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Project
Introduction and Recommendation Preface
This study originated
at the community level, was moved forward by North Park Main Street,
was attended by residents of North Park and was directed by a
Steering Committee of North Park interests. As such, this study
belongs to North Park. It is different from many studies that
originate at an agency or city government department or by a
consultant hired by these agencies. Being a community-based
initiative, excessive limitations were not placed on what the
community could or could not do. Quick fixes or narrow visions were
not mandated.
This study documented community preferences
and considered a broad range of alternatives. Instead of dropping
all discussion of the alternatives that were developed and
concentrating only on the preferred alternative, this plan sets the
record on the advantages and disadvantages of each approach and the
decision-making process that resulted in the “Preferred
Alternative.” This way, if technical reasons arise to make the
preferred alternative infeasible or if the broader community does
not support the implementation of the final plan, the document can
be used to adjust or replace the plan with the next best alternative
or the alternative can be adjusted as long as the reasons behind
each element are understood.
Within the scope of this study,
it was not possible to determine all possible solutions and test the
effectiveness of these solutions. Existing data is not comprehensive
enough to determine both the positive and negative effects that may
result from implementation of the plan. The scope did not allow for
extensive technical review or coordination of various City of San
Diego departments. This means the first step in moving this plan
forward must be analysis of what will happen with the implementation
of the preferred alternative.
The following elements must be
analyzed: full traffic counts of roadway segments and intersection
movements; capacity analysis of existing and proposed roadway
geometry; analysis of transit ridership and station locations;
parking use and demand analysis; volume and location of pedestrian
activity and crossings; and the determination of bicycle use levels.
The analysis will require the modeling and predicting of what is
likely to happen to traffic on University with the proposed changes,
including any increased traffic on adjacent streets. With this
information in hand, the plans can be adjusted as necessary to
increase the advantages and decrease any disadvantages. The plans
can be refined based on continual input from the public, from City
and agency staff and the results of these additional studies.
Regardless of the results of additional studies, public
input and agency review, something must be done with University
Avenue. It does not currently work from a traffic flow standpoint.
It does not meet current standards for lane configurations or
intersection treatments. It does not work from a transit/traffic
integration standpoint. Especially important, it does not provide
the safety necessary to support pedestrian or cycling activity. The
types and locations of accident data (vehicular, pedestrian and
cyclist) all indicate action is needed. In order to support the
needs of North Park and the interests of redevelopment, development,
preservation and current use of this corridor, something has to
change.
"The Avenue" is essential community infrastructure
that needs to be rebuilt from the center outward. The changes need
to be dramatic to address the equally dramatic problems. This plan
attempts to provide the solutions to these problems and meet the
needs of the community. If any part of this plan is dropped, it will
need to be replaced with something else. If this plan does not
provide the best solution, then another solution must be put in its
place. The status quo was never considered to be an alternative.
This street and the economic viability and safety of the community
are too important to do nothing.
At first glance, given the
current traffic level and limited width of University Avenue, it
would appear to be ill advised to consider eliminating a travel
lane. However, the dynamics of the current lane configuration must
be understood prior to making any judgments. Though much of the
corridor does in fact have two lanes of traffic in each direction,
these lanes do not function well and result in accidents between
cars as well as with pedestrians and cyclists. Left turning
movements (in almost all cases) occur from an active through lane.
Turning motions onto University occur virtually unrestricted along
its length. Parked cars are in substandard spaces next to extremely
narrow lanes. Pedestrians are required to cross multiple lanes of
traffic with limited visibility and little assistance from positive
traffic controls. The transit system, one of the most heavily used
corridors in the region, is negatively affected by the current lane
configurations and, in turn, negatively affects traffic flow as
well.
The proposed plan utilizes the right-of-way more
efficiently. Putting all left turn movements into protected and
integrated left turn only lanes will remove the major problem of
vehicular rear endings, side swipes and head-on accidents and will
increase the throughput of this street. Likewise, putting transit in
a dedicated lane will remove the transit weave out and lane blockage
problems that now exist. Having a lower volume use (transit versus
vehicular use) placed next to the curb lane will also make it safer
and more comfortable for pedestrians, since adequate buffer space on
this limited right-of-way does not exist. The dedicated transit lane
will allow cyclists to use it providing increased safety for
cyclists as well as limiting the lane blocking necessary for
cyclists to utilize University Avenue in its current configuration.
Providing several right turn only lanes removes another obstacle to
the through lane. All of these factors combine to dramatically
increase the throughput of the travel lane.
However, even
though the throughput of this single lane would be greatly improved,
the other lane will be lost. This may or may not result in some
level of congestion that may or may not prompt some motorists to
find other ways of moving through North Park. Lincoln Avenue was
designed to handle increased levels of traffic and must play a role
in making this plan work. Though property owners along Lincoln
Avenue may be concerned about increased traffic, the street and its
connections to the broader circulation system could handle much more
than it currently does. The experience of many other cities that
reduced the number of lanes on similar streets indicates it is
likely the amount of traffic diverted from University Avenue will be
minimal. In most cases, the realigned streets handled the same or
even more traffic than previously.
