Title
Endorse Design Concept for Pacific Avenue/Wilma Chan Way Neighborhood Greenway Crossing Improvements (Action)
Body
To: Honorable Chair and Members of the Transportation Commission
From: Lisa Foster, Secretary to the Transportation Commission
Abby Thorne-Lyman, Interim Planning, Building, and Transportation Director
EXECUTIVE SUMMARY
The City of Alameda is designing crossing improvements to enhance safety for all modes of travel and connectivity for walking and biking at the intersection of Pacific Avenue, a planned Neighborhood Greenway, and Wilma Chan Way. After technical analysis and community outreach, staff recommend a design concept (Exhibit 1) that includes a median traffic diverter to prohibit through and left turn movements for Pacific Avenue and a new signal that would stop traffic on Wilma Chan Way for people walking and bicycling to cross.
BACKGROUND
Neighborhood Greenways
Alameda’s Active Transportation Plan (ATP), adopted in 2022, introduces Neighborhood Greenways, a low-stress bikeway facility type, to Alameda. Neighborhood Greenways are bicycle- and pedestrian-priority streets designed to allow bicyclists and motorists to safely share the road on low-volume, low-speed, local streets, and to make crossing larger streets easier for people biking and walking. The ATP defines the key Neighborhood Greenway goals:
• Achieve and Maintain Low Vehicle Volumes and Speeds. Neighborhood Greenway streets are only considered low stress when the traffic volumes and speeds are low enough that people biking feel comfortable sharing the roadway space with cars. Reducing traffic speeds and volumes increases safety for all roadway users and improves neighborhood livability.
• Make Street Crossings Safer and More Comfortable. Neighborhood Greenways also include treatments to improve crossings, particularly at busy intersections, to make it easier and safer for people bicycling and walking to cross busy streets.
Neighborhood Greenway implementation is underway in phases:
• Phase 1 will convert the Slow Street segments of Pacific Ave, San Jose Ave/Morton St and Versailles Ave to Neighborhood Greenways. This includes Pacific Avenue from Ninth to Oak and is partially complete.
• Phase 2 will complete the remaining six Neighborhood Greenways in the 2030 Low-Stress Backbone Network (Exhibit 2), pending securing funding and staff resources.
Currently, design is nearly complete for all Phase 1 streets, with construction to take place in early 2027 (for Pacific Ave and Versailles Ave) and summer 2027 (for San Jose Ave). Now, staff is beginning planning and design for Phase 2, and is also working to secure funding.
Alameda CTC Funding
In 2025, the Alameda County Transportation Commission (Alameda CTC) awarded the City a $2,000,000 grant to fund the construction of safety and crossing improvements at four intersections where Phase 1 and 2 Neighborhood Greenways cross major corridors, including the intersection of Pacific Avenue at Wilma Chan Way.
Because of the complexity of design considerations at Pacific Avenue and Wilma Chan Way, the City launched a standalone community outreach and design process for this intersection in Spring 2026, with the goal of developing a safe and comfortable bicycle and pedestrian crossing of Wilma Chan Way along Pacific Avenue, a future Phase 2 Neighborhood Greenway.
Intersection Existing Conditions
Pacific Avenue is a low-traffic east-west neighborhood street designated as a Neighborhood Greenway. The intersection of Wilma Chan Way is currently difficult for people walking and biking to cross, despite existing crosswalks: the intersection is skewed and Wilma Chan Way is four lanes with 30 MPH prevailing speeds and daily traffic of almost 17,000 vehicles per day. The existing crosswalks lack traffic control, with only signage and markings to warn drivers that pedestrians may be present. Pacific Avenue is stop controlled.
From 2014-2025, there were nine reported injury collisions at the intersection. Most crashes were broadside collisions caused by drivers turning left or going straight on Pacific Avenue. There were no reported bicycle- or pedestrian-involved collisions. Because of the predominant collision history of vehicle-only crashes, the project aims to support safe and comfortable bicycle and pedestrian crossings of Wilma Chan Way while also addressing vehicle safety needs at the intersection.
