DATE: April 23, 2025
TO: Council Infrastructure and Airport Committee
FROM: Director of Public Works
SUBJECT: Evaluation and Long-Term Project Recommendations for the Orchard Avenue Traffic Calming Quick-Build Pilot Project
RECOMMENDATION
That the Council Infrastructure & Airport Committee (CIAC) reviews the evaluation of the Orchard Avenue Traffic Calming Quick-Build Pilot Project (Project) and provides direction on the development of a permanent project.
SUMMARY
This Project constructed traffic calming improvements by striping and delineation changes to improve the operation of the roundabout and removes a traffic lane in each direction on Orchard Avenue between Joyce Street and Mission Boulevard. The Project included changes to the lane configurations at Mission Boulevard and additional no truck signage.
Construction started on December 2, 2024 and was substantially completed on January 14, 2025. The pilot evaluation period includes data from January to April. Due to observations and feedback received, staff made signal timing changes to the Mission Boulevard/Carlos Bee Boulevard/Orchard Avenue intersection which resulted in 30% reduction in queue length for the Carlos Bee Boulevard approach. Traffic count and speed data collection comparing January 2023 to January 2025 showed no changes in volume and 8% and 5% average speed reduction for the eastbound and westbound directions between Oneil Avenue and Joyce Street, respectively.
Based on the findings of the evaluation and the feedback received, staff recommends moving forward with a plan for long-term infrastructure for the lane reduction along Orchard Avenue and Carlos Bee Boulevard, and at the roundabout at Joyce Street. Staff also recommends installing safety lighting, bulbouts, crosswalks and curb ramps, and buffered or protected bike lanes on Orchard Avenue. Finally, staff proposes to investigate options to create a multi-use trail path that connects Orchard Avenue to Whitman Street and the future East Bay Greenway. This connection would need a separate funding source.
BACKGROUND
Orchard Avenue is a minor arterial roadway located in the Jackson Triangle neighborhood. From Soto Road heading east, it consists of one lane in each direction for approximately 1,300 feet until Joyce Street, where it widens to two lanes in each direction for approximately 1,450 feet ending at Mission Boulevard. The surrounding area is residential with some businesses closer to Mission Boulevard.
Orchard Avenue has a history of traffic calming efforts. In 1992, the City extended Hayward Boulevard to directly connect to Carlos Bee Boulevard, making it easier to use Carlos Bee Boulevard and Orchard Avenue to access Jackson Street through Soto Road. In September 1999, City staff held a neighborhood meeting to discuss proposed improvements to reduce the speeding on Orchard Avenue and Soto Road. At the meeting, a roundabout was proposed with an even split of residents who favored and opposed the idea. After the meeting, staff researched potential traffic-calming strategies and developed a traffic calming plan that consisted of a roundabout at Orchard Avenue and Joyce Street, and two raised intersections along Orchard Avenue at Muir Street and Thomas Avenue. The plan to construct a temporary roundabout was approved by City Council on February 15, 2000, and the roundabout was installed the same month. Staff confirmed after the installation of the roundabout that the average speed along Orchard Avenue decreased from 33 to 26 miles per hour. City Council approved the design and construction of a permanent roundabout on September 19, 2000.
Although the roundabout led to a significant reduction in the average speed, residents have expressed concern regarding the operation of the roundabout. The roundabout was not aligned along the centerline of the western approach making it less effective for eastbound traffic. The addition of new and used car dealerships along Mission Boulevard along with increased traffic brought more heavy vehicles and trucks along Orchard Avenue. During the planning process, staff received feedback that the raised intersections were not effective and caused excessive noise. Data collected in 2023 on Orchard Avenue between Joyce Street and Oneil Avenue showed average speeds of 36 to 37 miles per hour. The speed limit on Orchard Avenue is 25 miles per hour.
In 2023, the City Council committed the City to Vision Zero (eliminating all traffic-related fatalities and serious injuries) by 2050 as part of the Local Road Safety Plan (LRSP). Using the federally endorsed Safe System Approach, the LRSP provides the framework for reaching the City’s traffic safety goals. Many of the strategies in the LRSP highlight to reduce speeding and provide safer road infrastructure for vulnerable road users like pedestrians and bicyclists.
On January 22, 2024, staff held a neighborhood meeting to discuss plans to improve Orchard Avenue and receive feedback. The plans discussed at the meeting focused on improving the operation of the roundabout and removing the raised intersections. In addition, the police department discussed its enforcement strategy for Orchard Avenue. Over fifty residents attended the meeting and provided feedback about various issues including the roundabout, increased speeding, truck traffic, parking issues, and desire for more crosswalks. Residents also requested that action be taken in the short term.
In the following months, staff developed a quick-build pilot plan that would target an earlier construction date than the proposed plans discussed in the neighborhood meeting. The quick-build pilot plan consisted of:
Adding painted islands with vertical delineation at the roundabout and its approaches.
Restriping of the north crosswalk across Joyce Street approaching the roundabout from standard transverse style to high-visibility ladder.
