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Home My WebLink AboutTC Agd Pkt 1995-02-22 TOWN OF TIBURON TRAFFIC SAFETY EVALUATION Enforcement and fo) r~ f('" rr::~' fI Vil~ m\ u'llIE~, \. -." lIc" ... J l'c." lhJ .,..,._.,.~ 2 I" 11".1'" It [) i',; !~. 'f:" Engineering Analysis TOViN MANAGeR'S or:F1CE TOWN Of" TiBU NOVEMBER 1994 University of California Institute of Transportation Studies and University Extension TOWN OF TffiURON RECEIVED MAR 0 6 1995 MEMORANDUM TOWN OF TIBURON PLANNING & BUILDING DEPT. TO: TRAFFIC SAFETY COMMITTEE March 3, 1995 CHIEF OF POLICE TOWN ENGINEER PLANNING DmEC'" SUPERINTENDENT OF PUBLIC WORKS FROM: TOWN MANAGER SUBJECT: TffiURON'S 1994 TRAFFIC SAFETY STUDY Attached is a copy of the University of California's Enforcement and Engineering Team's 1994 traffic safety evaluation, enforcement and engineering analysis for the Town ofTiburon. Please review their findings and recommendations, and provide me with your written comment by April 1, 1995. I shall then forward the Study results and your recommendations to the Town Council for their information and consideration. R. L. Kleinert lit: Attachment cc: Town Attorney Finance Director UNIVERSITY OF CALIFORNIA EXTENSION BERKELEY. DAVIS . IRVINE. LOS ANGELES' RIVERSIDE . SAN DIEGO' SAN FRANCISCO SANTA BARBARA' SANTA CRUZ UNIVERSITY OF CALIFORNIA INSTITUTE OF TRANSPORTATION STUDIES EXTENSION PROGRAMS RICHMOND FIELD STATION 1355 SOUTH 46TH STREET, BLDG, 452 RICHMOND, CALIFORNIA 94804-4603 Telephone: (510) 231-9590 FAX: (510) 231-9591 January 27, 1995 Mr. Robert Kleinert Town Manager Town of Tiburon 1155 Tiburon Boulevard Tiburon, California 94920 Dear Mr. Kleinert: The Enforcement and Engineering Team of ITS Extension Programs, University of California, Berkeley, conducted an analysis of the Town of Tiburon Traffic Safety Programs. Enclosed are ten copies of our evaluation for distribution. In the interest of improved traffic safety, we hope that the Town of Tiburon will implement the recommendations contained within the evaluation. If you should have any questions or need further assistance, the Team will be available to discuss its recommendations and findings. Within the next six to twelve months, the Team will be available to conduct a follow-up visit with the Town of Tiburon if desired. Should you have any questions or comments in the immediate future, please contact us at any time. The Team wishes to express its appreciation to you and your staff for the courtesy and assistance extended to us. Sincerely, ct' ~, ~,.v~ Lloyd G. Turner Traffic Safety Consultant George Villegas Traffic Engineering Consultant LGT:ap Enclosures TOWN OF TIBURON An Enforcement and Engineering Analysis of the Traffic Safety Programs November 29, 30, and December 1, 1994 MILES OF MILES OF CITY STATE POPULATION AREA STREET HIGHWAY 8,800 4..1 Sq. Miles 30 2.). Anna K. Bennett Director of Extension Programs Institute of Transportation Studies ITS Extension Programs University of California Richmond Field Station 1355 South 4()!h Street, Building 452 Richmond, California 94804 (510) 231-9590 TOWN OF TIBURON An Enforcement and Engineering Analysis of the Traffic Safety Programs November 29, 30, and December 1, 1994 This report was produced in cooperation with the Town of Tiburon and the California Office of Traffic Safety. The opinions, findings and conclusions expressed in this publication are those of the authors and not necessarily those of the University of California or the Office of Traffic Safety. The report was prepared under Project Number PT-9317 of the California Office of Traffic Safety. Enforcement: Lloyd G. Turner Engineering: George Villegas ITS Extension Programs University of California Richmond Field Station 1355 South 46lli Street, Building 452 Richmond, California 94804 ENFORCEMENT AND ENGINEERING RESUMES ENFORCEMENT TEAM MEMBER Lloyd G. Turner is a retired Deputy Chief of the California Highway Patrol. He has over 30 years of diverse experience, ranging from general law enforcement in a medium-sized municipality (the City of Modesto) to commanding a major field operational division of the California Highway Patrol. Specific experiences include command of: an Area, the Department's Operational Planning Section, the Office of Internal Affairs, and serving as an executive assistant to the Assistant Commissioner, Chief of Staff. Lloyd was appointed Director of the California Office of Traffic Safety in 1972 by Governor Reagan and completed the Senior Federal Executive Program at the University of Virginia. He brings to the Team an extensive background in the operational, fiscal, and political aspects of traffic safety and traffic law enforcement management. ENGINEERING TEAM MEMBER George Villegas graduated from the University of Southern California with a B.C.E. Degree and received a certificate in Urban Transportation from Carnegie-Mellon University. He began his traffic engineering career with the State of California Department of Transportation, District VII, later worked with several private engineering firms performing transportation planning and design in California, Nevada and Utah. He later resumed his local government career by serving as City Traffic Engineer for the cities of Anaheim and Downey, California, and as Director of the Department of Transportation Services, City and County of Honolulu. More recently, he has performed contractual services as Traffic Engineer for several California cities, including El Segundo, Manhattan Beach, Encinitas and Solana Beach, and has served as advisor on traffic and transportation planning for the Republic of Panama, the Dominican Republic, Venezuela and Ireland. He is a life member of the Institute of Transportation Engineers with the rank of Fellow and is registered as Traffic Engineer in California. TOWN OF TIBURON TABLE OF CONTENTS Introduction Enforcement Evaluation Engineering Evaluation Appendix A - Enforcement Appendix B - Engineering Pal:e 1 47 29 69 TOWN OF TIBURON INTRODUCTION The Town of Tiburon, California, in an effort to control traffic accidents, requested the Institute of Transportation Studies, Enforcement and Engineering Evaluation Team to perform an on-site examination of the City's Enforcement and Traffic Engineering programs. This report documents the Team's findings and provides non-directive suggestions and recommendations for Traffic Safety Managers. Should clarification or further assistance be desired, please contact the Team at (510) 231-9590. The authors wish to express their appreciation for the cooperation and hospitality received from all Town of Tiburon employees and especially: Robert Kleinert Chief Peter Herley Sergeant Thomas Aiello Town Manager Chief of Police Administrative Aide and Field Supervisor Contract City Engineer Superintendent of Public Works S. M. Bala Tony E. lacopi 1 ENFORCEMENT EVALUATION I. ORGANIZATION AND ADMINISTRATION A. Introduction Tiburon, incorporated in 1964, is a mature, residential/commercial marina community located on a hilly peninsula extending southeast into the San Francisco Bay from the main body of Marin County. The major arterial connecting the town with the U.S. 101 freeway is State Route 131 (Tiburon Boulevard). The town is predominantly a bedroom community with approximately sixty percent of the working adults commuting to the Bay Area job market. San Francisco is only eighteen miles away via State Route 131, U.S. 101 and the Golden Gate Bridge. The proximity to the Richmond-San Rafael Bridge provides easy access to the East Bay. The attractive business section, with its view of the San Francisco skyline, consists of numerous restaurants, specialty shops, marina and ferry to Angel Island State Park. The summer weekend police service population can approximately double the resident population. Slow moving site seers and motorists seeking parking add to the town's congestion problem. Residential streets vary widely in geometrical design, pavement surface and grade. Early street construction, built long before land use or traffic circulation planning became a function of town government, took advantage of existing county roads and natural terrain creating narrow residential lanes with sharp curves, and extreme grades. Vertical and horizontal curvature reduce sight distances and require a high degree of driving skill. Damp pavement and low hanging fog can increase the driving hazards. Field surveys indicate street maintenance, street lighting, pavement delineation and traffic control devices are adequate for traffic law 1 enforcement purposes. Supplemental street name signs provide navigational aids at major streets. Good navigational aids are important to out of town motorists, and especially truckers, who must position their vehicle properly for intended turns without hasty, un-signaled turning movements or rapid change in pace. Accidents caused by poor navigational aids often go undetected by un-trained traffic accident investigators or traffic analysts, because they are coded in a variety of ways: . Unsafe speed for conditions . Improper turning movements . Following too closely . Driver inattention or attention diverted. A traffic violation count, taken from an unmarked vehicle, during the day and nighttime field surveys indicates unsafe speed for conditions, right-of- way, and sign and signal violations are contributing to the City's accident potential. Well-marked police units were observed on routine patrol on each survey, giving a strong impression of a law enforcement presence. The town government is of the town council-town manager type with Mr. Bob Kleinert, serving as the long-tenured town manager. B. Traffic Supervision, Traffic Law Enforcement and Accident Investigation Provider The Tiburon Police Department, under the command of Chief Peter G. Herley, is currently authorized 14 sworn officers and 4 nonsworn support personnel. The department recently lost a Captain and one patrol position due to the recession. The department is aware of the cost-effectiveness of civilianizing those positions which do not require law enforcement authority or subject the employee to danger; however, flexibility of scheduling and the ability to provide beat coverage relief for training, court and illness is a major limiting factor for small departments. The department received community support from one reserve and is considering expanding a citizen volunteer program. P.D.S.T. training 2 requirements are making it extremely difficult for small departments to recruit and maintain a reserve force. The department's organization has clear lines of authority, responsibility and communications with field supervisors reporting directly to the Chief. Traffic safety program management is provided by a sergeant as a collateral responsibility. The department has elected to use one motorcycle with two trained riders providing sixteen hour coverage on major traffic days. Motorcycles are cost-effective because studies indicate they are approximately twice as often noticed by motorists, pedestrians, bicycles, and street criminals as well-marked police cars. In addition, motorcycles are highly maneuverable and able to reach more traffic violators than police cars. Motorcycles can split traffic or user medians or sidewalks to reach congested accident scenes quickly with first aid and communications equipment. The policing concept used is community based with a strong emphasis on long-term problem solution. II. STATISTICS A. Statewide Comparisons 1. Tiburon's Statewide Rank 388 1987 Rank 287 Statewide rank is computed by the California Office of Traffic Safety, based on a three year average of the fatal and/or injury accidents, per 1,000 residents, reported to the Statewide Integrated Traffic Record System (SWITRS). Number 1 is the poorest record; therefore, Tiburon IS in the 8()!h percentile of the State's 452 incorporated cities. 2. Population Group Identifier 87 out of 107 cities in the under 10,000 population group (8Ig percentile ). 3 3. Fatal and Injury Accident Rate per 1,000 Residents 1.7 1986 Rate 4.4 Like Population Group Median 3.6 Statewide Average 7.2 Tiburon is one of California's safest cities with 17 fewer fatal and/or injury accidents than the population group median. 4. Alcohol Involved Accident Rank 290 out of 315 cities surveyed (92lli1 percentile). 5. Alcohol Involved Fatal and Injury Accident Percentage. 13.1% Statewide Average 16.8% 6. Ratio of Sworn Officers per 1,000 Residents 14 Authorized Sworn Officers + 8,800 Residents = 1.59 14 + 15,000 (Estimated Police Traffic Service Population) = .93 Law Enforcement Staffing Comparisons National Police Agency Average: Sworn officers per 1,000 inhabitants Total police employees per 1,000 inhabitants 2.2 3.1 The California Municipal Police Agency Average excluding sheriff's offices is 1.80. 4 Western U.S. Geographic Region by Population Group Sworn Officers per 1,000 Inhabitants: Over 250,000 100,000 to 249,999 50,000 to 99,999 25,000 to 49,999 10,000 to 24,999 Under 10,000 Average 1.9 1.4 1.3 1.5 1.6 3.0 1.7 Source: Crimes in the U.S. (1992 Edition) Small cities on busy transportation corridors often need a higher than average ratio of police per 1,000 residents to provide police service for the pass-through, state highway traffic, flexibility of scheduling, out-of- city training time to take advantage of the P.O.S.T. reimbursed training program, and sufficient late night staffing to provide timely emergency backup for an officer in trouble. It takes 5.2 sworn officers to keep one officer on the beat 24 hours a day, 7 days per week. (See Appendix A for a comparison chart with various population group cities.) Note: The best measure of staffing needs comes from a workload audit which includes at a minimum: . Calls for service by type Emergency response times Crime indexes Accident rates Amount of in-view preventative patrol time between calls for service and report preparation. A police management and staffing audit review service is available free of charge from the California Office of Peace Officers Standards and Training. 7. Percentage of Sworn Officers Dedicated to Traffic Supervision, Traffic Law Enforcement and Accident Investigation 2 out of 14 = 14 percent. 5 The Institute of Transportation Studies Evaluator recommends 10 to 15 percent (1 to 2 sworn officers) based on the proven ability to control traffic collisions, street crime and to be cost-effective due to the dual function performed. Traffic officers normally arrest more felons per work hour than police generalists, because traffic officers have the responsibility and legal authority to stop more vehicles and to see fruits of a crime, weapons, drug paraphernalia, burglary tools, etc. B. City Comparisons 1. Accident Trends a. SWITRS 1991 1992 1993 Fatals 0 0 0 Injury Accidents 15 12 14 PDOs 28 24 34 Total 43 36 48 6 b. Local Statistics (1993 Annual Report) 1991 1992 1993 Fatals 0 1 1 Noninjury Accidents 42 35 47 Injury 17 6 17 Accidents DUI Related 0 0 0 Hit Run (NI) 3 9 15 Hit Run (I) 4 1 3 Total 66 52 83 The difference between fatal and injury accidents reported to SWITRS is unexplained. The reporting ratio between property damage only type collisions and injury accidents is 2.8 to 1 in 1993. Cities with known full reporting systems usually report 4 to 5 property damage only type collisions for each injury accident. This leads the Evaluator to believe, the Town of Tiburon is experiencing in the range of 216 to 270 property damage only type collisions each year rather than the 136 reported in 1993. (See III G. for a rationale of why full accident reporting is desirable.) 2. Traffic Law Enforcement Trends (Moving Violations) 1994 January- 1991 1992 1993 October 1,163 1,338 1,104 739 7 3. Traffic Law Enforcement Arrest Index (Hazardous Violations Divided by Fatal and Injury Accidents) 1991 1992 1993 68.4 111.5 64.9 Northwestern Traffic Institute has taught for years that it requires a minimum of 20 moving violation citations for each fatal and/or injury accident to reach the threshold of effectiveness in a traffic safety program. The observed traffic pattern, percentage of out-of-town drivers, and accident records indicate the advantages received from the high arrest index. 4. Officer Productivity (Hazardous Violations 1993) 1,104 + 12 field officers and supervisors = 92 HV per officer per year. 92 + 11 working months = 8.4 HV per officer per month. 8.4 + into 160 work hours = 19.0 work hours between hazardous violation citations. Benchmark: Motorcycle: One hazardous violation citation per work hour while exclusively assigned to traffic law enforcement duties. Police Generalists: One moving violation per shift based on the officer's daily activity log showing a minimum of one hour free and available for proactive law enforcement activities. 5. DUI Accidents (1992 January - June SWITRS Report) o alcohol involved fatal accidents. 2 alcohol involved injury accidents for 22.2 percent of the total injury accidents. (Note: numbers are small; therefore, the percentages are high.) Statewide average is 16.8 percent. 8 DUI consistently ranks in the top 5 as a primary collision cause within the town. 6. DUI Arrests 1994 January- 1991 1992 1993 October N/A 48 47 45 Benchmark: Two percent of the city's driving population incarcerated annually. DMV reports 60 percent of a resident population drive. 8,800 x .60 = 5,280 drivers. 5,280 x .02 = 106 arrests annually. The benchmark for police traffic service population is: 15,000 x .60 = 9,000 drivers 9,000 x .02 = 180 arrests annually. 7. Blood/Breath/Urine Test Result Average .14 The presumptive limit for driving under the influence in California dropped from .10 to .08 effective January 1, 1990. The Institute of Transportation Study Evaluator recommends a blood/breath/urine test result average in the .12 to .15 range. Juveniles are held to "0" tolerance effective January 1, 1994. 8. Pedestrian Accidents (1992 January-June SWITRS Report) o fatal accidents. 1 injury accident for 11.1 percent of the total injury accidents. Statewide average is 6.3 percent. 9 9. Bicycle Accidents (1992 January-June SWITRS Report) o fatal accidents. 1 injury accidents for 11.1 percent of the total injury accidents. Statewide average is 5.0 percent. 10. Revenues Generated from Vehicle Code Fines (Section 1463 of the California Penal Code) Effective January 1, 1992, legislation changed the percentage of vehicle code fine monies returned to the city's traffic safety fund. Cities are receiving a substantial decrease in the revenue from this source. III. TRAFFIC SAFETY PROGRAM ELEMENTS A. Program Management The very essence of a sound municipal traffic safety program is the Town Council, Town Manager and Town department heads understanding the magnitude of the problem and how traffic accidents compare with other Town problems and priorities. One important comparison is the number of traffic accident victims compared to the number of citizens killed and/or injured by criminal acts, because the two preventative programs compete for the same public safety budgeted funds. 10 National Crime vs. National Traffic Crash Clock 1991 1 Murder every 22 minutes 1 Traffic Fatality every 14 minutes 1 Aggressive Assault every 30 seconds 1 Traffic Injury every 11 seconds 1 Violent Crime every 17 seconds 1 Traffic Crash every 5 seconds Source NHTSA General Crime Victims vs. Traffic Accident Victims Town of Tiburon 1993 General Crime Traffic Homicide/Manslaughter o Killed 1 Forcible Rapes 3 Injured 24 Aggravated Assaults with the Potential for Great Bodily Harm 27 Total Injuries 30 24 Nationally, twice as many people are killed in traffic collisions as by criminal acts. Tiburon is one of the rare California communities where more people were injured by a criminal act than a traffic collision. 11 The precise dollar figures are not readily available to compare the value of property loss from criminal acts such as robbery, burglary, theft, bad checks and malicious mischief to the financial loss from traffic collisions; however, the relationship is almost always higher for traffic over general crime. The International Association of Chiefs of Police report the relationship nationally is one and two-thirds times higher for traffic over criminal acts. The financial loss to California citizens from traffic collisions is estimated at $6,700 per accident when long-term medical costs are included in the calculations. This was a 1983 Governor's estimate, and medical costs have skyrocketed since that date. Based on any standard of measure, lives, injuries, loss of dollars or citizens' concern, traffic safety is one of the Police Department's major responsibilities. Recommendation #1 Continue deploying available resources based on the officer's potential to save lives, mitigate injuries and reduce the loss of citizens' property. Traffic accidents, like criminal acts, are controllable with in-view preventative patrol and selective enforcement. . Dedicated traffic law enforcement and directed traffic supervision from police generalists, for short durations of time, can be more cost-effective than general crime patrol because: 1. California Office of Traffic Safety and University of Maryland studies indicate cities which added dedicated traffic units experienced a significant decline in street crime along with a decrease in traffic collisions. Highly visible traffic units, working heavily traveled arterials, provide a strong feeling of a law enforcement presence for the criminal as well as for the motoring public. 