motorists coasting towards backed up traffic at Santa Monica/Crescent Heights traffic signal. located approximately 300 feet south of the test location. In addition, the slight slope in the road and anticipated braking for the traffic signal may impact the data collection. 12

20 Location Nighttime motorists' typical braking distances from crosswalk, feet (ft.) Before RRFB After RRFB % Change Santa Monica Blvd. /Westmount Dr. 50 to 100 ft. 100 to 150 ft. +50 ft. Santa Monica Blvd. /Orange Grove Ave. 50 ft. 100 ft. +50 ft. Crescent Heights Blvd. /Norton Ave. 50 to 100 ft. 100 ft. +50 ft. The after RRFB night studies showed an increase in braking distances by 50 feet. Daytime percentage of vehicles stopping at yield markings at crosswalk Before RRFB After RRFB % Change Location Santa Monica Blvd. /Westmount Dr. Santa Monica Blvd. /Orange Grove Ave. Crescent Heights Blvd. /Norton Ave. 81% 48% 55% 81% 60% 79% No change +12% +24% Location Nighttime percentage of vehicles stopping at yield markings at crosswalk Before RRFB After RRFB % Change Santa Monica Blvd. /Westmount Dr. 70% 88% +18% Santa Monica Blvd. /Orange Grove Ave. 53% 68% +15% Crescent Heights Blvd. /Norton Ave. 52% 89% +37% 13

21 Pedestrian crossing volumes SAM to 5PM typical weekday Before RRFB After RRFB Change Location Santa Monica Blvd. /Westmount Dr Santa Monica Blvd. /Orange Grove Ave Crescent Heights Blvd. /Norton Ave The studies show approximately 50 percent of the pedestrians are pushing the button to activate the RRFB before crossing. The push button activation rate represents the first pedestrian crossing the road solo or the first in a group. Pedestrians who pushed the button during the flashing phase are not included in data. At nighttime, more pedestrians were observed pushing the button than during the day. Construction and Maintenance of the Rectangular Rapid Flash Beacons Construction In the fall of 2012 the West Hollywood City Council awarded the construction contract to Siemens ITS for CIP 1303, Rectangular Rapid Flash Beacons at Three Intersections. The final construction cost was $50, The work was completed in March Considering this project was a competitively bid Public Works Construction Project, future bids may vary. Based on the range of the 4 bids received for this project, an average per-intersection construction cost of $20,000 should be used for planning future projects. The project required the contractor to furnish a solar powered RRFB system which is fully compliant with all MUTCD guidelines and standards and consist of equipment from the following vendors or approved equal: Carmanah Technologies Corp Spot Devices TAPCO

22 Siemens ITS installed equipment manufactured by TAPCO for the City's project. The following is a summary of the technical specifications for the RRFB Project: 1. General: The RRFB Assembly on each pole shall be comprised of a solar powered pole mounted controller unit, wireless communications, batteries, solar panel, single or bi-directional Flash Bar assemblies, ADA compliant pedestrian push button assemblies, and signage. 2. Beacons: Shall be simple to maintain and allow the replacement of individual rectangular beacons. The light source shall be LED and be highly visible from a minimum of 1,000 feet in advance of the crosswalk during the day. The LED's shall be rated for a minimum of ten (10) years. As noted for the layout at each intersection, the light configuration shall be either single-directional or bi-directional, for notification to motorists approaching from either direction and an LED light shall be positioned on the end of the RRFB assembly facing the crosswalk for notification to pedestrians that the system is active. 3. Flash Bar: The RRFB flash bar shall be constructed of durable and corrosion resistant powder coated aluminum. The bar shall be modular in design; where a damaged portion of the light bar can be easily replaced without having to remove the entire bar from the pole. Fasteners shall be stainless steel and not be visible or accessible to a person standing on the ground. The flash bars mounted on a pole shall be able to be independently aimed to optimize performance in each direction. 4. Beacon Control: The flash pattern, activation duration and any activation schedules shall be determined by the system controller. The system controller shall adjust beacon brightness as outside light levels change between day and night, being brighter during the day and dimming at night. 5. MUTCD Flash Pattern Compliance (now and for any future changes): System shall support online configuration changes such that if MUTCD guidelines call for a new flash pattern, the system can be quickly upgraded. 6. Power: The controller unit shall include a solar assembly with capacity to operate three hundred (300), twenty (20) second activations per day year round. The controller system shall also include a backup battery source capable of running the system for several days in the absence of sunlight while operating at full brightness and at standard usage levels. Batteries shall be readily available from multiple suppliers and non-proprietary. 7. Controller: The controller shall be equipped with an on-board user interface that provides on-site configuration adjustment, system status and fault notification, and system activation information. Configuration options shall allow for variation of flash 15

