of 21
8/10/2019 Telegraph Avenue, City Report
1/21
F i U D
W P I C E or TH ECi l 1 C i t n
O A K L A N D
NOV
20 PHI2:17 .
GEND REPORT
CITY
O F O A K LA N D
T O :
H E N R Y L . G A R D N E R F R O M : Brooke
A .
Levin
I N T E R I M
C I T Y
A D M I N I S T R A T O R
S U B J E C T : Telegraph Avenue Complete
Streets D A T E :
November 7, 2014
Plan
COUNCIL
DISTRICT:
i , 3
RE COM M E NDAT ION
Staff
recommendsthatthe
City Council
adopta resolution authorizing the removal
of
travel
lanes and the installation of
bicycle
lanes on Telegraph Avenue
from19
Street
to
41*'Street,
making
associated
traffic
safety and operational improvements, and committing to future study
of
a continuous bikeway
for
the
areafrom41*'
Street
to
57
Street.
OU TC OM E
Adoption
of
this resolutionwi l l
allow
the
City
to implementbikeways,pedestrian, autornobile,
and transit supportive improvements on Telegraph Avenue
from
19'
Street
to
41*'
Street
by
reconfiguring
travel lanes. The project
w i ll
result in an approximately
13%
reduction
in
the total
number of
on-street
parking
spaces
on Telegraph\A.venue between 19'
Street
and
41*'
Street
(up
to approximately 40
spaces
out of
300,
or less than
space
per block face on average). Project
implementation
w i ll
begin in
conjunctionwith
the paving of Telegraph
Avenue
from
16
Street
to
27
Street,
scheduled for spring of
2015.Committing
to future study of
a
continuous bikeway
between41*'
Street
and 57
Street
w i llallow sufficient timeforthe Phase I improvements to
inform
the designforthatsection of TelegraphAvenue,recognizingthatwhat works
w ell
south
of41*'
Street
may not necessarily be the most appropriate design elsewhere inthe corridor.
EXEC U TIVE
SUM M ARY
Oaklandreceived a
grantfrom
the
Alameda
County Transportation
Commission
in 2013 to study
completestreet improvements to the Telegraph Avenue corridor (20 ^
Street
to 57
Street)
to
make thestreetsafer and more comfortable foral lmodes oftravel. The resulting Telegraph
Item:
PublicWorks Committee
December 2, 2014
8/10/2019 Telegraph Avenue, City Report
2/21
Henry
L .Gardner, Interim
Ci ty
Administrator
Subject. Telegraph
Avenue
CompleteStreetsPlan
Date November 7, 2014 Page 2
AvenueComplete StreetPlanused extensive community outreach as
w ell
as technical analysis to
identifysite-specificandcorridor-wideimprovements.
ThePlanrecommends phased implementation due tofundingconstraints and the need for further
community
outreach to achieve consensus in some
parts
of
the
corridor.
The Phase 1
recommendations include thefollowingnear-term action items:
Remove travel lane on TelegraphAvenuein each direction between19 Street and41*'
Street toallow
for
theinstallationof
bicycle
and pedestrian safety improvements.
Re-designate TelegraphAvenuefromBroadwayto40 Street as a M i n o r Arterial
(currently PrincipalArterial )aspartofthe next scheduledstreetre-classification,to
betterreflect its character as a neighborhood-servingcommercialstreet.
Install parking-protected
bicycle
lanes (also
known
as
cycle
tracks ) between20 'Street
and 29' Street, using low-cost and interim materials (e.g., paint,striping,colored
pavement,flexposts).
Install buffered
bicycle
lanes between29 Street and41*'Street, using low-cost and
interimmaterials (e.g., paint, striping,coloredpavement,flexposts).
Install pedestrian improvements (e.g., median refuge islands, ladder
crosswalks,
curb
extensions) using low-cost, interim materials.
Reconfigureon-streetparking,parking meters, andloadingzones as needed to implement
the proposed design, include potential designationo ftime-of-dayloadingzones.U pto
approximately
13%
oftheon-streetparking
spaces
(40 out of 300)w i llbe removed. '
Relocate and consolidate bus
stops
to far-side locations at 24 ' Street, 27' Street, 30
Street, 34 ' Street, M acArthur Boulevardand40 Street to improveefficiency ofbus
transit operations.
Construct permanent transit boarding islands at transit
stops
at 24 ' Street, 27 ' Street, 30 '
Street, 34 ' Street,MacArthur
Boulevard
and 40 ' Street asfundingisavailable.Boarding
islanddesign should be
flexible
to accommodate either protected bike lanes or buffered
bike
lanes.
Prohibiton-streetparking between 55 ' Street andA ileenStreet underSR24to connect
existingTelegraphAvenuebicyclelanes to 55 ' Street and ShattuckAvenuebicycle
routes.
Evaluate the effectiveness of Phase improvements toallowthe Cityto seekfundingfor
future capital improvements on Telegraph
Avenue
from20' Street to 57 ' Street (e.g.,
curb relocations, storm water managementtreatments).
Item:
Public
WorksCommittee
December 2, 2014
8/10/2019 Telegraph Avenue, City Report
3/21
Henry L .Gardner, Interim Ci tyAdministrator
Subject: Telegraph Avenue CompleteStreetsPlan
Date: November 7,2014 Page 3
Seek
funding
for more focused design studies and community outreach on how
best
to
reconfigure thestreetbetween
41*' Street
and 55th
Street
to become a completestreet,
including
reconfiguration
of
the Telegraph Avenue/Shattuck Avenue intersection.
AttachmentAsummarizes the recommendations along the study corridor. Attachment B shows
the existing configuration of Telegraph
Avenue, -while
Attachment C illustrates a
buffered
bike
lane (proposed
from29 ^ Street
to
41*'Street)
and Attachment D illustrates a parking-protected
bike
lane or
cycle
track (proposed
from
20 '
Street
to 29' Street).
The Oakland
Bicycle
and Pedestrian
AdvisoryCommission
unanimously adoptedthese
recommendations at its October 16, 2014 meeting.
