City of Bandon CITY COUNCIL AGENDA DOCUMENTATION DATE: Nov. 5, 2018

SUBJECT: Highway 101 - Proposed 3-lane Configuration ITEM #: 5.2.1 Update and Information

BACKGROUND

The City of Bandon has been working with the Oregon Department of Transportation (ODOT) for over 2 years to identify and consider options to address several traffic and safety concerns along Highway 101 through the City of Bandon.

Traveling South to North, along Highway 101 through the City of Bandon, you will encounter the following situations:

• Highway 101 approaches the City of Bandon as a two-lane highway. • Just South of Seabird Drive, the highway transitions to a three-lane configuration, adding a center

turn lane. • At 13th Street SW, the highway transitions from three lanes to five lanes, adding a passing lane in

each direction and encouraging vehicles to pass through the most vulnerable and congested areas of the City.

• Crosswalk concerns increase near the school zone, which encompasses 11th Street (Traffic Signal), 10th Street (No Signal) and 9th Street (No Signal). A flag-crossing system has been put in place at 10th and 9th street, as a temporary effort to improve visibility and pedestrian safety.

• Oregon Avenue SE (Ace/Chevron), which is also within the school zone, has no signal and given its unique intersection char?tcteristics, allows a complicated set of traffic patterns.

• A five-lane to four-lane transition takes place at Chicago Avenue SE, the first entrance to Old Town, where the center line disappears. This leaves Northbound traffic attempting to turn in to Old Town unprotected and in the middle of the highway as they wait to turn.

• This four-lane configuration continues through the traffic light at Fillmore, which without a protected turn lane, provides another challenge for left-turning vehicular traffic in both directions. This is also the area where we would to create a stronger connection for pedestrian & vehicular traffic between Old Town and the Woolen Mill area.

• Continuing North, the highway transitions from four lanes to five lanes, with the return of the center turn lane between Harlem Street SE and June Avenue SE.

• The five-lane configuration continues with raised medians, turn lanes and a traffic signal at the junction with 42S, until after the shopping center where it transitions rather quickly from five to two lanes.

Most all of these situations occur within a one-mile stretch of highway 101 through the heart of Bandon.

What difficulties and concerns do these various situations present? To name a few:

• The City of Bandon becomes the "Passing Zone" for both North & South bound traffic • This passing zone and the wide cross-section of the highway encourages speeding • Travel lanes right up against the sidewalks provide no buffer between vehicular, bicycle and

pedestrian traffic. • Bike lanes along this stretch of highway come and go, leading to dangerous transitions for

cyclists, motor vehicle and pedestrian traffic • Unsafe and risky pedestrian crossings exist at 12th St, 10th St, 9th St, Oregon Ave, Chicago Ave,

Delaware Ave, Elmira Ave, Fillmore Ave, Harlem St, and June Ave

• Travel and center turn lanes are used for truck loading/unloading and parking, in some instances • The constantly changing lane configurations and highway width lead to uncertain or last-minute

decision-making for drivers who are not paying full attention as they travel through town • Highway lane transitions locations conflict with key points of pedestrian/vehicular traffic • Increased risk of accident at Fillmore/Highway 101 intersection

When considering all these issues, and how to make the interface with highway 101 safer for those who live, work and travel through our community, reducing the highway cross-section from five-lanes to three­lanes seems to provide the most productive and positive impact.

This is not to say that we don't have any concerns about reducing the number of lanes from five to three. There are a few. The most significant of these is the potential "wait-time" increase to make a left hand turn, from any side street, onto the highway. So, to better understand the potential wait-time impact we asked ODOT to conduct an analysis of converting the existing five-lane section of highway 101 to a three-lane section between mile points 274.2 and 274.6. The resulting technical memorandum outlines the impacts to vehicular capacity and travel times, as a result of the lane reconfiguration. The technical memorandum is included with this agenda item. Representatives of ODOT will be attending the Council meeting to present their findings and address any questions.

After studying and discussing the many issues involved with the highway 101 interface with ODOT representatives and City staff from the Police, Public Works and Planning departments, I firmly believe that it is in the best interest of our community residents to make the interface with highway 101 safer by reducing the number of lanes to three as discussed.

Knowing that this is a big step towards vehicular and pedestrian safety, ODOT is willing to provide the restriping at no cost to the City, with the understanding that the reconfiguration would stay in place for at least a year trial period. If the City decides to keep the three-lane configuration we would move into further safety enhancements, such as pursuing a cross-walk signal at gth street, intersection bulb-outs where feasible, and other safety/transportation enhancements. If the City decides to return to the five­lane configuration, the cost of doing so would be borne by the City.

