OFFICE OF TRANSPORTATION
250 Hamilton Ave, 5th Floor
Palo Alto, CA 94301
(650) 329-2520
[email protected]
Memo
Date:
June 4, 2024
To: Caltrans El Camino Real Council Ad Hoc Committee
From: Philip Kamhi (City of Palo Alto Office of Transportation) & Lauren Ledbetter (VTA Bicycle and Pedestrian Program Manager)
Subject: Joint City of Palo Alto and Santa Clara Valley Transportation Authority (VTA) Review and Comments on Bike and Bus Conflict Areas Proposed on State Route (82)/El Camino Real
On May 16, 2024, the Caltrans El Camino Real Council Ad Hoc Committee requested a meeting between VTA, Caltrans, and City staff to discuss bus stop treatments to add to the current bikeway proposal that accommodates bus stops within the new bike lanes.1 Under this configuration, cyclists approaching a bus at a stop are expected to either wait behind the bus, safely merge into the vehicle lane to pass the bus on the left, or merge onto the sidewalk and pass the bus on the right.
A follow up meeting with Caltrans staff, VTA staff, City staff, and Fehr & Peers was held virtually on May 23, 2024, to discuss the proposed bike facilities at bus stops and identify other opportunities to improve bike and bus interactions on El Camino Real.
Caltrans staff presented a range of various bus stop design treatments that were generally consistent with the designs featured in VTA’s Bus Stop & Passenger Facility Design Criteria and Standards (December 2020), Caltrans’ Design Information Bulletin-9 4 Complete Streets Contextual Design Guidance (DIB-94) (January 16, 2024), and Caltrans’ Design Information Bulletin-89-02 (DIB-89-02) (February 7, 2022).
DIB-94 includes strategies to reduce conflicts between buses and cyclists (see DIB-94, Section 7.3) and states that “[i]n general, preference should first be given to a design that provides separate spaces for bicyclists to move within their travel way, for buses to stop, and for pedestrians to wait and board bus vehicles. The next-preferred design option would provide a lower degree of separation, integrating pedestrians and bicyclists through the boarding area. The third preference would be to provide a space shared by bicyclists and buses.”
There was consensus that right-of-way constraints severely limit the bus stop treatments that can be implemented within the Caltrans project. Even so, there was agreement that the City and VTA would
1The proposed draft bikeway plans, dated May 20, 2024, include one improved bus stop near the north- east corner of the El Camino Real and Park Boulevard/Serra Street intersection which does not require the bus stop and bike lane to share space. This stop retains a dedicated bike lane and a separated pull-out area for buses.
DocuSign Envelope ID: B7A35691-ADD7-4DED-AE47-5FAA97069149
2 further investigate the high frequency bus stops for any treatments that do not require additional right- of-way. To support this work, VTA shared bus stop utilization and ridership (boardings and alightings) data revealing the highest frequency stops to be those at California Avenue, Embarcadero/Galvez, and Charleston/Arastradero.
The following sections provide examples of the range of design treatments referenced in the design standard documents above and discussed in the meeting.
Bus Stop Designs Featuring Separated Spaces
Bus boarding island platforms (i.e., side-boarding islands or floating islands) (see Figure 1) represent an example design featuring separated spaces for bikes and buses. However, given the limitations in scope and right-of-way along El Camino Real, it was concluded that bus boarding island platforms would need to be considered in a future project separate from the current Caltrans project.
Figure 1: Example of Bus Boarding Island in San Francisco
Source: Caltrans DIB-94
Bus Stop Designs Featuring Integrated Bicycle/Pedestrian Spaces An integrated bike/pedestrian zone at bus stops (see Figure 2) is an example design featuring integrated bicycle/pedestrian spaces, however, given the limitations in scope and right-of-way along El Camino Real, it was concluded that these designs would need to be considered in a future project separate from Caltrans SHOPP project. Additionally, VTA design guidelines prohibit integrated bicycle/pedestrian zones at bus stops. The agency cannot commit to a permanent installation but would be willing to participate in a temporary pilot to understand how an integrated stop could be designed to prevent conflicts between transit customers and bicyclists. A pilot would need to be completed outside of the current Caltrans repaving project to allow for the lead time associated with pre-launch planning, outreach, engineering, funding identification, materials procurement, construction, and staff resource identification.
DocuSign Envelope ID: B7A35691-ADD7-4DED-AE47-5FAA97069149 3 Figure 2: Diagram of an Integrated Bicycle/Pedestrian Zone at a Bus Stop (MassDOT Separated Bike Lane Guide)
Source: Caltrans DIB-94
Bus Stop Designs Featuring Shared Bike/Bus Spaces
The following bikeway designs featuring shared bike and bus spaces were also discussed:
• Dashed standard bike lane shared with bus pull out area (current proposal for most stops - see Figure 3)
• Dashed standard bike lane with separated bus pull out area (current proposal for 1 stop) • Dashed buffered bike lane with separated bus pull out area Figure 3: Bus Stop in Standard Bike Lane with No Parking
Source: VTA Bus Stop & Passenger Facility Design Criteria and Standards (December 2020) Additional Strategies Considered
Below are several other design strategies and programs that were considered in addition to the above bus stop designs:
• Class I bikeway and signage (as needed) directing bicyclists to ride on sidewalk around bus stop.