The issue of lost
on-street parking must also be analyzed. Though the plan can result
in an actual overall increase in on-street parking, some areas will
result in decreased parking while others will find an increase in
parking. The parking spaces lost in this plan are essential to
making this plan work. They are being removed on portions of the
street where adequate width for parking is not possible and
potentially unsafe conditions could exist. Some places have a 7-foot
wide parking space, next to two 9-foot wide travel lanes. This is
well below standards and will continue to result in accidents. An
effort will be needed to educate the public and those most affected
by the parking loss as to why they are being removed, the
consequences if they are not removed and the good reasons for their
removal. At the same time, every effort is needed to provide
replacement parking in close proximity to the areas of parking loss.
Though the plan has some major challenges, it does represent
the best of all worlds when pedestrian safety, community
redevelopment, transit efficiency, accident prevention, traffic flow
and community aesthetics are taken into account. Doing nothing or
dramatically widening the roadway are alternatives the community
should not pursue because this "Avenue" and its role in North Park
are too important to ignore.
With no mandate for quick fixes
or narrow visions, the consultants, the Steering Committee and the
workshop participants were free to examine and question many
possible solutions. With this freedom comes responsibility. Though
the workshops were well attended and democratically conducted, they
may or may not have captured the full community’s greatest concerns.
No matter how strong the outreach program, only residents
traditionally active in the community tend to get involved. The
so-called "silent majority" often speaks out just as the final
decision is being made or when implementation of a decision is
begun. They often have the ability to change this decision or stop
implementation. This points out the need to continue to reach out to
the rest of the business and residential community of North Park
that may not have been involved in the workshops or on the Steering
Committee.
Preferred And Refined
Alternative
The recommended plan is summed up succinctly with
the following major elements. More detail is provided in the
following sections.
1. Medians are proposed to control left
turning traffic motions, to provide a pedestrian refuge while
crossing and to create a positive urban environment.
2. The
number of through lanes is being reduced to one in each direction.
This reduction is offset by segregating left and right turning
traffic in their own lanes and by dedicating transit in an outer
lane. The removal of on-street parking in some locations also helps
to improve flow.
3. As indicated above, the number of left
turning motions are controlled through the use of medians that will
accommodate at least every other block turning from turn lanes out
of the lane of through traffic.
4. Some adjustments to
traffic signals including the addition of a few new signals and
several pedestrian notification signals have been added.
5.
A key feature of the plan is the dedication of the outer curb edge
to a transit only (bikes allowed) lane.
6. Related to the
changes in the transit lane, new transit stop locations are proposed
to improve the station functionality and efficiency.
7.
Though most transit stops are being consolidated, some new stops in
new locations are proposed.
8. On street parking is being
removed in several areas where adequate width for a safe buffer is
not possible.
9. Other locations will receive additional
parking, sometimes on adjacent streets.
10. Wherever
possible, the pedestrian environment is being expanded and crossing
distances are narrowed.
11. A key feature of the plan is the
addition of new pedestrian crossing facilities and notification
signals.
12. A roundabout is proposed for Texas Street to
address this difficult geometry, to improve traffic flow and to
provide a focus for future redevelopment.
13. Street trees
and median plantings have been identified by many workshop attendees
and Steering Committee members as a high priority.
The
following is a more detailed discussion of the components of this
alternative describing the reasoning behind their inclusion
Medians
The medians improve overall traffic flow by limiting
turning traffic from University Avenue (and from adjacent streets)
to every other block, reducing crashes and improving driver
attention, decreasing perceptual width of the street and providing
an area for landscaping.
Through Lanes
The
single through lane provides a direct path unobstructed by left and
right turns and transit vehicles and has consistent lane geometry
throughout. This lane will probably not be able to carry the full
weight of current traffic loads, but the amounts that will be
diverted are likely to be smaller than any other alternatives except
for Alternative 2, which was focused on vehicular traffic flow at
the expense of other uses.
Turn Lanes
The
left turn only lanes allow all left turns to be made from non-travel
lanes. Left turn lanes will be protected by medians and where
stacking distance is limited, green arrow turn and green yield
combination signals will be used. Right turn only lanes remove
obstructions to through traffic and limit impacts to parking.
Traffic Signals
Traffic speed, volume and
turning movements warrant two new signals (at Arnold and Oregon).
Traffic signals accommodate safe pedestrian crossings. At mid-block
crossing, new pedestrian signal lights provide for safer crossing
while minimizing affects on traffic.
Dedicated
Transit Lanes
This section of University Avenue accommodates
one of the most heavily used transit routes in the city (Route 7).
The dedicated transit lanes address congestion caused by current
conflicts with transit vehicles (blocking or overhanging the travel
lane) and bus merging issues at the existing high number of transit
stops. The transit lanes also function as semi-protected bike lanes.
The transit lanes buffer pedestrians and parking movements from the
active traffic lane.
The dedicated transit lanes also
provide long-term flexibility since they can be used for other
purposes, if necessary. For example, the lanes could be used for
parking during off-peak hours.