Removing one travel lane in each direction from Joyce Street to Mission Boulevard using vertical delineation and edge lines.
Extending the length of the median using striping near the Orchard Avenue and Oneil Avenue intersection.
Removing one eastbound left-turn lane and one westbound right-turn lane at the Orchard Avenue/Carlos Bee Boulevard & Mission Boulevard intersection.
Installing additional no truck-signage near Mission Boulevard and Orchard Avenue, Orchard Avenue & Soto Road, and Jackson Street & Soto Road.
City staff presented the quick-build pilot plan to the neighborhood during an online meeting held on May 9, 2024. Sixteen residents attended the meeting and feedback was mostly positive. There were some concerns about the effectiveness of the proposed plan.
At the CIAC meeting on June 26, 2024, staff presented the quick-build pilot plan to the Committee and received further feedback. Staff spent the months of July and August revising the plans and developing specifications to prepare for the City’s bid solicitation process.
City Council approved the plans and specifications and call for bids for the quick-build pilot project on September 17, 2024 and bids were received on October 1, 2024. Tri-Valley Contracting, Inc., dba Tri-Valley Striping of Orinda, California was the selected bidder. Council award to Tri-Valley Striping was approved on October 15, 2024.
DISCUSSION
Construction of the Orchard Avenue Traffic Calming Quick Build Pilot Project started on December 2, 2024. It was substantially completed by January 14, 2025. The project was constructed to the project plans with minor modifications. The most significant of those modifications was the removal of a number of bollards to allow access for City street-sweeping vehicles.
Evaluation
The evaluation phase of the project started in January after the project was substantially completed. The evaluation consisted of receiving direct feedback, distributing a feedback survey, collecting data on volumes and speeds to measure effectiveness, and making operational adjustments as needed.
To support evaluation, notifications about the project and the online survey were sent to a large portion of the Jackson Triangle neighborhood north of Huntwood Avenue and many of the residents living in the Hayward Highland neighborhood along Hayward Boulevard. A total of 5,592 postcards were mailed that provided links to the project website and feedback survey.
Project feedback was received through email, phone call, Access Hayward (the City’s service request platform), and an electronic feedback survey. The survey included eight questions and six optional demographic questions. As of April 14, 2025, 443 respondents have taken the survey. The majority of the survey respondents are from Hayward Highland residents (54%). The feedback received is summarized as follows:
The removal of the through lane from Carlos Bee Boulevard to Orchard Avenue and the removal of one left turn lane from Orchard Avenue to Mission Boulevard has caused increased congestion and queuing at the Mission Boulevard/Carlos Bee Boulevard/Orchard Avenue intersection. 73% of survey respondents indicated congestion has increased at this intersection. 23% of survey respondents indicated that they use Orchard Avenue less while 3% indicated they use Orchard Avenue more after the pilot project implementation.
Survey respondents were mostly split about the project’s effect to reduce speeding (39% compared to 40%) and 11% of survey respondents believe the project has reduced cut-through traffic compared to 56% that disagreed it reduced cut-through traffic.
Placement of delineators and bollards can make it difficult for large vehicles to maneuver.
Majority of free response feedback from survey requested that the project changes be reversed or scaled back.
In response to feedback received, staff monitored the intersection of Mission Boulevard/Carlos Bee Boulevard/Orchard Avenue during the months of January through March, with focus at the busiest time (morning commute). The geometric design of the intersection and the signal timing led to drivers attempting to turn left from Carlos Bee Boulevard onto Mission Boulevard getting stuck behind through vehicles. Staff implemented lead-lag timing in early March. Lead-lag timing starts with one left turn approach receiving a green signal (leading left), proceeds to through movements, and concludes with the opposite left turn (lagging left). The lead-lag timing significantly reduced queueing, reducing the average queue length by nearly 30%.
Traffic count and speed data were collected at two locations on Orchard Avenue through the traffic count vendor IDAX and comparisons were made to data collected in 2023 by the same vendor. The total volume of vehicles on the road did not significantly change. Both count locations saw a large increase in bus traffic and sharp decrease in two-axle, six-tire, single-unit trucks.
The collected speed data showed a reduction in speeds at both data collection locations. Between Muir Street and Thomas Avenue, average speeds went down by 4% eastbound and 5% westbound compared to 2023. Between Oneil Avenue and Joyce Street, average speeds went down by nearly 8% eastbound and 5% westbound directions, respectively.
Below summarizes the key findings of the evaluation of the pilot project:
Speeds were reduced on Orchard Avenue compared to 2023 conditions with traffic volume relatively unchanged. The speed reduction ranged from 4% to 8% from data collected at two locations.
Vehicle queuing has increased at the Carlos Bee Boulevard approach to the Mission and Carlos Bee Boulevard intersection due to the reduction of one through lane. Road user feedback received highlighted concerns with the longer queues due to the additional wait time and discomfort with slowing or stopping on a grade. Staff made observations during the evaluation period and changed signal timing to reduce the queuing by 30%. Queues have been reduced compared to queues observed in January after project completion.