2. Traffic officers normally make more felony arrests per work hour than police generalists, because they have the legal 12 authority to make more stops and to see fruits of a crime, burglary tools, drug paraphernalia, etc. Recommendation #2 Consider the benefits to be derived from a long-range strategy plan with annual traffic safety goals. . Every officer leaving the back door of the office to assume responsibility for his/her beat should know what the administration wants to accomplish in 1995 and beyond. . Peters and Watennan, in their best seller, 1n Search of Excellence, point out the best run companies in America use some fonn of strategy plan, goals and/or objectives to communicate to the working level what management wants to accomplish during the forthcoming year. The communications concept has been expanded and modified for law enforcement by Chief fan Duke at the P.o.S.T. Command College. Management should set broad parameters and then allow the working level to communicate how they, as individual officers, can contribute toward reaching departmental goals. Bottoms-up input is usually both practical and ambitious. . Quantifiable goal reporting is an excellent means of providing positive feedback on how workers are incrementally measuring up to expectations. Goals should be shared with the news media in an effort to keep citizens infonned of where the high accident locations are and to seek voluntary compliance with traffic rules and regulations at those specific locations. The Department has elected to address its traffic safety responsibility by using a combination of police generalists and one dedicated traffic officer. Police generalists are responsible for their assigned patrol beats and the traffic officer brings focus to high travel/high accident potential/citizen complaint locations. 13 Traffic safety program management is provided by a sergeant as a collateral responsibility. The sergeant is responsible to plan, direct, evaluate and redirect as necessary to ensure compliance with departmental policy and professionalism standards. Field performance observations are used to determine training needs and to provide factual data for the annual evaluation. Traffic safety program management is dependent on top management making it known, by word and deed, that traffic safety is one of the department's major program with high priority. Police generalists should know their best chance to save a life, mitigate an injury, reduce the loss of citizens' property or apprehend a felon comes from the professional application of traffic laws. B. Data Collection and Analysis The bedrock upon which an effective traffic safety program rests is knowing when and where accidents are likely to occur and deploying resources at the correct time and location to control the potential. In small cities, traffic officers' and field supervisors' personal knowl- edge, gleaned from on-street observation, accident investigation and accident report review, is usually quite accurate; however, monthly review of local statistics and quarterly review of SWITRS statistics should be used to confirm the supervisor's perception before schedules are finalized. The when, where and primary vehicle code violation group causing accidents needs to be communicated to the traffic units and police generalists in the highest motivational way. Charts, graphs, pictures and pin maps, supported with briefing items, have proven successful in communicating the high accident locations to all shifts throughout the 24 hour, 7 day a week coverage period. Attractive visual aids have the added benefit of helping to transfer the oncoming officer's mental energy from thinking about home problems to thinking about what needs to be accomplished during the forthcoming shift. 14 The sergeant is responsible to keep the chief informed on traffic matters. The department may wish to consider using consolidated monthly traffic safety summary reports to provide one minute oversight management. (See Appendix A for a sample form.) The department should be cautious about the amount of accident report data input into computers and stored. The rules should be to input and store only that data which is essential to program management, is not redundant to information available from a free source (SWITRS) and cannot be obtained more efficiently by using the hard copy or a sampling technique. C. Directed Patrol and Selective Enforcement Experience has taught California law enforcement agencies that maximum effectiveness is gleaned from placing patrol units at the highest incident locations during the highest frequency hours with specific direction to seek out the violations causing accidents at that location. Ideally, assignments should be made through written direction with a feedback mechanism such as the directed patrol assignment sheet. Directed patrol works equally well for traffic accident control and criminal act suppression, especially when the high crime/high traffic accident locations are on the same street or in close proximity. Directed patrol should be for short durations, 10 to 15 minutes at a time, so as not to stifle the officer's own initiative in keeping his or her beat clean. Tiburon Police Department meets this program element requirement. D. Safety Belt, Child Restraint, and Motorcycle Helmet Education and Enforcement A National Highway Traffic Safety Administration analysis of traffic accident statistics nationwide over the past three years clearly demonstrates that increased use of restraining devices reduce both fatalities and the severity of injuries that do occur in traffic collisions. One recent study of unrestrained fatalities indicates 47 to 52 percent of the victims would have survived the 15 collision if they had been properly restrained. This translates into 15,500 lives and 120,000 moderate to critical injuries nationwide, and approximately 2,000 lives per year in California with 100 percent use of safety belts and child restraint devices. A 35 miles per hour crash, which brings a vehicle to an immediate stop, exerts 20 gravitational units or a force of approximately 3,600 pounds to a 180 pound passenger. Occupant protection laws have been in effect since 1986 with early compliance efforts focused on education and friendly persuasion. The time has come, with approximately 86 percent of the motoring public in compliance, for all police agencies to take the next step: professional enforcement of the laws which enable an agency to save lives and reduce the number of serious injuries caused by traffic collisions. National studies show there is a clear and close relationship between occupant protection compliance and the level of enforcement. (Each 10 percent increase in safety belt usage is equal to about a 5 percent reduction in fatalities.) With the benefits of occupant protection so clearly demonstrated, police agencies should: 1. Re-evaluate departmental policy on the subject to be sure officers are protecting themselves. (See Appendix A for a pamphlet entitled, "7 Reasons Why Police Agencies Should Have a 3-Point Safety Belt Policy.") 2. Bring focus, by management's word and deed, to the low-cost traffic safety program element which will have the greatest impact on saving lives and mitigating injuries in the community. Recommendation #3 Consider the following occupant protection program elements. Conduct local occupant protection compliance surveys. Provide briefing training on Sections 27315 and 27360 of the California Vehicle Code. (CHP videos are available.) 16 . Consider placing a check-box on the local citation form to remind officers to check for belt usage and to cite for noncompliance. Consider safety belt compliance campaigns. Work with local traffic courts to ensure a proper adjudication of safety belt citations (no safety belt dismissals). Press the local legislator for increased fines. Motorcycle rider/passenger head injury deaths were down 37 percent during the first year of mandatory motorcycle helmet legislation. Education and enforcement of occupant protection legislation is the most cost-effective traffic safety program element available to law enforcement agencies. E. Public Awareness Voluntary compliance to traffic rules and regulations is vital to an effective traffic safety program in any community. Therefore, it is incumbent upon the Police Department to keep safety problems in high visibility and continually strive to gain acceptance from the motoring public. Recommendation #4 Consider expanding the public information program to include two or three news media, warning and enforcement campaigns each year. Traffic safety campaigns are excellent public relations for the Police Department, encourage voluntary compliance to traffic rules and regulations from the motoring public, and identify specific high accident locations, times and violation groups for both officers and motorists. Excellent results have been obtained in other California cities from: 1. Back-to-school campaigns which include: radar speed enforcement through school zones (radar display boards are ideal for this purpose), pedestrian, bicycle and skateboard enforcement around the campuses, observation of the primary grade children's route to school, observation of 17 crossing guards' trammg and motorists' compliance to crossing guards during the first two or three weeks of each semester. 2. Child restraint and safety belt enforcement/education focused around preschools, grocery stores and shopping center entrances. Officers can usually peer into the vehicle to see if a child under four years of age is properly restrained. Safety belt enforcement is appropriate if the mother or father is not wearing a safety belt. 3. DUI Team enforcement on all three day holidays and during local events. 4. Specific judgmental vehicle code violations such as right-of- way, following too closely, turning movements and signal violations. A supervisor should provide briefing training on the elements necessary to prove the violation in court, and then require special reporting on the number of citations issued at specific locations. F. Driving Under the Influence State and national studies consistently show approximately one-half of the drivers involved in fatal accidents had been drinking. The same studies indicate during the hours from 10:00 p.m. to 2:00 a.m., nearly one-half of the drivers using the roadway had been drinking. In 1993, motor vehicle crashes were the leading cause of death among Americans in the 1 through 34 year age group, with drug/alcohol related traffic collisions ranking as the No. 1 killer in the 15 through 25 year age bracket. Approximately 50 percent of the drivers in fatal crashes had been drinking with 40 percent having a blood/alcohol content of .10 or above. Tiburon has developed a reputation of providing strict DUI enforcement. As a result, the number of DUl involved accidents and arrests have decreased faster than the statewide average. DUI accidents and enforcement are down approximately 20 percent statewide since 1990 due to more stringent legislation, professional enforcement, public opinion and outreach programs as sober graduation and designated driver. Unfortunately, the lower lever intoxicated driver (.08-.15) is still the most dangerous person 18 in the community and should be sought out and incarcerated before they crash or cause someone else to crash. At least ninety percent of the DUI arrests should occur before the driver is involved in a traffic incident. Tiburon is attempting to recover public safety member cost incurred while processing DUI related crashes and rolling arrests as authorized by Section 53150-53158 of the California government code. Speed of billing is highly correlated with the percentage of return. Some departments with computer-aided dispatch are able to present the bill at the time the subject is released from custody. G. Accident Investigation Accident investigation and the prosecution of drivers who cause accidents are basic cornerstones to sound municipal traffic safety programs. Police managers and the Town Traffic Engineer must have accurate information about collisions if they are to make informed decisions on police deployment, spot engineering improvements and capital outlay projects. Investigation, accurate documentation and reporting of all types of collisions, including minor property damage only accidents, is important for the following reasons: 1. The difference in fatal, injury or property damage only type collisions may be a mile or two in speed, angle of impact, relative size of the vehicles, use of a safety belt, or age of the victims, while the primary cause of the collision may be exactly the same: reduced sight distance, low coefficient of friction on the pavement surface, unclear traffic control device, etc. With full accident reporting, patterns will develop, allowing the Traffic Engineer to address the specific problem, and, hopefully, find an engineering solution before additional collisions occur. 2. State law provides a process to remove negligent, unsafe drivers from the roadway when they have demonstrated an inability or unwillingness to drive safely. Section 12810 eve provides a negligent driver point count with one point assessed for a hazardous traffic violation, and one additional point assessed for causing a traffic 19 collision. Four points in anyone year will trigger a Department of Motor. Vehicles negligent driver hearing. This system cannot work unless the Police Department responds to all crashes, determines the causation factor and submits the appropriate report to SWITRS. 3. Numerous employers, including the Town of Tiburon, depend upon Department of Motor Vehicles driving records to determine if a prospective employee is a safe driver. Failure to respond to and document property damage only type collisions defeats the validity of the individual's Department of Motor Vehicles driving record. 4. The motoring public deserves an impartial, trained investigator to accurately document the basic facts of the collision to protect the innocent from overly aggressive drivers who may file fraudulent insurance claims or frivolous civil suits. A traffic collision, however, minor, is the most important thing that has happened to the citizen all day, and it is excellent public relations for the Police Department to help the driver gather facts in their time of need. 5. The time difference in responding to a collision scene, determining injury, neutralizing the traffic situation, clearing the roadway, providing financial responsibility requirements, and having drivers exchange names is very little different from preparing a State-furnished modified 555 accident report form. The service to the citizens of Tiburon and to the State of California is greatly enhanced by properly documenting property damage only type collisions. 6. Future police staffing depends on workload documentation. 7. Caltrans needs all accident data, including PDOs, on state highways to calculate accident rates and to do professional accident studies. 8. Traffic engineering warrants for stop signs and traffic signals is partially based on the number of collisions occurring at that location. 9. State and federal grants are often partially based on recorded accident histories. 20 10. The Town's credibility rests on accurate records. Tiburon is using the state collision manual for policy, procedure and definitions. Recommendation #5 Consider moditying accident investigation/documentation policy to require documentation of all on-street collisions. . Property damage only and complaint of pain type injury accidents can be documented using the short form, summary cause format, unless there is damage to Town property or prosecution. . All traffic collision reports should be submitted to the Statewide Integrated Traffic Record System (SWITRS) as requested in the State Collision Manual. IV. PLANNING AND COORDINATION Municipal traffic safety programs depend on traffic engineers to do their best work in developing the safest possible traffic environment for the motorist, pedestrian and bicyclist within Town budget constraints. The police department is then responsible to educate the motoring public and to require safe, lawful operation in accordance with pavement delineations, traffic control devices and the California Vehicle Code. Close coordination between law enforcement officers and the Public Works Department is essential to manage the flow of traffic on existing streets and to develop better ways for the future. The Tiburon Police Department officers should be the field "eyes and ears" of the engineer, providing input on flow problems, sign obscurements, pavement delineation weaknesses, and, specifically, where high enforcement activity is necessary to obtain compliance with the law (Cherry Patch). The Police Department's Traffic Safety Manager should be involved with the Town's Traffic Engineer and planners in early review of all street modifications, environmental impact reports, and business license applications where traffic flow, 21 traffic safety or traffic law enforcement staffing may be at issue. The Police Department should comment upon potential developer impact mitigation fees which may be necessary to maintain the existing level of service on affected streets before the environmental impact report or business license is approved by the Planning Department. Recommendation #6 Consider fonnalizing a stafT level Traffic Safety Committee . The Committee should include: Town Traffic Engineer Police Department Traffic Safety Program Supervisor Representative from Caltrans . The Committee's charge should include: Seeking out traffic safety problems Reviewing citizens' complaints received by both departments Conducting multidisciplinary staff studies . Reaching consensus decisions . Making recommendations to department heads The Committee should meet monthly, develop a formal agenda and keep minutes. V. TRAINING In order for a law enforcement agency to provide efficient, cost-effective traffic safety programs, its managers, supervisors and officers must be skilled in problem analysis, program planning, directed patrol and selective enforcement techniques. These are learned skills which require refresher training and frequent updating. 22 Recommendation #7 Consider the following training for long-term enhancement of the Department's traffic safety capabilities: . Enroll the traffic safety supervisor in the Traffic Safety Program Management Institute. The academic training at the Institute is excellent, with the student benefitting from sharing ideas and technologies with 20 to 25 municipal traffic safety managers. The traffic safety program manager should return with a "bag of tricks" which can be successfully transplanted into Tiburon. The course is P.O.S.T. certified and reimbursable. . Consider in-house drug/alcohol recognition refresher training for all officers on a semiannual basis. Officers must be able to recognize the first manifestation of a .08 intoxicated driver. . Consider hands-on gaze nystagmus refresher training for those officers who are not currently using the technique for roadside field sobriety screening. Hands-on gaze nystagmus training should provide the officer with the self-confidence to take the .08 to .12 intoxicated driver forthwith for blood/breath or urine testing. Field sergeants should carry the passive alcohol sensing device to be in a position to assist any officer who is not quite sure of the subject's intoxication level. . Consider enrolling all field supervisors in a work area traffic control course. Field supervisors should be in a position to immediately identify, if Town employee or contractor, traffic diversions are in compliance with the Work Area Traffic Control Handbook. (WATCH Handbooks should be carried by field supervisors or be standard equipment in supervisors' cars.) Compliance with the handbook will reduce the Town's potential liability. Consider semiannual defensive driver refresher training. One half- hour of basic principle refresher, followed by a driving instructor or supervisor ride-along during the quarter, will ensure that basic principles are being applied and, thereby, improve occupational safety. Motorcycle riders should receive monthly mental safety reminders. Municipal police officers are as much as ten times more likely to be involved in a traffic collision as the average motorist because of the type of driving and amount of exposure. 23 During 1991, 31.8% of the police officers killed in the line of duty were traffic related. Twenty-four percent of the police agencies' crashes resulted in a loss time injury. The average lost time is 23 working days per lost time crash. Good documentation of the defensive driver training program will reduce the Town's potential liability should a major crash occur. The Police Department may wish to volunteer its driving instructor to provide defensive driver refresher training to all Town vehicle drivers on an annual basis. VI. ANALYSIS In evaluating Tiburon's traffic safety program from an enforcement perspec- tive, the following factors were considered: 1. Traffic environment, including trafficways, traffic hazards, street capaTown, traffic engineering, street lighting and communication with the driver through regulatory and warning signs, signals and pavement markings. 2. Volume of through commuter and local traffic using Town streets. 3. Driver, bicyclist and pedestrian demographics, including the ratio of drivers in the high risk years of 15 to 25, and 60 and over. 4. The degree of motorist, bicyclist and pedestrian voluntary com- pliance with traffic rules and regulations. 5. Traffic law enforcement programs and statistics generated in the Town over the past four years. 