Title
Consider Endorsing Draft Final Design Concepts for the Fernside Traffic Calming & Bikeways Project (Action)
Body
To: Honorable Chair and Members of the Transportation Commission
EXECUTIVE SUMMARY
The Fernside Boulevard Traffic Safety & Bikeways Project (Fernside Project) aims to update this corridor with the goal of reducing auto speeds and increasing safety and mobility for all road users. It is also working to implement the low-stress bikeways called for in the Active Transportation Plan and needs to reflect design guidelines for the San Francisco Bay Trail. The project has completed existing conditions analysis and public input (Phase I) and public input on multiple design concept alternatives (Phase 2). Based on these findings, the project team has developed the draft final design concept recommendations below.
• Long-term concept for Fernside Blvd from Tilden Way to San Jose Ave: Two-Way Protected Bikeway with Pedestrian Median Islands. Along with a low-stress bikeway, this design improves pedestrian safety with new curb extensions, marked crosswalks, and flashing beacons; reduces motor vehicle speeds with removal of the center turn lane west of High St and narrower travel lanes; and includes two motor vehicle lanes (one in each direction) and curbside parking on both sides of the street. The implementation goal is 2030, pending approval and finding funding.
• Near-term concept for Fernside Blvd from Tilden Way to High St: Buffered Bike Lanes with Quick-Build Pedestrian Median Islands. This design would continue the painted buffered bike lanes currently east of High St, with hardening in the buffer at some intersections. It also improves pedestrian safety with quick-build pedestrian median islands, curb extensions, and new marked crosswalks; reduces motor vehicle speeds with removal of the center turn lane and narrower travel lanes; and includes two motor vehicle lanes (one in each direction) and curbside parking on both sides of the street. Estimated implementation is in 2026 with planned pavement resurfacing on this roadway segment.
In November 2024, the Fernside Project team conducted public outreach about a concept that would simplify the Fernside Blvd/High St/Gibbons Dr intersection with a partial limitation of traffic between Gibbons Dr and the High St Bridge. After receiving public feedback, that proposal is not included in the near-term design concept recommendation. It may be included in the long-term proposal pending further traffic analysis and public outreach at a later date.
Staff recommend that the Transportation Commission endorse the near-term and long-term design concept alternatives. After this, staff will discuss the concepts at the Commission on Persons with Disabilities and, in 2025, bring them to City Council for approval.
BACKGROUND
Project Goals & Parameters
The Fernside Project comprises design concepts to update this corridor with the goal of reducing auto speeds and increasing safety and mobility for all road users. The project area is Fernside Blvd from Tilden Way to San Jose Ave. It connects to the following infrastructure projects: 1) at the northwest project terminus, it connects to the Clement Ave/Tilden Way project, which is a separate project anticipated to be constructed in 2025 (see <https://www.alamedaca.gov/clementtilden>); and 2) at the southeast end, it connects to the existing two-way cycle track and medians in front of Lincoln Middle School.
The Fernside Project includes two design concepts: 1) a near-term quick-build design concept for Fernside from Tilden Way to High St that can be implemented with pavement resurfacing; and 2) a long-term design concept for the full project area from Tilden Way to San Jose Ave.
Why This Project Now?
The Vision Zero Action Plan (2021) identifies Fernside Boulevard as a High Injury Corridor for all modes (Tier 3) and for bicyclists (Tiers 2 and 3), making it a priority for traffic safety investments. Community members have also expressed concerns about high auto speeds, reckless driving, and challenging pedestrian crossings since at least the mid-2000s. The City of Alameda (City) has implemented a variety of improvements over the years but continues to receive reports of traffic safety issues.
