Title
Review and Discuss Existing Conditions & Initial Public Input for the Fernside Boulevard Traffic Safety & Bikeways Project (Discussion)
Body
To: Honorable Chair and Members of the Transportation Commission
EXECUTIVE SUMMARY
The Fernside Boulevard Traffic Safety & Bikeways 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. It also plans to develop design concepts to implement the low-stress bikeways called for in the Active Transportation Plan (see https://www.activealameda.org/Adopted-Plan). The project will develop 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.
The consultant team has completed an existing conditions analysis, including traffic speeds, crash data, previous community input, current roadway widths and configurations, AC Transit ridership, and more. They found that Fernside Blvd is a relatively wide roadway (57’-60’) with auto traffic traveling higher than the posted speed limit and a higher crash rate than the state average on similar roadways.
The staff and consultant team completed the first round of public outreach in December 2023. Community participation was high, with 600 responses to an online survey, 85 people at an in-person workshop, and 28 participants at the virtual workshop. Consistent themes included concerns about high vehicle speeds, difficulty crossing the street, pedestrian and bicyclist safety, illegal vehicle passing maneuvers, and drivers failing to stop at stop signs. Approximately 5-10% of respondents indicated that they did not want to see changes to the existing roadway configuration.
After hearing from the Transportation Commission, the team will use all the information gathered to develop concept alternatives for potential improvements for Fernside Blvd. An additional round of public outreach is planned for spring 2024 to solicit input on these alternatives.
BACKGROUND
Goals and 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 is undertaking this project in 2023-2024 in order 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.
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
DISCUSSION
Existing Conditions Study
The consultant team completed an existing conditions study for this corridor in fall 2023 and found that the 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 1000-2000 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.
Some highlights of the data collection and analysis:
• Average speeds were around 30 mph, with 85% of drivers traveling at or below 35 mph; the highest recorded speed was 46 mph.
• 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, bicycles comprised 10-15% of all traffic on Fernside.
• On-street parking was less than 50% occupied at all times of day.
For more information, including photos, graphs, and diagrams, see Exhibit 1: Existing Conditions Analysis & Toolbox Slides.
Public Input
The project team completed the first round of public input in December 2023. Outreach efforts included:
• 40,550 emails and text messages delivered via 10 newsletters/notices to various City of Alameda mailing lists
• 600 responses to an online survey
• 400 postal mail notices sent to all Fernside Boulevard addresses
• 85 people attended an in-person community workshop
• 28 people attended a virtual community workshop
• 5 A-frames with posters placed along Fernside Boulevard for over 2 weeks
For more information about how the project team reached out to the community, see Exhibit 2: Public Engagement Activities, August to December 2023.
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.
A full report of public input findings is in Exhibits 3 and 4: Fernside Boulevard Existing Conditions Feedback Summary, memo and slides.
Project Phases
We anticipate the following phases for this project:
• Public outreach for existing conditions & initial input: November-December 2023 plus Transportation Commission in January 2024
• Public outreach for draft concept alternatives: Spring 2024, including a Transportation Commission public hearing
• Public hearings for final design concept: Transportation Commission and City Council public hearings, including seeking City Council approval, summer or fall 2024
• Resurfacing and restriping on Fernside Blvd west of High St, 2025 (tentative)
• Construct full corridor project: timing will depend on finding funding, with a target to complete construction by 2030
FINANCIAL IMPACT
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 the next fiscal year, the City anticipates utilizing an additional $66,000 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 pedestrians and bicyclists will encourage more people to walk and bike for transportation, reducing greenhouse gas emissions.
RECOMMENDATION
Review and discuss existing conditions & initial public input on the Fernside Boulevard Traffic Safety & Bikeways Project.
Respectfully submitted,
Lisa Foster, Acting Transportation Planning Manager
Exhibits:
1. Existing Conditions Analysis & Toolbox Slides
2. Public Engagement Activities, August to December 2023
3. Existing Conditions Feedback Summary (Memo)
4. Existing Conditions Feedback Summary (Slides)