Staff
recommends a measured approach to
these
changes
to
allow
for evaluation. Subsequent project
phaseswi l lprimarily
focus on using
the results
of
the Phase
1
evaluation to
seek
capital
funding
to implement
permanent
improvements (e.g., curb re-alignment,
traffic
signal
upgrades)
throughout the entirety
of
the
study corridor (20 '
Street
to 57 ' Street).
BACKGROUND/LE GISLAT IVE
HISTORY
Telegraph Avenue
serves
an important transportation
function
for
all
modes, and includes
several neighborhood commercial districts. The
Land
Use and Transportation Element
of
the
Oakland
General Plan
( L U T E )states
the importance of Telegraph Avenue
within
Oakland:
Telegraph Avenue is a designated
K ey Corridor
envisioned
for
pedestrian-focused
commercial
activity,
and connects two Transit-Oriented
Districts
(19'
StreetB A R T
and
MacArthurB A R T )
as
w ell
as several Neighborhood
A ctivity
Centers (e.g., Temescal,
Pi l l Hill) .
The Oakland Pedestrian Master
Plan,
part
ofthe L U T E ,identifies TelegraphAvenueas a
City
Route , the highest designation
in
the
Plan.
The Pedestrian Master
Plan
was
adopted in 2002.
The Oakland
Bicycle
Master
Plan,
partof
the
L U T E ,
includes Telegraph Avenue
within
the ProposedBikewayNetwork as a designated primary bikeway andpriorityproject.
The plan wasoriginallyadopted in 1999, comprehensively updated in 2007, and
reaffirmed byCity Councilin 2012.
The project
w i ll
improve pedestrian access, add
bicycle
facilities,and
enhance
the quality
of
the
existing
commercial districts, and is
thus
consistent
with
the General Plan designations and
policy.
The project
would
also implement the
City's
Complete
Streetspolicy
direction as
codified
in
the
OaklandM unicipal
Code Chapter,12.02 (Complete
Streets
Design Standards) and elaborated in
CityCouncil
Resolution 84204
C . M . S
(Complete
StreetsP olicy for
the
City
of
Oakland):
Item:
Public
Works Committee
December 2, 2014
8/10/2019 Telegraph Avenue, City Report
4/21
Henry L .Gardner, Interim C i t yAdministrator
Subject. TelegraphAvenueComplete
StreetsPlan
Date: November 7, 2014 ; Page 4
The City of Oakland will plan, design, construct, operate, and maintain ap propriate
facilities for pedestrians, bicyclists, transit users of all abilities, children, the elderly,
and
people with disabilitiesas aroutine comp onent o f new construction, reconstruction,
retrofit, and maintenance prefects...
Com plete Streets infrastructure sufficient to enable reasonably safe travel along and
across the right of way for each category of users will be incorporated into all planning,
funding, design, approval,andimplemen tation processes for any con struction,
reconstruction, retrofit, m aintenance, operations, alteration, qr repair o f streets...
The City of Oa kland will incorporate Com plete Streets infrastructure into existing streets
to improve the safetyandconvenience of all
users
with
tl^e
particular goal of creatinga
connected network offacilities accomm odating each category of users...
The City's BicycleMasterPlan P olicy 3Crequires City Councilapproval
of
projectsthatremove
travellanesfo rtheinstallation
of
bikeways.The proposed project
w i ll
reduce the number of
through travel lanes on TelegraphAvenuein each direction
from
two to one
from
19 ' Street to
41*'Street. The centerleft-turnlane
w i ll
be retained, and right-turn lanes
wi l l
be added at select
locations. ,
A N A L Y S I S
Purpose and Need
Inits currentstate.TelegraphAvenuehas safety challenges fora llusers.Issuesinclude speeding,
alack of space for bicyclists,inadequately-sized bus stops, difficultpedestrian crossings, and
associatedpublicsafety concerns.B icyclistvolumes have tripledinthepast15 years to over
1,200
daily
cyclists
and the resurgence
of
new businesses
in
both Temescal and
Koreatown-
Northgate ( K O N O )has resulted in more pedestrians walkingalong and across Telegraph
Avenue.
A t
thesametime,
traffic
volumes have declined by over 15 percent
in
the
past
decade.
Excess
vehicle capacity isknownto contribute to speeding on the
corridor.
A CTransit serves
Telegraph
Avenue
24-hours a day through the 1, IR and 800(A U-N ighter) lines.Buses arrive
every 5-7 minutes in each direction during peak periods.
The Telegraph
Avenue
Complete Street Planrecommendations reflect the increasingly
multimodalcharacter ofthe
street
w iththe goals to: improve the safety andaccessibilityofall
modes; make the
street
more comfortable and enjoyablefor walking, bicyclingand transit users;
and balance theneedsand convenience ofal lusers. The project considers notonlythrough-travel
but also access to the businesses, residences,restaurants,and gatheringspaces
that
make
Telegraph
Avenue
a
great
destination.
Description of Recommended Project
The projectaddressesexistingoperational and safety challenges throughtreatmentsthatimprove
clarityand increase separation between various types ofroadway users. Table 1summarizes each
Item:
Public
WorksCommittee
December 2, 2014
8/10/2019 Telegraph Avenue, City Report
5/21
Henry L .Gardner, Interim C i t yAdministrator
Subject: Telegraph Avenue CompleteStreetsPlan
Date. November 7, 2014 Page 5
proposed projectelement,and
describes
how it
directly
addressesone or
more
existingissues.
Notethat
several
of the proposedelementsarenecessarytooffsetthe
impact
of the
lane
reductionon bustransitdelayandmaintain
adequate
busoperationson thecorridor.
i
Table
1.
