ENGINEERING MEMORANDUM

ENGINEERING MEMORANDUM January 8, 2018 TO: FROM: SUBJECT: City Council Mike Payne, City Engineer RECOMMENDATIONS OF THE TRANSPORTATION COMMITTEE: Second reading and public hearing on a proposed ordinance requiring Eastwood Avenue to become a connecting arterial street at S. Fremont Street such that S. Fremont Street would stop for Eastwood Avenue. (File Ordinance No. 2017-710) Relates to Strategic Plan Strategic Goal - Infrastructure Improve traffic and roadway safety. Executive Summary The Transportation Committee recommended November 8, 2017 to forward the action below to the City Council for implementation: Eastwood Avenue to become Connecting Arterial at S. Fremont Street such that S. Fremont Street would stop for Eastwood Avenue (4-1 vote). This item was introduced on November 27, 2017 and a public hearing was scheduled for proposed File Ordinance 2017-710 for the January 8, 2018 Council Meeting. City Recommendation The City s recommended course of action is to deny the request for stop or yield signs at this intersection as the criteria established for stop or yield signs is not met as outlined in the Transportation Committee packet. Suggested Motion I move to defeat File Ordinance No. 2017-710. Background The Engineering Division completed a traffic study of the intersection of Eastwood Avenue and South Fremont Street upon resident request ahead of the November 8, 2017 Transportation Committee meeting. The Transportation Committee voted 4-1 opposed to the Engineering Division s recommendation to deny stop signs, but rather approve stop signs on the higher volume 1

South Freemont Street approaches. Signing changes are estimated to cost approximately $150. The staff report and draft meeting minutes related to this item are attached. Options Adopt File Ordinance No. 2017-710, thus approving the recommendation supported by the Transportation Committee. Amend File Ordinance No. 2017-710 before adoption. Defeat File Ordinance No. 2017-710, thus accepting the City recommendation to do nothing and leave the current uncontrolled intersection. Analysis Staff conducted a traffic study and provided recommendations to the Transportation Committee based on results from the study. The Transportation Committee previously established criteria of a minimum of 1,000 vehicles per day entering an intersection to consider installing a yield sign or a minimum of 2,000 vehicles per day entering an intersection to consider installing a stop sign. This intersection averages 680 vehicles per day and has been operating safely. Furthermore, it doesn t make sense to stop the higher volume leg of the intersection if the Council wishes to install traffic control. Currently 79 percent of the intersection volume is using South Fremont Street, and requiring those drivers to stop could lead to drivers disobeying the traffic control devices. The Committee voted against the Engineering Division s recommendation. The staff report and draft meeting minutes related to this item are attached. Conclusions Stop signs should not be used for speed control and requiring 80 percent of traffic entering the intersection to stop for no apparent reason will create more problems than it solves. Requiring South Fremont Street traffic to stop for Eastwood Avenue will be counterintuitive to the traveling public and does not follow traffic control guidelines previously established by the Transportation Committee. This intersection has been operating safely as an uncontrolled intersection for decades. In addition various studies have shown that unwarranted stop signs result in higher mid-block speeds after the stop sign is placed due to motorists trying to make up lost time. Restated City Recommendation The City s recommended course of action is to deny the request for stop or yield signs at this intersection as the criteria established for stop or yield signs is not met as outlined in the Transportation Committee packet. cc: Mark Freitag, City Manager Maggie Darr, Acting Assistant to the City Manager Paul Woodard, Director of Public Works 2

CITY OF JANESVILLE ORDINANCE NO. 2017-710 An Ordinance amending the list of streets required to stop to other designated streets with a penalty as provided in Section 10.04.020. THE COMMON COUNCIL OF THE CITY OF JANESVILLE DO ORDAIN AS FOLLOWS: Section 10.16.020 of the Code of General Ordinances of the City of Janesville is hereby amended by adding the following: Eastwood Avenue (at S Fremont Street) ADOPTED: APPROVED: Mark A. Freitag, City Manager ATTEST: David T. Godek, City Clerk-Treasurer Motion by: Second by: Councilmember Aye Nay Pass Absent Conley Farrell Gruber Jorgensen Marklein Williams Wolfe APPROVED AS TO FORM: Wald Klimczyk, City Attorney Proposed by: City Engineer Prepared by: Engineering Division j:\agenda review\approved agenda items\2018\01-08-18\ob1 - ord no 2017-710.doc

