TOWN OF SAN ANSELMO STAFF REPORT. January 5, 2016

Transcription

1 TOWN OF SAN ANSELMO STAFF REPORT January 5, 2016 For the meeting of January 12, 2016 TO: FROM: SUBJECT: Town Council Sean Condry, P.E., Public Works Director Dan Blomquist, P.E., Senior Engineer School Zone Speed Limit Reduction RECOMMENDATION: That Town Council approves the revised Resolution (Attachment 1) to establish 15 mile per hour school zone speed limits on two lane streets within 500 feet of Brookside Elementary, Wade Thomas Elementary, St. Anselm's Elementary and Sir Francis Drake High Schools. BACKGROUND AND DISCUSSION: Based on concerns raised regarding the enforcement of the 15 mile per hour (MPH) school zone speed limits approved by the Council in November 2015, the Town has revised the Resolution (Attachment 1) to improve enforceability of the school zone speed limits per the attached report to the Town of San Anselmo for Reduced Speed Zone Speed Limits (Attachment 2). The Report takes into consideration the provisions of the California Vehicle Code (CVC) Section 627 which allows for consideration of pedestrian and bicycle safety in the setting if vehicular speed limits on residential streets. FISCAL IMPACT: Approval of the 15 MPH school zone speed limit at each school would require the Town to install up to 20 new street signs and posts. The estimated cost per sign installation is $200 each. Total cost would be $4,000. Respectfully submitted, Daniel Blomquist, P.E. Senior Engineer 2s- Sean Condry, P.E. Public Works Director Attachments: Attachment 1 Draft Resolution Attachment 2 Report for Reduced School Zone Speed Limits (January 2016) 1 of 22

2 RESOLUTION NO. A RESOLUTION OF THE TOWN COUNCIL OF THE TOWN OF SAN ANSELMO ESTABLISHING SCHOOL ZONE SPEED LIMITS Whereas, the Town of San Anselmo is seeking to improve safety and reduce the severity of collisions in the vicinity of Brookside Elementary, Wade Thomas Elementary, St. Anselm's Elementary and Sir Francis Drake High Schools; and Whereas, establishment of school zone speed limits under California Assembly Bill 321 requires consideration of the provisions of California Vehicle Code Section 627; and Whereas, at its meeting of January 12, 2016, the Town Council of the Town of San Anselmo reviewed a report prepared by Parisi Transportation Consulting that addresses California Vehicle Code Section 627 with a specific focus on pedestrian and bicyclist safety ("Parisi Report"); and Whereas, the Parisi Report supports the establishment of 15 MPH school zone speed limits on two lane streets within 500 feet of each school to improve safety for all roadway users and reduce the severity of collisions for pedestrians and bicyclists. NOW, THEREFORE, BE IT RESOLVED that the Town Council of the Town of San Anselmo does hereby establish 15 MPH school zone speed limits on portions of The Alameda, Berkeley Avenue, Brookmead Place, Belle Avenue, Richmond Road, Mariposa Avenue, Ross Avenue, Woodland Avenue, Sunnyside Avenue, Crescent Road and Saunders Avenue within 500 feet of a school, as reflected in the attached Exhibit 1. Adopted at a regular meeting of the San Anselmo Town Council held on the 12 1 h day of January, 2016, by the following vote to wit: AYES: NOES: ABSENT: ABSTAIN: Mayor Deputy Clerk Attachment 1 2 of 22

3 Figure 1: Brookside Elementary School Area 3 of 22

4 Figure 2: Sir Francis Drake High School Area 4 of 22

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6 THE TOWN OF SAN ANSELMO TOWN OF SAN ANSELMO REDUCED SCHOOL ZONE SPEED LIMITS Traffic Engineering Study 5R4-1ICAI WHCN CHILDREN Assembly C ( ;:r :;::: "' ~ - 3 c: 3 l loptiona lj SPEED LIMIT R END SCHOOL OR SPEED 55-3 LIMIT R SPEED LIMIT 5R4-1ICAI CHILDREN ~ - '"' (~ >., No"J- ~ SCHOOL 5R24-2ICAI 'J.l'Jt' SPEED 7{1{ LIMIT 5R4-1 ICAJ CHILDREN Assembly B :;::: "' x ~j" c: 3 SPEED LIMIT 15 5R4-1ICAI WHEN CHILDREN WHC H CHILDREN Assembly C 5R4-1ICAI Assembly C R1-9 JANUARY 2016 Attachment 2 6 of 22