This project also helps fulfill City Council Strategic Plan TIE 10: “Plan, Design, and Construct a backbone low-stress bicycle network, pedestrian safety, and traffic calming projects.” The Active Transportation Plan shows pedestrian improvements and separated bike lanes on Fernside Blvd from Tilden Way to San Jose Ave, to be completed by 2030. Fernside Blvd is a key part of the 2030 Low-Stress Backbone Bikeway Network (Exhibit 1), which aims to provide a connected network of bikeways that are safe and comfortable for all ages and abilities. The Active Transportation Plan also includes Neighborhood Greenway crossings of Fernside Blvd at Versailles Ave, Garfield Ave, and San Jose Ave.
Fernside Blvd is an adopted segment of the San Francisco Bay Trail, a regional project organized by the Metropolitan Transportation Commission. The San Francisco Bay Trail is a series of connected walking and cycling paths that ring the San Francisco and San Pablo bays and aim to provide space for recreation and active transportation alike. Most segments are shoreline trails, but Fernside Blvd is an important on-street connection where shoreline trails cannot be built. Exhibit 2 is a map of the current and planned Bay Trail alignment in Alameda.
Another factor used for prioritizing City projects is Equity Priority Areas. However, this project is not in an Equity Priority Area.
The City began planning the Fernside Project in 2023-2024 to enable near-term improvements to be implemented with pavement resurfacing on Fernside Blvd from Tilden Way to High St. In addition, having an adopted design concept for the full corridor will allow the City to seek funding for the longer-term design concept, with the goal of constructing it by the Active Transportation Plan target year of 2030, provided that funding is available.
Fernside Boulevard Enhancements 2009-2021
Prior to beginning planning for the Fernside Project, the City had made a variety of improvements on the street over the years.
• At Versailles Ave:
o 2010: Uncontrolled crossing upgraded to high-visibility striping
o 2013: Flashing beacons and concrete crosswalk protection improvements
• At Cambridge Dr.
o 2014: Speed feedback sign below posted speed limit sign
• At Harvard Ave:
o 2013: Uncontrolled crosswalk at Harvard Ave installed
o 2021: Flashing beacons and concrete crosswalk protection improvements
• At High St:
o 2013: Removed second travel lane merge west of High St.
• East of High St:
o 2019: Upgrade to buffered bike lanes as part of roadway repaving
• Between Otis Dr and Lincoln Middle School
o 2009: Two-way bikeway access to school
Public Outreach Summer 2023-November 2024
The Fernside Project has conducted two phases of public outreach with a wide reach:
• 200 total attendance at 5 Fernside Project public workshops
• 3 public hearings at City commissions
• 1,115 total responses to 3 online surveys
• 1,950 total flyers sent in 3 postal mail notices
• 19 email bulletin mailings
• 4 news articles
• Information boosted to homeowners’ associations, schools, and other community groups
Community Workshops
1. 12/4/2023 Community workshop Phase 1 (85 attendees)
2. 12/11/2023 Virtual community workshop Phase 1 (28 attendees)
3. 5/29/2024 Virtual community workshop Phase 2 (13 attendees)
4. 6/5/2024 Community workshop Phase 2 (40 attendees)
5. 11/9/2024 Gibbons Dr at Fernside Blvd/High St Intersection Improvements Pop-up (50 attendees)
Public Hearings
1. 1/24/2024 Transportation Commission
2. 6/26/2024 Transportation Commission
3. 6/5/2024 Commission on Persons with Disabilities
Online Surveys
1. 11/21/2023-12/17/2023 Existing conditions survey (600 responses)
2. 5/29/2024-6/19/2024 Design concept options survey (longer survey with 305 responses)
3. 11/8/2024 Gibbons Dr at Fernside Blvd/High St concept survey (210 responses to date)
Postal mail
1. 11/27/2023 Flyer mailed to all Fernside Blvd addresses (400 addresses)
2. 5/20/2024 Flyer mailed to all addresses within 300' of Fernside Blvd (1,400 addresses)
3. 10/21/2024 Gibbons/Fernside/High pop-up event flyer mailed to all addresses within 150' of Gibbons Dr (150 addresses)
Email Bulletin Mailings
• 20 email bulletins sent 8/30/2023 - 11/12/2024
• Additional email bulletins sent to advertise commission agendas with Fernside Project agenda items, or to agendize Fernside Project public workshops per Brown Act requirements so City Councilmembers and commissioners could attend: Transportation Commission (4), City Council (3), Commission on Persons with Disabilities (1)
A-Frame Posters
Posters were placed on A-frames at 5 locations along Fernside Blvd during these dates:
1. 12/1/2023-12/18/2023
2. 5/31/2024-6/20/2024
Press
1. 11/24/2023 City Asks for Input on Estuary Park, Fernside Boulevard Project, Alameda Post
2. 5/8/2024 Fernside Boulevard Traffic Calming Public Workshops, Alameda Post
3. 12/8/2023 City Gathers Input from Local Residents on Future of Fernside, Alameda Post
4. 12/30/2024 Transportation Commission Hears Fernside Update, Alameda Post
Local Schools and Community Groups
The following groups were known to share information about this project: Fernside Homeowners Association (HOA), East Shore HOA, Alameda Vista View Neighbors, Edison Elementary, Otis Elementary, Lincoln Middle School, and Bike Walk Alameda.
