Alabama Street Corridor Road Diet Feasibility Study & Safety Improvements Chris Comeau, AICP, Transportation Planner Bellingham Public Works (360) 778-7946 10/28/2011
Bellingham adhered to the following set of instructions provided via email from WSDOT dated June 7, 2011: What We Need from You - Based on the programs available to your city, please do the following: 1) Review your data. Attached you will find a spreadsheet with specific details about what Intersections and Corridors you are eligible to include in your proposal. You will also find a worksheet with all of your intersection-related fatal and serious injury collisions from 2004-2008. 2) Based on your data, your eligible projects, and knowledge of your road network, develop a safety funding proposal. This proposal should include a separate entry for each proposed project you are applying for (intersection, corridor, or citywide). Each project should include: a) The intersection or corridor being addressed; or the locations being addressed in a citywide effort. Include the intersecting street names, as well as noting which, if any, state highways are included. b) The type of improvement(s) being made (if you are proposing something you think might be questioned in our review, please provide data for justification to help us understand your approach). c) Your legislative & congressional districts affected by the proposed improvements. d) Your project schedule key dates (Begin Design, Environmental Documents Approved, R/W Approved, Contract Advertised, Open to Traffic). e) What the cost breakdown of your funding would be between PE, RW, and CN, along with the total cost of the improvement(s) and the amount being requested (you are able to apply for 100% of the funding needed). f) Who the contact point will be for the project. g) For projects including state highway locations, please include a letter of concurrence from your region WSDOT office. Please contact your region Highways & Local Programs engineer to begin that process and to involve the correct individuals. h) For projects involving a shared corridor, please submit those projects as a joint proposal including both cities. Please include some description of how the project will move forward, the roles of each city in that process, etc. (If a city is submitting both a shared corridor project AND other projects, please submit those in 2 separate proposals. Submit one proposal which includes only your city projects, and a separate proposal which includes any shared projects.) 3) Submit your proposal directly to me via email by 10/28/11. 4) H&LP will review your proposal. A benefit/cost analysis will be done for all Intersection and Corridor projects, based on total project cost, which will then be compared to other invitational projects. Citywide projects will be evaluated for meeting the criteria (low-cost, widespread, and addressing intersection-related collisions). A final on-site review for projects may also be scheduled prior to final notification of award. Final Details Please note that this is the city safety program for 2009-2015. So unless additional funding becomes available, this will be the only city safety program funding available during that time period. As noted above, proposals are due back to me no later than 10/28/11. Internal processing of proposals and benefit/cost analysis will occur in November and December so that award letters can go out by the end of the year. The design phase of the projects must be authorized by September 1, 2012. And all funds must be obligated by June 30, 2015. (Any remaining funds after that date will be reprogrammed to other priority projects.) Again, please read the attached document for more detailed program information and additional requirements (number of projects to be submitted, etc.). If you have any questions as you develop your proposal, please do not hesitate to contact me. Matthew Enders, P.E. WSDOT Highways & Local Programs (360) 705-6907 Matthew.Enders@wsdot.wa.gov City of Bellingham Alabama Corridor Road Diet Feasibility Study and Safety Improvements Page 2