Telegraph
Avenue
Phase
1
Project
Elements
(19
Street
- 41*'
Street
Project Element
Description
OperationalandSafety
Impacts
Reduce through
travellanes
Reduce through travel lanes
fromtwo lanes to one lane
per direction
Improve pedestrian crossing safety
Motor
vehicle speeding encouraged by
excess roadway capacity-
Motor
vehicle weaving encouraged by
excess roadway capacity
Potential to increase transit delay
Dedicated bicycle
facilities
Provide
pontinuous bicycle
facilities
(i.e., buffered bike
lanes or protected lane)
Eliminate existingshared-lane
Encourage
cyclists
to ride outside door
zone
Right-turnlanes
A ddright-turn lanes at high-
volume intersections
Improvetrafficflowand reduce bus transit
delay
Reduce right-hook collisionsbetween
turning vehicles and cyclists
Providefrequent
crosswalks
Provide
consistent and
frequent crosswalk spacing
(300-400
feet)
Encouragepedestriansto cross at marked
crosswalks
Reduce pedestrian out-of-direction travel
Pedestrian crossing
enhancements
A ddcrossing islands and/or
bulbouts where feasible
Reduce pedestrian crossing distance
Increase
visibility
ofpedestrians
Relocated
bus
stops
Relocate bus
stops
to match
pedestrian crossing locations
Provide
safe
crossing opportunities atall
bus
stops
Reduce bus transit delay with optimized
stoplocations
Bus
boarding
islands
Install transit boarding
islands, with
separate
bicycle
facilities
Eliminate bus-bike weaving at bus
stops
Reduce bus transit delay
Allowarticulatedbusesto easily enter/exit
stops
compared to curbside
stops
Phase
1
Implementation
Phase1implementation
w i l l
primarily use low-cost
materials
to
realize
short-termoperational
andsafetybenefits.These
materials
may includeroadway
striping,
coloredand/or textured
pavementtreatments,and/or
flex-post
delineators.
No
curb realignment
or
permanent
construction
w i lloccur
as
part
ofPhase to allowmaximumflexibility forfutureimprovements
of
Telegraph
Avenuein the futureasfundingbecomesavailableand as Public
Worksmeasures
the successofthesechanges.
Item:
PublicWorksCommittee
December2, 2014
8/10/2019 Telegraph Avenue, City Report
6/21
Henry L .Gardner, Interim Ci tyAdministrator
Subject: Telegraph Avenue CompleteStreetsPlan
Date- November 7, 2014 Page 6
In
addition to the interim constructionmethodsdescribed above,
permanent
transit boarding
islands should be constructed at the earliest opportunity. There is no acceptable interim design
solutionfor
boarding islands due to the need for wheelchair loading/unloading. However,
boarding islands are an important component ofimprovingcorridor safetyforboth transit and
bicyclists.
No
funding
has been
identified
as available
for
the construction
of
boarding islands.
Phase1Evaluation
Phase
1 wi l l
be evaluated
for
two related purposes.
First,
the operations
of
the parking protected
bike
lane and
buffered
bike lane
wil l
be evaluated in order to recommend
permanent
design
changes
on Telegraph Avenue
from
19'
Street
to
41^'Street.
Second, Phase
1 wi l l inform
the
discussion offeasibleand desirable design options
for
the section of Telegraph Avenue
from 41^'
Street
to 55 '
Street,
while recognizingthatwhat works
well
south of
41^'Street
may not
necessarily be the most appropriate design elsewhere
in
the corridor.
Evaluationw i ll
include
observations of operations and safety for
all
modes (e.g., pedestrian,bicycle,public transit and
automobile), as
well
as inputfromthe community (e.g., surveys, meetings
with
neighborhood
associations and business groups).
Future
permanent
improvements
following
evaluation andidentificationof funding could include
pedestrian bulb-outs, raised crossing islands, raised bike lanes, and/or stormwater
management
infrastructure.
Assessment
of
Recommended Phase
1
Project
Traffic Analysis
Motor
vehicle,
pedestrian and
bicycle
volumes were collected at key intersections
in
the corridor
in
October 2013, and supplemented withpreviously reported data. It isCityof
Oaklandpolicy
thatTelegraph Avenue should perform at
L evel
of Service
(LOS)
E or
better.L O Smeasures
motorist delay and
designates
the
level
of
service
of
afacility
with a letter, A to
F,
with A
representing the most free
flowing
operating conditions;
L OS
A is not necessarily the ideal
condition
as it can indicatethatan intersection is overbuilt and higher
speeds
often result. It also
focuses on
individual
intersections
rather
than the corridor as a whole.
Peak hour
L O S
at signalized intersection were evaluated using the 2010
Highway
Capacity
Manual
( H C M )
methodology. Under existing conditions, motorists currently experience
low
to
moderate
delay throughout the corridor.
A l l
signalized intersections perform at
L OS
C or
better
during the
A M
and
P M
peak hour,withthe exceptions
of
Telegraph Avenue and
51 stStreet,
and
Telegraph Avenue and 52 ''
Street,
whichoperateat
L OS
D in the
P M
peak hour.
L O S
was also analyzed to reflect the proposed lane reduction between
19 Street
and
41^'Street.
A l lsignalized intersections continue tooperateat
L OS
C orbetterwiththe proposed project,
suggestingthatTelegraph Avenue
would
operate
w ell
below capacity with proposed changes.
Item:
PublicWorks Committee
December 2, 2014
8/10/2019 Telegraph Avenue, City Report
7/21
Henry L .
Gardner, Interim
Ci ty
Administrator
Subject: Telegraph Avenue Complete
Streets
Plan
Date: November 7,2014 Page 7
Notethat
L OS
only
measures
how
well
afacilityoperates
from
the standpoint of automobile
drivers, and
does
not generally reflect the perspective
ofbicyclists,
pedestrians,and/or transit
riders. As such, a
decrease
in
L OS
is often appropriate in order to achieveothergoals, including
improvedroadway safety.
On-Street Parking
The proposed project for the removaloftravellanesand the installation of
bicycle
laneson
Telegraph Avenue
from
19 '
Street
to 41
Street
retains
on-street
parking on both sides of
Telegraph Avenue for the
entire
corridor as
partof
the
typical
cross-section. However,somenet
loss in the total number
of
parking
spaces
directly on Telegraph Avenue is expected for
three
primary,
reasons:
Removal
adjacent
to intersections and high-volume driveways topreservesight lines
between
bicyclists
and turning motorists.