Additional reference information is provided with this agenda item.

FISCAL IMPACT

No cost for initial re-striping. Future costs would be phased/project based.

RECOMMENDATION

Motion to direct the City Manager to continue to work with City staff and the Oregon Department of Transportation, on plans to convert the existing five-lane section of Highway 101 to a three-lane section through the City and bring back a scope of work and agreement for consideration at the December Council meeting.

SUBMITTED BY

Oregon Kate Brown, Governor

Department of Transportation

Region 3 Traffic

3500 NW Stewart Parkway Roseburg, Oregon 97470

Phone 541 . 957 .3536 Fax 541 .672.6148

TECHNICAL MEMORANDUM

TO:

FROM:

DATE:

SUBJECT:

Darrin Neavoll District 7 Manager

Aaron Brooks, PE District 7 Operations Engineer

October 31, 2018

3-Lane Analysis Bandon US 101 (Oregon Coast Highway 009) MP 273.6- 27 4.6

Region 3 Traffic has conducted an analysis of converting the existing 5-lane/4-lane section of US 101 between mile points 273.6 and 274.6 to a 3-lane section. This memo outlines the impacts to vehicular capacity and travel times as a result of a lane reconfiguration.

Traffic Volumes

This section of Highway has an Average Annual Daily Traffic (AADT) volume of 9,900 vehicles (Year 2017) approximately 18% of which are heavy vehicles. There has been low historical traffic growth in this segment (less than 1 %/year); this trend is expected to continue. Large seasonal traffic volume variations are present due to coastal attractions. Most common modes of travel on this section include: passenger vehicles, recreational vehicles, cycling, and walking.

Analysis volumes were collected during the summer peak of 2016 at the 11th St and Fillmore Ave. signalized intersections by a manual classification count, and at other intersections during the fall of 2018 using directional tube counts. This analysis represents traffic conditions during the summer peak, thus fall volumes have been adjusted to represent that time period.

Study Intersections

The study area contains driveway approaches, un-signalized public approaches, and two signalized intersections. Six intersections were selected for analysis: Fillmore Ave, 81h, 9th, 1 O'h, 11 1

h, and 121h streets. Highway Capacity Manual (HCM) methodologies were used to report

capacity, delays, and level of service using Synchro software.

Side street lane configurations were assumed to remain the same as existing, with the only change between existing 5-lane/4-lane and 3-lane analysis being one less through lane in each direction of mainline US 101 travel.

Figure 1: Study Intersections

Analysis Results

The table below shows the controlling movement at each un-signalized intersections, Level of Service (LOS), average delay of the controlling movement, and the Volume to Capacity (V/C) ratio. The controlling movement of an un-signalized intersection is the movement (usually left turn from the side street) which experiences the longest delays at the particular intersection. LOS is a letter representation of delay (A being the least and F the highest) for the critical movement. The V/C ratio is the proportion of vehicles observed compared to the theoretical maximum number of vehicles that could pass through the intersection.

5-Lane 3-Lane

Controlling LOS

Controlling V/C LOS

Controlling V/C

movement Delay (sec) Delay (sec)

Fillmore Signalized B N/A 0.48 C N/A 0.61

8th EB-L C 20 0.43 D 29 0.56

9th EB C 21 0.31 D 32 0.43

10th WB C 21 0.33 E 41 0.58

11th Signalized B N/A 0.59 C N/A 0.8

12th WB C 17 0.25 D 25 0.34

A 3-lane section will result in a minor increase in mainline US 101 travel time through Bandon; SimTraffic, a traffic simulation tool , indicates 8 seconds of average additional travel time is expected due to the reduction of capacity at the signalized intersections and reduction in passing opportunity. Delays for side street vehicles to find a gap and enter the highway at un-signalized intersections are estimated to increase between 8 and 20 seconds within the study area. The results of this analysis are based upon the highest hour of the day during the peak summer month, thus showing a relative worst case impact. Additional travel time during off peak seasons and hours will be far less impactful.

Fillmore Signal

A lane configuration change will result in the presence of mainline left turn lanes at the US 101 /Fillmore intersection, an evaluation of left turn signal phasing revealed that the appropriate form of left turn control is "permissive only". Left turn phasing is based on either the left turn volume or the product of left turn volume and opposing through volume, while taking into account other factors such as crash data. Current left turn volumes are approximately 1/3 of those listed in ODOT guidance to consider protected/permissive phasing (flashing yellow arrow); the product of left and opposing through volume is approximately Y:i of the guidance values. The signal operation should be monitored for changes in traffic volumes or crash patterns following a lane configuration which could indicate the need for phasing enhancements.