6. Cooperative traffic safety programs with other Town departments and allied agencies. The Tiburon Police Department has the responsibility to provide traffic supervision, traffic law enforcement and accident investigation services in a thriving bayside community, which includes approximately 2.5 miles of busy state highway. Caltrans retains ownership, maintenance and traffic engineering responsibility on the 24 state route, while the police department has the responsibility to educate motorists, pedestrians and bicyclists to ensure compliance with the engineering plan and all safety rules. The department has compiled an amiable safety record, 17 fewer fatal and/or injury accidents per year than the population group median, especially when the volume of out-of-town traffic, number of bicyclists and driving environment are considered. In the Evaluator's judgment, the traffic safety program success can be directly attributed to sound management, in-view preventative patrol and an excellent traffic law enforcement arrest index. Motorists have learned to expect a police presence and be stopped and cited if they violate the law. Traffic safety is directly correlated with the quality of life within in the community. The Evaluator was favorably impressed with the traffic safety record and will share this success story with other California communities. The high percentage of out-of-town drivers and truckers using Town streets restrict the Police Department's option in seeking full compliance with safety rules and regulations. Most local residents can be persuaded to obey safety rules and regulations by driver education programs, pleas for civic pride, and voluntary compliance; however, out-of-town drivers and a small percentage of locals will fail to accept their responsibility, and must be apprehended before they crash or cause someone else to crash. Traffic law enforcement is essential to controlling traffic collisions and street crime. The best results are obtained from a combination of driver education, pleas for voluntary compliance, in-view preventative patrol and sufficient traffic law enforcement to make the motorists, pedestrians, and bicyclists aware that they are likely to be apprehended and cited if they violate the law. The 1993 traffic statistics provide documentation of the value of traffic law enforcement. Traffic law enforcement was up 33 percent, and injury accidents decreased 14.3 percent, lowering the Town's fatal and injury accident rate to 1.3 per thousand residents. In the Evaluator's judgement, a sustained traffic law enforcement index in the 45 to 55 range will help protect the quality of life in Tiburon. 25 Management is providing traffic safety leadership and guidance, and has successfully competed for a California OffiCe of Traffic Safety grant to obtain a state- of-the-art laser speed detection device and a speed display trailer. Speed display trailers are proving effective in controlling speed in school zones, high speed related accident streets, and in residential areas where citizens have complained of excessive speed. The Department will need to use two or three hours per month of downstream enforcement, one or two blocks below the speed display trailer, to apprehend the small percentage of drivers who observe the plea for voluntary compliance but fail to reduce their speed to or near the posted limit. Extra efforts will be made to obtain a high percentage of safety belt, child restraint, motorcycle helmet compliance through education and enforcement. Occupant protection is the most cost-effective traffic safety program element available to law enforcement agencies. The Evaluator was favorably impressed with the Tiburon Police Department and what it has been able to accomplish in a very difficult traffic environment. Cost-saving ideas being used by other California police departments: 1. Civilianization of those jobs that do not require law enforcement authority or subject the employee to danger. 2. Consider a rapid book and release procedure for first time DUI offenders. Offenders can be released on a citation to a responsible person if the spouse, family member, or employer can respond within one hour. This saves officer in-view preventative patrol time, and, in some cases, the county booking fee. Contact the Los Angeles Police Department Traffic Division for documentation of policy and procedure. 3. Consider a senior volunteer program. Contact the Dana Point Police Department for details on one of California's best senior citizen volunteer programs. Cost-recovery ideas include: 1. Consider increasing the fee for releasing a stored vehicle into the $35 to $50 range. 2. Consider charging an administrative fee for signing off other agencies' mechanical defect citations. The going range is $2 to $10 per citation. The court marshall's charge is $10.00. 26 3. Consider surveying other police agencies in the counties to ensure the sale price for accident reports and crime reports are at or above the median. The Institute of Transportation Studies Evaluator gathers statistical data and program information from the focused perspective of traffic safety, and did not attempt to correlate or compare the data with other police functions. We strive to raise the visibility of traffic safety throughout California, and to keep managers informed, so they can make the best possible decision based on all of the facts. 27 . . . . . . . The ideas, suggestions and recommendations found in this report are not intended as fault-finding, but rather as thought-provokers for management in their effort to fine tune an effective traffic safety program. We, as traffic safety evaluators, spent only a short time in your community, and some of our perceptions may not be well founded in fact. On the other hand, we have observed a large number of municipal traffic safety programs and are familiar with what has proven successful in other California cities. We sincerely hope you will receive the thoughts in the manner in which they were intended and make implementation decisions based on your political, fiscal and resource capability. We appreciate the cooperation and hospitality received in Tiburon and are looking forward to a safer 1995. . . . . . . . 28 RATIO OF SWORN OFFICERS PER 1,000 RESIDENT POPULATION ..em PODulation Auth. Sworn .Ralil1 Honolulu 840,000 1862 2.22 San Francisco 740,000 1973 2.67 Long Beach 406,000 685 1.69 Santa Ana 245,000 383 1.40 Torrance 140,000 236 1.69 San Bernardino 132,000 243 1.84 Modesto 130,000 154 1.18 Ventura 90,000 114 1.27 Buena Park 65,000 88 1.34 Redding 57,000 82 1.44 Huntington Park 55,000 61 1.11 Vacaville 55,500 63 1.16 Azusa 38,000 55 1.45 Gilroy 30,000 42 1.40 Martinez 29,800 39 1.31 Eureka 25,000 41 1.64 Barstow 20,500 32 1.56 Hermosa Beach 20,000 36 1.80 Albany 17,600 26 1.48 Paso Robles 16,000 28 1.75 Rocklin 14,250 17 1.20 Red Bluff 11,500 20 1.74 Patterson 9,000 16 1.78 Susanville 7,000 13 1.86 Yreka 6,800 14 2.00 California Municipal Police Agency Average = 1.80 5lxw.-Jr.'l.t.. /-<<-, "j " L~ ..:ir&.en.ll ....-; ~ "What's it worth to save a life? By Christopher Scanlan K8i1bt-R1dder N_n WASHINGTON - What's a life worth? In Washington. it all depends on whom you ask. At the U.S. Consumer Product Safety Commission, a human lile is valued at a cool 52 million. But at the Environmental Protection Agency. one oi us is worth four times that. while the Nuclear Regulatory Com. mISSIon s;>lits the difference at 55 million. , The price of a life is the centerpIece of Washington's uitimate num. ber.; game _ cost-benefit analysis - a duel of statistics that too often leaves our health and safery shortchanged. Federal officials routinely use such number.; to justify decisions on life and death issues - whether your child rides in a safety seat on an airplane. how polluted is the air we breathe. whether the place we work is safe. The cost of the proposed regulation IS weighed against the lives, . expressed in dollars. it would save. Agency economistS and other observers defend putting price tags on people as necessary yardsticks in an era of mega..c:1eficits. "There have to be tradeoffs." argues Marvin Fell. a veteran federal economist with the U.S. Coast Guard. 'If it costS $50 million to save a , See LIFE, back page, A24 <l ',; : Life ... Sionlinued from pap AI man's life. is it worthwhile if you could spend it en AIDS . asearch or vaccinations?" . ;l1lEven the most vociferous critics of pricing human lives ~ that the government must weigh the costs against J:iinefits in making decisions on parceling out finite tax ~QUars. 'mBut, they argue. any cost-benefit analysis must be ~ on a standard value for human life - and reflect !lOt just lives lost but catastrophic medical costs ior inp. lilts and the less tangible impact on the qualiry of life. .""Instead what we have, they say, are guesstimates mas. .....rading as hard numbers. based on doubtful econom- .:z and questiohable morality. Even wme bureaucrats ~ piay the game acknowledge that it's an inexact sci. cllBce at best. :::.""'They can It even agree on how much a human life is _rth," complains public interest attomey David Vla- ~ federal'ageai:Iei/' ~pric.~:~, ' ffl1C8.,faG; . in <., ....... ...,,~.w ,.......*;,;;;.~;'~."l,; _. Kn;ght._T__llf"PIlic deck. "It's proof positive that the technique is far too im- precise and flawed to be used as 3 major regulatory tool." Cost.benefit analysis. first used to justify dam construc- tion a century ago. sparked hot debatos in the 1980s as a chief weapon in Ronald Reagan's campaign for deregula- tion. Marching to his Executive Order 12291 issued Feb. 17. 1981. all federal agencies began weighing costs against the benefits before writmg new regulations. Una.r the Nle. the benefit.; must outweigh the costs. Thus. a !"'lgulation costing $100 million is acceptable only if it wouid save 20 lives ....alued at $5 million each. or 50 lives valued at $2 million. For example. after 51 construction workers died in 1978 when a scaffold collapsed at a power plant in Willow Island. W. Va.. the OccupatIOnal Safety and Health Ad- ministration proposed new safety Nles the agency said would save on average :zJ !ives a year and cost industry 527.3 million. Since OSHA valued a life a( $3.5 million. the rt'gutation easily passed the cost.benefit test. But the Office of Man- agement and Budget, the administration's regulatory (' ,. SOCIETAL COST FOR A TRAFFIC ACCIDENT (1989 Annual Report of Fatal and Injury ...Accidents - CHP) TABLE 7C ESTIMATED COST PER INCIDENT I) BY VICTIM SEVERITY AND PROPERTY DAMAGE ONLY ACCIDENTS 1988. 1989 1918 1989 VICI'IM COlt P... Tolal COlt P.. Tolal SEVERITY iIld_. COlt laddeat COlt KIlled S 1,311,000 S 7,146,000,000 S 1,349,300 S 7,503,000,000 Injured - Se,.ere 33,700 630,000,000 35,400 660,000,000 Olb... VIsible 1,700 1.170,000,000 9,100 1,203,000,000 Complain' or Pain 4,400 897,000,000 4,600 979,000,000 Property Damale Only Acddents 2,200 717,000,000 2,300 732,000.000 TOTAL S 10,500,000,000 S 11,077,000,000 lJ Cost Per incident source, Urban Institute, Dr. Ted Miller. Due to the Consumer Prtce Indo: (CPI) and Dr. MlUer's onCOinC federal research, cost estimateS are subject to cbanre In fublre publications. To calculate costs for smaller accident totals please review the Statewide Interrnted T~c Records S1SCem. (SWITRS) UHI"'S Guide fatal and injury adjusted formul&. TABLE 7D HIT AND RUN ACCIDENTS AND VICTIMS BY TYPE OF COLLISION. 1989 r TYPE OF COLLISION Head. Side-. R... Broad. HI' 0..... Autal TOTAL on swipe End side Object tumed pedestrian Olh... Accidents Fatal 474 22 24 33 66 50 16 231 32 Injury 26,712 1.197 2,705 8,599 6,019 2,269 370 3,172 2,441 Vlctlms KIlled 504 27 28 35 72 54 17 237 34 Injured 37.903 1.943 3,11S 13,072 9,252 3,155 522 3,393 2,681 ;; :; Q .. c .::l "' .l! :e ':; . ;; ;; 0.0 z 0 0: -< e 0 0 z .;: "' :Ii :Ii 0 z u 0 "' ~ = .. :Ii on c ... 0 0 ... ! z = z .... ... .... . ::I z :Ii .:: ::I 0 ... :Ii 8 0: ... 0 0 -< .. u z .... in = .~ U> 0 = ... 0 0: . ... 0 ... -< ... .l! .. ... 0 ... ...0 > 0 ... U> :Ii 0 -<z 0: ~ .. z z.... -< Q U> U> U> 0::1 = c ':; .... ... .... -:Ii = ~~ 'c ;; '" '" '" !::o -< i&:i.i: ~ .... z z z Ou z 0.... ~ 0 -< -< -< 0.... ...... = z :>:: :>:: :>:: -<= ~ u u u H .... ;; 0 0 0 0 = ... . E . . ... > 0 .... ,;: ... ~ ~ . , ~ .5 '" .. 0 ~ i!: ;; c .::l .. u = .... .... ~ ~ 0 0 .... :! i!: = ;; '" 0 ;; .:: . z ... 0 .. .... ... 0 :; :! !,! U> ~ Z . .... ... ~ Z :l: ... ~ -< .. ., z = .... .;: -< ... '" ... .. .. ----- 0 ... Z > Z 0 .... 0: ... ::; u ... .. = u .. 0: .::l ... 0: ~~ "' 0 ~ . .... ;; !,! ~ 0 ~ t ;; .... .. l'! z 0 e ... 0 ... ... ... u 0: = --J ~ -< 2 0 .. u a 0 ... ~ = . ~ 0 ... II -<rO - ~. : ~ .:: ~ q ~ .;: : c.; E ~ ~ - . - ~. ;; .v a:c. ~ CONSOLIDATED MONTHLY REPORT - TRAFFIC SUMMARY Police Depenment City of Month of .19_ TABLE 1. ACCIDENT SUMMARY T"il Mont" I Ve.r to Olt. I ThisVI.r I Lasty,.r ~ Chang' I This Year I LastV..r .,., Change I I I Accident TOIaI I Fatal Personal 1"lury I I I I I I Property Olmlgl I Pect.tnln TABLE 2 ENFORCEMENT SUMMARY I This Monlh I Y..r to Oate I ThisVe.r ! Last Yelt % Change I This Ve.r I LaitY.., ~ Chlnge I Traffic Totll I I I i I HazallloUl Violations I ! I I I i Other Yiolatlon, I P'rlcin,., I I OWl I , Aceident AlTelts and Citations I I CITY OF SAN JOSE NEGLIGENT DRIVING UNDER THE INFLUENCE AND INTENTIONALLY WRONGFUL CONDUCT EMERGENCY RESPONSE COST RECOVERY PROGRAM PROCEDURES MANUAL C] Ii 'I 11 I I I I I II I I I I I I II II i I ! II Ii 'I' I, II II Ii 'i il Ii II II II II II I, :i I: ;1 if !I , I, I, " !! .- CITV OF SAN .JOSE, CALIFORNIA 201 W. MISSION STREET P.O. BOX 270 SAN JOSE. CAliFORNIA 95103-0270 (408) 2n-4000 Chief of Police POLICE DEPARTMENT November 7, 1991 University of California at Berkeley ITS. Extension Program RIchmond Field Station 1 301 S 46 tho Street Bldg. 452 Richmond, CA 94804 ATTN: Marllyn Todacheene RE: D.UI. Cost Recovery Program Enclosed Is a copy of our revised procedures manual which was requested by Jeanie Soland. Sections VII and X of the procedures manual are not currently implemented. If we can be of any further assistance, please feel free to call on us at any time SIncerely, LOUIS A COBARRUVIAZ CHIEF OF POLICE !t!r~o~/P Commander Court Liaison Unit LACRBC:fdg Enclosures INTRODUCTION This manual has been published to serve as a guide to facilitate the implementation of the City of San Jose's negligent driving under the influence and intentionally wrongful conduct F.m~raency ResDon~e Co~r Recoverv Program, California Government Code Sections 53150 - 53158 allow for the collection of emergency response costs against: (1) Any person whose negligent operation of a motor vehicle, boat or vessel, or civil aircraft while under the influence of an alcoholic beverage or drug proximately causes any incident resulting in an emergency response by the city police or fire department; and (2) Any person whose intentionally wrongful conduct while in the operation of a motor vehicle, boat or vessel, or civil aircraft proximately causes any incident resulting in an emergency response by the city pOlice or fire department. It is the goal of the San Jose Police Department to seek the recovery of all costs associated with emergency responses to incidents which qualify for inclusion within this program. Louis A. Cobarruviaz Chief of Police San Jose Police Department NEGLIGENT DRIVING UNDER THE INFLUENCE AND INTENTIONALLY WRONGFUL CONDUCT EMERGENCY RESPONSE COST RECOVERY PROGRAM I.PROGRAM ORGANIZATION The negligent driving under the influence and intentionally wrongful conduct emergency response cost. .recovery program is administeredwithih the San Jose Police Department by' the Court Liaison Unit of the Bureau of Investigations. Police officers assigned to the Court Liaison Unit process all felony and misdemeanor DUI criminal complaints. The officers then present these cases to the District Attorney's Office once the blood/alcohol test results are completed. The cost recovery typist retains copies of those cases eligible for recovery. They are processed, billed, maintained, and collected. Statistical data is also generated and maintained. II.IDENTIFCATION OF COST RECOVERY CASES Court Liaison Officers review all DUI arrest reports. Potential cost recovery cases are identified based upon the following guidelines: A. Under the influence of an alcoholic beverage or any drug. 1. Objective symptoms observed by officer. 2. Chemical tests reflect the current legal limit of .08% alcohol or above, or tested positive for drugs. B. Negligent operation of a motor vehicle. 1. Accident involving DUI driver. 2. DUI driver committed hazardous moving violation as defined in the California Vehicle Code, Division 11. II. IDENTIFICATION OF COST RECOVERY CASES (Continued) C. Proximately causes any in~id~n~. 1. Accident caused by actions of DUI driver. 2. Hazardous moving violation caused by DUI driver (speeding, failure to stop for red light, speed contest) . D. Appropriate emergency response. 1. Use of emergency equipment" by police or fire unit (activation of emergency lights and siren) . E. Intentionally wrongful conduct (while operating a motor vehicle) . 1. Conduct intended to injure another person or property (Government Code 53156(c)). 2. Evading arrests where there was conduct intended to injure another, or property. 3. Pursuits involving the ramming or attempt to ram police vehicles or property. III.DOCUMENTATION OF EMERGENCY RESPONSE COSTS The DUI Cost Recovery Program typist researches each incident to ascertain the time expended by City of San Jose Police and Fire personnel. A. P~rsonn~l Costs This information is gathered by using Communication's dispatch records. The event activity feature of the computer system documents the number of police and fire units assigned to an incident. The times of dispatch, enroute, arrival and return to service are recorded for each incident. The arrest report is also reviewed since the time spent report writing may not be logged within any automated system, but is noted by each officer on the arrest report. III. DOCUMENTATION OF EMERGENCY RESPONSE COSTS (Continued) A. Personnel Cos~s (Continued) Once the total number of minutes for each incident are identified, they are logged into the Cost Recovery computer, which then automatically computes the individualized bill based on hourly wages and laboratory fees. B. Lab Fpps Laboratory fees .are set by the. current contract with an independent laboratory. This laboratory fee is a'direct charge to the City for obtaining the sample only. The chemical analysis is completed by the County Crime Lab, and these costs are not a part of the bill. IV. FEE STRUCTURE A. Police Hourlv Wagps Current officer wages, direct labor fringe benefits and equipment overhead. Supervisory and clerical support wages are not included. B. Firp Honrlv Waop-s Based upon 24-hour pay scale and average manpower assignment per unit. Supervisory personnel wages are not included. C. Blood Alcohol Tes~in9 As reflected in the current contract with an independent laboratory for the collection of specimens at police facilities or hospitals. V.BILLING A. First Notice The City, through the Court Liaison Unit, sends out the initial billing. The letter is generated by the Cost Recovery computer and individualized for each incident. A payment envelope and a copy of the California State Government Code Section is enclosed. Hispanic and Vietnamese translations are also included where appropriate. A 30-day period is then given for reimbursement of the emergency response costs. At the end of 30 days, a reminder is sent and a follow- up phone call is made three (3) days later. B. P~rtinl Pnympnt~ The City allows the emergency response costs to be paid in installments. Usually, the bill is broken down into four (4) equal payments, extending for several months, if necessary. A confirming instructional letter is mailed with additional payment envelopes. C. Form of Pavment The City requests that payments be in the form of a money order, certified check or a bank draft. This is done to reduce the problem of handling bad personal checks. However, when personal checks are sent, they are accepted. A few citizens make their payments in person at Police Headquarters. These payments are usually in cash, and are accepted at the Police Reports Counter and'deposited in the City's Emergency Response Cost Recovery account. A deposit receipt is forwarded to the Cost Recovery Program and the account is credited for the payment. ... CITV OF SAN ..JOSE, CALIFORNIA ~,,11 201 W. MISSION STREET P.O. BOX 270 SAN JOSE. CALIFORNIA 95103.