RECORD OF THE TRANSPORTATION COMMITTEE 8 NOVEMBER 2017 PAGE 1. QUARTERLY MEETING OF THE TRANSPORTATION COMMTTEE OF THE CITY OF JANESVILLE, HELD IN THE CITY HALL COUNCIL CHAMBERS, ON NOVEMBER 8, 2017 AT 4:30 P.M. THE MEETING WAS CALLED TO ORDER AT 4:30 P.M. COMMITTEE MEMBERS PRESENT: BARRY BADERTSCHER, LISA BUCHANAN, MEGHAN FREDEL, ELLYN SUBAK, AND PAUL WILLIAMS WERE PRESENT. STAFF MEMBERS PRESENT: DUERR. KARISSA CHAPMAN GREER, JIM HOLFORD, AND MARGARET AGENDA ITEMS: A. ROLL CALL B. MINUTES Meeting of August 9, 2017. Said minutes were approved. C. STOP SIGNS/YIELD SIGNS 1. Eastwood Avenue & S Fremont Street Karissa Chapman Greer presented the Engineering Division s recommendation to deny the request for stop or yield signs at this intersection. Kevin Schafer of 56 S Fremont was present to speak in favor of control at this location. Mr. Schafer believes that traffic slowed down when counters were present. In his opinion, Craig High School students drive much faster than the data collected, stating 50-70 mph. Mr. Schafer presented a signed petition from the residents of his neighborhood. The committee discussed the similarities at the intersection of Martin and Eastwood, where Martin stops for Eastwood. Mr. Schafer added that there was a recent accident since the study was done, where a student hit a parked car while texting and driving. Committee Member Badertscher suggested police presence in this area. Deputy Chief Holford made note, and shared that lunch hour is when the high school students keep the police department very busy and unable to monitor the intersection during critical times. DC Holford also noted that even without signage, an accident due to failure to yield at the intersection would result in citation. The committee again discussed the similarities of Martin & Eastwood, and the desire to install stop signs on Fremont, rather than the lower volume street, Eastwood. Ms. Greer pointed out that this would not be typical engineering practice, as you would typically not install control on the major volume street, but rather on the minor. Committee Chairperson Badertscher stated that if signs were installed, the same problem would move to a nearby street. Mr. Schafer indicated that the majority of vehicles were speeding through the intersection. Ms. Greer noted that nine people sped through the intersection at 30 or more mph during the p.m. peak hour, but that only 2 of them were going greater than 35mph during that hour (3p.m.-4p.m.) both days of the count, and that the 85 th percentile speeds northbound and southbound on Fremont were 30mph. There was discussion that it may be likely that they are the same nine people speeding every day. Ms. Greer reminded the committee that stop signs are not typically used for speed control, and that installing control when not warranted can lead to drivers disregarding the control. Committee Vice Chairperson Williams made a motion to approve stop signs on Fremont Street at Eastwood Avenue. Committee Chairman Badertscher seconded and the vote was 4-1-0. Committee Member Subak was opposed. D. COMMITTEE ANNOUNCEMENTS AND/OR QUESTIONS The meeting was adjourned at 5:02 p.m. The next regularly scheduled meeting is 4:30 Wednesday, February 14, 2017. \\petey\cojhome\development\engineering\traffic & parking\transportation committee\minutes\2017\trans_min_november_2017.doc

CITY OF JANESVILLE TRANSPORTATION COMMITTEE 8 NOVEMBER 2017 C. STOP SIGNS/YIELD SIGNS 1. EASTWOOD AVENUE & S FREMONT STREET REQUESTOR: ADDRESS: REQUEST: Kevin Schafer 56 S Fremont Street I am deciding to make a formal request for a Stop or Yield Sign. The police department just put a speed radar sign about an hour ago A few neighbors have said they agree with me and would sign a petition. Everyone is happy to see this STREET CLASSIFICATION: EXISTING CONTROL: Both = Local No Control Existing Criteria ENTERING VOLUME: 680 Vehicles/Day 1,000 Vehicles/Day (Yield) 2,000 Vehicles/Day (Stop) 4,000 Veh/Day (All-Way Stop) VOLUME SPLIT: S Fremont Street = 79% Eastwood Avenue = 22% TRAFFIC SPEEDS: S Fremont Street (mid-block): Northbound; 85 th Percentile = 30 mph, Avg = 24 mph Southbound; 85 th Percentile = 30 mph, Avg = 25 mph Eastwood Avenue (mid-block): Eastbound; 85 th Percentile = 22 mph, Avg = 18 mph Westbound; 85 th Percentile = 24 mph, Avg = 21 mph CRASHES: 2 accident reports on file (+5 year time period). The one in 2012 was a failure to yield at the intersection. The one in 2015 was due to icy conditions and an eastbound to southbound driver hit a parked car +/- 125 ft south of the intersection. j:\development\engineering\traffic & parking\transportation committee\meeting packets\2017\november, 2017\item c 1 eastwood ave & s fremont st.doc