7 Reduced School Zone Speed Limits On January l. 2008, California Assembly Bill (AB) 321 went into effect. The bill allows local jurisdictions - through an ordinance or resolution - to extend the 25 mph prima facie speed limit in school zones from 500 feet to l,000 feet from the school grounds and to reduce the speed limit to 15 or 20 mph up to 500 feet from the school grounds, under certain roadway conditions and taking into consideration the provisions of CVC 627. A full Engineering & Traffic Survey is not necessary under A~ 321, however the provisions of CVC 627 shall be taken into consideration when determining the school speed reductions. One of the considerations in eve 627 is pedestrian and bicyclist safety (see Appendices A and BJ. One of the intentions of the new law was to enhance the safety of children walking and bicycling to school. If a vehicle driving at a slow speed collides with a child on a bicycle or on foot, it will generally result in less severe injuries than a vehicle traveling at a faster speed. In 1999 the National Highway Traffic Safety Administration published a "Literature Review on Vehicle Travel Speeds and Pedestrian Injuries." 1 According to NHTSA's study, fatality and serious injury rates increase substantially when travel speeds rise. For example, for children ages 14 or less, 20.2 percent suffer fatal or serious injuries when struck by a vehicle traveling 1-20 mph, while 32.8 percent are killed or seriously injured when hit by a vehicle traveling mph. Per the Institute of Transportation Engineer's Safe Routes to School's "Reduced School Area Speed Limits" briefing sheet, slower speeds in school zones are often warranted because children do not have the same ability as adults in: 2 Seeing and evaluating traffic conditions because of their height; Processing information because of their limited peripheral vision and visual acuity; Perceiving correctly the direction and sound of traffic; and Understanding the use of traffic control devices and crosswalks. 1 National Highway Traffic Safety Administration, "Literature Review an Vehicle Tra vel Speeds and Pedestrian Injuries" [ 2 Safe Routes in conjunc tion with th e Institute of Transporta ti on Engineers. "Safe Routes la Schaal Briefing Shee ts : Reduced School Area Speed Limits", 2013 [ ITE_SRTS_Briefing_Sheet_08_ReducedSchoalAreaSpeedlimits.pdf]. 2 7 of 22

8 Safe Kids Worldwide echo similar ideas. They state that children are impulsive and have difficulty judging speed, spatial relations, and distance. Auditory and visual acuity, depth perception and proper scanning ability develop gradually and do not fully mature until at least age Additionally, their smaller bodies are less able to physically withstand the impact with a vehicle than an adult. California's new reduced or extended school zone speed limits can be applicable on streets that meet the following conditions: 1) Within a residential district that has a posted speed limit no greater than 30 mph, and 2) No more than a total of two through lanes of traffic. Similar to the reduced 25 mph school zone speed limit on streets with higher posted streets, the reduced 15 or 20 mph school zone speed limit would only be in effect when children are present (going to or leaving school, either during school hours or during the noon recess hour). However, if a fence, gate or other physical barrier does not surround a portion of the school grounds, the 15 or 20 mph limit would be in effect at all times. Figure 7B-103(CA) (see Appendix C) of this document illustrates the use of extended and reduced school zone speed limits. The provisions of AB 321 apply to public, charter, and private schools. It is recommended that all of San Anselmo's two-lane, residential-district roadways within school zones that are signed at 30 mph or less be declared by ordinance or resolution to have a reduced 15 mph school zone speed limit within 500 feet of the school grounds and an extended 25 mph school zone speed limit between 500 feet and 1,000 feet of the school grounds. The use of 15 mph reduced speed zones, instead of 20 mph reduced speed zones, is suggested due to the potential for fewer severe injury or fatal collisions with the use of a lower speed limit, as shown in the previously discussed research. A list of locations where 15 mph school speed zones would be eligible in San Anselmo is provided in Appendix D. It also includes maps illustrating the locations of residential district streets eligible for 15 mph speed limits. It should be noted that in the absence of regular enforcement, the 15 mph speed limit signs could have limited potential in reducing speeds. Increased periodic enforcement should be provided within reduced speed zones. Reducing school zone speed limits below 25 mph is not allowable on roadways with more than two vehicular travel lanes, within non-residential districts, or when non-school speed 3 U.S. Department of Health & Human Services, "Child Pedestrian Safety Rules", 2015, [ hslc/tta-system/family /for -families/safety /safety-prevenlion/childpedestrian.html. 3 8 of 22