(J270 (408) 2n-4000 Chief of Police POLICE DEPARTMENT This notice concerns the recent traffic incident that resulted in your lITest or a wlITant being issued. Under California Government Code Sections 53150 hough 5315a, the City of San Jose is allowed to demand the recovery of costs involved in responding to a rafflc incident. You are responsible for this bill even if YOll" aiminal case has not yet gone to trial. The law also "Pecifically preclude.. your iMUranoe comp.my from peying thi:s debt. Y 011" bill for emergency response is: POLICE FIRE LABORATORY TEST TOTAL DUE: CASE. LOCATION This is the only notice that you wil receive from the San Jose Police Department. If full payment is not received within 30 days, YOll" bill will be placed in collections. Should you fail to pay this bill and !Fe subsequently found guilty of diving under the influence or of intentional 'M'ongful conduct while operating a motor vehicle, then a request will be made for the sentencing court to order restitution of the emergency response costs as part of your formal probation. Please send your payment in the enclosed envelope immediately. Only money orden. certifiedcheclc 01" a bank craft. payable to the San Jose Police Department. will be accepted. Be sure YOll" name and case number appear on the payment. You are entitled to an administrative review of this bill. If you wish to have this bill reviewed. direct your written request to the Cost Recovery adminis1rator, San Jose Police Department, P. o. Box 270. San Jose. CA 95103-0270. Other questions may be directed to (408) 277-5501. Sincerely. LOUISA. COBARRUVIAZ Chief of Police VI.DELINOtmNT ACCOUNTS If the Emergency Response bill is not paid within thirty (30) days after it was mailed or no arrangements have been made for partial payment, the bill is considered delinquent. A contract has been signed with a collection agency, who is then responsible for collection activities. Their efforts include attempting telephone contact with the debtor and the mailing of two separate delinquent notices. If the collection agency is successful in obtaining payment, it is deposited in the City's Emergency Response Cost Recovery account. The collection agency is then paid from these monies, at a rate set in the current contract. VII.DUE PROCESS When the debtor refuses to pay the City or collection agency for the emergency response costs, the City may pursue recovery via Small Claims Court. This action would not be initiated until the debtor's criminal trial is adjudicated. VIII.BILL REIMBURSEMENT Should a defendant be found not guilty in a criminal trial after paying his Emergency Response Cost Recovery bill, the City will allow for reimbursement. Since this occurs in less than 5% of all DUI cases, the impact is minimal to the program. IX. APPEAL PROCESS The Program Manager will act as the arbitrator should a bill be disputed. Each case will be reviewed for accuracy and fairness, based upon the law. Should the bill be found to be in error, the bill will be corrected or, if appropriate, dismissed. X.CRIMINAL PROBATION The City of San Jose is permitted to pursue restitution of cost recovery expenses via Sections 1203.1 and 1203.1i (First of Two) of the California Penal Code through a court-ordered condition of probation. SUMtOJtY The City of San Jose's Negligent Driving Under the Influence and Intentionally Wrongful Conduct Emeraencv Resoonse Cost Recoverv Proaram is the result of extensive research and detailed planning. A great deal of time was spent examining other Cost Recovery Programs in California. Initial billing is not begun until an independent legal review by the District Attorney and the presumptive chemical test results are completed. The City does not wait for a criminal conviction since under existing Legislation, the costs are a civil debt. If a person challenges the billing, he or she will have an opportunity for both an internal review or hearing in Small Claims Court. The City of San Jose now has the alternative of requesting that the cost recovery bill may be added to the conditions of probation. In that case, if a convicted driver fails to pay the city's bill, he or she may face criminal penalties for violating conditions of probation. The City, by moving to collect first through the civil process, does not demand further criminal penalties or valuable court time for the issue of failure to pay. SAN JOSE POLICE DEPARTMENT NEGLIGENT DRIVING UlfDER THE INFLUENCE AND INTENTIONALLY WRONGFUL CONDUCT Y.MERGENCY RESPONSE COST RECOVERY PROGRAM PROGRAM GOALS 1. Recover costs for police and fire emergency response to D.U.I. and intentionally wrongful conduct incidents. 2. Recover costs for blood alcohol testing. FLOY CllART OF PROGRAM PROCEDURES A. CUI cost recovery incidents identified by e...rgency response & presumptive test results. B. Time expended by police S. fire personnel identified in each inoident. C. Emergency response cas ts calculated based on polioe & fixe hourly wages ~ lab collection fees. I D. Letter mailed by City requesting payment of emergency response oosts. ( 30-day waiting period. r I BIll PAID BIll UNPAID Monies depos i ted Bill referred to in General Fund, oontractor. ENGINEERING EVALUATION I. INTRODUCfION The Enforcement and Engineering Team is pleased to have been invited to reevaluate the Traffic Engineering and Enforcement Safety programs for the Town of Tiburon. An Evaluation was previously made by the Institute of Transportation Studies in 1986. Tiburon is a small municipality and continues to experience a low accident rate with moderate congestion on its main thoroughfare: Tiburon Boulevard, State Route 131. The 1986 Evaluation report included nine recommendations. Since then, four of the recommendations have been addressed by the Town. In addition, at the request of the City Manager, the then Team Engineer included two sketches in the 1986 report showing suggested changes to Tiburon Boulevard between Reed Ranch Road and Greenwood Beach Road (now called Blackies Pasture). Since then, Caltrans has eliminated the existing pedestrian crosswalk at Blackies Pasture, but no other changes have been made. It is the opinion of the current Team Engineer that the suggested changes on Tiburon Boulevard shown in the two sketches still have merit and should be reconsidered. The Team Engineer is also of the opinion that the crosswalk at Blackies Pasture need not be repainted. Studies done throughout California and elsewhere have shown that oftentimes unmarked crossings at uncontrolled locations have a lower accident rate than marked crosswalks. The painted island should be replaced by a raised island to provide a pedestrian safety zone, since pedestrians continue to use this crossing. Copies of the two sketches are again attached at the end the Engineering Evaluation section. The Team wishes to thank the Contract Town Engineer, the Superintendent of Public Works and staff, and the Police Sergeant for their courtesy and cooperation during the visit. 48 II. PREVIOUS OFFICE OF TRAFFIC SAFETY FUNDED STUDIES 1986 - Traffic Safety Evaluation Enforcernent and Engineering Analysis 1994 - Automated Traffic Records System (Police Department) III. LEGAL AUTHORITY FOR TRAFFIC ENGINEERING A. Municipal Code Chapter 23 of the Tiburon Town Motor Vehicles and Traffic Code adopted the Uniform Traffic Ordinance, California League of Cities, except Sections 2.5 (City Traffic Engineer), 8.7 (re: Limited Access), 8.8 (re: Restrictions on use of freeways), 9a, 9b and 9c (re: crosswalks), 10.9 (re: No Parking signs), 11.8 (re: All night parking prohibited), 13 (re: Restricted use of certain streets) and 14.0 through 14.1 (Parking meters). Ordinance 55 provides the basic authority for traffic engineering actions and establishes the position of Town Traffic Engineer. The Town of Tiburon contracts for the services of a Town Engineer who also serves as the Town Director of Public Works and Traffic Engineer. The Town Engineer has the authority for installation of traffic control devices and minor traffic regulations such as turning movements. The Town Council retains authority over the major traffic regulations, including one-way streets, STOP signs, no parking regulations, among others, and approves all traffic control devices by resolution. The Ordinance also establishes a Traffic Safety Committee with membership consisting of the Town Engineer, the Chief of Police, the Superintendent of Public Works and the Director of Community Development. The Committee reviews traffic problems and submits recommendations to the Town Council on matters related to changes to traffic regulations and traffic control devices. Meetings are held once a month. From a point of view of effectiveness, it is desirable in small cities, such as Tiburon, to have as many routine traffic matters handled administratively and thus expedite the approval process of official traffic control devices. In this way, needed regulations can be placed into effect very quickly. The Town Engineer has been able to streamline the approval process 49 and the City Council tends to be generally supportive of objective recommendations made by the Tniffic Safety Committee. In the 1986 Evaluation report, the Town Engineer indicated that sometimes it has been difficult to implement traffic improvements on State Route 131 in a timely manner since it requires review and approval from Caltrans. In that report, it was recommended that Caltrans be asked to appoint a member of its staff to membership on the Tiburon Traffic Safety Committee to improve coordination between the two agencies. That recommendation still has merit and should be given further consideration. Recommendation #1 Improve Coordination With CaItrans . It is recommended that Caltrans be asked to consider appointment of one of its staff members to the Tiburon Traffic Safety Committee. B. Public Input Public input IS provided during meetings of the Traffic Safety Committee and City Council. IV. ADMINISTRATION AND ORGANIZATION A. Traffic Engineering Functions Traffic engineering functions are performed by the Contract Town Engineer who also serves as the Town City Traffic Engineer. The Town Engineer attends the Traffic Safety Committee meetings held once each month. The Traffic Sergeant of the Town Police Department also performs some traffic engineering functions, including maintaining the Traffic Records Automated System, keeping the accident pin map up to date and making recommendations on traffic improvements to reduce accidents. There are six traffic signals within the Town limits along Tiburon Boulevard (State Route 131) and a seventh traffic signal at the westerly boundary (Blackfield Drive), all of which are maintained by Caltrans. 50 According to the Superintendent of Public Works, maintenance costs are paid by the Town of Tiburon. B. Personnel and Funding The following two tables compare the allotment of personnel and estimated funding for traffic engineering functions in the Town of Tiburon with similar size cities in California and in the United States: Table 1 TRAFFIC ENGINEERING OPERATIONS, PLANNING AND DESIGN Personnel Per 10,000 Jurisdiction Population Funding Per Capita, $ Tiburon in 1986 .15 1.40 Tiburon in 1994 .20 1.50 Median for 21 California Cities of 5,000 to 50,000 Population .21 1.25 Median for Small United States Cities .47 2.90 51 Table 2 MAINTENANCE AND INSTALLATION OF TRAFFIC CONTROL DEVICES Personnel Per 10,000 Jurisdiction Population Funding Per Capita, $ Tiburon in 1986 .30 1.60 Tiburon in 1994 .45 2.97 Median for 21 California Cities of 5,000 to 50,000 Population .84 4.05 Median for Small United States Cities 1.22 7.00 Notes: 1. Data on U.S. cities based on a 1984 Institute of Transportation Engineers Survey which has been updated by the Team Engineer. 2. Funding includes work done by consultants or by contract. C. Analysis Table 1 shows that personnel and funding resources in 1994 have increased slightly since 1986. However, this increase is primarily due to adding the amount of time, not included in the previous report, spent by the Police Sergeant on traffic engineering functions. The available resources in 1994 are now similar to the median of California cities in the 5,000 to 50,000 population group but well below the median for small United States cities. Table 2 shows similar increases from 1986 to 1994 for both personnel and funding resources. The increase for funding from $1.60 to $2.97 is due to adding the $20,000 cost for traffic signal maintenance not included in the previous report. The available resources for both personnel and funding are well below the median of similar size cities in California and of small cities in the United States. Despite the lower available resources, Tiburon has been able to maintain a very good accident rate. 52 V. ACCIDENT STUDIES Treating the environment of accident locations is a needed traffic engineering program. There is a misconception in many cities that accident prevention is a difficult task because 80 to 90 percent of all traffic accidents are thought to be the result of driver error. This "nut behind the wheel" concept ignores the effect of driver environment on human reaction. Often the environment can lead the driver into error or prevent him or her from making the proper decision. Experts believe that as many as 50 percent of all accidents are avoidable by improving the driving environment. Public agencies can approach the accident study in two ways, reactively and proactively. In the reactive mode, accident studies are initiated when complaints are received from outside the department which alleges hazardous conditions or request traffic control, such as stop signs, etc. In the proactive stance, the agency seeks out the most hazardous locations on its own, analyzes them to see if engineering measures would be effective in reducing accidents, and if so, funds the measures either through maintenance funds or capital improvement items. Finally, there should be an assessment in the future to see how effective the treatment has been. When formalized, this program is called a "High Accident Identification and Surveillance Study." This type of program program is valuable not only because it affords a safety benefit to the citizenry, but in addition, it is an important factor in protecting a city from liability suits. (See discussion on Liability in Appendix B.) A. Comprehensive Reporting of Accidents In 1993, the Police Department reported 14 injury and 34 property damage only accidents. This ratio of 2.43 property damage only accidents to each injury accident suggests that the Police Department is not filing reports on many property damage accidents. With a good rate of reporting, the property damage accidents should be about 3 to 5 times the number of injury accidents. 53 From an engineering standpoint, it is important to record as many accidents as possible because the difference between a "fender bender" and an injury accident may only be a difference of speeds of one to two miles per hour, a difference of a couple of feet in stopping distance, or perhaps the fact that the driver was wearing a seatbelt. The physical conditions at a location which may have led to a collision would be the same for both injury and property damage types of accidents. With more data available, a traffic engineer can make a more accurate assessment of accident patterns, and thus be in a better position to determine what corrective actions are appropriate. Also with complete data, it becomes possible to determine how effective corrective actions have been in the past. (See Appendix B for a discussion on Accident Reporting Rates.) Besides the above, there are other engineering reasons to have full reporting of traffic accidents. They are: 1. Credibility A citizen may see a number of accidents at a location and report that fact to the Traffic Engineer. If he or she does not have a record of the accidents and says they do not occur, then his credibility and that of the entire city administration staff suffers. 2. Federal and State Grants Some grant programs use accident history as the basis for distributing funds. If accidents are not reported, then it is less likely for a city to receive these grants. 3. Traffic Control Device Warrants Some of the warrants for STOP signs and traffic signals are based on the number of accidents occurring at as location. If accidents are not fully reported, a location that may need a traffic control device will be considered unwarranted. B. Accident Data Sources The Police Department maintains a file on all of the SWITRS and collision reports and uses the Traffic Records Automated System. 54 C. Accident Pin Map An accident pin map is a device used to determine existing or growing concentration of traffic accidents. The Police Department maintains a pin map. D. High Accident Location List If a proactive accident study program were undertaken, the list would be an essential element. It would identify high accident locations either by gross number of accidents per location or on an exposure basis -- Le., accidents per million vehicle entering intersections. For non-intersection locations, high accident segments are identified by accidents per million vehicle miles of travel. A high accident location list is not prepared by the Town Engineer. However, based on the accident records, it is known that all of the high accident locations are along Tiburon Boulevard. E. Collision Diagrams Collision diagrams are simplified pictures showing how accidents have occurred at a given location over a period of time. They may indicate patterns of accidents, which may in turn suggest corrective actions. In a good high accident identification and surveillance program, collision diagrams would be made for every location on a high accident list. The Town Engineer does not prepare collision diagrams as part of a identification and surveillance program. The Police Department uses the Traffic Records Automated System for its accident database. It is suggested that the Department consider obtaining a computer program that can produce collision diagrams to complement the present system. Computer software is available by contacting the ITS INFOTAP electronic bulletin board with your modem at 510-642-7088 or by calling the system operator, Philip McDonald, at 510-642-1008. For further information on INFOT AP, see Appendix B. In addition, there are also commercial programs available for accident analysis. One of these is 55 used by the City of Oxnard. You may wish to contact the City Traffic Engineer of Oxnard for further information at 805-385-7566. F. Condition Diagrams or Site Visits The next step in a proactive program is to construct a condition diagram, which is a drawing showing all safety related data such as the presence or lack of traffic control devices, sight distance restrictions, roadway configuration, etc.. A site visit is usually a substitute for a condition diagram and involves a field investigation of the items listed above. Condition diagrams are made by the Town Engineer for specific locations under study. G. Improvement Program and Before and After Studies An improvement program would flow from studies made of each intersection in a high accident location list. A general accident pattern table is shown in Appendix B. It lists types of accidents, their probable cause and general countermeasures that could be considered. The analyzer would review the types of accidents and countermeasures and make a decision on what improvements would be appropriate. If there were changes in signal timing, pavement painting or signs, then the work could be done by staff with budgeted maintenance funds. If the changes needed were traffic signals or roadway improvements, these items could be included in the capital improvement program. Currently, before/after studies are not done on a regulation basis by Tiburon. Recommendation #2 Improve High Accident Analysis Program . It is recommended that the Police Department consider obtaining a computer program to produce collision diagrams to complement its current Traffic Records Automation System. (See page 53, E for infomlation. ) 56 VI. TRAFFIC COUNTS AND SPEED STUDIES A. Traffic Counts In Tiburon, traffic counts are done by contract for specific studies such for the Circulation Element and for speed surveys. Caltrans conducts counts along Tiburon Boulevard. B. Speed Studies Tiburon conducts speed surveys by contract and are used to set speed limits that can legally be enforced by radar by the Police Department. As part of a public information program, the Police Department has acquired a Cushman radar display vehicle. VII. PEDESTRIAN AND BICYCLE SAFETY A. Pedestrian Safety In 1993 one pedestrian-related accident was reported in Tiburon which represents 7 percent of the total fatal and injury accidents (14). This percent compares with the statewide average of 9 percent. B. Bicycle Safety In 1993 three bicycle-related accidents were reported in Tiburon which represent 21 percent of the total fatal and injury accidents (14). This percent compares with the statewide average of 7.6 percent. While the actual number of bicycle-related accidents is relatively small, the 21 percent is nearly 3 times the statewide average. The 1986 Evaluation report recommended that, if the accident rate continues to be high, then a bicycle safety study should be undertaken. In addition, according to the Town Engineer, the condition of the bike lanes and paths needs to be improved. If the Tiburon decides to conduct a bicycle safety study, all bike lanes and paths should be inspected to ensure that they comply with the recommended standards in the Traffic Manual and of the County. 57 Recommendation #3 Improve Bicycle Safety . It is recommended that a bicycle safety study be made to include an inventory of existing bicycle facilities to detemline whether they confonn to recommended standards and to identify what improvements are needed to enhance safety. VIII. GENERAL TRAFFIC ENGINEERING ITEMS A. Sight Distance Ordinance A sight distance ordinance enables a public agency to control the height of shrubs and fences on private property at an intersection to allow good sight distance between approaching motorists on the entering streets. According to the Town Engineer, Tiburon uses the stopping sight distance standards from the Caltrans Highway Design Manual. B. Special Service Reports Special service reports are forms that are filled out when complaints or notices of damage are received about traffic control devices or other traffic related items. They are usually multi-part forms that enable an administrator to determine if the work has been completed and provides for feedback to the source of complaint. While special service reports are not currently used, the Superintendent of Public Works receives direct calls or is informed by his staff when damaged signs are found and takes appropriate action. For a small town like Tiburon, this system works adequately. C. Use of Traffic Control Warrants Traffic control device warrants are standards by which an agency determines whether to recommend for or against the installation of traffic control devices such as signals, STOP signs and YIELD signs. According to the Town Engineer, Tiburon uses the warrants from the Caltrans Traffic Manual. 