Addition
ofright-turn
lanes
at key intersections (expected to include GrandAvenue,27 '
Street,
MacArthurBoulevardand 40 ' Street).
Relocating and extending bus
stops
to allow
safe
and efficient transit operations (many
current bus
stops
are too
short
to
effectively
accommodate articulated
buses).
Withfew exceptions, the parkingspacesthatwould be removed aremetered spaces.In total,
City
staff conservatively
estimates
up to 40 total parking
spaces
could be removed
from
19 '
Street
to
4 l Street,or
just under
1space
per blockface.Opportunities to relocate parking
meters
to side
streetsor unused curb
space
along Telegraph (e.g., closed driveways)
wi l l
be closely explored as
partof
project implementation, and
wi l l likelyreduce
the actual loss of
metered
and
unmetered
parkingspaces.
N o substantialbusinessimpacts
from
the parking reduction are expected for tworeasonsas
existing parking on Telegraph Avenue between 19'
Street
and 41
Street
is not
fully
utilized.A
recent
survey on parking
utilization
during the weekend
p.m.
peakperiod showed a corridor
average
parking
utilization
of
48percent
(i.e., 52
percentofmeteredspaces
were unoccupied),
with
little variation along the corridor as shown in Table 2.
Table 2. Summary ofParkingU tilizat ion(Weekday, 4:30 p.m.)
Location
Total Metered
Spaces
Occupied Spaces Meter Ut i l i z a t ion
20' Street
- 27'
Street
86
41
47.7%
27'
Street
- 34'
Street
84 42 50.0%
34'
Street
- 40'
Street
59 27 45.8%
Total 229 110
48.0
Similarly,an analysis
of
parking
meter
revenue
datafrom
August and September 2014 showthat
the
average meter
on the corridor is occupied by a paying customer fewer than 2.5hoursper day.
Item:
Public
Works Committee
December 2, 2014
8/10/2019 Telegraph Avenue, City Report
8/21
Henry L .
Gardner, Interim
Ci ty
Administrator-
Subject' Telegraph Avenue CompleteStreetsPlan
Date- November 7, 2014 Page 8
withnoindividualblock averaging more than
5
hours per day.' Thus, sufficient parking is
expected to remain for existing customers evenwiththe reduction, and revenue impacts to the
City
would
beminimal.In addition, the proposed
changes
are evenly distributed along the
corridor so
that
no single
area
w i llbe overly burdened.
Finally,
the recommendations include removal of
on-street
parking under
SR24 from
55'
Street
to
A ileenStreet
to connect the existing
bicycle
lanes north of
AileenStreet
to the 55'
Street
and
Shattuck Avenue
bicycle
routes. The existing parking under SR24 is unmetered and not heavily
used.
Field
observations showthatthe supply
of
parking on 56 '
Street
between Telegraph
Avenue and Carberry Avenue is sufficient to accommodate the displaced demand
within
the
immediate
vicinity.
On-Street Loading
and
Deliveries.
Many
delivery trucks along Telegraph Avenue currently double-park in the travel lane, while
several
of
the existing loading zones are under-used.
A spart
of implementation,
staffw i ll
work
closely
with
localbusinesses
to
identify
appropriate locations for loading zones,
including
the
potential use
of
time-of-day loading zones to
allow
deliveries early
in
the day but provide
parking later in the day and on weekends when demand is higher.
Ensuringthatdeliveries on Telegraph Avenue can occur without double-parking is particularly
important ifthestreetis reduced to only one through lane. If double-parking continues to occur
after implementation
of
the parking protected bike lane, it
wil lblock
the sole remaining travel
lanewithpotentially significant affects on transit and traffic operations.
Pedestrian Safetv
The proposed project
w i ll
provide substantial pedestrian safety benefits in several ways. Most
importantly, the reduction
of
travel lanes
from
2 to
1
in each direction
w i ll
eliminate what is
knownas the multiplethreatcrash
risk .
This risk occurs when a motorist in the outside lane
stops
for a crossing pedestrian and -
in
the process - visually
screens
the pedestrian
from
the
view
of motorists in the left lane (and vice versa). This situation is a contributing factor to many
pedestrian/vehicle
crashes
at uncontrolled intersections.
Specific
crossing improvements
wi l l
accompany the lane reduction. The
average
distance
between marked crosswalks
wil l
be reduced
from
over 400
feet
to approximately 300
feet,
and
longgaps
between crosswalks
wil l
be eliminated.
Also,high-visibility
ladder style crosswalks,
refuge islands, and curb bulbouts (using low-cost interim materials)
wi l l
be implemented as
appropriate.
'
Analysis
datesreflect mstallation ofnew
smart-meters
in summer of 2014
Item:
Public
Works Committee
December 2, 2014
8/10/2019 Telegraph Avenue, City Report
9/21
Henry
L .Gardner, Interim
Ci ty
Administrator
Subject: Telegraph
Avenue
CompleteStreetsPlan
Date: November 7,2014, Page 9
Transit
Operations
The project recommendations incorporate several transit operating improvements intended to
offset potential delays
from
the lane reduction. Stop relocation
from
near-side (i.e., before a
trafficsignal) to far-side (i.e., after atrafficsignal)
w i ll
benefit bus operations by removingbuses
from
conflictswithright-turningtrafficand byallowingbetteruse ofexistingtransit signal
priority
equipment (i.e., technology to improvetrafficsignal
timingfor
buses).
The recommendations also includeprovisionoftransit boarding islands at far-side stops. The
islandswouldeliminate the current situation wherebusesaccessing the curb must weave
with
through-cyclists,
by
allowing
cycliststopassbetween the island and the
sidewalk.
The islands
wouldprovide
sufficient
space forbusesto exit the travel way whenpickinguppassengersso
that
buseswouldnotblocktrafficwhile dwellingat transit stops.
In
addition,
the pedestrian safety benefitsofthe projectwi l limprove the safety of both B A R T
and
A C
Transit
passengers
before and after their transit trips.
B A R Thas submitted a comment letter strongly supporting the proposed improvements fortheir
benefits to transit access.