This was not recommended after staff analysis documented in the next section.
DocuSign Envelope ID: B7A35691-ADD7-4DED-AE47-5FAA97069149 4 • On-street markings to clarify conflict areas and right-of-way for bicyclists and buses. This is recommended based on the discussion in the next section. • Relocate bus stops to locations with additional right-of-way that would allow for separated bike/bus design treatments. VTA recently rebalanced bus stops on ECR, so this would not be ideal.
• Educational materials and techniques for transit operators and bicycle educators to encourage safer interactions between buses and bicyclists. This is recommended below.
Assessment of Bus Stops along El Camino Real
Sidewalk Use
Palo Alto staff performed a qualitative assessment of the six high frequency bus stops to determine the feasibility of potential treatments to improve bike and bus interactions. One question to resolve was whether existing sidewalks could be used for both bicycle and pedestrian traffic when buses are stopped in the bike lane at bus stops. When buses block the bike lane, the sidewalk could potentially provide a safer alternative for cyclists than passing a bus on the left in the adjacent travel lane. Potential conflicts with pedestrians could occur depending on sidewalk width, but these conflicts may be less severe than potential bus/bike or car/bike conflicts if cyclists or drivers make a mistake.
To safely support bus loading as well as bicycle and pedestrian traffic, adjacent sidewalks would need to accommodate a bus landing of 5 feet wide by 8 feet deep plus a 10’ sidewalk clearance, for a total width of 18 feet. The results of this bus stop analysis are in Table 1, which includes the following:
• the average number of buses per day that use that stop • average number of boardings/alightings per day
• presence of a concrete bus pad at the stop
• estimate of the sidewalk width adjacent to the stop
Table 1: Highest Frequency Bus Stops for Routes 22/522 – Riders, Bus Pads, Sidewalk Width
Staff found that none of the sidewalks adjacent to the high frequency bus stops meet standards for bus loading and Class 1 bike facilities. Only two of the high frequency bus stops have greater than 10 feet clearances that could accommodate both cyclists and pedestrians. However, when space for wheelchair landing area is taken into account, these stops do not meet the threshold widths needed for safe mixed bicycle and pedestrian use under Caltrans and VTA standards. Moreover, the sidewalk widths leading up to the bus stop areas are generally not wide enough to support mixed bicycle and pedestrian traffic.
DocuSign Envelope ID: B7A35691-ADD7-4DED-AE47-5FAA97069149 5 On-Street Markings
Bus/bike interaction designs should make bicyclists and bus operators feel more comfortable about sharing the road with one another, mostly by knowing where to expect each other. See Figures 4 and 5 below for suggested green paint markings, “Bike Bus Only” labels, and “Bike Yield” markings that may have following benefits:
• Make it clear to bus operators and cyclists who has the right-of-way when conflicts occur (i.e., yield markings in bike lane indicates priority for buses and delineates space for cyclists to stop and wait for buses to load/unload passengers)
• Encourage cyclists to wait behind buses, keeping them out of the travel lane and off the sidewalks
• Reinforce that this space is for bicyclists and uses only, which could deter private vehicle loading/unloading activity that may occur
Staff Recommendations
Following the meeting with Caltrans, City staff and VTA staff reviewed the range of bus stop treatments discussed above and noted that the following strategies could be available within the current Caltrans project to enhance the safety of the shared bus stop/bike lane areas:
• Incorporate on-street green markings at bus stopping areas with “Bike Bus Only” labels (see Figure 4 for example)
• Include “Bike Yield” markings in bike lanes (see Figure 5 for example) • Implement an educational campaign on how to safely use the shared bike lane/bus stop area • If possible, relocate bus stops to locations with additional right-of-way that would allow for desired bike/bus design treatments
Figure 4: Example of Bus Stop at Class IV Separated Bikeway in Hayward