CITY OF JANESVILLE TRANSPORTATION COMMITTEE 8 NOVEMBER 2017 C. STOP SIGNS/YIELD SIGNS 1. EASTWOOD AVENUE & S FREMONT STREET (Continued) VISION CHARACTERISTICS: Fair good (slightly above average) despite mature trees and extended porch area in northeast quadrant. GRADE & GEOMETRICS: Flat right-angle cross intersection. UNIQUE CHARACTERISTICS: Intersection is one block west of a Connecting Arterial (Randall) and one block east of a T intersection where Eastwood Ave starts/ends. LAST TRANSPORTATION COMMITTEE REVIEW: N/A SUPPORTING DOCUMENTS: Attachment #1 = Location/entering volume map Attachment #2 = E-Mail request from Kevin Schafer Attachment #3 = Neighborhood Petition Attachment #4 = City of Janesville Improving Neighborhood Traffic Safety information ENGINEERING RECOMMENDATION: Deny the request for stop or yield signs. The intersection falls well short of even yield sign criteria and has been operating safely as an uncontrolled intersection. j:\development\engineering\traffic & parking\transportation committee\meeting packets\2017\november, 2017\item c 1 eastwood ave & s fremont st.doc

Chapman, Karissa Subject: FW: Eastwood & Fremont From: Ryan, Dennis Sent: Tuesday, October 03, 2017 7:38 AM To: 'Kevin Schafer' Cc: Hiers, Tim Subject: RE: Eastwood & Fremont Kevin; This e mail can serve as your formal request and we will schedule and conduct a study for the next Transportation Committee Meeting (4:30 Wednesday, November 8). You will be invited to the meeting and you can invite your neighbors to the meeting as well. If you want to expand on your request and/or put together a petition, we would include that in our report if we have it by late October. Thanks Dennis From: Kevin Schafer [mailto:oldmanschaf05@hotmail.com] Sent: Monday, October 02, 2017 10:27 PM To: Ryan, Dennis Subject: Re: Eastwood & Fremont Hey Dennis, Yes, I am deciding to make a formal request for a Stop or Yield sign. The police department just put a speed radar sign about an hour ago and are sitting in front of my house. A few neighbors have said they agree with me and would sign a petition. Everyone is happy to see this. Please let me know what I have to do next with a petition or papers. You can e mail me back or call my cell 708 712 5985. Thanks Again, Kevin Schafer From: Ryan, Dennis <ryand@ci.janesville.wi.us> Sent: Wednesday, September 27, 2017 3:21 PM To: oldmanschaf05@hotmail.com Cc: Chapman, Karissa Subject: Eastwood & Fremont Kevin Schafer; Attached is the information about traffic and frequently asked questions I mentioned. If you decide to make a formal request for a stop or yield after reviewing the attachment, you can e mail me back and address your request to the Transportation Committee. Let me know if you have any other questions. 1

Improving Neighborhood Traffic Safety Frequently Asked Questions City of Janesville Transportation Committee Recently, the City of Janesville Transportation Committee suggested the Engineering Division share information with the community regarding traffic safety, speeding, and the use of stop signs. Please find below general information about these topics. For questions, contact the Engineering Division at 755 3171. Janesville residents care a lot about their neighborhoods, especially when it comes to keeping them safe. Concern with traffic safety and speeding often came up as an area of significant concern at neighborhood meetings. The City receives many questions about whether installing stop signs, traffic signals, or changing the speed limit might help to improve traffic safety. What often seems like a simple way to make streets safer may in fact not be and that s because of good old fashioned human behavior. We have compiled the following frequently asked questions and answers regarding traffic safety: Will the City install speed limit signs on my neighborhood streets? State law has set the speed limit on residential streets at 25 MPH whether posted or not. In most residential areas in Janesville, the speed limit is not posted, but all Wisconsin drivers are expected to know it is 25 miles per hour. The 25 MPH limit may be posted; 1) to indicate a change when entering residential areas from a higher speed (35 MPH or higher) major street, or 2) when the residential street is classified as an arterial. This reduces the number of signs in neighborhoods because numerous signs can become unsightly and generally have no real effect on speeds. What can be done about speeding in my neighborhood? The Police Department works hard to monitor areas of the city where residents have contacted the Department with a concern. Ultimately, while Police and Engineering are happy to investigate concerns about speeding and neighborhood traffic, there is no substitute for driver caution and common sense. Setting reasonable limits, posting speed limit signs where justified, enforcement, and public education can be more effective than changing a speed limit or installing a stop sign where one is not justified. The Police Department also has a speed readout trailer which can be placed at problem locations. Contact the Police Department at 608/755 3100 for more information.