A C
Transitstafftodatehave expressedthatthe proposed lane
reduction
could
negatively impact bus operations unless accompanied by a bus-only lane,
.although
A C
Transit
does
support the proposed bus stop relocations.
BicvcleFacilities
Telegraph Avenue is one
of
the busiest
bicycle
routesinOaklanddue to the direct and flat
connection it provides to many destinations. The proposed project
w i ll
implement a combination
of
buffered bike lanes and parking-protected bike lanes (i.e., bike lane located between parked
cars and the curb) to improve
cyclist
safety and
comfort.
Parking-protected bike lanes (also
knownas
cycle
tracks and depicted
in
Attachment
D )
are proposed
from
approximately 20 '
Street to
29 ^
Street to occur inconjunctionwiththe scheduled re-paving of
16 '
Street to 27 '
Street.Bufferedbike lanes are proposedfromapproximately29 ' Street to41^'Street through
striping
changes. Thesefacilitieswi l l
allow
cycliststo ride safely awayfromcar doors, and will
no longer requirecycliststosharea lane
with
through vehicles.
The parking-protected bike lanes wil lbe Oakland's first suchfacility,serving as a demonstration
projectfortheinstallationofmoreprotected bike lanes on otherstreetsand on othersegmentsof
TelegraphAvenue.Parking-protected bike lanes have beensuccessfullyimplemented
in
many
cities,
including
SanFrancisco;Seattle;L ongBeach;A ustin,Texas; andMissoula,Montana.
Phase
2
Options
TelegraphAvenuenorth of41^'Street is more constrained due to highertrafficvolumes
(particularly
at51^'Street and ClaremontAvenue)and much higher demand foron-street
parking,yet the desire for saferbicycle facilitiesand pedestrian safety improvements remains.
Giventheseunique constraints,staffrecommends additional
focused
technical study and close
Item:
PublicWorksCommittee
December 2, 2014
8/10/2019 Telegraph Avenue, City Report
10/21
Henry
L .Gardner, Interim
Ci ty
Administrator
Subject- Telegraph Avenue CompleteStreetsPlan
Date: November 7, 2014
Page 10
workwith
the community to
identify,
based on lessons learned
from
Phase I and additional input,
on
how a continuous bikeway could be designed and developed so the entire corridor could
ultimately become a
fully
completestreet.
Staffw i llseekfundingwith
the goal
of
conducting
this study in Temescal in
parallelwith
the Phase
implementation.
Table
3 summarizes several potential options for accommodating continuous
bicycle
facilities
in
Temescalthatshould be studied in further
detail.
Each
of
theseoptions could be implemented in
allor a portion
of
the
41 'Street
to 55 '
Street segments,
as appropriate.
Table 3.
SummaryofPotential TemescalDesign
Options
DesignOption
Summary Operational and Safety
Impacts
Remove travel lane in
both directions
Eliminateone travel lane in either
direction,consistent with
recommendations for 19'
Street
to 4 r'
Street
M ay
increase congestion,
particularly
near
51
Street
and
Claremont Avenue
M ay
negatively impact transit
travel times
Remove
travel
lanein
one
direction
Eliminateone traveLlane in one
direction
only
(likely
southbound).to
maintain capacity in most congested
direction.
Unknown impacts to
traffic
operations
M ay
result in geometrically
difficulttransitions
Removeparking
Eliminateon-streetparking on one or
both sidesofTelegraph Avenue
M ay
negatively impact nearby
businesses
unless replacement
parking can beidentified
nearby
Remove
centerturn
lane
Eliminatethe center-turn lane at some or
al l
intersections (similar to Telegraph
Avenue
between 57'
Street
and 66'
Street)
Reduces opportunities for
pedestrian crossing islands
M ay
require left-turn
restrictions
Combined
bus/bike
lane
Eliminateone travel lane in either
direction,andcreatea shared lane for
the exclusive use ofbusesand
bicyclists.
Enforcement may be
challenging
Requiresbusesand bicyclists
tosharelane
In addition to
identifying
a design for continuous bikeways, the intersection of Telegraph
Avenue/Shattuck Avenue/45 '
Street
requires further analysis. The general recommendation to
close Shattuck Avenue between
45 Street
and 46 *
Street
to increase safety and
legibility
for all
users
has strong support. However, several detailed questions remain:
Howwould
the resulting
space
be
used?
Is this an appropriate location for a pedestrian
plaza? What
elementswould
a plaza
include,
and who would maintain them? What are
the potential re-use/re-development opportunities
of
the former Kasper's hot dog
building?
Item:
PublicWorks Committee
December 2, 2014
8/10/2019 Telegraph Avenue, City Report
11/21
Henry L .Gardner, Interim Ci tyAdministrator
Subject- Telegraph Avenue Complete
StreetsPlan
Date: November 7, 2014 Page 11
Howwouldwebestto accommodate motorvehiclemovements between Shattuck
Avenueand Telegraph Avenue?
How
can
bicycle
movements
from
northbound TelegraphAvenueonto northbound
Shattuck
Avenue
be safely accommodated?
PUBLIC
OUTREACH/INTEREST
The TelegraphAvenueCompleteStreetsPlanused an extensive outreach processincluding
surveys, stakeholder interviews, andpublicmeetings tocreatea designthataddressesthe
identifiedproblems and balances allcommunityneeds.
Staff
sought input atthreekey points
withinthe project development process: concept development; evaluation of alternatives; and
draft recommendations. Inaddition,materials were distributed
v ia
the project webpage
(www.oaklandnet.com/TelegraphAvenue) and anemaildistributionlist withover 800 recipients.
Staff
also participated in over 40 stakeholder meetingswithlocaladvocates, neighborhood
associations, business districts, transit operators, and
others
as
part
o f
project development.
Staff
used an online survey and interviewswithkey constituents (e.g., business groups, advocacy
organizations) to
inform
the development of design alternativesthataddressed communityneeds
and concerns. The survey was completed by over 1,100 participants, the
majority
ofwhomwere
residents alongcorridor.Resultsofthe survey and stakeholder interviews revealed strong
supportfor
bicycle
and pedestrian improvements on TelegraphAvenue,even among current
drivers.