This list of these outreach activities is available with hyperlinks in the community engagement tab at <http://www.alamedaca.gov/fernside>.
Phase 1: Existing Conditions & Initial Input (Public Engagement Nov 2023 - Jan 2024)
The consultant team completed an existing conditions study for this corridor in fall 2023. The Fernside Blvd roadway is a relatively wide 57’-60’ from curb to curb
. West of High St, it has two traffic lanes with a two-way left turn lane and regular bike lanes. East of High St, it has two traffic lanes and paint-buffered bike lanes. Throughout the 1.3 mile corridor, two intersections are controlled by traffic signals and two with all-way stop signs; and there are three crossings with rapid flashing beacons. Between Versailles Ave and Garfield Ave, the marked crosswalks are spaced quite far apart, approximately 1,000-2,000 feet. Lincoln Middle School is directly on Fernside Blvd. Edison Elementary School and Saint Philip Neri Catholic School are each one block from the corridor.
Key findings of the consultant data collection and analysis include:
• The average vehicle speed is 31 mph - higher than the 25 mph speed limit - and 15% of drivers travel above 35 mph, a deadly speed in a pedestrian/auto crash.
• The rate of crashes per vehicle miles is higher than the state average on similar roadways, especially on Fernside Blvd from Tilden Way to High St.
• From 2017-2022, there were 22 injury crashes, one of which was fatal, along the corridor, with clusters at High St/Gibbons Dr, Harvard Dr, and San Jose Ave.
• The level of auto traffic carried by Fernside Blvd is lower than streets like Lincoln Ave and Otis Drive.
• During the hours that students travel to and from school, people on bicycles comprise 10-15% of all traffic on Fernside.
• On-street parking is less than 50% occupied at all times of day.
The existing conditions analysis is available at <http://www.alamedaca.gov/fernside>.
In public input, the most commonly suggested improvements were pedestrian enhancements such as more marked crosswalks and flashing beacons. This is closely followed by a desire for safe bicycle facilities appropriate for children biking to school, most frequently described as bicycle facilities that are fully protected or separated from vehicle traffic, and that facilitate safe passage through intersections, as well as improvements that would address high rates of vehicle speeds and illegal vehicle passing maneuvers. Additional concerns involving driveway access, noise, appearance of improvements, and suggestions for installation of speed humps or other traffic calming elements were also consistently received during this project phase.
Across the multiple feedback gathering forums, approximately 5-10% of respondents indicated that the existing roadway configuration works well, and they do not desire changes.
Exhibit 3 contains a summary of Phase 1 public engagement and results.
Phase 2: Draft Concept Alternatives (Public Engagement May-June 2024)
Based on project goals, existing conditions, and public feedback, the team developed the design concept alternatives below for public review. All concepts included traffic calming and pedestrian improvements, but they were differentiated by their bikeway design.