23 pattern and system flash duration. Flash duration and other in-the-field adjustable settings shall be automatically broadcast to all units in the system. 8. Controller to Controller Communication: The controller shall support wireless communication, allowing the controllers located at both ends of the crosswalk to send wireless contact closures to each other for when the system has been activated, thus eliminating the need for cable trenching. Range shall be at least five hundred (500) feet. Up to 10 operational channels shall be available to allow multiple systems to operate independently within close proximity of each other. All RRFBs associated with a given crosswalk shall, when activated, simultaneously commence operation of their alternating rapid flashing indications and shall cease operation simultaneously. 9. Pedestrian Pushbutton Assembly: The RRFB Crosswalk Lighting System shall be activated by an ADA compliant pedestrian push button that shall incorporate a momentary LED and two-tone audible beep when pressed. The pushbutton assembly shall be POLARA Bulldog Ill or approved equal. 10. Pedestrian Pushbutton Signage: Each Pedestrian Pushbutton Assembly shall include a 9"x12" R10-25 sign to include the message "PUSH BUTTON TO TURN ON WARNING LIGHTS." 11. Pedestrian Crossing Signage: On each pole, the pedestrian crossing signage shall include 30"x30" W11-2 signs, as well as 24"x12" W16-7P signs. On poles containing bi-directional systems, two of each sign shall be installed, back to back. 12. Pole and Footing: The pole and footing shall be designed to support mounting of the single and bi-directional RRFB systems in accordance with the vendor specifications. Pole shall be powder coated or galvanized steel. Shop drawings for the design of the pole and footing shall be submitted to the City Engineer for review and approval. The chart below provides a summary of the configuration for the RRFB Assemblies installed at each of the three intersections: Intersection Santa Monica Blvd at Santa Monica Blvd at Crescent Heights Blvd Westmount Drive Orange Grove Ave at Norton Ave Number of Poles Single Directional RRFB Assembly Bi-Directional RRFB Assembly

24 For each crosswalk, there are two flashing beacon assemblies visible to motorists on each approach. For the intersections of Santa Monica Blvd/Westmount Drive and Santa Monica Blvd/Orange Grove Avenue, the eastbound and westbound traffic are in a divided highway. Therefore a Single Directional RRFB Assembly was installed on the poles, facing the on-coming traffic, on the north and south sides of Santa Monica Blvd. Bi-Directional RRFB Assemblies were installed in the Santa Monica Blvd median islands. Since Crescent Heights Blvd has no center median, the Bi-Directional RRFB Assemblies were installed on the poles located on the sidewalk at the east and west ends of the crosswalk. Maintenance For the first 5 months after activation of the RRFB equipment, City Staff conducted field inspections three times per week at each RRFB location. Items checked during the inspection included: Solar Panels Flashing Beacons Flash Durations Push Buttons Pedestrian Crossing Signs (W1 1-2 and W11-7P) Any malfunctions discovered during the inspections were brought to the attention of Siemens ITS for correction under the contract warranty provisions. During this time, City Staff discovered the solar panels at Santa Monica Blvd/Westmount Drive do not receive enough sunlight to keep the battery continuously charged. This is due to shade from the adjacent tall buildings. The City procured a back-up rechargeable battery. Every two weeks City Staff must charge this battery at City Hall and then swap it out with the one in the field to ensure the RRFB equipment has electricity to continuously operate at Santa Monica Blvd/Westmount Drive. The solar panels at Santa Monica Blvd/Orange Grove Ave and Crescent Heights Ave/Norton Ave receive adequate sunlight and no battery issues have been encountered at these two intersections. In May of 2013, TAPCO provided the City with technology whereby the wireless communication equipment at each intersection sends an immediate alarm message to the City's Traffic Engineering Technician whenever there is a malfunction with the RRFB. This wireless communication system has replaced the three day per week field inspections done by City Staff. alarms have occurred very rarely over the past 6 months. In June 2013, the City entered into an annual maintenance contract with Siemens ITS for quarterly preventative maintenance and on-call services for the RRFBs. The 12-month contract for the three intersections is for a not-to-exceed amount of $10,000. Siemens' Scope of Work for Quarterly Preventative Maintenance Inspections for the RRFBs includes the following : 17

