Title
Review and Discuss Design Concept Alternatives for the Fernside Traffic Calming & Bikeways Project (Discussion)
Body
To: Honorable Chair and Members of the Transportation Commission
EXECUTIVE SUMMARY
The Fernside Boulevard Traffic Safety & Bikeways Project aims to create a design concept to update this corridor with the goal of reducing auto speeds and increasing safety and mobility for all road users. It also plans to develop design concepts to implement the low-stress bikeways called for in the Active Transportation Plan. The project is developing a near-term quick-build concept for Fernside from Tilden Way to High St that can be implemented with pavement resurfacing, as well as a long-term concept for the full project area from Tilden Way to San Jose Ave.
Staff recommend that the Transportation Commission review and discuss the design concept alternatives. Based on community feedback and analysis of the concepts being collected now, staff and the consultant team will recommend a final draft design concept in fall/winter 2024.
BACKGROUND
Project Goals & Parameters
The Fernside Boulevard Traffic Safety & Bikeways Project (Fernside Project) will create a design concept 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 Boulevard 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 start construction later this year (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 aims to create 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 reported traffic safety issues.
In addition, the Active Transportation Plan includes pedestrian improvements and separated bike lanes on Fernside Boulevard 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, which aims to provide a connected network of bikeways that are safe and comfortable for all ages and abilities. Fernside Blvd is also already an adopted on-street segment of the San Francisco Bay Trail, a regional project organized by the Metropolitan Transportation Commission.
Another factor used for prioritizing City projects is Equity Priority Areas. However, this project is not in an Equity Priority Area.
The City began this project in 2023-2024 to enable near-term improvements to be implemented with pavement resurfacing on Fernside Boulevard from Tilden Way to High St. In addition, having an adopted design concept for the full corridor this year 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
The City has made a variety of improvements 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 and Lincoln Middle School
o 2009: Two-way bikeway access to school
Existing Conditions Study
The Fernside Blvd roadway is a relatively wide 57’-60’. 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, three 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.
The consultant team completed an existing conditions study for this corridor in fall 2023. Key findings of the 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 fatal and injury crashes along the corridor, with clusters at High St, 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.
Existing Conditions Public Input
The project team completed the first round of public input in December 2023. Outreach efforts included over 40,000 emails and text messages delivered, 600 responses to an online survey, 400 postal mail notices sent to all Fernside Boulevard addresses, 85 people at an in-person community workshop, and more. Across feedback forums, there was a consistent theme of community concern over the following issues:
• High vehicle speeds
• Difficulty crossing the street
• Safety of pedestrians and bicyclists
• Illegal vehicle passing maneuvers and vehicles not coming to a stop at stop signs
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. 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.
More details about existing conditions and public outreach to date can be found in the Key Documents section of the project webpage: https://www.alamedaca.gov/fernside.
DISCUSSION
Based on project goals, existing conditions, and public feedback, the team developed the design concept alternatives below. All concepts include traffic calming and pedestrian improvements, but they are differentiated by their bikeway design.
For a description of these concepts and design considerations for each, see Exhibit 1: Design Concept Alternatives Presentation. For plan view details of these alternatives, see Exhibit 2: Long-Term Design Concept Alternatives, and Exhibit 3: Near-Term Design Concept Alternatives.
Long-Term Design Concepts (implemented in 6+ years):
• 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 (implemented in 1-2 years):
• NT1: Buffered Bike Lanes
• NT2: One-Way Separated Bikeways
• NT3: Two-Way Separated Bikeways
The initial concepts incorporate many of the improvements suggested during the winter round of community outreach, including pedestrian improvements (additional marked crosswalks, flashing beacons, daylighting, curb extensions) and bicycle facilities. Some elements that were discussed during the winter round of outreach are not currently integrated into the project. For example, the concept alternatives do not result in sufficient roadway width to accommodate pedestrian refuge islands or concrete medians to prevent illegal vehicle passing. Vertical traffic calming elements such as speed humps and raised crosswalks are not incorporated at this point, as many cities do not use these on arterial streets (Fernside is a Neighborhood Collector street in the City’s street classifications). The City is utilizing its Neighborhood Greenways consultant contract to develop a “speed hump policy” this year that will help define whether to consider vertical elements in the final, long-term design concept for Fernside.
The final design concept will incorporate considerations like ADA parking spaces. If funding and work scope allows, the next stage of project design may explore feasibility of intersection treatments such as neighborhood traffic circles and median splitter islands.
Project Phases
We anticipate the following phases for this project:
• Public outreach for existing conditions & initial input: November-December 2023, plus Transportation Commission public hearing in January 2024
• Public outreach for draft concept alternatives (current phase): May-June 2024
• Public hearings for final design concept: fall-winter 2024, Transportation Commission and City Council public hearings (including seeking City Council approval)
• Resurfacing and restriping on Fernside Blvd west of High St: 2025 or 2026
• Construct full corridor project: Goal to construct by 2030, but timing will depend on finding funding
Public Engagement Round 2: Design Concept Alternatives
The second round of outreach on this project is underway as of this publication, with the survey closing on June 19, 2024. A summary of outreach findings will be completed after the Transportation Commission meeting. Activities include:
• Virtual Community Workshop, May 29
• Community Workshop, June 5,
• Commission on Persons with Disabilities, June 5
• Transportation Commission, June 26
• Online survey May 29-June 19
• Postal mailing to all addresses within 300' of Fernside Blvd (approx. 1,400)
• Multiple email newsletters
• Direct emails to community groups like HOAs, and schools
• Posters on A-frames along Fernside Blvd
FINANCIAL IMPACT
The City currently has funds for the planning and design work, as well as resurfacing and restriping west of High St in 2025 or 2026, but that funding for future construction of the full corridor has not yet been identified. The City utilized its on-call contract with Parametrix, Inc., to undertake the existing conditions data collection, analysis, and public outreach, and to develop design concept alternatives for a total of $105,650 in 2023 and early 2024. For the rest of 2024, the City is utilizing an additional $75,000 for Parametrix to conduct public outreach for the design concept alternatives and develop a final concept for review and approval. Costs are covered by Measure BB funds via Capital Budget funds (Street Safety and Active Transportation).
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 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 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.”
ENVIRONMENTAL REVIEW
This discussion 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 bus riders, pedestrians, and bicyclists will encourage more people to take the bus, walk, and bike for transportation, reducing greenhouse gas emissions.
RECOMMENDATION
Review and discuss the design concept alternatives for the Fernside Boulevard Traffic Safety & Bikeways Project.
Respectfully submitted,
Lisa Foster, Acting Transportation Planning Manager
Exhibit:
1. Design Concept Alternatives Presentation
2. Long-Term Design Concept Alternatives
3. Near-Term Design Concept Alternatives