The table below shows estimated delays per movement for the Fillmore intersection for both the existing 4-lane and 3-lane configuration.

Fillmore Average Delay (sec)

EBL EBT EBR WBL WBT WBR NBL NBT NBR SBL SBT SBR

4-lane 17.3 10.3 8.7 19.8 14.0 7.4 12.0 12.9 5.6 12.2 12.2 6.0

3-lane 29.5 11.5 10.7 27 .1 19.0 14.3 16.0 15.4 7.8 18.4 15.0 13.1

The results show an increase in delay to make a left turn movement from US 101 onto Fillmore for the 3-lane scenario, however it should be noted that vehicles will be waiting in the protection of a dedicated lane rather than a shared through travel lane.

Summary

A change to a 3-lane configuration on US 101 from June Ave. south will result in safety improvements at the cost of some delay to vehicular traffic. Delay will be most noticed during the peak hours of the day in summer months and peak holiday travel. Safety advantages include: a refuge for vehicles to make left turns into driveways or side streets (compared to 4-lane section), less conflicting cross traffic movements for vehicles crossing US 101 traffic, slightly lower speeds, shorter pedestrian crossing conflict area, reduction in pedestrian "double threat", ability to add other pedestrian improvements such as "bump outs", addition of bike lanes. A crash reduction of approximately 20% is expected when converting a 4-lane roadway to a 3-lane roadway with center turn lane.

If you have questions or need additional information please contact Aaron Brooks at 541.957.3517.

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Road Diet General Information

Reconfiguration of a roadway, sometimes known as a road diet, involves the reallocation of roadway space. The classic road diet entails reducing a 4-lane roadway to a 2-Iane roadway with a two way left turn lane (TWLTL) and bike lanes. In a typical downtown business district there is also parking that may be affected. The figure below shows how a typical road diet fits within the existing curb-to-curb width.

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Alter Con-:ersion lo Rroo Diet

Traditionally, roads have been designed to handle peak period volumes. By designing for the peak period, the roads may be over-designed for the most common traffic volumes. When a roadway is over-designed it can encourage drivers to travel faster than the posted speed during off-peak periods. It also creates an unnecessarily wide cross-section for pedestrians crossing the street.

Road diets may generate benefits for all modes of transportation, not just bicycles and pedestrians. In a traditional 4-to-3 road diet, removing the left turns from through travel lanes will often reduce the number of crashes caused by stoppages in the travel lanes. It also reduces the number of lanes the left-turning vehicle must cross while making the turn.

By the Numbers

When considering a road diet it is important to consider safety benefits, neighborhood benefits, operational impacts, and project costs. Although reducing the number of lanes reduces capacity, it also creates a more inviting environment for business and residential uses and encourages alternate modes of transportation. If the volumes exceed -20,000 vehicles per day or -1000 vehicles per hour per direction a more in-depth study is recommended to evaluate additional options and mitigations for a potential road diet.

In a standard four-lane section of roadway it is common for speeds to increase at midblock locations. These increased speeds result in a higher number of pedestrian fatalities. Eight out of ten pedestrians struck by a vehicle traveling at 40 mph or faster will die. By reconfiguring the roadway to one lane in each direction with a TWL TL speeds are reduced and consequently fatalities are reduced. If a pedestrian is struck by a vehicle traveling at 20 mph or less, there is a 90% chance they will survive the crash.

According to the FHWA, "when modified from four travel lanes to two travel lanes with a two way left turn lane, roadways have experienced a 29 percent reduction in all roadway crashes." In minimizing the crossing distance and creating fewer midblock crossing locations, road diets reduce the potential for pedestrian fatalities

lli.dit. FHWA Proven Safety Countermeasure, "Road Diet"

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Road Diet Others Cities' Experiences

San Francisco County Transportation Authority (SFTA) has implemented SO+ road diets and Seattle has implemented 30+ road diets since the 1970s. Both cities have had positive and negative experiences but the positive heavily outweigh the negative.

The US Census American Community Survey has shown that use of alternate modes of transportation has dramatically changed between 2002 and 2010. San Francisco has encouraged this change by increasing pedestrian and bicycle safety and comfort on their city streets.