9 limits exceed 30 mph. For such roadways, it is suggested that other measures be considered, such as using larger school speed limit assembly signs (i.e., SCHOOL SPEED LIMIT 25 WHEN CHILDREN ARE PRESENT) and driver speed feedback signs (which cost up to $10,000 per sign). 4 9 of 22

10 Appendix A Assembly Bill No. 321 CHAPTER 384 An act to amend Section of the Vehicle Code, relating to vehicles. [Approved by Governor October l 0, Filed with Secretary of State October l 0, 2007.] AB 321, Nava. Vehicles: prima facie speed limits: schools. ( l) Existing law establishes a 25 miles per hour prima facie limit when approaching or passing a school building or the grounds thereof, contiguous to a highway and posted up to 500 feet away from the school grounds, with a standard "SCHOOL" warning sign, while children are going to or leaving the school either during school hours or during the noon recess period. The prima facie limit also applies when approaching or passing school grounds that are not separated from the highway by a fence, gate, or other physical barrier while the grounds are in use by children and the highway is posted with a standard "SCHOOL" warning sign. A violation of that prima facie limit is an infraction. Existing law allows a city or county, based on an engineering and traffic survey that the prima facie speed limit of 25 miles per hour is more than is reasonable or safe, by ordinance or resolution, to determine and declare a prima facie speed limit of 20 or 15 miles per hour, whichever is justified as the appropriate speed limit by that survey. This bill would additionally allow a city or county to establish in a residence district, on a highway with a posted speed limit of 30 miles per hour or slower, a 15 miles per hour prima facie limit when approaching, at a distance of less than 500 feet from, or passing, a school building or the grounds thereof, contiguous to a highway and posted with a school warning sign that indicates a speed limit of 15 miles per hour, while children are going to or leaving the school, either during school hours or during the noon recess period. The prima facie limit would also apply when approaching, at that same distance, or passing school grounds that are not separated from the highway by a fence, gate, or other physical barrier while the grounds are in,use by children and the highway is posted with one of those signs. The bill would provide that a 25 miles per hour prima facie limit in a residence district, on a highway with a posted speed limit of 30 miles per hour or slower, applies, as to those local authorities, when approaching, at a distance of 500 to l,000 feet from, one of those areas where children are going to or leaving the school, either during school hours or during the 5 10 of 22

11 noon recess period, that is posted with a school warning sign that indicates a speed limit of 25 miles per hour. The bill would require that these prima fade speed limits apply only to highways that meet certain conditions. The bill would require a city or county that adopts a resolution or ordinance establishing revised prima facie limits to reimburse the Department of Transportation for any costs incurred by that department in implementing the bill. By authorizing a change in the prima fade limits, the bill would expand the scope of an existing crime, thereby imposing a state-mandated local program. (2) The California Constitution requires the state to reimburse local agencies and school districts for certain costs mandated by the state. Statutory provisions establish procedures for making that reimbursement. This bill would provide that no reimbursement is required by this act for a specified reason. The people of the State of California do enact as follows: SECTION 1. Section of the Vehicle Code is amended to read: (a) (1) Whenever a local authority determines upon the basis of an engineering and traffic survey that the prima fade speed limit of 25 miles per hour established by paragraph (2) of subdivision (a) of Section is more than is reasonable or safe, the local authority may, by ordinance or resolution, determine and declare a prima fade speed limit of 20 or 15 miles per hour, whichever is justified as the appropriate speed limit by that survey. (2) An ordinance or resolution adopted under paragraph ( 1) shall not be effective until appropriate signs giving notice of the speed limit are erected upon the highway and, in the case of a state highway, until the ordinance is approved by the Department of Transportation and the appropriate signs are erected upon the highway. (b) ( 1) Notwithstanding subdivision (a) or any other provision of law, a local authority may, by ordinance or resolution, determine and declare prima fade speed limits as follows: (A) A 15 miles per hour prima fade limit in a residence district, on a highway with a posted speed limit of 30 miles per hour or slower, when approaching, at a distance of less than 500 feet from, or passing, a school building or the grounds of a school building, contiguous to a highway and posted with a school warning sign that indicates a speed limit of 15 miles per hour, while children are going to or leaving the school, either during school hours 6 11 of 22