TheOaklandPublic
Works,
TransportationPlanningandFunding
D ivision
heldpublicopen
hocuses inApri land
M ay
of 2014 tosolicitinput on several design alternativesforthe corridor.
These design alternatives identifiedoptions to improve
bicycle
and pedestrian safety,
including
potential removal
of
travel
lanes, reduction of
on-street
parking
and other changes to the
street.
The open
houses
were advertised throughfliers,directmailingsand other means, and were
attended by over 200 people (with an additional 45 people
providing
comments
via
an online
form).
Over 90 percent of
attendees
supported removal
oftravel
lanes between 19 ' Street and
41 'Street, and a
majorityof
respondentsexpressed interest
in
parking-protectedbike,lanes.
Based
on,earlierpublicfeedback asw ellas technical considerations,
staff
developed a detailed
set ofD R A F TRecommendationsforTelegraphAvenue, whichwere presented atpublic
hearings in September 2014. Thepublichearings were advertised through
fliers,
direct mailings
and other means, and were attended by over 150 people (with an additional 110providing
comments viaon onlineform).The response to the D R A F TRecommendations
fell
intothree
primary
categories:
Support for removal oftravellanes between 19 ' Street and41*'Street - Over 90
percent support
from
meetingattendeesand
respondents
to the online comment
form
(see
Table4). The mail-back
form
to afliermailed toaddresseswithin400 feeto fthe corridor
1 showed 64 percent support
for
the removaloftravellanes.
Item:
Public
Works
Committee
December 2, 2014
8/10/2019 Telegraph Avenue, City Report
12/21
Henry L .Gardner, Interim Ci tyAdministrator
Subject. TelegraphAvenueComplete
StreetsPlan
Date: November 7,2014 Page 12
Table 4.
Support
for
Removal
of Travel Lane (19'
Street
- 4l
Street)
Source
Support
Do NOT
Total
Support
Open
Houses 212
6
218
Mail-back Form 37 21 59
Interestin demonstrating parking-protected bike lanes on Telegraph Avenue - Over
50 percent of
respondents
(118 out of 218) urged the Cityto revise the recommendations
to include a demonstration ofparking-protected bike lanes on Telegraph
Avenue,
with
fewer than 10 percent opposed to parking-protected bike lanes (16 out of218).The
remainder expressed desirefor bicycle facilitiesgenerally but no preference on the
specifictype of
facility.
N o
consensus for design recommendations between
41*'
Street and 55th Street -
Respondents preferred continuous
bicycle facilitiesrather
than shared-lane markings ,
but were split between
those
favoringremovaloftravellanes
(with
potential transit travel
time impacts) and
those
favoring
on-street
parkingremoval
(with
potential business
impacts), as shown in Table 5. The Phase
Recommendations reflect each
ofthese
feedback components by recommending a near-term focus on the area south of41*'
Street,
with
the results of the Phase implementation used to evaluate future
recommendations between41*'Street and 55th Street.
Table 5. Design
Preferences
for 41*'Streetto 55 'Street*
Shared-Lane Bikelanes, remove Bikelanes, remove
Total
Markings
travel
lane
on-street
parking
22 32
38
92
*Most
respondents
did
not indicate
a
specificdesign preference
Informational
reports were also provided to theOakland AccessComplianceandAdvisory
Committee and
B icycle
and PedestrianAdvisoryCommittee (twoinformationalreports each).
Project recommendations were unanimously adopted by the
Bicycle
and Pedestrian
Advisory
Commission
at their October 2014 meeting, and
form
the basis
for
the Phase 1
Recommendations included inthis report.
COORDINATION
ThePublicWorksDepartment is responsibleforplanning,designing,funding,implementing,
and maintainingstreetcapital projects.W ithinPublic
Works,
the Bureau ofEngineeringand
Constructionhas led project development todate,and has coordinatedwiththe Bureau of
Infrastructure and Operations and Bureau of
Facilities
and Environment as needed. The Finance
Department was consulted regarding potential parking meter relocation andremoval.The
Item:
PublicWorksCommittee
December 2, 2014
8/10/2019 Telegraph Avenue, City Report
13/21
Henry L .Gardner, Interim Ci tyAdministrator
Subject: Telegraph Avenue Complete
Streets
Plan
Date: November 7, 2014 Page 13
PlanningandB uildingDepartment was consulted for the filing
of
the environmentaldocuments
describedunder
C E Q A
below. In addition, theOffice
of
the CityAttorney and the City's
Controller's Bureau reviewed thisreportand resolution.
COSTSUMMARY/IMPLICATIONS
The Telegraph AvenuePhase 1Recommendations wil lbe constructed in conjunction with the
paving of Telegraph Avenueasspartofacitywidepaving projectthatis funded by the Alameda
CountyVehicleRegistration Fee (2215);Streetsand Structures Organization (92242);
Street
Construction Account (57411); Project
N o.
(C458810).
FISCAL/POLICY ALIGNM ENT
The Telegraph Avenue recommendations for
bicycle facilities
align with the policies
of
the
Bicycle
MasterPlan,which identifies Telegraph Avenue bikelanes(Class II) as a priority
project.
Bicycle
Master Plan
P olicy
IB calls for the implementation of bikeway projects in
conjunction with paving projects. This coordination is an efficient use
ofpublic
funds and an
effective
means
for implementing proposed bikeways. By coordinating the reconfiguration of
travellaneswith roadway resurfacing, the Telegraph AvenuePhase
1
Recommendations
implement this
policy
direction.
A s
discussed above, the project has the potential to remove up to 40 parking
meters,
which could
reduce
parking
meter
revenue. The
average
parking
meter
on Telegraph Avenue
within
the
project corridor
generates
approximately $1,200 annually, with
revenues
varying
widely
block
by blockfromapproximately $300 to $3,000 permeter.' Were 100percentofrevenuefrom
removedmeterslost, the net impact could be up to $50,000 annually. However, given the
relatively low occupancy along the corridor as described above, actual
revenue
loss is anticipated
to be considerably lower as the majorityofmotorists wil lhavethe option to park in a nearby
metered space.