Cre.dil.i US Census American Community Survey, Changes in

Mode Share in San Francisco

In a before and after study conducted on 3 road diets in San Francisco, SFT A found a reduction in speeds of 4%-14%. A reduction in speed creates a safer environment for non-motorists. They also found road diets reduce midblock crashes up to 85 percent.

Manse I btwn : before (mph) after (mph ) chance (mph) Hol\,:ke • Som erset

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Colbv · Dartmouth easib ound 39 a 3-l .8 5 westbound 37.4 35 8 1 6

Visitacion . John F Sh el ev eastbound 50 47.5 25 w~stb ound 473 42.6 4 7

befo re aftar chanae T olal midblock collisions 58 9 -1 9 M1dblock Collision Rate 3.89 0.57 3.32

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Both Seattle and San Francisco perform before and after studies on the road diets they implement. Even with the ever growing number of road diets being applied, both cities still face critical questions throughout the process.

A recently installed road diet in Seattle was highly contested during the review process. The traveling public was concerned about the increased travel time and congestion that they believed it would cause. A study conducted by the Toole Design Group found that after implementation there were only 3 requests to remove the road diet.

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Both agencies stress public outreach and education as mandatory when starting the process to implement a road diet. Careful before and after studies to monitor not only the street with the new road diet but also the surrounding streets for spillover is also necessary to ensure pedestrian and bicycle safety.

Helpful Resources

./ Pedestrian and Bicycle Information Center http: //www. wa lid n gin fo.org /tra ining /pbic / i ndex.cfm

./ FHWA Proven Safety Counter Measures, "Road Diets'' http://safety.fl1wa .dot.gov/provencountermeasures /fl1wa sa 1 2 013.htm

./ Crash Modification Clearinghouse http: //www.cm fcl ea ri n ghouse.o rg/

./ San Francisco County Transportation Authority http://www.sfcta.org/mos /Fron tpage /

./ Toole Design Group (Seattle) http://www.tooledes ign.com/

Road Diets - Ashland Oregon Case

Study

Marc Butorac, PE

June 17th, 2014

City of Bend Transportation Safety Advisory Committee

Results of the North Main Street Road Diet

• Improve Safety • 2 crashes in year 1, down from 12/year average

• Reduce Vehicle Speeds • g5th percentile speeds reduced from 32 mph to 30 mph

• Increase Bicycle and Pedestrian Volumes • Bicyclists increases are modest but include a larger diversity of

the population

• Maintain Acceptable Vehicle Travel Time • No increase in travel time (and some improvement), this is

likely due to removal of left-turns from through lanes

• Gain Community Support • The City Council voted to keep the road diet after the trial

period.

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The Challenge of Implementation a Road Diet

Some members of the public may initially have a negative "Gut Reaction"

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The Challenge of Implementation a Road Diet

... but negative perceptions can be overcome From: Jrm Hock trnallto:jim@orlglndevekJpment.net] Sent: Thursday, JvJy 13, 2006 4:51 PM To: Szymanski, Doreen Cc pat.mumford@Wt1cr-.ovia.com Subject East Blvd. Kudos

Jusi wanted to tat 101.1 kn~, ho'.v weta I ttrnnk the East Bfvd. conversion is going. l travel that road probabty 6 times per day at various hours, and it seems the pedestrian i:slam:ls and lane reducticm he.s he4)ed things tremendously on th-,e street Today I saw 2 ladies. in skirts and htg·:h he-els, cros.sillg the street 'While ttley talked, arriving at the middle is!and, and then contin:umng to Cro$$. There is NO way that they 'i\lOukf've beef! able to cress in h~ h he.et.s before. lf they'd tried, rt would'v-e be-eri a mad dash. oot a l~isurety walk while conversing.

The traffic has slowed considerably, but rt still fiaws fine. l'Ve gotten stu~ behind a bus a coupt:e of times and grumbled I couldn't pas:, liut U,e 15 setUild§ ii tbok for fne bus to §fu6 Mauv wg;, ,:1 At) Rad ,iMi.r ~it

tf the goal was to slow down traffic, improve pedestrian s-afety and quaillty ot life, while a~owtng traffic to flow smoothly. you've succeed-Gd!

Thanks ag

Jim

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Tools to Overcome Negative Perceptions

• Engage stakeholders early

• Provide successful examples

• Provide technical data to interested parties

. • Propose a temporary road diet (i.e. Pilot Project)

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Temporary Road Diets (Pilot Project)

Use of temporary road diets can let a municipality try a road diet before they commit to the full cost.

Proposed Road Diet in Erie, PA Implemented Temporary Road Diet in Erie, PA

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