12 or during the noon recess period. The prima fade limit shall also apply when approaching, at a distance of less than 500 feet from, or passing, school grounds that are not separated from the highway by a fence, gate, or other physical barrier while the grounds are in use by children and the highway is posted with a school warning sign that indicates a speed limit of 15 miles per hour. (BJ A 25 miles per hour prima fade limit in a residence district, on a highway with a posted speed limit of 30 miles per hour or slower, when approaching, at a distance of 500 to 1,000 feet from, a school building or the grounds thereof, contiguous to a highway and posted with a school warning sign that indicates a speed limit of 25 miles per hour, while children are going to or leaving the school, either during school hours or during the noon recess period. The prima fade limit shall also apply when approaching, at a distance of 500 to 1,000 feet from, school grounds that are not separated from the highway by a fence, gate, or other physical barrier while the grounds are in use by children and the highway is posted with a school warning sign that indicates a speed limit of 25 miles per hour. (2J The prima fade limits established under paragraph (1 J apply only to highways that meet all of the following conditions: (AJ A maximum of two traffic lanes. (BJ A maximum posted 30 miles per hour prima fade speed limit immediately prior to and after the school zone. (3J The prima fade limits established under paragraph ( 1) apply to all lanes of an affected highway, in both directions of travel. (4J When determining the need to lower the prima fade speed limit, the local authority shall take the provisions of Section 627 into consideration. (5) (AJ An ordinance or resolution adopted under paragraph (1) shall not be effective until appropriate signs giving notice of the speed limit are erected upon the highway and, in the case of a state highway, until the ordinance is approved by the Department of Transportation and the appropriate signs are erected upon the highway. (BJ For purposes of subparagraph (AJ of paragraph (1 J, school warning signs indicating a speed limit of 15 miles per hour may be placed at a distance up to 500 feet away from school grounds of 22

13 (C) For purposes of subparagraph (BJ of paragraph (1 J, school warning signs indicating a speed limit of 25 miles per hour may be placed at any distance between 500 and 1,000 feet away from the school grounds. (DJ A local authority shall reimburse the Department of Transportation for all costs incurred by the department under this subdivision. SEC. 2. No reimbursement is required by this act pursuant to Section 6 of Article XIII B of the California Constitution because the only costs that may be incurred by a local agency or school district will be incurred because this act creates a new crime or infraction, eliminates a crime or infraction, or changes the penalty for a crime or infraction, within the meaning of Section of the Government Code, or changes the definition of a crime within the meaning of Section 6 of Article XIII B of the California Constitution of 22