City of Bellingham, WA Alabama Street Corridor Feasibility Study & Safety Improvements Legislative District: 42 nd District - Senator Doug Ericksen, Representative Jason Overstreet, and Representative Vincent Buys Congressional District: 2 nd District U.S. Senator Patty Murray, U.S. Senator Maria Cantwell, U.S. Representative Rick Larsen Possible Funding Opportunity The Washington State Department of Transportation (WSDOT) has invited the City of Bellingham to apply for federal grant funds for safety improvements to the Alabama Street corridor, which has been identified as project candidate based on collision history. Collision History According to WSDOT collision data from 2004-2010, the Alabama Street corridor experienced: 1 fatal 2 serious injury 24 evident injury, and 66 possible injury collisions 93 total collisions with known or possible injuries Project Summary The Alabama/F Street corridor is a heavily traveled 4-lane east-west secondary arterial that bisects the Lettered Streets, Sunnyland, Roosevelt, and Alabama Hill Neighborhoods in Bellingham and divides the city from north to south between Bellingham Bay and Lake Whatcom (See Map 1, next page). Current traffic volumes exceed 20,000 vehicles per day in places and 85 th percentile speeds average 38.5 mph compared to the posted 35 mph speed limit. According to WSDOT collision data for years 2004-2010, there have been 93 collisions with known or possible injuries along the Alabama Street corridor. Whatcom Transportation Authority (WTA) provides high-frequency (15-minute) transit bus service on Alabama between Cornwall and Woburn on the Gold GO Line (See Map 3, Route 331). The Gold GO Line is the most productive WTA transit route in Bellingham and connects downtown Bellingham to important retail shopping centers and the northern WTA transit hub at Cordata Station. Evening rush hour traffic congestion on Alabama has begun to impact on-time service performance for Route 331. Bellingham is currently engaged in the creation of a Pedestrian Master Plan and the residents of Neighborhoods served by the Alabama Street corridor have overwhelmingly identified traffic volumes, vehicles speeds, and lack of dedicated pedestrian crosswalks as a barriers to north-south mobility for pedestrians, bicyclists, and transit riders needing to access Route 331 bus stops. Bellingham is requesting $1,467,000 in safety funding for a two-phase project requiring an in-depth feasibility study leading to construction of either a 1.75-mile road diet or, if considered unfeasible, several location-specific safety and mobility improvements for all users of this important corridor. A Phase 1 feasibility study would require $50,000 in preliminary engineering funds and Phase 2 would require $1,417,000 in design, engineering, and construction funds for a 1.75-mile corridor road diet conversion from 4- to 2-lanes with center left turn lane and bicycle lanes (See cost estimates, page 11). This project would implement many of the safety improvement methods recommended in Target Zero. City of Bellingham Alabama Corridor Road Diet Feasibility Study and Safety Improvements Page 3
Washington State Strategic Highway Safety Plan 2010 Target Zero Priorities, Objectives, & Strategies Priority Level One: Speeding (page 31) 1.3.B. Use Engineering measures to effectively manage speed 1.3.C. Build partnerships to increase support for speed reducing measures (P) = Proven Method (T) = Method Tried (E) = Experimental Priority Level Two: Intersections (pages 48-50) 2.5.A. Reduce motor vehicle collisions at intersections 2.5.B. Reduce the occurrence of existing driveways, and discourage the use of new driveways, within or adjacent to intersections City of Bellingham Alabama Corridor Road Diet Feasibility Study and Safety Improvements Page 4
2.5.D. Improve driver awareness of intersections (P) = Proven Method (T) = Method Tried (E) = Experimental 2.5 E. Reduce vehicle collisions involving pedestrians and bicyclists at intersections Priority Level Three: Pedestrians (pages 66-69) 3.3. A. Improve pedestrian and motorist safety awareness and behavior City of Bellingham Alabama Corridor Road Diet Feasibility Study and Safety Improvements Page 5
3.3. B. Improve pedestrian facilities 3.3. C. Improve safety for children walking to school 3.3. D. Improve data and performance measures (P) = Proven Method (T) = Method Tried (E) = Experimental Priority Level Four: Bicyclists (page 77) 4.0 Strategies to Reduce Collisions Involving Bicyclists State Bicycle Facilities & Pedestrian Walkways Plan strategies focus on: Making connections and improving bicycle facilities in urban areas where housing and employment mix. Reducing barriers to bicycling on higher speed, higher volume arterials. Improving and increasing connected, separated paths and trails. City of Bellingham Alabama Corridor Road Diet Feasibility Study and Safety Improvements Page 6