58 D. Work Zone Traffic Control Training This type of training instructs crews that work in city street areas on the proper procedures for placing cones, signs and other traffic control devices to warn and guide motorists through construction zones. The Tiburon Public Works crews have not taken this training. The 1986 Evaluation report recommended that crews receive the Work Zone Traffic Control Training course. E. Control of Driveway Placement and Size The Town Engineer has authority to control placement and approves the design of driveways. F. Street Lighting Adequate street lighting is important in enhancing nighttime traffic safety. The Town Engineer has input into street lighting needs and can order additional lighting where required. A private company recently replaced PG&E as the utility responsible for maintaining street lighting. G. Design and Planning Input The Town Engineer has input on design and planning of subdivision streets and land development. H. Traffic Engineering References The Town Engineer has access to all basic traffic engineering references and the Caltrans Traffic and Highway Design Manuals. I. Coordination With Other Agencies An effective traffic safety program depends on good cooperation and coordination between enforcement and engineering. Adequate coordination is provided since both the Town Engineer and Traffic Sergeant are members of the Traffic Safety Committee. 59 J. Traffic Policy Manual A traffic policy manual establishes policies for traffic control measures for the specific agency from STOP signs to the use of school crossing guards. It is very worthwhile for an agency to have such a policy manual since it can be used by staff, other other departments or to respond to public inquiries. An example of a policy manual is included in Appendix B. Recommendation #4 Improve Work Zone Traffic Control Program It is recommended that the Town of Tiburon, in conjunction with other nearby municipalities, request the Institute of Transportation Studies Extension Program to provide a workshop in Work Zone Traffic Control for Town crews working in street areas and that each crew carry a WATCH Manual. IX. TRAFFIC SIGNS A. Traffic Sign Inventory The Superintendent of Public Works maintains a list of all traffic signs. This list appears to be adequate to serve as an inventory. While a computerized inventory would be desirable, it is not essential for a town the size of Tiburon. B. Nighttime Sign Inspection Program A regular nighttime inspection program is desirable to ensure that signs have the proper reflectivity and are functioning effectively. Tiburon does not have a regular inspection program and, instead, signs are replaced either on request or upon instructions from the Superintendent. C. Field Identification of Traffic Signs Field identification of traffic signs consists of marking the backs of traffic signs either with indelible ink, paint or metal dies to indicate ownership of the sign and date of installation. Identifying ownership is important if 60 stolen signs are to be recovered. Identifying the date of installation is needed if warranties issued by some traffic sign manufacturers or suppliers as to endurance of the reflective sheeting are to be effectuated. Tiburon does not identify its signs. D. Condition of Traffic Signs Signs are obtained from Marin County. A field check conducted by the Team Engineer showed that Tiburon has replaced most of the signs which were reported to be in "poor condition" in the 1986 Evaluation report. In general, the current field check found that most of the stop signs are now in reasonably good condition. However, about 5 percent of the all other signs checked need to be replaced. E. Conformance to Traffic Manual Standards The 1986 Evaluation report indicated that many of the STOP signs used in Tiburon were 24 x 24 inch signs and therefore were less than the 30 x 30 inch signs recommended in the Caltrans Traffic Manual. Since then, the Traffic Manual Policy now states that 24 x 24 inch signs may be used on local and secondary roads with low approach speeds and low volume. Nevertheless, the Superintendent of Public Works indicated that there is an ongoing program to replace the 24 x 24 inch signs with the larger 30 x 30 inch signs. F. Supplemental Street Name Signs Supplemental street name signs are large size name signs mounted at signal mastarms. This type of sign is very worthwhile since it enables motorists to determine the names of upcoming streets some distance from an intersection and thus allows them to make lane change maneuvers well ahead of time. This adds to traffic safety. An example of supplemental street name signs is included in Appendix B. The actual size may be smaller if required according to the length of the mastarm. 61 Although Tiburon now uses advance street name signs installed along the roadside on State Route 131, many cities have found that supplemental signs mounted at the traffic signal mastarm are more visible and effective since they are mounted above the traffic and are unobstructed. On the other hand, sometimes the roadside signs are obstructed by traffic during peak periods. Except for Beach Road, all intersections have mastarms in both directions upon which the supplemental street name signs can be installed. Recommendation #5 Improve Street Name Program It recommended that Tiburon consider installing supplemental street name signs mounted at the mastarm of all signalized intersections. X. PAVEMENT MARKINGS A. Pavement Marking Inventory The 1986 Evaluation report indicated that Tiburon should obtain aerial photographs of a one inch equals 100 feet scale and that this would serve as an inventory. Since then, Tiburon has obtained aerial photographs of a one inch equals 30 feet scale which can be used for inventory purposes. B. Use of Beads in Paint Tiburon does not use beads in paint. C. Condition of Pavement Markings The 1986 Evaluation report indicated that the streets are painted on a one-year cycle, but that the condition of pavement markings was fair to good and poor at nighttime. That report also stated that no beads are used to enhance visibility. A recent field check made by the Team Engineer showed that the condition and nighttime reflectivity of striping and pavement markings on many local streets remains in poor condition. By comparison, the condition of the striping and pavement markings on State Route 131 is very 62 good. The Public Works staff should check all pavement markings on local streets and repaint where necessary. D. Conformance to Traffic Manual Standards The conformance of markings to standards found in the Caltrans Traffic Manual was generally good. E. STOP Legend and STOP Bars Tiburon uses the STOP legend and STOP bar at all STOP locations. XI. TRAFFIC SIGNALS A. Inventory All of the signalized intersections along Tiburon Boulevard (State Route 131) were observed by the Team Engineer and found the following conditions: 1. Beach Road Vehicular signals had good visibility. All pedestrian push buttons were working. There was no mastarm facing northbound traffic. The pedestrian WALK and clearance periods met or exceeded minimum standards. However, visibility of the pedestrian signal at the northeast corner facing pedestrians waiting on the west side of Tiburon Boulevard was not clear and was confusing. The problem was that the WALK and the DON'T WALK symbols seem to appear at the same time. This problem can probably be corrected by adjustment of the signal. 2. Lyford Drive This intersection has mastarms facing northbound and southbound traffic. Vehicular signals had excellent visibility. All pushbuttons were working and pedestrian WALK and clearance periods met or exceeded minimum standards. 3. Rock Hill Road This intersection has mastarms facing northbound and southbound traffic. Vehicular signals had good visibility. Pushbuttons were working and pedestrian WALK and clearance periods met or exceeded 63 minimum standards. However, the pedestrian pushbutton on the east side was partially obstructed by overgrown shrubbery. 4. San Rafael Avenue This intersection has mastarms facing northbound and southbound traffic. Vehicular signals had good visibility. Pushbuttons were working and pedestrian WALK and clearance periods met or exceeded minimum standards. However, the pedestrian pushbutton on the east side was partially obstructed by overgrown shrubbery. 5. Avenida Miraflores This intersection is located adjacent to the Del Mar School and has mastarms facing northbound and southbound traffic. Vehicular signals had good visibility. Pushbuttons were working and pedestrian WALK and clearance periods met or exceeded minimum standards. 6. Trestle Glen Boulevard The Police Traffic Sergeant indicated that the number of accidents at this location has been significantly reduced by strict enforcement of the speed limit and other regulations. The 1986 Evaluation report indicated that the "PREPARE TO STOP" sign actuated by the traffic signal facing northbound traffic was placed 100 feet in advance of the intersection and that sometimes vehicles were queued far beyond the sign and around the curve. The Team Engineer recommended that the sign be moved southward, perhaps around the curve to provide adequate advance warning. It is still the opinion of the Team Engineer that, to further enhance safety at this intersection, the previous recommendation should be discussed with Caltrans and given further consideration by the Tiburon Traffic Safety Committee. 7. Blackfield Drive This intersection has mast arms in the northbound and southbound directions. Vehicular signals had good visibility and pedestrian pushbuttons were working. 64 B. Maintenance Scheduling Caltrans maintains the tni.ffic signals on Route 131. However, according to the Superintendent of Public Works, the maintenance costs are paid by the Town of Tiburon. Recommendation #6 Improve Traffic Signal Visibility . It is recommended that mastarm signals be used in both directions at all intersections along Tiburon Boulevard, State Route 131. XII. OTHER COMMENTS The 1986 Enforcement and Engineering Evaluation report included two sketches prepared by the then ITS Team Engineer showing possible changes to Tiburon Boulevard between Reed Ranch and Greenwood Beach Road. The changes were prepared response to a request from the City Manager. The Team Engineer suggested that the existing channelization should be revamped to provide acceleration lanes in the center of Tiburon Boulevard at Reed Ranch and at Greenwood Beach Road and that a solid concrete island be constructed at Greenwood Beach Road to provide a good stopping place for pedestrians. The Team Engineer indicated that the acceleration lanes would allow entering traffic the ability to cross one direction of traffic and then seek a gap in the other direction to proceed in relative safety. Since the 1986 Evaluation, the crosswalk at Greenwood Beach Road (now called Blackies Pasture) was eliminated by Caltrans to encourage pedestrians to use the crosswalk at the signalized intersection at Trestle Glen Boulevard. A reevaluation was made during the month of December 1994, and it is the opinion of the current Team Engineer that the above changes still have considerable merit and should be given further consideration by the Town Traffic Safety Commission and discussed with Caltrans. The crosswalk at Blackies Pasture need not be repainted since several studies have shown that unmarked crosswalks at uncontrolled intersections oftentimes have a lower accident rate than marked crosswalks. 65 However, the raised concrete island should be constructed to provide a safety zone since pedestrians are likely to continue using this crossing. The two sketches have been updated and exclude the crosswalk at Blackies Pasture. XIII. FUNDING SOURCES Both Caltrans and the Office of Traffic Safety administer funding programs designed to assist local communities in their efforts to improve traffic safety. Some of the available resources from which a local community could benefit are: A. Office of Traffic Safety 1. Inventories of traffic signs, markings and signals and the development of a record system for these items. Surveys can be conducted by local agenc;y staff or by consultants. Other funded surveys are: . High Accident Location Studies . Traffic Speed Surveys for Setting Speed Limits . Other Traffic Engineering Studies 2. Traffic Engineering Service on a Continuing Basis The Office of Traffic Safety may fund traffic engineering services 100 percent for the first year and 50 percent for the second year. For information on these programs contact Mr. Chuck Ledbetter at 7000 Franklin, Suite 330, Sacramento 95823, 916/445-0527. B. California Transportation Department 1. Rail. Highway Crossing Safety Improvements This can be done on any public road system with 90 percent funding by the federal highway and the balance by local agencies. Six million dollars a year is available for this purpose. 2. Any Safety Improvements (Projects Prioritized) This type of work can be done on any road system, again with 90/10 funding. Six million dollars is available for this undertaking. Among the possible programs are traffic sign replacements. 66 3. Highway Improvements (Safety or Capacity) This is restricted to the Federal Aid Urban or Federal Aid secondary systems. The funding is 85 percent Federal and 15 percent local. $81 million is available in the State for FAU funding and $17 million for F AS funding. 4. Bridge Replacement (Projects Prioritized) This could be done on any public road system with 80/20 percent funding. For information on any of these projects, contact District Local Streets and Roads Engineer (Caltrans). The list of these engineers as of May 1993 is shown in Appendix B. C. Institute of Transportation Studies Program 1. Work Zone Traffic Control Training This program will train agency members who work in roadway areas on proper traffic control safety measures. Training will take place at the agency site. Information can be obtained by calling (510) 231-9590. 2. FETSIM Program This is a program to improve traffic signal timing through coordination of traffic signals. Money is available in this program to fund coordination studies and later on may also be available to provide hardware for coordinating traffic signals. For information on this, contact (510) 231-9590. 67 . . . . . . . . . The Team Engineer wishes to express his appreciation and gratitude for the cooperation and hospitality received while working in the Town of Tiburon. . . . . . . . . . 68 LIABILITY Since the early 1970s, the legal liability of government for property damage, injuries, and fatalities arising from street and highway defects has been growing at an alarming rate. Nationally, tort claims for highway accidents have reached a staggering level. For example, between 1973 and 1975, liability claims in California doubled, averaging nearly 132 claims per city. Settlement costs tripled in this time to average nearly $88,000. By the beginning of this decade, claims in the State of California had grown to $1.4 billion, while New York and Louisiana had claims approaching $1 billion. Judgments or settlements in the State of Louisiana totaled nearly $16 million in just two years. This growth in liability claims has contributed to local government's difficulty in securing reasonable liability insurance. TranSafety. Inc. conducted a national survey in 1983 regarding tort claims at a state and local level. This survey indicates that highway maintenance activities in general, and traffic control devices in particular, are the primary areas of alleged deficiencies in negligence claims against government agencies. The types of responsibility that were most often cited in suits against government agencies were maintenance (65 percent of the cases), operations (17 percent) and design (10 percent). In the suits brought against cities, claims were most prevalent in the area of traffic control devices. As litigation developed, approximately one-third of the suits were settled out of court, with 14 percent of the reported settlements being over $100,000. Of particular interest to government employees is that in 40 percent of the suits brought against cities, engineers or city officials were personally named in suits. A tort is any private or civil wrong or injury and is independent of a contractual relationship between defendant and plaintiff. Negligence is the key to tort liability. The plaintiff must show that: 1. The defendant had a duty to provide "reasonable care" toward the plaintiff (e.g., a city has a duty to provide a reasonably safe roadway system for its citizens). Liability - 1 2. The defendant must show that the plaintiff (the city) breached this duty through negligence. 3. That the lack of reasonable care was the legal cause of injury. Installation of traffic control devices, unlike many highway engineering functions, has precise, understandable criteria contained both in the Caltrans Traffic Manual and in the Manual of Uniform Traffic Control Devices, and courts have relied on these manuals as a criterion in determining a basis of reasonable care. Non-compliance can be easily established when the jury is shown specific pages from the manuals, along with photographs of an accident site. Deviation from the manuals is often claimed to be the result of negligence. In addition, the improper mainte- nance of traffic control devices can be readily evident (e.g., signs obscured by bushes, lack of reflectivity, knocked down stop signs). The regular, routine inspection of all traffic control devices by day and by night is a fundamental step in loss prevention. The public has begun suing government agencies responsible for injuries which have been caused wholly or in part by poor design, operation, and/or maintenance of roads. Five example cases are presented to show the range of suits that have been presented successfully against government. The first two cases are from the late 1970s in Texas and Louisiana. The last is a 1986 case from New York State. Stoner and White v. Dubuque County. State of Iowa and Concrete Treatment of Iowa Inc. Two teenage boys were killed when they failed to yield at a stop sign and their vehicle broadsided a truck. Accident reconstruction revealed that a "Stop Ahead" sign, located after a curve and in a down grade, had a reflectivity level of zero, and was not visible with the car's headlights. Skid marks showed that the boys were not aware of the approaching stop sign, and there was no way for their vehicle to stop safely. The plaintiffs settled the suit with the State and County. Liability - 2 Sculdt v. Des Moines County. Iowa A driver failed to negotiate a sharp turn on a county road. His vehicle crashed into a ditch causing injury to himself and his companion. The plaintiff argued that in traveling along the road, they had encountered twelve curve or turn signs in nearly nine miles of road way. Curve warning signs with advisory speed signs were placed at two of these locations. However, neither arrow nor speed advisories were posted in at the accident site. This inconsistency in signing was cited in the decision as the jury awarded a verdict of a quarter million dollars. Jezek v. City of Midland. Texas A driver was killed when trees and brush obstructed his view, and he did not stop in time to avoid an intersection collision. The driver's father filed a wrongful death suit, alleging that the trees and shrubs had obstructed his son's view; that the city had notice of the obstruction, and that it was negligent in not maintaining the road by removing the brush and trees. The jury awarded the plaintiff $1.5 million in damages, but the award was reduced 35 percent under Texas' comparative negligence statute for the son's failure to stop fully. Willis v. Everett. Louisiana The plaintiffs motorcycle was struck by an automobile at an intersection. A stop sign that had controlled the motorcycle's approach was down at the time of the accident, and the plaintiff believed that adjacent traffic had duty to yield right-of-way. The defendant had constructive knowledge that the sign was down. Though the trial court found the plaintiff negligent for not paying attention to intersection traffic, the appeals court reversed this decision and held the defendant liable for its negligence in maintaining the stop sign. The court held that although the defendant was not obligated to place a stop sign at the intersection, the act of doing so created an obligation to replace the sign once it had been damaged or removed. Posman v. State of New York A young man, driving on a country road, was killed when his car skidded into an intersection at a state highway and was struck by another vehicle. The county road had a very smooth surface and was wet at the time of the accident. The county road crests 601 feet and again at 103 feet before the intersection. The