DISCUSSION
The City began alternatives analysis and design concept development with the support of the Parametrix consultant team in February 2026 and conducted community engagement on the alternatives in late May and June 2026. The intersection design goals are:
• Improve safety for all road users
• Make bicycle and pedestrian crossing of Wilma Chan Way safer and more comfortable
• Maintain low traffic volumes on the Pacific Avenue Neighborhood Greenway
Because of the high vehicle speeds and volumes, poor sight distance, and multi-lane configuration of Wilma Chan Way, the analysis only performed detailed evaluations for alternatives that would provide a fully controlled crossing for walking and bicycling across Wilma Chan Way at Pacific Avenue. Uncontrolled crosswalk enhancements such as rectangular rapid flashing beacons (RRFB) were considered but determined to be nonviable.
The analysis and outreach centered on three potential design features:
1. Vehicle turn restriction: Median diverter that would allow pedestrian and bicycle crossings but prohibit through and left turn movements for Pacific Avenue.
2. Traffic control device: Pedestrian hybrid beacon (PHB) or traffic signal for Wilma Chan Way to fully stop traffic for bicycle and pedestrian users. A PHB is a traffic control device designed to help pedestrians cross high-speed roadways while keeping side street traffic stop controlled. More information about the operation of a PHB is provided in the project presentation.
3. Bikeway alignment: Right or left side bikeway alignment in intersection approach. Channelizing bike riders into a bikeway at the intersection allows for separate detection of vehicles and bikes at the intersection and helps manage user interactions at the intersection.
Technical Analysis
Different combinations of the above features can create many potential intersection concepts, so the technical analysis focused on narrowing down alternatives by identifying which combinations would be technically feasible and best advance project goals. A full summary of the technical analysis is provided in Exhibit 3. Key takeaways include:
• The median diverter has very good safety benefits with minimal diversion of traffic to neighborhood streets because of alternative routes on Lincoln Avenue and Buena Vista Avenue, plus it would improve traffic flow on Wilma Chan Way.
• All alternatives perform well for traffic operations. Both a PHB and traffic signal provide opportunities to coordinate and adjust signal timing along the Wilma Chan corridor to maintain traffic flow even with bicycle and pedestrian crossings.
• Both a PHB and a signal have good safety benefits for walking and biking by fully stopping traffic on Wilma Chan Way. However, a signal would likely increase traffic on Pacific Avenue without a median diverter, which is contrary to the project goal of maintaining low traffic volume on the Neighborhood Greenway.
• Assuming a median diverter in the design, a left side bikeway alignment works best with a signal to move bike riders out of a conflicting vehicle right turn. With a PHB, the bikeway works best on the right, aligned with the pedestrian crosswalk.
As a result of this analysis, the City elected to present the median diverter as a staff recommendation in the community engagement process, while presenting traffic control and bikeway choices as viable alternatives.
Community Engagement
During public engagement, community members expressed broad support for the recommended design concept. The City conducted the following outreach activities in May and June:
• Online survey (122 responses)
• Public workshop (23 attendees)
• Mailers to 475 nearby residents
• Emails to transportation email lists
• A-frames with posters at the intersection
• On-site meeting with the Grocery Outlet franchise operator
• Direct phone calls and emails with residents
Community input is provided in Exhibit 4. Takeaways from engagement on the design alternatives are:
• Vehicle turn restriction: Community feedback shows strong support for the median diverter. Comments include enthusiasm for the diverter feature; questions on whether a median would be enough of an intervention to improve bicycle and pedestrian crossings; whether a median would potentially increase traffic speeds on Wilma Chan Way; concerns about diversion of traffic onto neighborhood streets; and from some respondents, general opposition to vehicle turn restrictions.
• Traffic control: 45% of online respondents said that either a signal or PHB would be an improvement, and preferences between the two were nearly evenly split. Respondents to the online survey slightly favored a PHB, while participants at the community workshop generally preferred a signal. Comments in favor of a signal express concern that a PHB is too confusing and ambiguous, while comments in favor of a PHB express a preference for fewer signals along the Wilma Chan Way corridor.