Long-Term Design Concepts:
• LT1a: One-Way Curb-Protected Bikeways
• LT1b: One-Way Raised Bikeways
• LT2a: Two-Way Curb-Protected Bikeway
• LT2b: Two-Way Raised Bikeway
Near-Term Design Concepts:
• NT1: Buffered Bike Lanes
• NT2: One-Way Separated Bikeways
• NT3: Two-Way Separated Bikeways
The initial concepts incorporated many of the improvements suggested during Phase I of community outreach, including pedestrian improvements (additional marked crosswalks, flashing beacons, daylighting, curb extensions), low-stress bicycle facilities, and other traffic calming measures such as removal of the two-way left-turn lane and narrower travel lanes.
Phase 2 public outreach included two community workshops, an online survey with over 300 responses, and presentations to the Transportation Commission and the Commission on Persons with Disabilities. Public input reflected the following:
• Reducing vehicle travel speeds and pedestrian improvements such as additional marked crosswalks and flashing beacons were identified as being near-term and long-term project priorities.
• All four long-term concept alternatives received broad public support and were identified to align with project goals of reducing vehicle travel speeds and increasing safety for all roadway users, particularly pedestrians and bicyclists.
• Of the three near-term concept alternatives, feedback reflected high levels of concern regarding the on-street parking loss associated with the two separated bikeway concepts compared to the Buffered Bike Lanes concept, which does not result in substantial on-street parking reduction. This feedback does not necessarily support survey responses that indicated bicycle lane separation from motor vehicle traffic as a higher project priority than abundant on-street parking.
• Feedback from public commissioners include encouragement for project plans to align with the City’s Active Transportation Plan, to prioritize safety for vulnerable road users, and to consider accessible loading zones for residential visitors and transit stop accessibility when comparing concepts.
In this Phase 2 public engagement, approximately 15% of written comments indicated a desire for no changes to be made to the corridor. Participants that desire Fernside Boulevard to remain as it currently exists primarily describe potential difficulties with entering and exiting driveways and finding available on-street parking.
Exhibit 4 contains a summary of Phase 2 public engagement and survey results.
Fernside Blvd/High St/Gibbons Dr Design Exploration
While working on the draft final concept design, the Fernside Project Team realized that the Fernside Blvd/High St/Gibbons Dr intersection needs more attention to simplify and increase safety for people walking and biking. On November 9, 2024, the Fernside Project team hosted a pop-up open house event on-site near the intersection and launched an online survey to hear feedback on a proposed safety updates that would simplify this challenging intersection, including a partial limitation of traffic movements between Gibbons Dr and High St.
Exhibit 5 provides a preliminary summary of feedback to date on the proposal for Gibbons Dr at Fernside Blvd/High St. Among all 210 survey responses, 53% of responses said the proposal would make the intersection better or much better and 42% said it would be worse or much worse. Among those who reported living on or near Gibbons Dr, 47% of responses said the proposal would make the intersection better or much better and 49% said it would be worse or much worse.
The primary concern raised was about spillover onto nearby, narrower streets like Bayo Vista Ave. Staff plan to conduct further traffic analysis and outreach before finalizing a concept for this intersection, and do not recommend this concept be implemented with the near-term project.
DISCUSSION
Phase 3: Draft Final Design Concept (Public Hearings November 2024-Early 2025)
Based on Phase 2 public feedback and analysis of the design concept alternatives, the project team recommends: a) Two-Way Protected Bikeway with Pedestrian Median Islands in the long term, and b) Buffered Bike Lanes with Quick-Build Pedestrian Median Islands on Fernside west of High St in the near-term with planned pavement maintenance.
Long-Term: Two-Way Protected Bikeway with Pedestrian Median Islands
A two-way protected bikeway is recommended, with pedestrian median islands added to respond to strong public feedback focusing on pedestrian crossing dangers and high traffic speeds. The draft final long-term design concept is shown in Exhibit 6.