Source: Caltrans DIB-94
DocuSign Envelope ID: B7A35691-ADD7-4DED-AE47-5FAA97069149 6 Figure 5: D iagram of B us Stop Mixing from the FHWA Separated Bike Lane Planning and Design Guide Source: Caltrans DIB-94
Next Steps
Based on the discussion above, City staff and VTA staff suggest the following as key next steps:
• Prior to finalizing striping plans, City and VTA staff to coordinate with Caltrans on incorporating clear, consistent, and gap-free roadway markings and signage (as needed) into bikeway design, considering the potential bus stop treatments and strategies discussed above • Prior to finalizing striping plans, City staff and VTA staff to assess the feasibility of relocating bus stops to locations with additional right-of-way that would allow for desired bike/bus design treatments
• Prior to repaving completion, City staff and VTA staff to coordinate with Caltrans, Silicon Valley Bicycle Coalition (SVBC), and other relevant stakeholders to develop educational materials and techniques for transit operators and bicycle educators to encourage safer interactions between buses and bicyclists
• In the coming months once resources and staff are identified, City staff and VTA staff to coordinate with Caltrans on a bus boarding island pilot on El Camino Real in Palo Alto outside of the current Caltrans project
Attachments
Attachment 1: VTA Boardings for Palo Alto Bus Stops along El Camino Real (October 2023) Attachment 2: VTA Daily Number of Stops at Palo Alto Bus Stops along El Camino Real DocuSign Envelope ID: B7A35691-ADD7-4DED-AE47-5FAA97069149 VTA Data: Boardings by Bus Stop on El Camino Real in Palo Alto stopid stop_di on_name at_name oct2023_boardings
60331 E EL CAMINO REAL SAM MCDONALD 3.61
60339 E EL CAMINO REAL BARRON 21.26
60337 E EL CAMINO REAL HANSEN 38.09
60340 E EL CAMINO REAL LOS ROBLES 25
60335 E EL CAMINO REAL CALIFORNIA 186.21
60330 S EL CAMINO REAL GALVEZ 97.62
60341 E EL CAMINO REAL VISTA 15.92
60518 N EL CAMINO REAL WELLS 0.67
60511 W EL CAMINO REAL PAGE MILL 20.36
60514 W EL CAMINO REAL PARK 2.36
60508 W EL CAMINO REAL CURTNER 21.83
60343 E EL CAMINO REAL ARASTRADERO 69.97
60327 S EL CAMINO REAL STANFORD SHOP 4.8
60510 W EL CAMINO REAL PORTAGE 7.49
60507 W EL CAMINO REAL EL CAMINO WAY 21
60516 W EL CAMINO REAL SAM MCDONALD 0.12
60515 W EL CAMINO REAL CHURCHILL 0.5
60513 W EL CAMINO REAL STANFORD 3.81
60504 W EL CAMINO REAL CHARLESTON 33.25
60338 E EL CAMINO REAL MATADERO 10.57
60509 W EL CAMINO REAL MARGARITA 12.58
60342 E EL CAMINO REAL MAYBELL 10.72
60503 W EL CAMINO REAL Dianhs Court 8.61
60336 E EL CAMINO REAL PAGE MILL 40.79
60333 E EL CAMINO REAL SERRA 20.84
60505 W EL CAMINO REAL EL CAMINO WAY 11.9
60332 E EL CAMINO REAL CHURCHILL 7.48
60512 W EL CAMINO REAL CALIFORNIA 56.73
60329 S EL CAMINO REAL PALM 26.29
60517 N EL CAMINO REAL EMBARCADERO 10.26
60334 E EL CAMINO REAL OXFORD 9.93
Attachment 1
DocuSign Envelope ID: B7A35691-ADD7-4DED-AE47-5FAA97069149 VTA Data: Daily number of stops at ECR stops
LOCATION
Cross Street Weekday Saturday Sunday
EL CAMINO + CALIFORNIA
EAST 59 48.4 45.4
WEST 56.
9 49.8 43.6
EL CAMINO + EMBARCADERO
WEST 42.19 30.2 26
EL CAMINO + ARASTRADERO
EAST 40.81 24.6 26.4
EL CAMINO + CHARLESTON
WEST 38.29 29.6 29.8
EL CAMINO + GALVEZ
EAST 33.81 25 23.8
EL CAMINO + PAGE MILL
EAST 17.19 9.2 9
WEST 22.48 12 10
EL CAMINO + EL CAMINO WAY / LOS ROBLES
WEST 19.48 17.8 17.4
EL CAMINO + CURTNER
WEST 17.95 19.2 17.2
EL CAMINO + HANSEN
EAST 17.05 8.4 8.4
EL CAMINO + LOS ROBLES
EAST 16.19 16 14
EL CAMINO + BARRON
EAST 16 13 13.2
EL CAMINO + DINAHS CT
EAST 7 5.4 5.6
WEST 9 9.2 8.2
EL CAMINO + CESANO
WEST 13.1 10.4 8.8
EL CAMINO + PORTAGE
WEST 11.62 8.2 5.6
EL CAMINO + MARGARITA
WEST 11.29 9.4 7.8
EL CAMINO + VISTA
EAST 10.67 10.4 8.6
EL CAMINO + EL CAMINO WAY / MAYBELL
WEST 10.48 9 6.4
EL CAMINO + MATADERO
EAST 10.29 8.2 7
EL CAMINO + MAYBELL
EAST 10 4.8 5.8
EL CAMINO + WELLS
WEST 8.86 8.4 6.6
EL CAMINO + OXFORD
EAST 8.38 8.4 8.4
EL CAMINO + PARK
WEST 7.86 8.4 5.4
EL CAMINO + STANFORD
WEST 6.81 8.8 6.6
EL CAMINO + PALM
EAST 6.81 4.6 3.2
EL CAMINO + SERRA
EAST 6.19 5
.8 6
EL CAMINO + CHURCHILL
EAST 2.9
2 .4 2.6
WEST 3.1 3.4 2.8
EL CAMINO + SAM MCDONALD
EAST 1.05 1.4 1
WEST 1.38 2 0.2
Average # of buses per day
Attachment 2
DocuSign Envelope ID: B7A35691-ADD7-4DED-AE47-5FAA97069149