• Bikeway alignment: Input on bikeway alignment was also evenly split, with many people who bicycle or want to bicycle saying that their preference would depend on the other design features. Comments in favor of the left side bikeway generally note a preference to stay out of the path of right-turning vehicles, while comments in favor of right side bikeway note that this position feels easier and more comfortable.
• Overall concept with median, signal, and left side bikeway: When put together, the overall design concept garnered very positive feedback, with 57% of online respondents saying it would be a big improvement and 11% saying it would be an improvement with some modifications.
Other comments on the overall project that staff will take into consideration in the development of final design include:
• Various concerns about the effect of both the median diverter and traffic control on traffic in the area. These include concerns about potential diversion of traffic onto Pacific Avenue from northbound Wilma Chan Way, and potential added congestion at the intersection of Buena Vista Avenue because of additional vehicles turning left. While staff does not share this concern, with any alternative, staff will monitor traffic and adjust the design in response to any unwanted outcomes.
• Comments expressing a desire to see traffic calming on Wilma Chan Way, with an emphasis on northbound traffic coming from 8th Street and Lincoln Avenue. During final design, the team will evaluate what corridor traffic calming could be implemented with this intersection project, and what may need to come with a future effort along the corridor.
• Commenters express concern about the visibility of any traffic control device for drivers traveling northbound on Wilma Chan Way around the curve. The final design will incorporate sufficient signage and signal position to ensure visibility.
The community workshop and survey also asked for input on draft concepts for two nearby short segments of Neighborhood Greenways on Pacific Avenue (Wilma Chan Way to 9th St) and 8th Street (Pacific Ave to Jean Sweeney Open Space Park) that are planned for Phase 2. Staff will present Phase 2 separately from this agenda item. A summary of this community input will be posted at <http://www.alamedaca.gov/NeighborhoodGreenways>.
Staff Recommendation
Based on the technical analysis and community input, staff recommends proceeding with final design for the concept that was presented during community outreach, which includes a median diverter, traffic signal, and left side bikeway (Exhibit 1). This alternative best meets project goals by improving safety for all users, providing comfortable bicycle and pedestrian crossings, and maintaining low traffic volumes on Pacific Avenue.
A potential alternative with a PHB and right-side bikeway is also a viable option. However, because of the very high traffic volumes, curvature of the roadway, and high speeds on Wilma Chan Way, staff recommend a signal over a PHB. The PHB requires a higher degree of user judgment during the flashing countdown phase than a standard signal. Because of the characteristics of Wilma Chan Way, staff does not recommend this location for the City’s first implementation of a PHB.
Next Steps
After Transportation Commission, staff will take the recommended concept with any modifications to City Council for approval in September. After Council input and approval, the project will go into final design (PS&E) with planned construction in summer 2027. Construction schedule will depend on other projects in the area and will be timed to reduce overall construction impacts. After construction, staff will evaluate and collect additional data to make necessary signal timing adjustments.
FINANCIAL IMPACT
The project is currently fully funded from a grant from the Alameda County Transportation Commission and previously allocated funds for Neighborhood Greenways, so there is no new financial impact to the General Fund or other transportation funding sources.
MUNICIPAL CODE/POLICY DOCUMENT CROSS REFERENCE
The 2023 Strategic Plan includes Project TIE10: Plan, design, and construct a backbone low-stress bicycle network, pedestrian safety, and traffic-calming projects. The 2022 Active Transportation Plan designates Pacific Avenue as a Neighborhood Greenway on this backbone low-stress network.
CLIMATE IMPACT
The Climate Action and Resiliency Plan Update (2025) found that transportation accounts for 54% of the City’s greenhouse gas emissions, and that moving people out of automobiles is paramount to reducing transportation-related emissions. The proposed project supports bicycle and pedestrian mode shift by increasing safety and comfort for walking and biking.
RECOMMENDATION
Endorse the design concept for Pacific Avenue/Wilma Chan Way Neighborhood Greenway Crossing Improvements.
Respectfully submitted,
Susie Hufstader, Senior Transportation Coordinator
Exhibits:
1. Design Concept
2. ATP 2030 Low-Stress Backbone Network
3. Design Technical Memorandum
4. Community Input
cc: Scott Wikstrom, City Engineer