Map 1. Alabama/F Street Corridor Bisecting Neighborhoods Bellingham Bay to Lake Whatcom City of Bellingham Alabama Corridor Road Diet Feasibility Study and Safety Improvements Page 7
Existing Conditions The Alabama/F Street corridor is a heavily traveled east-west secondary arterial that bisects the City of Bellingham from Bellingham Bay to Lake Whatcom and divides the city almost evenly from north to south (See Map 2). 2010 traffic volumes ranged from 3,800 vehicle per day on F Street in the Old Town area near the Waterfront District, 7,700 near Cornwall Avenue, 13,100 near James Street, 18,700 at Interstate 5, and 18,600 near Woburn Street. Several major arterial streets with significant traffic volumes intersect the Alabama corridor and provide important connections to other places. Map 2. 2009 Vehicle Traffic Volumes Recorded on Alabama/F Street Corridor Bellingham Bay to Lake Whatcom Travel Demand Forecast Analysis City transportation planners will work with the Whatcom Council of Governments (WCOG), which, as the Regional Transportation Planning Organization (RTPO), maintains a regional travel demand model for the arterial network and has micro-simulation software for intersection analysis. Forecast data indicates the following traffic volume increases on Alabama and intersecting arterials (2012 2032). Travel Demand Forecasts of Vehicles Per Day (VPD) for Alabama Street and Intersecting Arterial Streets (2032) Alabama Street Corridor between Cornwall Avenue and Yew Street (2032) "F" Street west of Cornwall = 12,708 vpd Alabama east of Cornwall = 17,629 vpd Alabama west of Orleans = 23,583 vpd Alabama east of Orleans = 21,002 vpd Alabama west of Woburn = 19,876 vpd Alabama east of Woburn = 17,306 vpd Major Arterial Cross Streets along the Alabama Street corridor (2032) Cornwall north of Alabama = 14,945 vpd Cornwall south of Alabama = 9,741 vpd James north of Alabama = 17,573 vpd James south of Alabama = 18,768 vpd Orleans north of Alabama = 10,503 vpd Pacific south of Alabama = 5,096 vpd Woburn north of Alabama = 20,369 vpd Woburn south of Alabama = 13,723 vpd Yew St south of Alabama = 3,754 vpd Currently, the posted speed limit is 35 mph along the entire length of Alabama Street, and the 2009 recorded average and 85 th -percentile speeds are shown in Table 1., below. City of Bellingham Alabama Corridor Road Diet Feasibility Study and Safety Improvements Page 8
Table 1. Average and 85 th Percentile Vehicle Speeds Recorded Along Sections of Alabama Street Corridor in 2009 Location/Cross Street on Alabama Travel Direction/Lane Count Date Posted Speed Average Speed 85 th Percentile Speed West of St Paul Westbound 1 4/29/2009 35 mph 35 mph 39.6 mph West of St Paul Westbound 2 4/29/2009 35 mph 32 mph 38.4 mph West of St Paul Eastbound 1 4/29/2009 35 mph 33 mph 38.0 mph West of St Paul Eastbound 2 4/29/2009 35 mph 32 mph 37.6 mph West of Michigan Westbound 1 5/27/2009 35 mph 35 mph 40.8 mph West of Michigan Westbound 2 5/27/2009 35 mph 34 mph 39.2 mph West of Michigan Eastbound 1 5/27/2009 35 mph 32 mph 37.6 mph West of Michigan Eastbound 2 5/27/2009 35 mph 34 mph 40.0 mph East of James Westbound 1 6/23/2009 35 mph 32 mph 36.2 mph East of James Westbound 2 6/23/2009 35 mph 33 mph 38.0 mph East of James Eastbound 1 6/23/2009 35 mph 32 mph 36.3 mph East of James Eastbound 2 6/23/2009 35 mph 33 mph 38.0 mph East of Cornwall Westbound 1 6/23/2009 35 mph 35 mph 39.6 mph East of Cornwall Westbound 2 6/23/2009 35 mph 34 mph 39.2 mph East of Cornwall Eastbound 1 6/23/2009 35 mph 33 mph 37.8 mph East of Cornwall Eastbound 2 6/23/2009 35 mph 34 mph 39.2 mph Cumulative Total 33.3 mph 38.5 mph Street Profile and Access The existing Alabama Street profile from Cornwall Avenue to Yew Street includes 5-foot sidewalks, street trees in some sections, concrete curbs and gutters, and 2 westbound and 2 eastbound vehicle travel lanes with dedicated left-turn lanes at major signalized intersections. The physical space available on Alabama Street is 44-feet wide from curb face to curb face with two 11.5-foot outside travel lanes and two 10.5-foot inside travel lanes (See Figure 1, below, and Figure 2, next page). Several mid-block alleys and driveways also access Alabama Street without the benefit of a center twoway left-turn lane or dedicated left-turn pockets. Vehicles attempting to make left turns into alleys or driveways must wait for a gap to cross two on-coming lanes of 35 mph traffic, which sometimes leads to poor decisions, high risk maneuvers by drivers, and many collisions along the corridor. Figure 1. Existing Alabama Street Corridor Profile and Access From Side Streets, Alleys, and Driveways City of Bellingham Alabama Corridor Road Diet Feasibility Study and Safety Improvements Page 9