Another aspect of the
dedicated transit lane is that it can accommodate a wide variety of
transit vehicle types. Discussions with the Steering Committee and
at public workshops did not necessarily exclude any type of transit
vehicle type. In fact, the consensus was to allow for a variety of
transit vehicle types and services. The final mix of transit
vehicles and services will need to be determined jointly between
MTDB and the community. However, it could include:
- Standard blue car service vehicles that now use the corridor;
- An enhanced blue car service with level boarding busses;
- Green car service with inter-community looped shuttle service;
- Red car service (or modified urban red car service that may
not meet the speed requirements of this service) including BRT
(Bus Rapid Transit) vehicles that are low boarding and offer an
upgraded look and amenities to standard busses;
- Vintage (original restored historic) streetcars with fixed
rail electric streetcars and streamlined catenary (above ground
power) systems;
- Replica electric streetcars on fixed rail, with or without
overhead catenary systems or in the ground proximity inductor /
recharging battery systems; or
- Rubber tired replica streetcars
All of these options
can work within the preferred alternative. Any option with fixed
rail would have to address public safety for cyclists, since it is
not safe to use this outer lane for cycling. An alternative Class
Two (bike lane) route would have to be provided along with safety
signage noting that cycling is unsafe in this lane.
Existing Transit Stops to be Removed
Too many stops impede
efficient transit vehicle timing. Most of the existing transit stops
are of the “near-side” type which is not preferred by MTDB and most
also require the transit vehicle driver to weave out and back into
the travel lane, with associated issues of safety and efficiency.
Most of the stops have inadequate length for articulated buses.
New Transit Stops
The new locations are
designed to improve transit efficiency by limiting transit stops to
key pedestrian origins and destinations. Also, moving stops to
far-side locations benefits pedestrian safety and access and removes
conflicts with right turning vehicles at intersections. In addition,
the new stop locations are proposed in conjunction with improved
pedestrian crossings and signals.
On-Street Parking
to be Removed
Many parking areas are isolated with only a few
spaces. Most of the eliminated parking occurs where substandard
widths exist. These areas have statistically high numbers of
accidents involving parked cars, rear ends and side swipes. Lost
parking on the south side of University Avenue at the west end of
the project area is replaced with parallel parking converted to
angle parking on the north side along adjacent side streets.
On-Street Parking to Remain or be
Added
Existing parking to remain is in the core business
area. Parking is added primarily in the core area where road width
is adequate to allow passing vehicles to maneuver. Angled parking is
added on side streets with adequate width, low traffic volumes and
limited curb cuts.
Curb Extensions and Widened
Sidewalks
Sidewalk widening accommodates a high level of
pedestrian, streetscape and storefront uses. New curb extensions
decrease crossing distance, increase pedestrian visibility and slow
turning traffic. Associated crosswalks with highly visible markings,
median refuges and special crossing lights will greatly improve
pedestrian safety.
Pedestrian Improvements at
Intersections:
Improved pedestrian-activated signals would be
highly visible and include visual and ADA-audible countdown timers.
The addition of high contrast crossing markings and in-pavement LED
flashers in conjunction with curb extensions would make crossing
locations considerably safer.
Texas Street
Roundabout
A roundabout at this location was a high priority
for many workshop attendees. (Another suggested location was at 30th
Street.) Roundabouts reduce conflicts, especially when compared to
the confusing offset intersection with marginal visibility.
Roundabouts can actually increase the amount of traffic handled
through them and help to maintain a steady flow of volume and speed.
This roundabout location also takes advantage of the elevated site
by providing a high visibility focal point for redevelopment. It
should be noted that the Roundabout, though an innovative idea that
can help with redevelopment, is not critical to the basic concept of
other traffic calming elements. The rest of the plan can work with
or without this Roundabout.
Landscape
Treatments
Street trees were probably the highest priorities
for more workshop attendees than any other element. Trees provide a
more comfortable walking environment by reducing glare and cooling
paved surfaces by shading them. Trees work particularly well to calm
traffic because drivers tend to slow down where there are repetitive
vertical elements along the roadway. These elements, especially
trees, reduce the apparent size of the streets. Trees also have been
shown to be a positive element that can assist in overall
redevelopment efforts.
Community Design
Treatments
A variety of art concepts, signage and community
theming has been provided in this document. A special design transit
shelter has been proposed that will capture the historic character
of the original electric streetcars that ran up and down University.
This modified version would have to take into account current ADA
requirements, safety, maintenance issues and possible advertising
requirements (to cover maintenance costs). A second transit shelter
is proposed that relates to both the historic period and current
improvements found at 30th Street. These shelters would fit into a
smaller walkway space. Signage has been proposed as part of this
project that would help to establish a character for this corridor
and relate to existing improvements. Finally, a community identity
opportunity exists at the Georgia Street Bridge. This “portal” into
the community should be celebrated with the North Park name (the
flip side could show Hillcrest or Uptown).
Plan Implementation
Several follow on efforts
are needed prior to moving this concept forward. Some of the steps
needed to implement this plan are discussed in Chapter 7. An
estimate of probable costs has also been included in the appendices.
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