only traffic control device was a stop sign for the county road traffic. Testimony revealed that a similar fatal accident had occurred one month previously and a total of seven accidents had happened in 32 months. The State Supreme Court upheld a lower court ruling that one stop sign as inadequate warning at the intersection and ruled that the State was negligent in failing to revise its traffic safety plan to include the intersection and for failing to correct a hazardous condition. $180,000 was awarded. Liability - 3 The last case shown is a good example of the different views held by a court and a state transportation department concerning' a high-accident location. The State Department of Transportation obviously felt no need to include that particular intersection in its traffic safety plan because seven accidents in nearly two and a half years was not umeasonably high. But the defense apparently did not show evidence that locations with greater numbers of accidents were being considered for improvement. The reader should realize the value of a community being able to produce a list of its highest accident locations and the existence of an active, ongoing plan to reduce accidents at each location on the list. Failure to warn drivers and pedestrians adequately of a potential hazard creates a major course of injury lawsuits against government agencies. Lawsuits alleging insufficient warning as the proximate cause for accidents and injuries are brought against agencies for many reasons. Many citizens believe that placing a new traffic sign will solve just about any traffic problem. Juries are composed of ordinary citizens who are normally unacquainted with traffic engineering principles. Therefore, lawsuits alleging inadequate signing or negligent use of a traffic control devices pose a special burden for governments in a jury trial. Local governments have reacted to threats of liability with the concept of risk management: trying to minimize the risk of unfavorable decisions. A policy of strict compliance to the Caltrans Traffic Manual is the easiest method to create a "safety net." In addition, there is a substantial risk of liability for government agencies that do not have an adequate program of traffic control device management, such as maintenance schedules or inventories. Simply the "appearance" of a management plan, with knowledge of conditions and/or list of actions, will improve a city's standing in court. Traffic engineers and traffic control managers would be advised to study the decisions that have been handed down by the courts, or settled by lawyers, and plan a traffic control management program. Liability - 4 It is worth noting that actions after litigation by government agencies normally produced the general administrative changes that are discussed in the engineering and enforcement sections of this report. The four most common administrative changes included: . Initiate or improve accident investigations . Improve maintenance records . Survey the location and condition of traffic control devices . Initiate or improve safety training There is certainly no dilemma in choosing between improving safety or decreasing liability potential. A policy of compliance to the Caltrans Traffic Manual and an effective management plan for traffic control devices will improve safety in the community just as it reduces the risk of litigation. Liability - 5 \Vhy we need to report all accidents! The drawings below are collision diagrams of an intersection in . Maryland with and without property damage only accidents included. (Each arrow represents a motor vehicle) A B -" ... I ~ ..d .J.L .j.~"" 1-/ '+~ L,/ "1 L,r- L,"f' ~~, . 1 ~V~ -~~v:? I~'" I. [I~", I. [ , ~ ~ CH_C11 -,. u. lL E:9 ~ tal.- "ID 11~ ~ J.I \. i .L ..J Withoul Property Damage Only Accidents Using Diagram ^ only: With Property Damage Only Accidents 1. . YoU would not consider this a~tgh accident location and would usually do no treatment. 2 If you did treat It, you would probably not use the rIght corrective action. For example, the most serious accidEnt problem, the left turn accidents In the southwest quadrant, show only one accident In Diagram A 3. You could not make an accurate study of benefits the publIc derived from a correctiVe action since almost 60 percent of the accidents would not show up In a 'before- study. GENERAL ACCIDENT PATIERN TABLE Accident Pattern Probable Cause General Countermeasure Left-turn head-on collisions Large volume of left- Create one-way street turns Widen road Provide left -turn signal phases Prohibit left -turn traffic Reroute left -turn traffic Channelize intersection Install stop signs (see MUTCD) Provide turning guidelines (if there is a dual left-turn lane) Provide traffic signal if warranted by MUTCD Re-time signals Restricted sight Remove obstacles distances Provide adequate channelization Provide special phase for left-turning traffic Provide left-turn slots Install warning signs Reduce speed limit on approaches Too short amber phase Increase amber phase Provide all red phase Absence of special left - Provide special phase for left-turning turning phase traffic Excessive speed on Reduce speed limit on approaches approaches Rear-end collisions at unsign- Driver not aware of Install/improve warning signs alized intersections intersections Slippery surface Overlay pavement Provide adequate drainage Groove pavement Reduce speed limit on approaches Provide 'slippery when wet" signs Large numbers of turn- Create left-or right -turn lanes ing vehicles Prohibit turns Increase curb radii Inadequate roadway Improve roadway lighting lighting 1 GENERAL ACCIDENT PATIERN TABLE Accident Pattern Probable Cause General Countermeasure Rear-end collisions at unsign- Excessive speed on Excessive speed on approach alized approach Lack of adequate gaps Provide traffic signal if warranted (see MUTCD) Provide STOP signs Crossing pedestrians Install/improve signing or marking of pedestrian crosswalks Rear-end collisions at Slippery surface Overlay pavement signalized intersections Provide adequate drainage Groove pavement Reduce speed limit on approaches Provide 'slippery when wet" signs Large number of turn- Create left- or right-turn lanes ing vehicles Prohibit turns Increase curb radii Provide special phase for left-turning traffic Poor visibility of signals Install/improve advance warning devices Install overhead signals Install 12' signal lenses (see MUTCD) Install visors Install backplates Relocate signals Add additional signal heads Remove obstacles Reduce speed limit on approaches Inadequate signal Adjust amber phase timing Provide progression through a set of signalized intersections Add ALL-RED clearance Unwarranted signals Remove signals (see MUTCD) Inadequate roadway Improve roadway lighting lighting 2 GENERAL ACCIDENT PATIERN TABLE Accident Pattern Probable Cause General Countermeasure Rear-end collisions at Restricted sight Remove sight obstructions signalized intersections distance Restrict parking near comers Reduce speed limit on approaches Channelize intersections Install advance markings to supplement signs Excessive speed on Reduce speed limit on approaches approach Increase amber phase Install rumble strips Poor visibility of Install advanced warning devices signals Install U" signal lenses Install overhead signal Install visors Install backplates Improve location of signal heads Add additional signal heads Add illuminated name signs Inadequate signal Adjust amber phase timing Provide "all-red" clearance phase Add multi-dial controller Install signal actuation Retime signals Provide progression through a set of signalized intersections Inadequate roadway Improve roadway illumination lighting Inadequate advance Install advance intersection warning intersection warning signs signs Large total intersection Retime signals volume Add traffic lane Right -angle collisions at Restricted sight dis- Remove sight obstructions unsignalized intersections tance Restrict parking near comers Install STOP signs (see MUTCD) Install warning signs (see MUTCD) Reduce speed limit on approaches 3 GENERAL ACCIDENT PATIERN TABLE Accident Pattern Probable Cause General Countermeasure Pedestrian-vehicle collisions Driver had inadequate Profits parking warning of frequent Install warning signs mid-block crossings Lower speed limit Install pedestrian barriers Inadequate pavement Install thermoplastic markings markings Supplement markings with appropriate signing (see MUTCD) Upgrade pavement markings (see MUTCD) Inadequate gaps at Install traffic signal, if warranted by unsignalized intersec- MUTCD tions Install pedestrian crosswalk and signs Install pedestrian "WALK-DON'T WALK" signs Inadequate roadway Improve roadway lighting lighting Excessive vehicle speed Reduce speed limit Install proper warning signs Install pedestrian barriers Enforcement Run-Off-Roadway Collisions Slippery pavement Overlay existing pavement Provide adequate drainage Groove existing pavement Reduce speed limit Provide "SUPPERY WHEN WET" signs Roadway design Widen lanes inadequate for traffic Relocate islands conditions Close curb lanes Install guardrails Poor delineation Improve/install pavement markings Install roadside delineators Install advance warning signs Inadequate roadway Improve roadway lighting Inadequate shoulder Upgrade roadway shoulders 4 GENERAL ACCIDENT PATI'ERN TABLE Accident Pattern Probable Cause General Countermeasures Run-oil-roadway Collisions Improper channeliza- Improve channelization tion Inadequate pavement . Perform road surface repair maintenance Poor visibility Increase size of signs Excessive speed on Reduce speed limit approaches Fixed Object Collisions Obstructions in or too Remove obstacles close to roadway Install barrier curbing Install breakaway features to light poles, signposts, etc. Inadequate roadway Improper roadway lighting lighting Inadequate pavement . Install reflectorized pavement lines marking Inadequate signs, Install reflectorized paint and/or reflec- delineators and tors on the obstruction guardrails Inadequate road design Provide proper superelevation Improve superelevation at curve Install appropriate warning signs and delineators Slippery surface Improve skid resistance Provide adequate drainage Provide "SLIPPERY WHEN WET" SIgns Provide wider lanes Excessive vehicle speed Reduce speed limit Collisions with Parked or Improper pavement Paint parking stall limits 7 feet from Parking Vehicles markings curb face Improper parking clear- Post parking restrictions near driveways ance at driveways 5 GENERAL ACCIDENT PATIERN TABLE Accident Pattern Probable Cause General Countermeasure Collisions with parked or Angle parking Convert angle parking to parallel parking vehicles parking Excessive vehicle speed Reduce speed limit if justified by spot speed studies Widen lanes Illegal parking Enforcement Improper parking Prohibit parking Create off-street parking Large parking turnover Create one-way streets Reroute through traffic Sideswipe or head-on Inadequate roadway Create one-way streets collisions design Provide wider lanes Improve road Perform necessary road surface repairs maintenance Inadequate shoulders Improve shoulders Excessive vehicle speed Reduce speed limit Install median devices Remove constriction such as parked vehicles Inadequate pavement Install or refurnish center lines, lane markings lines and pavement edge lines Install reflectorized lines, edges Inadequate channeliza- Install acceleration and deceleration tion lanes Channelize intersection Provide turning bays Inadequate signing Place direction and lane change signs to give proper advance warning Add illuminated name signs 6 GENERAL ACCIDENT PA'ITERN TABLE Accident Pattern Probable Cause General Countermeasure Driveway-related collisions Left -turning vehicles Install median devices Install two-way left turn lanes Improperly located Regulate minimum spacing of driveway driveways Regulate minimum corner of clearance Move driveway to side street Install curbing to define driveway location Consolidate adjacent driveways Right -turning vehicles Provide right -turn lanes Restrict parking near driveways Increase the width of driveways Widen through lanes Increase curb radii Large volume of Move driveway to side street through traffic Construct a local service road Reroute through traffic Large volume of drive- Signalize driveway way traffic Provide acceleration and deceleration lanes Channelize driveway Restricted sight Remove sight obstructions distance Restrict parking near driveways Install/improve street lighting Reduce speed limit Inadequate roadway Improve street lighting lighting Excessive speeds on . Reduce speed limit approaches Train-vehicle accidents Restricted sight Remove sight obstructions distance Reduce grade Install train actuated signals (see MUTCD) Install STOP signs (see MUTCD) Install advance warning signs (see MUTCD) Install automatic flashers and gates 7 GENERAL ACCIDENT PATfERN TABLE Accident Pattern Probable Cause General Countermeasure Train/vehicle accidents Poor visibility Improve roadway lighting Increase size of signs Improper traffic signals Retime traffic signals pre-emption timing Excessive vehicle . Revise speed limit speeds or approaches Inadequate pavement Install advance markings to supplement markings signs Install limit lines Install/improve pavement markings Slippery surface Skidproof roadway Improper pre-emption Retime RR signals and gates of RR signals or gates Rough crossing . Improve crossing surface surfaces Sharp crossing angle Rebuild crossing with proper angle Wet-pavement Accidents Slippery pavement Overlay existing pavement Groove existing pavement Reduce speed limit Provide "slippery when wet" signs Skidproof roadway Inadequate drainage Provide adequate drainage Inadequate pavement Upgrade pavement markings markings Night accidents Poor visibility or Install/improve street lighting lighting Install/improve delineation markings Install/improve warning signs Poor sign quality Upgrade signing Provide illuminated signs Inadequate channeliza- Install pavement markings tion or delineation Improve delineation markings Provide raised markers Upgrade advance warning signing 8 Proposed Supplemental Street Name Signs for Use at Signalized Intersections o o o ~~~~~. ~ CHNTER o o o ( CENTER)}a-lr Rmnd b\l : "'.M. II/t /8:5 Full!::! Agfh2CtOrizl2d Al2Vl2~l2 Scnzl2nCid Colo~: Gnzen, 8lue, 8rovyn White Serie~ "e- or "F" Let.tering !lnd Borch2r P~'p.~M b\l : C.E.H. 1/2<3/8'5 1- . . - - .-. ~-.....-.... PAGE 1 2 3-4 5 6 7 8 9-12 13 14 15-16 17 17 17 18 18 18 19 19 19 20 20 21 21 22 22 23 24 25 26 27 28 29 29 Introduction Policy No. 1 Policy No.2 Policy No. 3 Policy No.4 Policy No.5 Policy No.6 Policy No.7 Policy No. 8 Policy No.9 Policy No. 10 Policy No. 11 Policy No. 12 Policy No. 13 Policy No. 14 Policy No. 15 Policy No. 16 Policy No. 17 Policy No. 18 Policy No. 19 Policy No. 20 Policy No. 21 Policy No. 22 Policy No. 23 Policy No. 24 Policy No. 25 Policy No. 26 Policy No. 27 Policy No. 28 Policy No. 29 Policy No. 30 TABLE OF CONTENTS Traffic Control Signals Boulevard STOP Regulations Warrants Form YIELD Signs Speed Limits Directional Signs Crosswalks Field Data Table Crosswalk Warrant Evaluation Table School Crossing Guards NO PARKING Restrictions NO STOPPING AT ANY TIME Restrictions Street Closure Commercial Vehicle Loading Zone (Yellow Zone) Short Time Parking Zone (Green Zone) Passenger Loading Zones (White Zone) Time Limit Parking Restrictions Parking Stall Markings CIillDREN AT PIA Y Signs Red Curb at Driveways DEAD END STREET Signs Median Openings Angle Parking Non-Standard Signs and Pavement Markings Raised Pavement Markers Speed Bumps Striping Left-Turn Installation for a Two-Lane Roadway Highway Safety Lighting Flashing Beacons Flashing Yellow School Signals Weight Limits Equestrian Crossings INTRODUCTION The Y orba Unda Traffic Committee is an advisory group established by resolution of the City Council, with members representing the following organizations: . Citizenry (four regular members plus an alternate) . Police Department . City Engineer . City Planner . Y orba Unda School District . Placentia Unified School District The Traffic Committee considers; and whenever necessary investigates, all requests or suggestions concerning traffic controls, and on the basis of such deliberations may submit to the City Council and/or the Director of Public Works a report of recommendations for action relating to such requests or suggestions concerning traffic controls. The Traffic Committee cooperates with all other jurisdictions within this City in working toward the elimination and prevention of major traffic problems and in developing uniform standards for traffic control and regulation matters to ensure maximum traffic safety for the motoring public. In recognition of the great benefits obtained from the uniform application of traffic control devices, the Traffic Committee has developed the following policies based on nationally accepted practices to assure that similar traffic situations throughout the City will be treated in a similar way. To reflect the most recent developments in the field of traffic engineering, and in consideration of the changing needs of a growing city, it is anticipated that these policies will be reviewed periodically for any needed changes. 1 POllCY NO.1 TRAFFIC CONTROL SIGNALS Traffic control signals are considered to be justified when anyone of the Various Warrants, as outlined in the nationally recognized Manual on Uniform Traffic Control Devices, is satisfied. The following is a brief summary of each of these warrants. (For a more detailed description of traffic control signal warrants, see Manual on Uniform Traffic Control Devices, Section 3D.3.) 2 POLICY NO.2 BOULEVARD STOP REGULATIONS A. Two-Way Boulevard STOP Control Boulevard STOP regulations will be considered as warranted at an intersection when anyone of the following conditions is satisfied. 1. Intersection of a less important road with a main road where application of the normal right of way rule is unduly hazardous 2. Street entering a through highway or street 3. Unsignalized intersection in a signalized area 4. Other intersections where a combination of high speed, restricted view, and a serious accident record indicates a need for control by the STOP sign. A STOP sign is not a cure-all, and it is not a substitute for other control devices, or where enforcement of existing sections of the Vehicle Code would prove to be the proper solution. The indiscriminate use of STOP signs at random locations will develop disrespect in the minds of motorists for this traffic control device and result in an increase in violations and accident potential throughout the City. B. Four-Way Boulevard STOP Control Four-way STOP controls are restrictive to both streams of traffic and will not be recommended unless an adequate trial with less restrictive control has proven unsatisfactory, and there are no correctable physical conditions that might be the cause of accidents. Four-way STOP controls should ordinarily be used only where the volume of traffic on the intersecting roads is approximately equal. STOP signs should be considered to be warranted on all approaches to an intersection when anyone of the following conditions is satisfied: 1. Where traffic signals are warranted and urgently needed, the multi-way STOP is an interim measure that can be installed quickly to control traffic while arrangements are being made for the signal installation. 3 2. An accident problem, as indicated by five or more reported accidents of a type susceptible of correction by a multi-way STOP installation in a 12- month period. Such accidents include right- and left-turn collisions as well as right-angle collisions. 3. Minimum traffic volumes: . The total vehicular volume entering the intersection from all approaches must average at least 500 vehicles per hour for any eight hours of an average day, and . The combined vehicular and pedestrian volume from the minor street or highway must average at least 200 units per hour for the same eight hours, with an average delay to minor street vehicular traffic of at least 30 seconds per vehicle during the maximum hour, but . When the 85-percentile approach speed of the major street traffic exceeds 40 miles per hour, the minimum vehicular volume warrant is 70 percent of the above requirements. 4 ,~I ~ - r'rc;ru:uve Movemenl 'S~tlsfied YcsO ~o 0 "'IN I""''' ~IEQUUI~W'~NTS 01'S':'''HCE"TO ,.,t:.."~5T S.CH...... e... l.5Q~~':'E.~ ~!"'l~ WAY ST. OR 5~ "''':''M Q"'~ WAY T""'''''C SIC,.Ur1C,.lHr.t:. AOJACEHT SICH......S ...JiiE SO F,A.1t APAIIIT Tw...T JoOt:C.cSSA.cl:Y P""...TOONIHC" SP~.E::I CUflTAC1.. ....OUL.O 1St: ...OST - ---- - - - - ----------- ------------~--------- > 1Q:O It ~ . S It. 1= It, w It Not S.J.ti::tiec 0 ON 2_W'A'" ST W"a"'~ ..OA.JACXHT SIGNAL.S 00 MeT P"OVI01!: H~CESSA':'" "..",ToeHIHG 6 "~E.ltg CONTRO'- P"OPO'S~O SJGH.a.L.,S CQUL.O CONSTITUTE A PAOC.AlS.$IV1!: SIGNAL. SYSTEM 01 C:~ _ FulL.i~Q o Not Salis:ied [ 1 SJGH....1.. WIL.l,. NOT SEJIIllIOUSL.T 0ISlllU..T ..,.OGRESSIVa T""''''''C "L.O"'. ADJtQUATE i",UAL. OF 1..03 JlCSTftlCTIVE JllIEMCDID HAS F.AIL.ED TO REClUC:& ACe:.. FRIEQ~ Satisfied Yes No " O' 0 - 0 0 0 D - '/ARRANT 6 - Ac::idenl Experience ACe: 'WITHIN A. 12 MC.~t:'UOD SUSC:EPTt81..1: OF co"....a. INVOLVING IH,JURY 0">5100 DAMAGE _W.!!!!~W~I!:~U~E~..!. __ .$0" )10..': ------------------- NUW.IER OF ACC:OENTS o o - ~I~:U_" ~~...!..."G;;~;N;~--..:~~~~ ~~.!.:.u:~~~o.:~~,,-=-=:=.:Tt:::j~ - J~ .~ OR WORE OF 1-"'~~~~H.!..}---'!!!..~~"!,.P.!~~!~~~!1.'~..u2~~ T.!