Figure 2. Existing Alabama Street Corridor Profile and Proposed Alternative 1. Road Diet Profile Please Note: Alabama Street width = 44-feet from curb to curb, which is not proposed to change. Existing lanes are approximately 11.5-feet outside, 10.5-feet inside. Proposed lanes are 11-feet, center lane 10-feet, bicycle lanes 6-feet City of Bellingham Alabama Corridor Road Diet Feasibility Study and Safety Improvements Page 10
Public Transit Whatcom Transportation Authority (WTA) provides high-frequency (15-minute) transit bus service on Alabama between Cornwall and Woburn on the Gold GO Line (See Map 3, Route 331). The Gold GO Line is the most productive WTA transit route in Bellingham and connects downtown Bellingham to important retail shopping centers, such as Sunnyland Square, Barkley Village, Sunset Square, and Bellis Fair Mall, as well as Whatcom Community College and the northern WTA transit hub at Cordata Station. The traffic volumes, speeds, and infrequent crosswalk locations on Alabama Street create a significant mobility barrier for pedestrians, transit riders, and bicyclists needing to cross this busy corridor. Vehicle traffic congestion also negatively impacts on-time service performance for WTA busses, which can create inconvenience for both transit-dependent and transit-by-choice riders, which can reduce ridership. The City of Bellingham has made a policy commitment to protect the average speed of WTA transit busses on arterial streets to avoid this type of negative impact to transit service and riders. Map 3. WTA Route 331 Gold GO Line on Alabama/F Street Corridor Bellingham Station to Cordata Station City of Bellingham Alabama Corridor Road Diet Feasibility Study and Safety Improvements Page 11
Pedestrian Safety Concerns Bellingham is currently engaged in the creation of a Pedestrian Master Plan and the residents of Neighborhoods served by the Alabama Street corridor have overwhelmingly identified traffic volumes, vehicles speeds, and lack of dedicated pedestrian crosswalks as a barriers to north-south mobility for pedestrians, bicyclists, and transit riders needing to access bus stops. Table 2. Pedestrian Master Plan Community Survey Locations of Concern Along Alabama Street (St. Claire to Cornwall) Alabama Hill Neighborhood Category Location Cross Street Community Concern Crossing Alabama Yew Too much traffic to safely cross Alabama between Yew and overpass Roosevelt Neighborhood Category Location Cross Street Community Concern Crossing Alabama Moore No defined pedestrian crosswalks Crossing Alabama Queen No defined pedestrian crosswalks Crossing Alabama St. Paul No defined pedestrian crosswalks Crossing Woburn Alabama Too difficult to cross since dedicated right-turn lanes installed Crossing Alabama Undine Lack of pedestrian crossing signal Crossing Alabama Anywhere on corridor High speed traffic not appropriate for street with so many intersections; narrow sidewalks next to curb, no marked crosswalk or lights; difficult to cross Sidewalk Alabama Queen Fearful of walking along Alabama east of Queen with no barrier between sidewalk and high-speed traffic Traffic Alabama James Hard for motorist to see pedestrians crossing, especially at northwest corner Traffic Alabama Yew High traffic volume and speeds; inattention to pedestrians Sunnyland Neighborhood Category Location Cross Street Community Concern Crossing Alabama Cornwall Difficult to cross intersection to get to Whatcom MS or Bellingham HS Crossing Alabama James Difficult to cross intersection to get to Trader Joe s Crossing Alabama Franklin Glad for new flashing crosswalk cars are going really fast but worried that drivers still won t see me and my kids even with flashing crosswalk Crossing Alabama Grant Drivers either