Vehicle queuing increased at the Orchard Avenue approach to the Mission and Carlos Bee Boulevard intersection due to the reduction of one left turn lane. Cars were observed having to wait an additional cycle to be served a green light.
Overall truck and heavy vehicle counts reduced by nearly 50%.
Additional maintenance is needed to maintain the pilot project. Eight to ten delineators need to be replaced on a weekly basis.
Survey results show a mixed response for the project when it comes to the perception of reduction of speed and heavy vehicle use on Orchard Avenue. Respondents did not generally believe that cut-through traffic was reduced.
Detailed data of the volumes, speed, and vehicle classification data are available on the project website.
Near-Term and Permanent Plan Recommendations
The short-term quick-build pilot project was not intended to address all known concerns with Orchard Avenue. The pilot presented an opportunity to test certain improvements relatively quickly while preparing a long-term plan. In the near-term, staff recommend the following modifications:
Remove raised intersections on Orchard Avenue at Thomas Avenue and Muir Street. These raised intersections have been the subject of significant concern for some residents. These would be removed as part of the City’s upcoming Pavement Improvement Program.
Reopen left turn lane from Orchard Avenue to Mission Boulevard at the Mission Boulevard/Carlos Bee Boulevard/Orchard Avenue intersection. Staff are evaluating the long-term design of the intersection to accommodate all transportation modes. In the near term, we recommend restoring the double left to minimize delays.
Staff will continue to monitor closely the intersection of Mission Boulevard/Carlos Bee Boulevard/Orchard Avenue. Trends like return to work are not expected to have an impact due to the adjustments made. The recommendations should also be implemented to further address concerns.
Based on the evaluation conducted for this project, staff are seeking feedback from Committee members on the following recommendations for the permanent plan:
Retain the lane reduction on Orchard Avenue in both directions. Replace with permanent infrastructure that requires less maintenance Retain the roundabout geometrical changes. Replace the temporary speed humps with a permanent truck apron that would require less maintenance.
Install safety lighting at the roundabout for increased nighttime visibility.
Install bulb outs with upgraded curb ramps and crosswalks along Orchard Avenue Install buffered or protected bike lanes on Orchard Avenue Explore options to create a multi-use trail connection from Orchard Avenue to Whitman Street and the East Bay Greenway.
ECONOMIC IMPACT
This item has no direct economic impact.
FISCAL IMPACT
This item has no impact to the General Fund. Funding for this project is associated with Fund 213, Measure BB - Pedestrian & Bicycle. The Orchard Avenue Traffic Calming Project is identified in the City of Hayward Capital Improvement Plan (CIP), Project #05312. The construction and contingency funding approved by City Council for the pilot on October 15, 2024 was $183,123. The final total project cost for the pilot is $182,001.
The Quick-Build Pilot Project was not intended to expend the total funds allocated in the CIP for this Project. Funds remain to be used for future work or towards implementing a permanent project. The total costs expended and the remaining funds are summarized below in Table 1.
Table 1: Orchard Avenue Traffic Calming Project Budget
Costs (Fund 213)
Funding allocated in CIP
$884,000
Planning, Design, and Construction Support (Pilot Project) $68,000
Construction (Pilot Project)
$182,000
Remaining funds
$634,000
The cost for the permanent project will be developed during design. Staff will return to City Council with updates on the project and the funding plan, including if additional funding is needed. Staff will also evaluate potential future grants. The City’s current allocations of the Alameda County Direct Local Distribution funding (e.g., Measure BB) is an example of funding that could support implementation of a permanent project.
STRATEGIC ROADMAP
This agenda item supports the Strategic Priority of Invest in Infrastructure: Invest in Infrastructure. Specifically, this item relates to the implementation of the following project:
Project N1: Continue to implement major corridor traffic calming initiatives
SUSTAINABILITY FEATURES
This project includes safety improvements that benefit pedestrian and bicycle modes of travel, which may facilitate increased use of these modes of transportation.
PUBLIC CONTACT
Public outreach for this project was first conducted through an in-person neighborhood meeting on January 22, 2024. A second neighborhood meeting with the purpose of providing an update and introducing the short-term traffic calming plan was held online on May 9, 2024. For both meetings, approximately 1,500 notices were mailed in both English and Spanish. A recording of the second meeting is available on the City’s project website.
NEXT STEPS
Staff will incorporate Council Infrastructure & Airport Committee feedback and direction and prepare a plan for a permanent project on Orchard Avenue. Table 2 provides a tentative timeline to design and construct the permanent improvements.
Table 2. Orchard Avenue Permanent Plan Timeline (Tentative) Expected Completion Date
Planning
Fall 2025
Design
Spring 2026
Construction
Summer 2027
Prepared by: Byron Tang, Principal Transportation Engineer Hugh Louch, Deputy Director of Public Works – Transportation Recommended by: Alex Ameri, Director of Public Works
Approved by:
__________________________
Dr. Ana M. Alvarez, City Manager
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