All four long-term concept alternatives about the same level of support, with 55-60% of survey respondents saying each concept would improve the overall experience on Fernside Blvd, and 27-29% saying it would be worse. The design concept in Exhibit 6 shows the preferred design of raised bikeways, but median-protected bikeways may be necessary to reduce costs.
The two-way bikeway was chosen over one-way bikeways because it:
• Provides a wider overall path of bicycle travel which facilitates a variety of cycling styles such as enabling parents and children to ride side-by-side or allowing bicyclists of different speeds space to pass.
• Connects seamlessly to existing two-way bicycle facilities.
• Avoids bikeway crossings of 10 side street approaches at three-way intersections.
• Most closely reflects the user experience of other existing Bay Trail segments.
• Limits curbside improvements to one side of the roadway, which removes less parking, impacts fewer driveway access points.
• Accommodates a wider buffer between the bikeway and the roadway, which results in a larger area for improvements such as accessible loading zones, bus stop amenities, trash staging locations, landscaping, and space for pedestrians to wait prior to crossing the street and vehicles to wait prior to merging into travel lanes.
• Costs somewhat less to construct than one-way bikeways.
Design features and improvements:
• Traffic calming: Reduces motor vehicle speed and illegal passing maneuvers with the removal of the center turn lane west of High St and narrower travel lanes, and the new median islands also reduce speeds. A separated bikeway prevents drivers from using the bike lane for illegal passing maneuvers.
• Pedestrian safety: New median islands and curb extensions shorten pedestrian crossing distances, and new marked crosswalks and flashing beacons improve yielding.
• Bikeways: A separated two-way bikeway on the north and east side of Fernside provides a low-stress, all-ages and abilities facility connecting to the Cross Alameda Trail and the Bay Farm Bicycle Bridge. The preferred design, shown in the concepts, is raised to sidewalk level. Pending funding concerns, part of the project may need to be constructed with median-protected bike lanes at the roadway level.
• Motor vehicle movements and driveway access: Two motor vehicle lanes (one in each direction). A two-way bike lane makes it easier to pull out of driveways and to approach from side streets because the wider buffer strip combined with the parking lane allows drivers to wait for an opening in traffic without blocking the bike lane.
• On-street parking: Curbside parking on both sides of the street. With a raised bikeway, approximately 23% of parking would be removed to comply with California daylighting standards and allow space for the pedestrian medians (peak parking occupancy is less than 50%). Median-protected bike lanes would require more parking loss.
• Intersection with High St/Gibbons: The design shows a tentative concept with two elements that can only be finalized after further traffic analysis and public engagement. At the northeast corner, the concept aims to increase safety on the bikeway by removing the right-turn slip lane. At the southwest corner, the concept shows a partial limitation of traffic between Gibbons Dr and the High St Bridge, creating shorter pedestrian crossings, simpler geometry, and reduced vehicle speeds entering Gibbons Dr from High St. This would also remove a traffic signal phase, providing more time for a dedicated bikeway phase. There is insufficient right-of-way for a functional roundabout at this location.
Short-Term: Buffered Bike Lanes with Quick-Build Pedestrian Median Islands
Buffered bike lanes are recommended in the near-term to be constructed with planned pavement maintenance on Fernside Blvd from Tilden Way to High St, with pedestrian median islands added to respond to strong public feedback focusing on pedestrian crossing dangers and high traffic speeds. The draft final near-term design concept is shown in Exhibit 7.
Public support for the buffered bike lane alternative was higher than that for the parking-protected bike lane concept alternatives, in part because the parking-protected bike lane options would remove 65-85% of on-street parking. In addition, the buffered bike lane concept would cost about half as much as the parking-protected bike lane concept alternatives and would cost less to maintain. The project team recommends focusing staff time and resources on achieving Active Transportation Plan goals with the long-term design.
Design features and improvements:
• Traffic calming: Reduces motor vehicle speed and illegal passing maneuvers with the removal of the center turn lane west of High St and narrower travel lanes, and the new median islands also reduce speeds. However, the buffered bike lane would not prevent drivers from using the bike lane for illegal passing maneuvers.