~_ r-------~- 'IIl'AII'''AHT'] _ ..INU4U" ~CDct::ST"IAN vOI..UJoIE . % o o 'N.';RR~NT 7 -:'" Systems \":ar:-ant Satisfied y'es 0 No 0 000 VEH/HR V!E:H/M fI: Fulfilled ~;,.~:E:c~]--:-;.;:;.;;c-;,;-rolo;~H-;;;; 1 0-- ,OF ANY' MIIt'SO,." CW...fl:Jrr.c:T~JI\I'T1C.:s OF "''''JOFl ROUTE3 .~ "AJO" , T -r ~1"(jR ,T PAfltT OT H"tlY SY5TE~ S~~V1NG ....S PAIHCJPLE HETWOltt< FOR THJIl:OUGH TFC ------------------------------------------ ------ ------ ~O~H"C.. A"EAS OF ~"IHel"'-" T"AFF1C GEH""ATtOH -;U::;_~!'__~~;;~~~;2~t'S;!~;~~~~~;~.:;!;~~~;~~~~.:~__=_ ------ ----- - ----- ------ H"'S s:.:~:'...:::= S.'R!!E"':" r:WY OR !:x~w...y .A"'P T!:JItMl,.....U ------------------------------------------ ------ ----- - .APP'I!:.......S .r.s "'....JO.. ~::-'T!: ON AIf OFF'CIAl.. P'-....,.. AHY Wo\J~. "OUT~ C"''''A.lC1'''E'R15T1C !ttP:"'i. BOTH STS. 0 &. 0 .. - CURIHG TYPtC:AL. WC,E:l<CAY PEAK HOUR o o 1 WIH',",VIol vOI..UMC. P.!:Q\J;R~),ol!:H T EHTE1UNG VOl..UME3 _ .1.1..1. AP"ROA.CHE~ Not Satisfied o Not S~tistiec Fulfilled (ARRANT 5 - C"moir:atio:1 ofl'larrants Satisfied Yes 0 No 0 - Ri:::UIi=iEM EHT ."...RR....HT I 5AT1S~lEO I I t _ ~'MIIolUM VE)t.CUL....." vOUJJoII; I %' TWO _","",ANTS . S...TISFIC:C 2 _ lHT~="'.JPT10H 0'" CONTIHUOU$ T'U'Fld " - &:i": O~ IoIO;:t.!: ,< 3 _ ~'MI)'UN ,. EC!:S~'Rl"'H vOl..uwE I % I 'J sati=:action of a warrant is not necessarily justification {or signals. Delay. congestion. dusion or olt:er cvicencc 01 tho net1d 'OJ, flg'2I of W.::iy a=:;Jgnment muSI be shown. 5 POLICY NO.3 YIELD SIGNS The YIELD sign requires stopping only when necessary to yield right of way to opposing or merging traffic. It will not be regarded as a substitute for a STOP sign where a STOP sign is warranted. It has been found to be of great benefit at a point of merging traffic and in facilitating the right-turn movements at channelized intersections. Its use will not be recommended at locations where sight distance is inadequate. The YIELD signs will be considered as warranted under one or more of the following conditions: 1. On a minor road at the entrance to an intersection where it is necessary to assign right of way to the major road, but where a stop is not necessary at all times, and where the safe approach speed on the minor road exceeds 10 miles per hour. 2. On the entrance ramp to an expressway where an acceleration lane is not provided. 3. Within an intersection with a divided highway, where a STOP sign is present at the entrance to the first roadway and further control is necessary at the entrance to the second roadway, and where the median width between the two roadways exceeds 30 feet. 4. Where there is a separate or channelized right-turn lane, without an adequate acceleration lane. 5. At any intersection where a special problem exists and where an engineering study indicates the problem to be susceptible to correction by use of the YIELD sign. YIELD signs should not ordinarily be placed to control the major flow of traffic at an intersection. They should not be erected on the approaches of more than one of the intersecting streets or highways, or used at any intersection where there are STOP signs on one or more approaches, except under special circumstances, to provide minor movement control within complex intersections. 6 POLICY NO.4 SPEED LIMITS Posting of speed limits will be recommended only on streets of other than a local nature carrying appreciable volumes of through traffic. When it has been determined that a street may qualify for posting speed limits, an engineering study will be made to determine the speed limit which will provide for orderly movement of traffic. It is not the policy of the Traffic Committee to post speed limits on residential streets since such streets have a 25 mph prima facie speed limit under the Vehicle Code. Speed limits shall be posted at the 85th percentile unless the Engineering Speed Study shows valid reasons why another speed shall be posted. On residential streets with a 25 mph prima facie speed limit, "25 mph" may be painted on the pavement as a reminder of the speed limit. 7 POLICY NO.5 DlRECl'IONAL SIGNS The principle purpose of guide signs is to give directions to destinations by the best route. These signs are used to guide motorists along routes, to inform motorists of intersecting routes, for direction to city co=unity destinations and, to a lesser extent, to furnish information to identify locations not readily apparent. Installation of signs will be reco=ended for directions to the following locations: . Lakes, parks, meadows, rivers, valleys and other geographical points only when they identify areas . Schools of higher learning such as junior and other colleges. . Important County and State highways . State, County and City parks . A hospital that accepts all emergency cases and provides 24-hour care by a licensed physician. . City and public facilities . Equestrian and recreational trails Guide signs are not to be used to direct to churches, public buildings, post offices, or to organizations that charge a fee. 8 POLICY NO.6 CROSSWALKS PEDESlRlANS Crosswalk markings will be recommended only at those locations where there is a concentration of pedestrians crossing and placing such markings is deemed necessary to reduce potential vehicular-pedestrian conflicts. It should be kept in mind that indiscriminate use of such markings could conceivably increase the accident potential by creating a false sense of security on the part of the pedestrian. SCHOOL CHIT DREN PEDESlRlANS In accordance with applicable sections of the California Vehicle Code, crosswalks will be painted yellow if: . The location is contiguous to the school grounds. . The nearest point of the crosswalk is not more than 600 feet from the school grounds. . The crosswalk is not more than 1,400 feet from ~he school ground and there are no intervening crosswalks other than those contiguous to the school ground. 9 WARRANTS PEDESTRIAN CROSSWALKS In order to qualify for a marked crosswalk, a location must (A) meet the following basic warrants, and (B) rate 16 points or more under the following point system. A BASIC WARRANTS Pedestrian Volume Warrant Crosswalks will not be installed where the pedestrian volume is less than 10 pedestrians per hour during the peak pedestrian hour. Awroach Speed Warrant Crosswalks will not be installed on roadways where the 85th percentile approach speeds are in excess of 45 mph. The approach speeds shall be determined by approved engineering speed study technique. Visibility Warrant Crosswalks will not be installed unless the motorist has an unrestricted view of all pedestrians at the proposed crosswalk site, for a distance not less than 200 feet approaching from each direction. Sites with grades, curves and other sight restrictive features will require special attention. Illumination Warrant Proposed crosswalk sites must have adequate crosswalk lighting in existence or scheduled for installation prior to installation of the crosswalk. (See Section 12.16. ) 10 Will clarify and define pedestrian routes across complex intersections Will channelize pedestrians into a significantly shorter path Will position pedestrians to be seen better by motorists Will position pedestrian for exposure to fewer vehicles B. WARRANT POINT SYSTEM Pedestrian Volume Warrant Criterion The total number of pedestrians crossing the street under study during the peak pedestrian hour. This includes pedestrians in .h21h crosswalks at an intersection Crosswalks will not be installed where the pedestrian volume (peak pedestrian hour) is 10 or less. General Conditions Warrant . . . . GlW Time Warrant Criterion The number of unimpeded vehicle time gaps equal to or exceeding the required pedestrian crossing time in an average five-minute period during the peak vehicle hour. Point Assi~ent Pedestrian Total Points 0-10 0 11-30 2 31-60 4 61-90 6 91-100 8 Over 100 .1Q Maximum 10 Points 2 2 2 2 Maximum 8 Point Assi~ent Averal1e Number Points of GlWs per S-Minute Period 0-0.99 1-1.99 2-2.99 3-3.99 4-4.99 5 or over 10 8 6 4 2 .Q 10 Maximum 11 COlI\Putations . Pedestrian Crossing Time = Street width curb to curb 4.0 feet per second . Average Number of Gaps per 5-minute Period = Total usable ilij) time in seconds Pedestrian Crossing Time x 12 Provisions . The above criterion is based on a one-hour field survey consisting of 12 five-minute samples. . All roadways having a raised median or a painted median (4-foot minimum width) will be considered as two separate roadways, if the pedestrian has a protected place to stand out of the path of traffic. . See Appendix I for survey methods and warrant field form. 12 FIELD DATA TABLE Location: Day: Date: Weather. R=mIcd by: Tl.DJ.e: Usable Usable Usable Uoable Usable Gap TUDe Gap TUDe Gap Tune Gap Tune Gap Tune Tune (Secoad) Tune (Secoad) Tune (Second) TUDe (Secoad) TIme (Second) Total Pedestrian Count Total PIELD DATA RBMARKS: 13 . . ,. I . \ .' . - . . '. c ~ , " . ~ a Q u ~ " . , , ~ - =1 u ..... w "" '" ::E ::l'" ~.... U"l U"l ':0 i c-o =~ <:> 0 XC - N <0 ~ "'~ ;; ~ . ~ C II II 1\ \ '" II .... I -:l Z i :> 0 .;: Co. I I ...,. " I 0- >- " - - 0:: " I C .11 < II :::;; :.J g ::i " " VI ..... 0< > .. - -< .- :: g .. :::> ::J t.- .- el " - :; - ..J III " E . -< E " " '" ~ 0.. 1=1 :1 :> J. > " :.- ~ "', '= ~ " ;:; " . c .... I " ::l - :.J Co =1= " .. :z: - .... ;;; " !t3 " "- 'n -< il ..... :z c c.::; I _. .;: c I := ~ 'n Vl C c: >- '= ....: - ::; - Ij "I c- " c: :r. .... '" " :: -< c -; ~ ;:> <II <.J "5 ..... <:<: c <:. .. '" " " ~ U E <II ." 0 c E ';: - -< '- - 'n !" - c - " " ~ ~ -:; ~ ::l U ~ "- U f- '" :> :; c c 7- - "- = '" ;:: - " :; '" " .- .. ., c --c. " c:. c:: - -:l " ..J - '" ,- '" - - ;.J - < ..... I <r. ~ " " - ... c i- ~ ;::: - " c:; " "" -:l ~ ... . ~ I d:. 0- :5 V - "". . . ..". --c. - " <: e:: - U - ~ u 14 POLICY NO.7 SCHOOL CROSSING GUARDS The basic responsibility for the safety of school children walking to and from school rests with the parents. However, an adult crossing guard, supervised by the City Administra- tor, and assisted by the Police Department, may be assigned to school crossings by the Y orba Unda City Traffic Committee which specified the following qualifications to be met during the hours school children are required to cross: . At least 30 school children per hour for each of two hours (excluding junior high and high school students) must cross the street on the way to or from school. . The minimum hourly vehicular volume on the street the school children are crossing must be at least 300 per hour for that time when school children are crossing. . When crossing is on a Safe Route to School, there are four exceptions: 1. The vehicular volume is reduced to 275 vehicles per hour where the street is 64 feet in width or wider and the 85th percentile speeds range from 35 to 45 mph. 2. The vehicular volume is reduced to 250 vehicles per hour when the 85th percentile speed is 45 mph or over. 3. Where there are, on the average, less than three adequate gaps in traffic for an average 5-minute period during the school crossing period. An adequate gap is determined by dividing the width of the street by 4 feet per second (average pedestrian walking speed) and adding an additional three seconds to allow for reaction time. Additional time may be added to clear large groups of children. 4. Where sight distance due to physical terrain is impaired beyond a reasonable stopping distance. School children will be expected to walk as far as 700 feet to a location where they may afford thetnselves the protection of existing traffic signals, boulevard STOP signs or crosswalks. Crossing guards will not normally be recommended at locations controlled by boulevard STOP signs or traffic control signals due to the great degree of protection afforded by such controls. The following are exceptions at such intersections: 15 . Where the number of vehicular turning movements through the crosswalk where children must cross exceeds 300 per hour while children are going to or from school. . Where there are extenuating circumstances not normally experienced at a signalized intersection such as crosswalks more than 80 feet long with no median refuge area, or an abnormally high percentage of commercial vehicles with operating characteristics substantially different from those of the passenger vehicle. The crossing guard assigned may be withdrawn when conditions no longer satisfy the requirements maintained herein. The need for crossing guard control is considered on the basis of the foregoing recommendations, although actual assignment of crossing guards is subject to available personnel and relative need. 16 POLICY NO.8 "NO PARKING" RESTRICTIONS "No Parking" restrictions will be recommended to facilitate the movement of traffic. If an engineering study indicates that such restrictions facilitate the movement of traffic and result in decreasing the accident potential, such restrictions will be recommended. The prohibition of parking on residential streets for the convenience of abutting property owners will be considered only when a request is submitted by persons representing a substantial majority of the improved front footage affected on both sides of the street in increments of complete blocks or the majority of improved front footage affected on a single side of the block. POLICY NO.9 "NO STOPPING AT ANY TIME" RESTRICTIONS "No Stopping At Any Time" restrictions will be recommended for placement to facilitate the movement of through traffic and to reduce any potential accident hazard. Such restrictions will not be recommended at those locations where parking is unlikely or where applicable sections of the Vehicle Code are clearly enforceable regardless of the existence of posted regulations. POLICY NO. 10 STREET CLOSURE It is the policy of the Traffic Committee to recommend restricted use or closure of a street or highway only when such action is necessary: 1. For the protection of the public, 2. During improvement, construction or maintenance operations thereon, and 3. For the protection of persons attending a school where the school grounds are crossed or divided by any public street or highway. 17 POLICY NO. 11 COMMERCIAL VEHICLE WADING ZONE (YELLOW ZONE) Commercial vehicle loading and unloading zones will be recommended when investigation reveals that there are no off-street loading facilities available and that the use of such a zone will expedite movement of through traffic. When such a zone is recommended, it will be located at the mid-block point on short blocks, or at each end of a long block in the vicinity of the intersection. No more than two loading zones will be recommended for one side of a block. POLICY NO. 12 SHORT TIME PARKING ZONE (GREEN ZONE) Establishment of short-time limit parking restrictions for a period of 24 minutes will be considered when the requested location serves a public or quasi-public building where a need for short-time parking has been demonstrated. "Quasi-public" will include such uses as banks, public utility offices and bus or train ticket offices. POLICY NO. 13 PASSENGER LOADING ZONES (WHITE ZONE) Passenger loading zones will be recommended when an investigation reveals that no off- street passenger loading facilities are available and that the use of such a zone will expedite movement of through traffic. A zone of this type will be recommended only at those locations where there is a high volume of passenger loading operations such as at a theater, large hotel, bus or train ticket office. The California Vehicle Code states that white curb markings may be used adjacent to mail boxes to provide an area for parking while making a deposit. The use of white curb markings in conjunction with mail boxes will be restricted to those locations where the post office has provided a "snorkel" type mail box. 18 POLICY NO. 14 TIME LIMIT PARKING RESTRICTIONS Installation of time limit parking restrictions will be considered when a request is submitted by persons representing a substantial majority of the improve front footage affected on both sides of the street in increments of complete blocks. A need for greater curb turnover must also be evident. Placing such restrictions on a random, isolated basis should be discouraged because of the difficulty of enforcement. POLICY NO. 15 PARKING STALL MARKINGS Installation of parallel painted parking stalls will be recommended only in congested business districts. All parallel parking stalls will be nominally 7'6" wide with a pair of 20-foot stalls adjoining each other, separated from the next succeeding pair of stalls by a section of red curb 8 feet in length. POLICY NO. 16 .CHILDREN AT PLAY" SIGNS "Children at Play" signs and similar warning or information signs will not be recommend- ed for placement on city streets. It is the opinion of the Traffic Committee that drivers can be expected to recognize an area where child or adult pedestrians may be expected. There is no evidence known to this Committee that the use of signs of this type increase driver alertness or improve driver behavior. On the contrary, use of these signs may encourage the dangerous practice of playing in the streets, thereby increasing the child pedestrian hazard. 19 POLICY NO. 17 RED CURB AT DRIVEWAYS Red curb will not be recommended at or adjacent to any driveway except under the following conditions: . Where such restriction will materially aid or improve movement of through traffic. . Where such restrictions will reduce the accident potential. (On minor streets unusual conditions must exist before red curb will be considered as warranted.) . Where vehicles normally using a driveway cannot enter or leave a driveway that is maximum legal width or where widening the driveway to maximum legal width is not practical because of some unusual physical condition. It is the intent that unusual conditions encompass such topographic features as large trees and difficult grade differentials, but not items such as remodeling garage doors or the loss of lawn or garden areas. POLICY NO. 18 "DEAD END" SIGNS It is the policy of the Traffic Committee to recommend posting "Dead End" signs only on those streets that are not continuous and such discontinuity is not readily apparent. Such signs will be posted at the intersection beyond which there is no legal outlet. 20 POLICY NO. 19 MEDIAN OPENINGS The following policy for median openings has been established to facilitate traffic movement and to promote traffic safety. Mid-block median openings with left-turn pockets to permit turns into adjacent property will not normally be reco=ended unless all of the following conditions exist: . The property to be served is a major traffic generator and has a continuing frontage of 400 feet or more along the major arterial street. . The median opening is not less than 600 feet from an intersection with a major arterial or collector street. . The median opening is not less than 400 feet from an intersection with a local street. . The median opening is not less than 600 feet from any other existing or proposed mid-block median opening. POLICY NO. 20 ANGLE PARKING Angle parking is a known generator of traffic accidents. It has been the experience of many people in the field of traffic engineering that parking and backing-up maneuvers associated with angle parking create a hazardous accident potential. In consideration of the increase accident potential, it is the policy of the Traffic Committee to reco=end against installation of this type parking except in special circumstances. 21 POLICY NO. 21 NON-STANDARD SIGNS AND PAVEMENT MARKINGS Modern highways and vehicles operating thereon, together with changes in our way of life, have resulted in ever-increasing ranges of travel. In the end, highway users have come to depend on traffic control devices for information, warning and guidance. So great is this dependence that uniform high-quality devices are necessary to productive use and public acceptance of any highway system. In consideration of the benefits of installing uniform signs and pavement markings and traffic control devices, it is the policy of the Traffic Committee to recommend against placing any non-standard signs or pavement markings. Non-standard signs or pavement markings will be defined as installations other than those indicated in the California State Planning Manual or the Manual of Uniform Traffic Control Devices. This policy is not intended to preclude experimental installations, special or newly developed materials and designs. POLICY NO. 22 RAISED PAVEMENT MARKERS Raised pavement markers will be recommended to be installed on existing streets or highways when no major work of the pavement surface is planned for during the five. years following marker installation, and when anyone of the following conditions is satisfied: . The roadway is a primary or secondary road located in its ultimate centerline. . Where accident history indicates raised pavement markers may reduce an accident potential. . Where adverse roadway geometry requires raised pavement markers to provide greater safety. Consideration must be given to the economic factors associated with the installation of the markers. 22 POLICY NO. 23 SPEED BUMPS "Speed bumps" and any other hazardous physical obstruction whose sole purpose is to slow traffic will not be recommended for installation on city roads. It is this Committee's opinion that the public is entitled to a full, unobstructed use of the entire roadway. In addition, this Committee believes that such installations may result in damage to the motoring public's vehicles and possibly contribute to injury or death. "Speed bumps" are particularly hazardous to emergency vehicles. This Council feels that concentrated law enforcement is the best solution to speeding problems. 