14 Appendix B California Vehicle Code 627 DIVISION I. WORDS AND PHRASES DEFINED [I ] (Division I enacted by Stats. 1959, Ch. 3. ) 627. (a) "Engineering and traffic survey," as used in this code, means a survey of highway and traffic conditions in accordance with methods determined by the Department of Transportation for use by state and local authorities. (b) An engineering and traffic survey shall include, among other requirements deemed necessary by the department, consideration of all of the following: ( 1) Prevailing speeds as determined by traffic engineering measurements. (2) Accident records. (3) Highway, traffic, and roadside conditions not readily apparent to the driver. (c) When conducting an engineering and traffic survey, local authorities, in addition to the factors set forth in paragraphs ( 1) to (3), inclusive, of subdivision (b) may' consider all of the following: ( 1) Residential density, if any of the following conditions exist on the particular portion of highway and the property contiguous thereto, other than a business district: (A) Upon one side of the highway, within a distance of a quarter of a mile, the contiguous property fronting thereon is occupied by 13 or more separate dwelling houses or business structures. (B) Upon both sides of the highway, collectively, within a distance of a quarter of a mile, the contiguous property fronting thereon is occupied by 16 or more separate dwelling houses or business structures. (C) The portion of highway is longer than one-quarter of a mile but has the ratio of separate dwelling houses or business structures to the length of the highway described in either subparagraph (A) or (B). (2) Pedestrian and bicyclist safety. (Amended by Stats. 2000, Ch. 45, Sec. I. Effective January I, 200 I.) 9 14 of 22

15 Appendix C California MUTCD 2012 Edition (FHWA's MUTCD 2009 Edition, as amended for use in California) Section 7B. 15 School Speed Limit Assembly EXTENDED 25 MPH AND/OR REDUCED SPEEDS IN SCHOOL ZONES Option: A local authority may declare a 15 mph prima facie speed limit within 500 feet of a school building or school grounds and an extended 25 mph prima facie speed limit within 500 to l 000 feet from a school or school grounds. Support: The extended 25 mph school speed zone can provide a progressive speed reduction. Standard: If the local authority declares by ordinance or resolution the above prima facie speed limits, all of the following criteria shall be met: A. Street (or highway) is in a residential district. B. Street (or highway) outside of a school zone has a posted speed limit no greater than 30 mph. C. Street (or highway) has no more than a total of two through traffic lanes (one in each direction or two in one direction). D. The reduced school zone speed limit of 15 mph is within 500 feet of school grounds. E. The extended school zone speed limit of 25 mph is within 500 to l 000 feet of school grounds. When used, a local ordinance or resolution adopted to establish a 15 mph reduced school zone speed limit and/or an extended 25 mph school zone speed limit shall not be effective until School Speed Limit Assembly C (CA) giving notice of the speed limit(s) is erected upon the highway. On a State highway, the ordinance or resolution shall not be effective until the ordinance or resolution has been approved by the Department of Transportation and appropriate school zone speed signs are erected upon the State highway. For purposes of a 15 mph reduced prima facie speed limit, School Speed Limit Assembly C (CA) indicating a speed limit of 15 mph shall be placed at a distance up to 500 feet away from school grounds. For purposes of an extended 25 mph prima facie speed limit, School of 22

16 Speed Limit Assembly C (CA) indicating a speed limit of 25 mph shall be placed at any distance between 500 to 1,000 feet away from school grounds. Refer to Figure (CA). The established school speed limits shall be effective when children are going to or leaving the school, either during school hours or during the noon recess hour. The school speed limits shall also apply when the school grounds are not separated from the highway by a fence, gate, or other physical barrier while the grounds are in use by children (this condition can apply at any time of day or any day of the week). The determination to reduce a prima facie'speed limit to 15 mph and/or extend a 25 mph school zone speed limit, as described above, shall be documented in writing, in an engineering study. The engineering study shall identify the provisions of Section 627 of the Vehicle Code that support the reduced and/or extended school zone speed limit(s). Guidance: When preparing an engineering study pursuant to the Standard above, the local authority should cite all elements of an Engineering and Traffic Survey, as discussed in Section 627 of the Vehicle Code, that support the need for a reduced speed limit of 15 mph and/or an extended 25 mph school zone speed limit. Support: The documentation of prevailing speeds found in eve Section 627 can be used to establish an existing speed profile for the school zone, but the 85th percentile speed is not used to set the reduced or extended school speed limit. Standard: The local authority shall reimburse the Department of Transportation for all costs incurred by the Department under this section. Section Reduced School Speed Limit Ahead Sign (S4-5, S4-5a) Guidance: A Reduced School Speed Limit Ahead (S4-5, S4-5a) sign (see Figure 78-1 or 78-1 (CA)) should be used to inform road users of a reduced speed zone where the speed limit is being reduced by more than 10 mph, or where engineering judgment indicates that advance notice would be appropriate for the School Advance Warning Assembly D (CA). Standard: If used, the Reduced School Speed Limit Ahead sign shall be followed by a School Speed Limit sign or a School Speed Limit Assembly C (CA). The speed limit displayed on the Reduced School Speed Limit Ahead sign shall be identical to the speed limit displayed on the subsequent School Speed Limit sign or School Speed Limit Assembly C (CA). EXTENDED 25 MPH AND/OR REDUCED SPEEDS IN SCHOOL ZONES of 22