• Pedestrian safety: New, quick-build median islands and curb extensions shorten pedestrian crossing distances, and new marked crosswalks improve yielding.
• Bikeways: This design would continue the painted buffered bike lanes currently east of High St, with vertical hardening in the buffer at some intersections. Opportunities to harden the bike lane are limited due to the number of driveways.
• Motor vehicle movements and driveway access: Two motor vehicle lanes (one in each direction). Driveway access would be similar to the current experience.
• Parking. Curbside parking on both sides of the street. Approximately 24% of parking would be removed to comply with California daylighting standards and allow space for the pedestrian medians (peak parking occupancy is less than 50%).
• Intersection with High St/Gibbons: No changes at this intersection in the near-term, based on neighbor concerns.
More information about design concepts, and considerations in selecting design alternatives, are shown in Exhibit 8: Presentation.
Project Phases
We anticipate the following phases for this project:
1. Public outreach for existing conditions & initial input: November 2023-December January 2024
2. Public outreach for draft concept alternatives: May-June 2024
3. Public hearings for final design concept (current phase): November 2024-Early 2025, Transportation Commission and City Council public hearings (including seeking City Council approval)
4. Resurfacing and restriping on Fernside Blvd west of High St: 2026
5. Construct full corridor project: Goal to construct by 2030, but timing will depend on finding funding
FINANCIAL IMPACT
The City currently has funds for the planning and design work, as well as resurfacing and restriping west of High St in 2026, but funding for future construction of the full corridor has not been identified. The City has utilized its on-call contract with Parametrix, Inc., for this project totaling about $181,000 from fall 2023 to fall 2024. Costs are covered by Measure BB funds.
MUNICIPAL CODE/POLICY DOCUMENT CROSS REFERENCE
The Vision Zero Action Plan (2021) calls for prioritizing investment on High Injury Corridors and identifies Fernside Boulevard as a Tier 3 all-modes High Injury Corridor and a Tiers 2 and 3 Bicyclist High Injury Corridor. (Tier 1 has the highest density and severity of crashes of the three tiers. Only 20% of Alameda’s streets are identified as a High Injury Corridor of any tier.)
The City Council Strategic Plan (2023) TIE 10 calls for the City to “Plan, Design, and Construct a backbone low-stress bicycle network, pedestrian safety, and traffic calming projects.”
The Active Transportation Plan (2022) includes Fernside Boulevard as Project 23 in the 2030 Infrastructure Plan, to be completed by 2030. It is identified as a multi-pronged project affecting pedestrians, bicyclists, trails (the San Francisco Bay Trail), and the 2030 Low-Stress Backbone Network. The 2030 Low-Stress Backbone Network also includes Neighborhood Greenway crossings across Fernside Blvd at Versailles Ave, Garfield Ave, and San Jose Ave.
ENVIRONMENTAL REVIEW
Endorsement of a design concept does not constitute a “project” as defined in California Environmental Quality Act (CEQA) Guidelines Section 15378 and therefore no further CEQA analysis is required.
CLIMATE IMPACT
Making the street more comfortable for pedestrians and bicyclists will encourage more people to walk and bike for transportation, reducing greenhouse gas emissions.
RECOMMENDATION
Endorse the design concept alternatives for the Fernside Boulevard Traffic Safety & Bikeways Project.
Respectfully submitted,
Lisa Foster, Transportation Planning Manager
Exhibits:
1. 2030 Low-Stress Backbone Bikeway Network
2. Map of Bay Trail Alignment in Alameda
3. Public Outreach Summary: Phase 1 Existing Conditions
4. Public Outreach Summary: Phase 2 Design Concept Alternatives
5. Public Outreach to Date: Gibbons Dr/Fernside Blvd/High St Intersection
6. Draft Final Long-Term Design Concept
7. Draft Final Near-Term Design Concept
8. Presentation