SUSTAINABLE
OPPORTUNITIES
Economic:B icycle
and pedestrian safety improvement promote non-motorized transportation,
which
are the most cost-effective forms
of
transportation. In addition, pedestrian and bicycle
trips tend to belocaland
thus
are more
likely
to contribute tolocaleconomic activity.
Environmental:Walkingandbicyclingare the most energy efficient form oftransportation and
createno emissions. The development of safer and more comfortable pedestrian and bicycle
facilitiesin Oakland is a key
strategy
in the City's efforts to
reduce
greenhouse
gas emissions.
Well-designed
bicycle
and pedestrian infrastructurepromotes
safe
physicalactivity and good
health.
^
Based on analysis of August and September 2014
data
following
installation of
new
smart-meter
heads
Item:
PublicWorks Committee
December 2, 2014
8/10/2019 Telegraph Avenue, City Report
14/21
Henry
L .
Gardner, Interim CityAdministrator
Subject: Telegraph Avenue Complete
Streets
Plan
Date. November 7, 2014 Page 14
Social
Equity:Walking
and
bicycling
are inexpensive and broadly accessible forms of
transportation. Pedestrian and
bicycle facilities
provide added freedom and
independence
for
youth and
parents
(who are otherwise shuttling their children) as
w ell
as for
some
people who
cannot
drive and
those
who
have
chosen not to drive.
C E O A
These actions are exempt
from
C E Q A
pursuant
toPublicResources Code Section 21080.20.5
(restriping ofstreetsand highways for
bicycle
lanesin an urbanized
area
thatis consistent with a
bicycle
transportation plan) and C E Q AGuidelines Sections 15183
(projects
consistent with
general plan and zoning), 15301 (existing
facilities),
15304 (minor alterations), and 15061(b) (3)
(no significant effect on the environment).
Forquestionsregarding thisreport, pleasecontact Jamie Parks, Complete
Street
Program
Manager at 510.238.6613.
Respectfully submitted.
irookeA . Levin
Director,
OaklandPublicWorks
Reviewedby:
Michael
J. Neary,
P .E
, Assistant Director
Bureau of Engineering and Construction
Iris Starr,
A I C P , Division
Manager
Transportation Planning and Funding
D ivision
Prepared by:
Jamie Parks, Complete
Streets
Program Manager
Transportation Planning and Funding
D ivision
Attachments:
A . Existingand Proposed BicycleFacilities
B .
Illustrative depiction of existing Telegraph Avenue conditions
C . Illustrative depiction of Telegraph Avenue buffered bikelanes
D . Illustrative depiction of Telegraph Avenue parking-protected bikelanes
Item:
Public
Works Committee
December 2, 2014
8/10/2019 Telegraph Avenue, City Report
15/21
AttachmentA:Summary of Existing and Proposed Bicycle Facilities
8/10/2019 Telegraph Avenue, City Report
16/21
Attachment
B.Telegraph Avenue Existing Conditions Illustrative)
8/10/2019 Telegraph Avenue, City Report
17/21
Attachment
D.
Telegraph Avenue Parking-Protected Bike Lane
Illustrative)
8/10/2019 Telegraph Avenue, City Report
18/21
Approvj
2iMNoyQ/ IQj:;s5 D CITY COUNCIL
RESOLUTION
NO. C.M.S
IntroducedbyCouncilmember
City
Attorne
RESOLUTION
AUTHORIZING
THER E M O V A L OFT R A V E L LANES
AND
THE INSTALLATION OF BICYCLE LANES ON TELEGRAPH
AVE NUE F ROM 19
STREET
TO 41 ^ STREET
MAKING
ASSOCIATED TRAFFIC
SAFETY
AND
OPERATIONAL
IMPROVEMENTS
AND COMMITTING TO FUTURE STUDY OF A
CONTINUOUS BIKEWAY
FOR THE
AREA FROM
41 STREETTO
57
STREET
W H E R E A S ,
the
City
of
Oakland'sBicycle
Master
Plan
was adopted by
City
C ouncilon
December 7, 2007 aspartofthe LandU se and Transportation Elementofthe City ' sGeneral
Planand reaffirmed byCity
Council
on December 4, 2012; and
W H E R E A S ,
the
City
of
Oakland'sBicycle
Master
Plan
calls
for
the implementation of
a
cityvsdde
network
ofbikeways
to connect
downtown,
transit stations, commercial districts,
neighborhoods, and the waterfront; and
W H E R E A S ,the
Bicycle
Master
Plan
identifiesTelegraph
Avenue
fi-om
19* Street to 57th
Street as abikeway;and
W H E R E A S ,the CompleteStreetsP olicy forthe CityofOaklandwas adopted byCity Council
onFebruary 5, 2013 and the Policycallsforthe incorporationofpedestrian,bicycle, and transit
improvements in
addition
tothoseforautomobiles, instreetreconstruction and maintenance
projects; and
W H E R E A S , Action IB . oftheBicycleMasterPlanstates, Includebicyclesafety and access
improvements in roadway
resurfacing,
realignment, and reconstruction projects ; and
W H E R E A S ,Telegraph
Avenue
fi-om
16* Street to 27* Street
w i l l
be resurfaced and has been
designed to includeusefiilbikeway connections and pedestrian safety improvements; and
W H E R E A S ,the installationof
bicycle
lanes on TelegraphAvenuew i llnecessarily require the
reductioninthe number oftravel lanesfi omfour (4) through lanes to two (2) through lanesfrom
19* Street to 41 Street; and
8/10/2019 Telegraph Avenue, City Report
19/21
W H E R E A S ,installationof
bicycle
lanes, transit, and pedestrian safety improvements on
Telegraph
Avenueis consistentwiththe
City's
GeneralPlan,
Bicycle
MasterPlan,and Complete
StreetsP olicy;and
W H E R E A S ,
City
Councilhas directedstafftopreparereports fortheir approval
specifically
when
bicycle
projects require the reduction
o ftravel
lanes on a roadway; and
W H E R E A S ,in accordancewithGovernment Code section 6061, on August28 ,2014, the
City
published
notice
o f
publichearings on September
11 ,
2014 and September 13, 2014, to consider
the proposed restriping
oftravel