25 Check flasher fault alert, will only appear if there is a problem with the LED flasher(s) Test battery to ensure proper function and capibility Check solar panel status Check Pole mounting hardware Confirm Radio channel for synchronized systems Check nighttime dimming level Check ambient light auto-adust settings Check Automatic light control level Test the system and clear any faulty warnings Check radio status Check activation count over the past 90 days Confirm the number of LED flasher bars connected Check flasher circuitry Confirm flahsing output supplies 70 to 80 periods of flashing per minute Clean housing of all dust, dirt, water, and corrosion Clean all dust, dirt, and bird droppings from solar modules Check connections to ensure all areas are clean and tight Check for system functions mannually in the event of a time clock failure The annual contract cost for Siemens to perform quarterly servces at the three intersections is $1,500 which divides out to $500 per intersection. Siemens' Scope of Work for On-Call services for the RRFBs includes the following: Siemens will respond to requests and reports of damaged or malfunctioning RRFB equipment within 2 hours during normal weekday business hours. Siemens will respond to requests and reports of damaged or malfunctioning RRFB equipment within 2-3 hours for calls made outside of normal weekday business hours. Emergency repairs shall constitute work made necessary to return the flashing beacon to proper operation following a device malfunction, failure, loss of indication, accident damage, construction damage, or any other emergency situation. For each call-out, photos will be taken of any damage and submitted with a written report summarizing the results of examinations and inspection. Reports of problems with the RRFBs can be initiated by calling Siemens' 24-hour number: LIGHTS-ON. Siemens will record all emergency service calls and document all emergency work performed. A quarterly report will be supplied to the City, presenting complete records of all work performed on the City's RRFBs in addition to the status of pending work orders. Reports will be attached to monthly invoices. Siemens employs fully trained Journeymen Linemen, Electricians, and Traffic Signal Technicians to do all repairs. The hourly Labor Costs for Siemens to have an Engineering System Technician respond for On-Call services is $95.00 per hour for Regular Time; $ for Overtime. Additionally Siemens has hourly equipment cost for the Technician's Service Truck of $15.00 per hour. Replacement parts for the RRFB equipment will be charged to the City based on supplier costs and mark-up. 18

26 Summary Before and after RRFB studies were conducted to show if the device improved the approaching motorists' awareness of pedestrians intending to cross the street. Data was collected at three test locations (Santa Monica/Westmount, Santa Monica/Orange Grove and Crescent Heights/Norton) in September and November of 2012, and July, August, September and November of The RRFB was evaluated by measuring the motorists' yielding rates for pedestrians crossing, the braking distances from the crosswalk, and the frequency of abrupt braking. A team of three technicians was utilized along with volunteers to assist with the staged pedestrian crossings. All members participating in the studies wore plain clothing and communicated with hand signals along with illumination from cell phones used for nighttime hand signals. The evaluation team was inconspicuous to the motorists being observed as their vehicles approached the crosswalk. The findings in the report are based on the motorists' reaction to 600 staged pedestrian crossings observed and recorded at the 3 test locations (200 staged before and after RRFB crossings per location). Yielding compliance rates are based on the motorists' response to slow or stop for or disregard a pedestrian crossing the road. The higher the compliance rate, the more comfortable the crosswalk is for pedestrians. Measuring yielding rates along with the braking distance from the crosswalk are important standards when evaluating crosswalk visibility enhancements. The braking distance is useful in determining how far away a motorist is aware of a pedestrian crossing. Longer braking distances compared to shorter braking distances highlights a motorist's awareness of the pedestrian in front of the vehicle. The frequency of a motorist braking abruptly for a crossing pedestrian is also useful in determining the RRFB's effectiveness. The frequency of braking abruptly is another measurement in determining the motorists' awareness of pedestrians crossing in their travel path. 19

27 Conclusions and Recommendations The daytime after RRFB results show no significant change in yielding rates; however, the before daytime yielding rates were at or above 92 percent, considered to be excellent per California standards. The nighttime after RRFB results showed the device improved motorists' yielding compliance rates at crosswalks by 7 to 20 percent. The Crescent Heights/Norton crosswalk showed the most notable nighttime yielding compliance improvement. The yielding compliance rate changed from 72 percent (before the RRFB) to 92 percent after the RRFB (20 percent difference). Staff believes the significant improvement in Crescent Heights/Norton yielding rates is attributed to the lack of pedestrian improvements (including shorter pedestrian crossing distances, a median refuge and bulb-outs). The two RRFB locations on Santa Monica have more pedestrian friendly amenities along with slower vehicle approach speeds. Additional enhancements may have less impact in areas where the existing pedestrian comfort level is significantly better. The studies show an overall significant decrease in abrupt braking at the RRFB test crosswalks, except at the Crescent Heights Boulevard/Norton Avenue location. The Crescent Heights curb to curb width, slope in road and proximity to traffic signals may impact the findings. The nighttime RRFB studies show the motorists increased their braking distance by an additional 50 feet away from the crosswalk at all test locations. The studies suggest the motorists became more aware of the pedestrian at a longer distance. The daytime conditions showed no significant change, except at Santa Monica Boulevard/Westmount Drive where the braking distance increased by 50 feet. The results suggest the RRFB installation at unsignalized crosswalks may improve the pedestrian comfort level. The before and after studies show an increase in crossings ranging from 10 to 37 percent. The studies show approximately 50 percent of the pedestrians are pushing the button to activate the RRFB before crossing. Continued outreach in pedestrian and motorist education will improve the push button rate. For consistency, pedestrian familiarity and maintenance considerations, the RRFB should be considered as alternative at the other non-signalized locations Citywide. The RRFB is an effective crosswalk visibility enhancement. The device is a costeffective alternative for non-signalized crosswalks, especially at locations where full traffic signals are not warranted. 20