do not see or are not paying attention to flashing crossing signal on one bike ride with my kids we watched several cars pass through the crosswalk while the lights flashed before we could safely cross in the crosswalk Crossing and Traffic Alabama Anywhere on corridor Drivers are not looking for pedestrians in crosswalks, traffic is way too close to sidewalk street should be reduced to 2 lanes with a shoulder for bikers and a margin for pedestrians to be safe at a distance from traffic with a center median Traffic volumes and speeds are too high, few crosswalks, no space between fast cars and sidewalk Crossing and Traffic Alabama Anywhere on corridor Crossing Alabama James Traffic does not stop for pedestrians anywhere between Cornwall and James; speeding traffic and crosswalks too far apart; need better street lighting for safety Pedestrian Master Plan consultants and City staff are in agreement that there will be a strong recommendation in the adopted Pedestrian Master Plan for the Alabama Street corridor to be studied for the feasibility of implementing either a road diet conversion or site-specific improvements to safety and mobility for all users of this important corridor from Cornwall Avenue to St Claire Street. A road diet would involve converting the existing 4 vehicle lanes to 2 vehicle lanes and 2 bicycle lanes with a two-way center left-turn lane and could possibly include landscaped medians with adequate turnpockets strategically installed at high-demand intersections. If the feasibility study concludes that the proposed road diet conversion results in more costs and negative impacts to WTA transit operations than benefits to the multi-modal transportation needs of the City and WTA, then site-specific improvements for pedestrian safety, access, and mobility both across and along Alabama Street will be identified and constructed in lieu of the road diet conversion. City of Bellingham Alabama Corridor Road Diet Feasibility Study and Safety Improvements Page 12
Scope of Phase 1 Feasibility Study The proposed feasibility study would require a multi-agency area-wide look at the existing and future land uses, arterial street connections, traffic volumes, signalized intersections, and high-frequency transit service that influences the Alabama Street corridor, including significant redevelopment areas such as the 200-acre Barkley Village, the Sunnyland Square/James Street commercial area, and the 220- acre Waterfront District. Significant coordination will be required with Whatcom Transportation Authority (WTA) to understand the existing and future service needs of the Gold GO Line, which provides high-frequency (15-minute) transit service on Alabama between Cornwall and Woburn. 1.) Consultant, City, and WTA review of current best practices 5 case studies and interviews with engineering staff from U.S. jurisdictions that have implemented road diets on similar multi-lane two-way streets with traffic volumes of 15,000-20,000 or greater with a significant transit service. 2.) City issue of contract to collect turning movement counts at all signalized intersections on the Alabama Street corridor. 3.) Consultant and City qualitative assessment of current access and turning movements at unsignalized intersections and driveways. 4.) Consultant and City qualitative assessment of freight truck volumes, classifications, and frequency. 5.) Consultant and WTA qualitative assessment of WTA transit service frequency and ridership. 6.) Consultant, City, and WTA qualitative assessment of current traffic signal timing, parameters for acceptable cycle length in future conditions scenario, and signal pre-emption for transit. 7.) Consultant and City analysis of all reports for fatal, serious injury, evident injury, and possible injury collisions on the Alabama Street corridor. 8.) WCOG/RTPO TransCAD model forecasts of vehicle traffic volumes for years 2020 and 2032 on entire Alabama Street corridor and all major intersecting arterial streets. 9.) WCOG/RTPO model analysis of corridor travel time and speed for existing and future conditions. 10.) WCOG/RTPO micro-simulation analysis of intersection turning movements, delay, level of service, and vehicle queue lengths for existing and future conditions. [225 hrs = $20,000] 11.) City confirmation that there are no right-of-way needs or concerns for proposed improvements. 