lanes to remove a travel lane andinstallbike lanes on Telegraph
Avenue(19* Street to
41^'
Street);
that
notice was published
in
theOaklandTribune, a
newspaper of generalcirculation
in
the area affected by the proposed projects; and
W H E R E A S ,as required byPublicResources Code section 21080.20.5, on September 11, 2014
and September 13, 2014, the
City
held duly noticedpublichearings tohearand respond to public
comments on the projects; the hearings were held at BeebeMemorialCathedral (3900
Telegraph) and
Gogi
Time
Banquet
Room
(2600 Telegraph
Avenue),which
are in close
proximityto
areasaffected
by the projects; and
W H E R E A S ,after adulynoticedpublicmeeting on December 2, 2014, thePublicWorks
Committee voted to recommend the proposal to the
City
Council;and
W H E R E A S ,on December 9, 2014, the
City
Councilconsidered the proposed restripingoftravel
lanes to remove travel lanes and
install bicycle
lanes on TelegraphAvenue;and
W H E R E A S ,the
City
has prepared an
assessment
oftrafficand safety impactsofthe project,
whichincludesmeasures
in
the projects to mitigate potential vehicular
traffic
impacts and
bicycle
and pedestrian safety impacts, and concludes
that
the projects
w i ll
have
negligible
impacts ontrafficoperations and
w i l l
not result
in
adecreasein safety for any travel mode; and
W H E R E A S ,each as a
separate
and independent basis,
these
actions are exemptfrom
C E Q A
pursuant toPublicResources Code Section 21080.20.5 (restriping of
streets
and highways for
bicyclelanes in an urbanized area
that
is consistentwithabicycletransportation plan) and
C E Q A
GuidelinesSections 15183 (projects consistentwithgeneral plan andzoning),15301
(existing
facilities),
15304 (minor alterations), and 15061(b)(3) (nosignificanteffect on the
environment); now, therefore be it
R E S O L V E D : That the
City
Councilauthorizes theinstallationof
bicycle
lanes on Telegraph
Avenue
by reducing the number
oftravel
lanes
from
four (4) through lanes to two (2) through
lanesfrom19* Street to 41'' Street; and be it
F U R T H E R
R E S O L V E D :
That the
City
Administratorauthorizesinstallationof parking-
.protected
bicycle
lanes (also known as cycletracks ) between
20*
Street and 29* Street (exact
limits
to be determined on the basis ofdesign considerations); and be it
8/10/2019 Telegraph Avenue, City Report
20/21
F U R T H E R R E S O L V E D : That the
City
Administratorauthorizesinstallationo fbuffered
bicycle
lanes between 29* Street and41^'Street (exact
limits
to be determined on the basis of
design considerations); and be it
F U R T H E R R E S O L V E D : That the
City
Administratorauthorizes re-designation of Telegraph
AvenuefromBroadway
to 40* Street as a
Minor Arterial
(currently
Principal
Arterial )
as
part
of the next scheduledstreetre-classificationeffort, to reflect its character as a neighborhood-
serving commercialstreet;and be it
F U R T H E R R E S O L V E D :
That the City
Administrator
authorizes installation
of
pedestrian
improvements (e.g., median refuge islands, ladder crosswalks, curb extensions) inconjunction
with
bicycle facilities
on Telegraph
Avenue;
and be it
F U R T H E R R E S O L V E D : That the
City
Administratorauthorizes
reconfiguration
on-street
parking,parking meters, and loading zones as needed to implement design, include potential
designation
o f
time-of-day loading zones; and be it
F U R T H E R R E S O L V E D : That the
City
Administratorauthorizes to relocate and consolidate
busstopsto far-side locations at 24* Street, 27* Street, 30* Street, 34* Street,
MacArthur
Boulevardand
4 0*
Street to improveefficiencyof bus transit operations; and be it
F U R T H E R R E S O L V E D : That the
City
Administratorauthorizes construction of permanent
transit boarding islands at transitstopsat2 4* Street, 27* Street, 30* Street, 34* Street,
MacArthurBoulevardand 40* Street asfundingisavailable;and be it
F U R T H E R R E S O L V E D : That the
City
Administratorauthorizes to prohibiton-streetparking
between 55* Street andAileenStreet under
SR24
on one or both sides to connect existing
Telegraph
Avenuebicycle
lanes to 55* Street and Shattuck
Avenuebicycle
routes; and be it
F U R T H E R R E S O L V E D : That the
City
Administratorauthorizes to evaluate the'effectiveness
ofPhase 1improvements to
allow
the
City
to seekfundingfor future capital improvements on
TelegraphAvenue
from
20* Street to 57* Street; and be it
F U R T H E R R E S O L V E D : That the
City
Administratorauthorizes a commitment to future study
of acontinuous bikewayforthe area
from
41^'Street to 57* Street,
including
the
reconfiguration
ofthe Telegraph Avenue/ShattuckAvenueintersection, and also to seekfundingto support
technical
design assistance and a focused community outreach program on thismatter;and be it
8/10/2019 Telegraph Avenue, City Report
21/21
F U R T H E R R E S O L V E D : Thatthe CityAdministrator ordesigneeshallfile aNotice of
Determination/Notice
of Exemption with the clerkofthe County of Alameda and theOfficeof
Planning andResearch.
IN COUNCIL,
OAKLAND
CALIFORNIA,
PASSEDBY THE FOLLOWINGVOTE:
A Y E S
B R O O K S , G A L L O , G IB S O N M C E L H A N E Y , K A L B , K A P L A N , R E ID , S C H A A F
and
P R E S I D E N T
K E R N I G H A N
N O E S
A B S E N T
A B S T E N T I O N
A T T E S T
LaTonda S immons
City Clerk and Clerkofthe C ouncil
ofthe CityofO akland, C alifornia