17 Option: For school area traffic control with a reduced school zone speed limit of 15 mph and/or an extended school zone speed limit of 25 mph in a residential district, the Reduced Speed School Zone Ahead (S4-5, S4-5a) sign may be used to give advance notice of a reduced 15 mph school zone speed limit and/or an extended school zone speed limit of 25 mph of 22

18 California MUTCD 2012 Edition (FHWA's MUTCD 2009 E<li1ion, as amc11<lcd for use i11 Californi.1) Page 1278 Figure 7B-103(CA). Example of Signing for School Area Traffic Control with Extended and/or Reduced School Zone Speed Limits ~ eilt> ~1~ :,: ij;::in'li :i' ~ ~ <II u.?:-.0 E ~ see Note 1 N I 0 S~t: :A ffi~ 3 <II 0 fh: l() ~~ N ~ "'"'' i i :t.10l<a.:u..u,.;:) ~:!...:.;.1'. l1i.u-liiiiiiiiiiiiiliol see ""._,._,1.._.,..._,,_"'""'"" Note2 NOTES: 1. For typical sign installation, see approach from lhe south side of school. 2. For typical sign installation for reduced speed conditions, see approach from lhe west side of school. 3. If authorized by ordinance or resoluuon, a progressive reduction in school zone speed limits may be posted in an extended 25 mph school zone 1000 rt lo 500 ft; and, 15 mph school zone less lhan 500 ft from a school, per Standard paragraph 27, in Section 7B Signing from the north and easl on lhe figure inlenllonally not shown. Chnplcr 7B - Sig11s Pnrl 7 - Trnflic Conlrol for School Areas Jmnrnry of 22

19 Appendix D 15 MPH Eligible Roadways Table 1: Streets Eligible to 15MPH - school/sire~( -,_ ~~~t~d -- ro';al < ': 1 Start '' "d:.:, : ',, End ~. ~ ' :,. R~commeridation ' " 'i/j ;. '. " Speed,Trciv~ I. -' ~;r,;......: 1, :~ ~. -.'~;.~',,,.:.. ~,.. ~~ ~,. ;c~"" ;(;; 1~:~a :,,.~~/ ;, ~ :~~:,!"~.. ~i~~it, "~.-:~~anes.~,~: ~~~,,',~/~~~'.,_,.,~ /, Brookside Elementary School The Alameda 25 MPH 2 500' NW of School 500' E of School Reduce to 15 MPH Berkeley Ave 25 MPH 2 The Alameda 500' E of School Reduce to 15 MPH Entrance Path Brookmead 25 MPH 2 500' SW of School Brookside Drive Reduce to 15 MPH Place St. Anselm's Elementary School Belle Ave 25 MPH 2 500' E of School Richmond Road Reduce to 15 MPH Richmond Rd 25 MPH 2 500' SE of School Mariposa Avenue Reduce to 15 MPH Mariposa Ave 25 MPH 2 500' E of School 500' W of School Reduce to 15 MPH Wade Thoma s Elementary School Ross Ave 25 MPH 2 500' E of School Sunnyside Ave Reduce to 15 MPH Woodland Ave 25 MPH 2 500' E of School Sunnyside Ave Reduce to 15 MPH Sunnyside Ave 25 MPH 2 500' S of School Woodland Ave Reduce to 15 MPH Crescent Rd 25 MPH N of School Woodland Ave Reduce to 15 MPH Sir Francis Drake High School Saunders Ave 25 MPH 2 Sir Francis Drake 500' S of School Reduce to 15 MPH Boulevard of 22

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