12.) City and WTA identification of preferred alternative Phase 1 Feasibility Study Cost (Preliminary Engineering Funds) The study to analyze the feasibility of a road diet is expected to take 6 months with very close coordination between City, WTA, and WCOG/RTPO staff to incorporate and analyze the relationships between land use, employment, housing, pedestrian demand, bicycle mobility, transit, and vehicle and freight traffic needs. A Phase 1 feasibility study would require $50,000 in preliminary design and engineering funds. The conclusion of the feasibility study would lead to the construction of either: Alternative 1. A 1.75-mile road diet converting four 11-foot travel lanes to two 11-foot travel lanes with an 10-foot two-way center turn lane, and 6-foot marked bicycle lanes on each side; OR If a road diet considered unfeasible due to negative impacts to transit service or other factors; Alternative 2. Several location-specific safety and mobility improvements for all users of this important corridor. These would include high-visibility activated crosswalks (also called HAWK signals), flashing pedestrian crosswalks, curb extensions, enhanced visibility, re-location of bus stops, and improved signage. City of Bellingham Alabama Corridor Road Diet Feasibility Study and Safety Improvements Page 13
Phase 2 Project Implementation Costs (Engineering and Construction Funds) There are not expected to be any right-of-way costs, but there will be significant cost to convert Alabama Street from 4 vehicle lanes within the 44-foot width of the street to two 11-foot vehicle lanes with a 10-foot two-way center left turn lane and 6-foot bicycle lanes on each side. Phase 2 Alternative 1: Road Diet Conversion - St Claire to Cornwall 9,160 linear feet (1.75 miles) Number Units Cost / Unit Total striping 9,160 Linear Feet $15.00 $137,400 grinding 27,480 Linear Feet $1.00 $27,480 stencils bikes lanes (thermoplastic) 26 Each $200.00 $5,200 2 inch overlay 439,680 Square Feet $1.50 $659,520 Pedestrian refuge 5 Each $35,000 $175,000 Add: Materials total $977,120 Engineering 15% $146,568 Project Admin 10% $97,712 Contingency 20% $195,424 Alternative 1 - Project Total $1,416,824 Assumptions: 1.) This does not account for work that may need to be done at intersection or other adjustments for transit Phase 2 Alternative 2: Pedestrian Safety Improvements - St Claire to Cornwall 9,160 linear feet (1.75 miles) Number Units Cost / Unit Total HAWK signals 2 each $120,000 $240,000 Curb intersection improvements 6 each 6,000 $36,000 Additional crossing enhancements 7 each 100,000 $700,000 Add: Total $976,000 Engineering 15% $146,400 Project Admin 10% $97,600 Contingency 20% $195,200 Alternative 1 - Project Total $1,415,200 Assumptions: 1.) All costs include installation of relevant signing Total Project Cost Estimates Phase 1 Multi-Agency Feasibility Study = $50,000 Phase 2 Alternative 1 Construction = $1,416,824 $1,466,824 Total Project Funding Request = $ $1,467,000 City of Bellingham Alabama Corridor Road Diet Feasibility Study and Safety Improvements Page 14
Project Timeline for Alabama Street Road Diet Feasibility Study & Safety Improvements Pedestrian Master Plan Completion and Adoption (With Recommendation for Alabama Corridor Road Diet Feasibility Study) May June 2012 BEGIN FEASIBILITY STUDY (Conducted by City, WTA, and WCOG staff with support by on-call consultant) June 2012 Alternative 1: Road Diet (4 to 2 lanes with center turn lane and bike lanes) Alternative 2: Series of Pedestrian Safety Improvements along Corridor CONCLUDE FEASIBILITY STUDY BEGIN DESIGN AND ENGINEERING (Based on Conclusions & Preferred Alternative Selected in Feasibility Study) Jan - April 2013 ENVIRONMENTAL DOCUMENTS APPROVED (None anticipated) March 2013 RIGHT-OF-WAY APPROVED (None anticipated all work within existing City-owned ROW) March 2013 CONTRACT ADVERTISEMENT (Bid Award to Contractor) May - June 2013 PROJECT CONSTRUCTION (Preferred Alternative Improvements) July October 2013 PROJECT COMPLETION (Ribbon-Cutting to Open for Public Use) November 2013 City of Bellingham Contact for Questions or Further Information Chris Comeau, AICP, Transportation Planner Bellingham Public Works Engineering 210 Lottie Street Bellingham, WA 98225 (360) 778-7946 ccomeau@cob.org City of Bellingham Alabama Corridor Road Diet Feasibility Study and Safety Improvements Page 15