23 POLICY NO. 24 STRIPING Centerline and/or lane line striping will be considered warranted on a street or highway when anyone of the following conditions is satisfied: . The average daily traffic exceeds 500. . Where limited sight distance or fog conditions make it advisable as a safety measure. . On any rural throu!l:h highway where the average distance between intersections is not less than 1000 feet. "Rural" is anything other than "Business" or "Residentia1." When warranted, centerlines will be placed as follows: . Two lane Hiihwa,y Where sight distance is adequate, a yellow single broken line. Where sight distance is inadequate, a double yellow line. . Four Lane Hii:hway or Greater A double yellow line will be used for the highway center line. A white single broken line shall be used for lane dividers. Lane lines should be used where it is necessary to organize traffic into proper channels and to increase the efficiency of the street for moving traffic. Due to relatively low volumes of traffic in residential areas and the high cost of installing and maintaining striping, local streets will not normally be striped. 24 POLICY NO. 25 LEFr-TURN POCKET INSTALLATION FOR A 1WO-LANE ROADWAY Left-turn pocket channelization will be considered at existing intersection or mid-block locations if any of the following conditions are met: . Twenty-five or more vehicles make a left turn and are in conflict with 100 vehicles on the through road during the peak hour and the 85th percentile speeds on the through road is 35 mph or greater. . Five or more reported accidents that are susceptible to correction by a left-turn pocket installation have occurred during a 12-month period. . The visibility of approaching traffic is less than the safe stopping sight distance for the prevailing speed. . Where adequate roadway permits. 25 POLICY NO. 26 HIGHWAY SAFElY LIGHTING Highway safety lighting will be considered at existing intersections if one of the following conditions is fulfilled: . When anyone of the following traffic signal warrants is met during any single hour of darkness: Minimum vehicle volume Interruption of continuous traffic Minimum pedestrian volume . There are five or more accidents a year and 50 percent or more are occurring under conditions other than daylight. . Less than five accidents occur per year at anyone location, with three or more accidents per year under conditions other than daylight. 26 POLICY NO. 27 FLASHING BEACONS A Flashing beacon installations will be considered at existing intersections if one or more of the following conditions are met: . Four or more left-turn accidents plus one or more right angle accidents occurring during a one-year period. . Six or more left-turn accidents plus one or more right-angle accidents occurring during a two-year period. . Four or more right angle accidents occurring during a one-year period. B. If any of the above criteria have been met, the type of control should be as follows: . If the minor to major entering volume ratio is 0.50 or less, red-yellow lens operation (2-way STOP) should be considered. . If the minor to major entering volume ratio is greater than 0.50, 4-way red lens operation (4-way STOP) should be considered. c. The installation of flashing beacons at an intersection with yellow flashing on the main street and red flashing on the minor street may be warranted by the following condition; . Where sight distance is extremely limited or where other conditions make it especially desirable to emphasize the need for stopping on one street and for proceeding with caution on the other. 27 POLICY NO. 28 FLASHING YELLOW SCHOOL SIGNALS Use of yellow flashing signals will be limited to the function of advance warning at school crossings. They may be installed only at locations where school signing and marking is warranted. The governing board of any school district shall initiate the request for a flashing signal installation. Installation of a flashing yellow signal may be warranted as an advance warning device for an established school crossing under the following conditions: . The school crossing is located on the suggested safest route and there are at least 40 school-age pedestrians during each of any two hours at an uncontrolled intersection or mid-block location at least 600 feet from the nearest controlled crossing. (The definition of a controlled crossing is one at which STOP signs, traffic signals, or adult guards are functioning.) . The vehicular volume at the crossing exceeds 200 vehicles per hour for urban conditions or 140 vehicles per hour in rural areas during the times children are going to and from school. A flashing yellow signal shall operate only while children are going to or leaving the school during opening or closing hours or during the noon recess period, and such signal shall be controlled by a time clock or actuated by a key. In addition, at least one of the following will always be required: The critical approach speed of traffic exceeds 25 miles per hour. Approach visibility of the crossing is permanently restricted to less than the required safe stopping sight distance for the prevailing speed of traffic. Critical Approach Speed Required Safe Stopping Si~ht Distance 30 mph 40 mph 50 mph 200 feet 275 feet 350 feet Flashing yellow signals will be used only as advanced warning and not as a means to control traffic. 28 POLICY NO. 29 WEIGHT LIMITS The California Vehicle Code outlines specific situations where the City Council may adopt ordinances to reduce the permissible weight of vehicles upon city streets. The Traffic Committee will recommend establishing weight limit restrictions when: . The street in question is an unimproved street as defined by the Vehicle Code -- Le., a hard surface of less than four inches, if it is evident that a satisfactory alternate route is available and that such rerouting will provide for a greater degree of safety. . In a residential subdivision area, the prohibition of commercial vehicles over a gross weight of 14,000 pounds will provide for increased safety and when an alternate route for such vehicles is available. Under provisions of the California Vehicle Code, no ordinance shall prohibit any commercial vehicle from delivering or loading for transportation goods, wares or merchandise. POLICY NO. 30 EQUESTRIAN CROSSINGS Whereas every person riding an animal upon a highway has all of the duties applicable to the driver of a vehicle as defined in the California Vehicle Code, the installation of warning signs and equestrian crossings will be recommended only at specific locations where there are special circumstances, listed as follows: . "Watch for Equestrians" signs will be recommended at the entrances to areas that have numerous equestrian trails crossing the public roadways, or on narrow streets where riders abound. . A painted crosswalk and "Bridle Path" signs will be recommended where there are sight distance restrictions, or where there is a high degree of conflict between equestrians and vehicles such as at a trail crossing. It should be kept in mind that the indiscriminate use of such markings could conceivably increase the accident potential by creating a false sense of security on the part of the equestrian. Painted crosswalks will not be installed where it is not desirable to locate a pedestrian crossing. 29 . . . .-' . Some Facts About Pavement Marldng Materials ":~."';<-:"~,:'.. ~:.:..x.<,!;,;c::.J?t.;..~(...J,:${"('~. .... ....1'.. . ~-e-"<-.;,~~:o:r:.:.c.~*",,~. :cw~~:~. :~..""2"'. . ;;;.'f'I!'..........; .~.:--.~..:;~:-:..:w. .~;c~.' ;'ii~:-.. . -t:.:.:.-. " . . ;."..,~~;j:'::":':--=-'- ,- .'. - .... .....-.. \...........:;x<: ~ ADVANTAGES 1.\1r..:~ DISADVANTAGES. f:1Jt~S AP?ROXIMATE COSTS :l<<~ ~ 7',,:" .....;...:.;:.t-:~. "~'::"........" i/:,-:~~~y:. "'--:..-,.--- ~:.:?~ ~"<O!-!:Y"'" ..", ..:10.....:.:-:...,:......... ..."" ~;?" ...~..... o:.;::.~...... .. 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Sa.. .... .......UI_ ... aM". . a,.., eMC . u._ ,.I..C ..ppUcad,n __td,....C . hceYM1 .Was ...urcs prDp.r .......rd_ill& roLrlStD . CoM .....U..C)l' . J..w ceoac . lucall" v1Ch .o41f:l_ pa....c ..vip- -. .10,.11.. .war ..i.cl_. pAint. . CoM .t.~c vi.DillC" e Cood ..."U...-cOllcr..ccer c-recicloa e 1001' ..W. (no ..,..por..doa Iou) DOnD: . LMI co.c . c-.I'lc fcnw.lacJ.o. .~.u..c .....s... .. hdt coacnc. ... _~_ .....-c . EaceU-c .....111c.y . ea. -... .a..u... chao.....u.c1c ....a,. ..1I1.....C . r...c..c .,..,1.. ciae U ..c) . ea. ... .."II"" .c t_per,.cur... d_ e. f..__ta& . e.- nS.llc ..ta11l11h7 . 100% ..UU (M .....r..U... 1...) . hie".., Ute . ._1' ve~lahc vbtltUIC7 .Y_~~ 41.lI...ci_ JapoaaW. la ....... vlaler cUaa&.. . eoaa.... ,.cn1_ 4....ctUa&_. CODII'I'-. co .ir ,.u..c.... UOZ .......-c...) J . .1..... C8eC p.. ....., -..cuiala .Saf.CJ' c-.... (hip SaalaUadM t....i......) .,..... ..-17 co COlIC.... 1a ...-c~ eftI cU-~ _luh11au-. ..sc be c1...J7 cc.a- nol1H _1U.p.e Unl-ceac .. V..rlalth aipe yblltiUc:y . Lac........ l_uUacs.o.. .., ... ....... well . u.n.. suppll... c..,.c1c.... . $peclallz". exp.a...."".. InscaU.ac.lo.. ...ul,.....C _..laU".ly latah price .lIIxins ..... proporclDCIu. .t c... conponeat. 1. critic..l. difficule co ChHk. . Slow __c.I'..ck (2 Din "C bud 0" aD 110/...1- ol..c.aU" COAt.: )c ~f... I)..U U.. 10 k:/fl ., . $'1SO/..' CUc/,. .f "'"'I.. n- aU 1...) . . 1~7'-IO ... Y.rk CO&I'I'Mt prlc.; 40c/lt ... "'"I.. u-.U 11.. '. . &eceat ..e......... coat: S4c to "'Ie ... ",",1-. l1Ae . 1'10 lnaca1.1M coac fa Vlrp_La: 'Oc/fc .,..., ~...k conUace ,ric.: U+/h . $]4 Co nO/Ida d.p..,cUft& o. supplier .... cur. CJ.e o !JOel fc .f '-tn. l)..dl Un. I. lbh.. ~., YDl'k _.-danc. . Llcc.1_ ."'...i... ouc.f.4. IIV Kedco . SM/pL- . 51.., .-crack (2 _in _e besc) . LlaUad ....'lbr c....cil1_ .Sol....c ev",ol'aco' (reclucu Une chicu-... CDI'Icdhc_ CD UC- poUr .1oft) .IIEU' U..d._r r~1&be' ca..elu1 ~ . OhLa c_naet co.c: lc/h .r J.1... spec.lal caftb .... 11... 4-18. 1""11 U... . Poo.. acDl..1oa lO CDlICree. o~.. C1&C'. I'....bad ~.I.r. .cr:l.p- lna ."" ..,hale ;ta~..c. . Sl.....c CUt'e clae (10 to 15 as.a) _ u.le'" tideS .s,erlenc. ellllb. 1...c.al1.ad.. c..,.....cur. . Dr.,.... .eM t1a1D1 c.r1u.ca1 . '25OO/c....< (7c/te f.1' '-:l.a.. lSo-all lin.) . ..1 ,al - )20 Ie Df 4-18. U-oU U... cl IDa - 'SOD tc .f "-1.. U3-tt.U Un.. 1 CD. - 37.)00 fe .1 4-1n. ~11 11... This column devoted to microcomputer resources for local transportation and public .IVories agencies is a regular fealllre of Tech . Transfer. . Readers are invited to submit news items. comments. and suggestions. All about INFOT AP INFOT AP, an electronic bulletin board developed as part of the ITS Technology Transfer Program, contains useful items for transportation and public works professionals: an electronic mail service, notices of upcoming conferences and workshops, job announcements, lists of software and computer resources, and nearly 500 accessible files in its software library. The INFOT AP library includes such programs as spreadsheets for highway capacity analysis, DOS utilities, a radar speed survey analysis program, and the California Rigid Pavement Management Sys- tem. . Two types of software are available from INFOTAF-publicdomain software and shareware. Public domain software is free; sha.reware is copy- righted software available on a limited license allowing it to be copied and distributed as long as it is provided free of charge, unmodified, and with the original copyright references. Anyone with a personal computer can access INFOTAP by calling (415) 642-7088. Users pay only the cost of their phone call to hook up with the system. INFOTAP is on-line 24 hours a day, seven days a week. About 15 calls each week are received from allover the nation (and occasionally from other countries), and the Iiles are updated continu- ously. All you need to hook up with INFOTAP is a microcomputer or terminal, a modem (a device that enables computers to communicate over telephone lines), and communications software for your com- puter. The modem can be rated at either 300 or 1200 baud and must be compatible with Bell Sys- tem (Western Electric) equipment-I03-type modems at 300 baud, and 212A-type modems at 1200 baud. Some popular communications software packages are Smartcom II, QMODEM, and PROCOMM. Modems sometimes come with com- munications software, but free communications pro- grams are also distributed by computer user groups and electronic bulletin boards. INFOTAP distri- butes at no charge the shareware version of PRo.. COMM; for a copy of information, contact Systems Operator Philip McDonald, ITS Systems Unit, 107 . McLaughlin Hall. University of California, Berke- ley, CA 94720; (415) 642-1008. . The communications packages are easy to use. Callers must first set the transmission speed, parity, and number of data bits (the communication parameters). The transmission speed is the baud rate, measured in bits per second (bps). The faster transmission speed (1200 bps) is preferable and more economical. Setting the parity determines how the computer checlcs for data communications errors. Parity can usually be set to even, odd, or none. Odd parity will not work for INFOT AP; no parity is the recommended setting. Communication can take place with either seven or eight data oits. If eight data bits are used, the setting for parity must be "no." Some protocols require specifi.c numbers of data bits. Eight bits is the required setting for the most commonlv used data transfer protocol systemS, which you will need to set before you can copy files from INFOT AP. Protocol systems XMODEM and kermit are recom- mended because they are available to most com- munications programs, will handle all types of files, and are capable of correcting errors. For more information, refer to the manuals for your modem and communications software. After setting the parameters in the communica- tions software, users must go back to the main menu and choose the entry for dialing. The INFOT AP number should be dialed like a regular telephone call. INFOT AP c;an only accept one call at a time, and each caller is allowed one hour on the system, so your computer may not connect on the first try. When the system connects, the following directions will get you into and around INFOTAP. TtCh TraMf.,. is published quanerly by the Technoloey Transfer Program. llIstitute of Transponation Studies. Univenity of California, Berkeley, under the sponsor- ship of the Federal Hiabway Administration and the California Depanment of Transportation. Directed al 10ClI and county biabway and transponation profes- sionals. tbe proaram is pan of a nationwide effort to disseminate the latest state-of-the-art technology on roads, brid&es. and public transportation. Mark. Kermit. Dir<<tor-rrS Exl~lI$ion Laura Steinman. Edilor Robin Nielson..Cerquone. Assi$lanl Edilor Catherine Conelyou. Reference Editor CLIP AND SAVE ------------------------------, I Using INFOTAP Entering INFOr AP . Type (H)elp for a list that briefly describes each command on the main menu. Press H or ? within each submenu for more detailed information. o FlRST TIME USERS: Type answers to all questions. Hit the enter (return) key after each reply. . What is your first name? . What is your last name? . Are you (name)? (Type "y" for yes, or . Type [E)nter a Message to enter a note "n" for no if your name is incorrect.) of up to 19 lines, directed to all users or . What is your city and state? one user. . Enter the password you'll use to log on . Type (P]ersonal Mail and [R]ead Mes- I again. (You'll be asked to type illwice; il sages to display electronic mail sent I will show on the screen' only the first tIme.) directly to you and messages left for every- I one. I' DAfter vou've logged on. once, you can I access INFOTAP in the'future by answering . Type [Fjiles to move to the storage space I the first question as follows for INFOT AP's collection of software. I I . . : I first name;/ast name;password. . Type [GJoodbye .to disconnect from I o Press the return key to continue. Direc- INFOTAP and return to the communica- I , tions on the legal use of INFOT AP and a tions software. I new set of questions will appear. Those that I I are not self-explanatory are described below. I o C)hange namel:1ddress D)isconnect Reeding, Copying, end ! II R)egister? (To continue with INFOTAP, hit Sending Files I "c" for "register." Only the letters marked off I I bv the parentheses are required for each com OAccessing the Files subsyslem is the first I niand ) . . - step in reading or copying material from I . INFOT AP's list of announcements or collec- I I 0 Seven Protocol choices wil1 be offered, t on 01 text files and programs i '.' . I I including N)one. Choose one. 0 The INFOT AP directory is organized in I I 0 Several bulletin listings wil1 show up on the ~our categories' Transportation Software I screen. To read a listing, type its number. Public wor~s Software, Ge~eral Use" I Software, and Announcements/Conferences/ I I 0 At this point, you will be notified of new Information (see next page). I I messages, and the main menu will appear on the screen. 0 To Download (copy) a file from INFOTAP: I 'I 0 The main menus lists its options under . Look up the exact name of the file yoo I four headings: Mail, System, Utilities, and Wish to copv under ILJ.st I I Elsewhere. Type the bracketed letter to get '. . . I I into subsvstems. which have new menus to . Choose IDlownload from the Files menu. choose from. Of speCIal note: I I . I I ----- -------------------------- . Type (U]tilities to change the parame- ters, protocols, and preferences. 3 CLIP AND SAVE i~~:~::::~:::~----~FOTAP~irector;-l I load, what file you want to copy, and what I protocol you want to use. (If you set a Transportation Software I default protocol, you will not be asked to I I designate a new one.) To shorten the pro- I-A Transit Operation I cess, answer the first Question with loB Transportation Planning I d;<fiJename>;<protocol>. J-C Traffic Engineering I : . After a message tells you the system is I-D Transportation Engineering II ready to download, command your com- I munications software to save the incoming Public Works Softw~re I I program. This step is accomplished in different ways for different communica- 2-A Property/Facility Management I I tions packages. In PROCOMM. simply hit _'-B I I the "Page Down" key. Pavement Management I 2-C Checking and Inspection I . To abort this or any other process, hit I I "Escape." 2-D Project Management 2-E Water, Sewer, Soils, Structures, I I and Electric I I 0 To Upload (send) a file to INFOTAP: 2-F Planning I I . Choose [U)pload from the Files menu. I I General Use Software I . Make sure" there is enough disk space to I take the file. When you ask for Upload, the 3-A Spreadsheet Programs I I system will tell you how much disk space is 3-B Word Processing Programs I a vailable on the upload dri ve. I 3-C Database Programs I I 0 Donating programs to the INFOT AP 3-D dBASE II Programs I library is encouraged. but the programs must I contain infonnation from the public domain 3-E IBM-PC Programming Aids I I only. No private or commercial infonnation 3-F Statistical/Finance I will be accepted. The systems operator will I review and edit the upload files before mak- 3-G Communications I I ing them available. 3-H Utility Programs I I 3-J CP/M Programs/Files I I 3-K Macintosh ProgramS/Files I I For More Information I I Announcements/Conferences/ I I These instructions are only a brief introduc- Information I tion; INFOT AP has more complex uses and many more services to offer. You can obtain 4-A Conferences/Seminars/Meetings I detailed infonnation, answers, and an 4-B Courses INFOTAP manual from ITS Systems Unit I staff. Write or call Philip McDonald, ITS 4-C Micro Support Resources I Systems Unit. 107E McLaughlin Hall, 4-D Software Reviews University of California, Berkeley, CA 94720; I (415) 642-1008. 4-E Software Catalogs I 4-F Other Bulletin Boards I 4-G Using the ITS Library I 4-H Job Announcements I 4-J Part-Time Work/Student Internships Iw ------------------------------- CITY OF PHOENIX, ARIZONA ORDINANCE NO. G-76 * * * * * * * * * * * * *" * * * * * * * * * * * * * * * * * * Section 9. Obstructinq Visibility at Intersections In any residence district on a corner lot, there shall be no fence or wall or hedge higher than three feet, nor any obstruction to vision other than a post Qr column or tree not exceeding one foot in greatest cross-sectional dimension between a height of three feet and a height of.ten feet above the established grade of -either street within an area formed by the lot lines on the street sides of such lot and a'line joining points on each lot lines located at a distance of 33 fee~ from the point of their intersection. * * * * * * * .* * * * * * * * * * * * * * * * * * * * * * *"* PASSED BY the Council of the City of Phoenix this 15th day of September 1953. * * * * * * * * * * * *" * * * * * * * * * * * * * * * * * * * Violation of this ordinance is a misdemeanor. " '. ... , L ~ .'~. '<I' .-..,- ~. l~ ~ ~ ~) ~ ~ L.:..3 l...~ ~ ~ n:: ~'. >< :z:: '-'-' .r:::> -- c... - .0 r= c..:> ..... = Lt..l :E. ..... 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E-i 0( > . p:: r.l ~ :>< ...l 0 r.l m u ~ u l:L. 0( Z l:L. ..:c: 0 et::: .. ~ :::> ~ < m u 1-1 tI) E-t Enforcement and Engineering Evaluation Institute of Transportation Studies Extension Programs University of California Richmond Field Station 1301 South 46th Street, Building 452 Richmond, CA 94804