Improving Neighborhood Traffic Safety Frequently Asked Questions City of Janesville Transportation Committee Why doesn t the City lower the posted speed limit to slow traffic on arterial and collector streets? A common belief is that drivers comply with the speed limit where it is posted. The facts indicate otherwise. Studies conducted throughout the country show that drivers are influenced more by the surface of the roadway and existing traffic conditions than by the posted speed limit. Since studies show that most motorists drive at a speed which they consider to be reasonable and safe under existing roadway conditions, the more reasonable the speed limit is, the more likely it will be complied with. If a posted speed limit is lower than is needed to travel safely, many drivers will simply ignore the signs and the average speed will likely be higher. In 1994, the City increased speed limits on some major streets to more accurately reflect prevailing speeds. Actual driver speeds on those streets, however, remained nearly the same as before the posted limits were changed. If the speed limit is set artificially low, some drivers will stay with the posted limit. This generally causes conflict between faster and slower vehicles, creates few gaps in traffic when pedestrians can cross safely, and it becomes difficult for pedestrians to judge the speed of approaching vehicles. Studies indicate where uniformity of speed is not maintained, the frequency of accidents generally increases. Therefore, unrealistically low limits can create a false sense of security for neighborhood residents and travelers, and may actually result in reduced safety and caution. Will more stop signs slow traffic on our street? Residents may request a stop sign or signal believing that it will help solve a speeding problem. However, stop signs installed in the wrong places usually create more problems than they solve. Installing a stop sign to slow traffic can result in; 1) high incidences of intentional violations, 2) higher mid block speeds after the stop sign is installed, 3) traffic diverting to other roadways, and 4) increased fuel consumption and air pollution. Also, some drivers and particularly bicyclists tend to disregard stop signs, especially where a stop does not appear to be necessary. Motorists on through streets usually pay less attention to traffic on stop signcontrolled intersecting streets. When a less attentive motorist meets a stop sign ignoring one, there is a greater potential for accidents. For these reasons, the Federal Manual on Uniform Traffic Control Devices states Yield or Stop signs should not be used for speed control. Will the City install speed bumps on my residential street? No. Speed bumps can cause problems with snow plows, snow and ice removal, street cleaning, emergency vehicles, and non vehicle traffic (motorcycle, moped, and bicycle). Some unsuspecting motorists may drive over the bumps at high speeds creating vehicle damage and excessive noise. Others may speed up between the bumps to make up lost time or divert to other streets to avoid the bumps, transferring a speeding problem from one area to another. Because they can be a hazard to the unwary, a challenge to the daredevil, and a disruption to the movement of emergency vehicles, speed bumps are not used on Janesville s residential streets.

Improving Neighborhood Traffic Safety Frequently Asked Questions City of Janesville Transportation Committee Why are there intersections without stop or yield signs? Intersections that are uncontrolled (that is, where there are no stop signs, yield signs, or traffic signals) may appear unreasonably dangerous. However, Stop and Yield signs are installed to provide safe traffic control at an intersection when certain conditions are met. Studies have shown that an uncontrolled intersection with low traffic volumes and speeds will experience the same or lower accident rates than controlled intersections. Once stop or yield signs are installed, speeds on the through street will likely increase because the driver assumes traffic from the other direction will comply with the traffic control. Whereas, if neither of the approaches to a residential intersection is controlled, both directions of travel tend to slow down. Drivers begin to question traffic control devices that appear not to be needed. Therefore, neighborhood streets with low traffic volumes tend to operate best under the State Rightof Way law where one vehicle is required to yield but both vehicles have an obligation to enter the intersection with caution. Why doesn t the City install Children At Play signs in my neighborhood? The Federal Manual on Uniform Traffic Control Devises does not recognize these signs as proper traffic control devices. They create a false sense of security for parents and children who believe the signs provide an added degree of protection, which they do not and cannot provide. Motorists, particularly local ones, pay little attention to them especially after they end up installed in all neighborhoods with children. The use of these signs has long been abandoned by most jurisdictions since the signs are a direct and open suggestion that playing in the street is acceptable behavior. Does the occurrence of a traffic accident mean something should be changed with the roadway or traffic control device? No. As tragic and unfortunate as accidents are, the sad fact is they occur on a regular basis in otherwise perfect conditions. Humans inherently make mistakes, and many accidents are caused by inattentiveness, impatience, influence of alcohol or other drugs, or poor judgment. We keep track of accidents city wide every year, and there are typically about 1,400 reported accidents each year. The reports are filed by location in the Engineering Division and are used to evaluate problem locations and potential improvements. How do I make a request for a traffic control change (yield, stop, all way stop, traffic signals, speed limit change, adult crossing guard, etc.)? When the Engineering Division receives a request to install signs, signals, or change a speed limit, they study and carefully evaluate the traffic situation. They examine issues like; roadway conditions, traffic volumes and speed, pedestrian crossings, vision characteristics, and crash history. If a change appears justified (meets established criteria), the request is considered by the Transportation Committee and ultimately the City Council. Transportation Committee meetings are held quarterly in February, May, August, and November.