Administrative
Report
M.1., File # 23-6053 Meeting Date: 5/16/2023
To: MAYOR AND CITY COUNCIL
From: GREG KAPOVICH, DIRECTOR OF WATERFRONT & ECONOMIC DEVELOPMENT TITLE
DISCUSSION AND POSSIBLE ACTION REGARDING SAFETY MEASURES FOR BIKES AND
PEDESTRIANS AT THE PIER
EXECUTIVE SUMMARY
This report provides an opportunity to review existing safety measures in place for bikes and pedestrians at the pier and identify possible improvements. Currently, the rules in place require cyclists to walk their bikes through the pier area at all times. Pursuant to Municipal Code 12-2.07, bicycle riding is prohibited on any portion of any pier, wharf, public area, parking structure or Cityowned property where posted. While City Council can identify specific areas to post signage to prohibit bicycle riding by adopting a resolution, the process to identify and post signage is generally left to staff. There are numerous existing signs in place notifying cyclists of the rule at the pier. The City Council and Harbor Commission have requested a follow-up report, as well as a discussion, to review the potential easing of the required walk-bike rule during non-busy hours.
BACKGROUND
The pier is a popular attraction for locals and tourists alike, and it attracts a large number of pedestrians as well as cyclists. A bike lane runs along the coastal area and through the Pier area and connects Redondo Beach with neighboring cities. Section 12-2.07 of the Redondo Beach Municipal Code (RBMC) prohibits bicycle riding where signs are posted identifying the prohibition.
Placement of signs to prohibit specific areas are left to staff after considering safety issues, accident history and specific physical constraints unique to areas such as sharp turns or steep inclines or areas where pedestrian/vehicle/bicycle conflicts exist. The current system requires cyclists to walk their bikes through a designated area of the pier at all times. This section runs from the south of the pier to the north section of the parking structure below pier plaza.
A comprehensive report was completed in 2016, which made a number of recommendations to improve safety at the Pier. The report noted that some cyclists ignore the signs and continue to ride through the pier, often endangering pedestrians or putting themselves at risk to slip and fall on any wet surfaces along the turns in the path. Additionally, a series of blind turns could pose a risk to both cyclists and pedestrians. For these reasons, staff from the Police Department and Public Works Department concluded that the Pier area remained a safety concern and the general prohibition of bicycles in the area continued to date. The study also recommended changes in signage to improve the messaging of the rules. The pier area includes signs that contain flashing beacon lights. If the beacon lights are flashing, then cyclists are required to disembark and walk the bicycle. Given that the existing rules and regulations in place require cyclists to walk the bicycle at all times, the beacon lights on the sign are always flashing. The 2016 report did explore the idea of setting the flashing Page 1 of 5 M.1., File # 23-6053 Meeting Date: 5/16/2023
lights on the sign are always flashing. The 2016 report did explore the idea of setting the flashing lights for the walk bike sign on a timer and not enforcing the rule during certain hours when the area has limited or no pedestrian activity. However, feedback from the Police Department at that time indicated the current system requiring cyclists to walk their bikes through the pier area on a full-time basis is necessary to maximize safety and minimize accidents, so the full-time prohibition remained in effect, and is still in effect currently.
Other recommendations related to signage were made by staff in the 2016 report to help address some of the issues surrounding the signage and enforcement of this part of the pier including additional paint modifications, bike path markings and general pedestrian warning signs. A number of these signage recommendations were later implemented and have been in place since that time.
After careful consideration at the April 10, 2023 Harbor Commission meeting, the Harbor Commission recommends lifting the prohibition along the portion of the bike path within the parking structure, thus allowing bicycle riding, and in the alterative focusing on enforcing the existing advisory 5 mph speed limit throughout the area as a mechanism to control speed and improve safety in the area. The Commission determined that the portion of the bike lane within the parking structure already adequately separates pedestrians from the bike lane with large chains, with the exception of several designated pedestrian crossing points, which are clearly marked. The Commission identified bicycle speed as the leading concern for conflict in this area, which could lead to an increase in slippage and a decrease in reaction time to navigate the marked pedestrian crossing points. In addition to speed enforcement, they further suggested adding non-slip material at strategic locations along the path to further reduce slippage for riders. They also recommend additional signage at various eye levels to help improve visibility and awareness of the shared space to both pedestrian and bicyclist user groups. In addition, they recommend placement of stop signs within the drive-aisles of the parking structure that cross the bike lane to ensure drivers are more aware of the conflict point.
The Harbor Commission identified a section of the pier area south of the parking structure that contains more points of conflict between vehicles, pedestrians, and bicyclists and recommends shifting the bike prohibition area to this southern area of the pier on a part-time basis. They recommend the prohibition be in effect on weekends/holidays from 9am to 10pm and during approved special events. They recommend the installation of flashing lights on a timer to indicate when the bicycle prohibition is in effect, as well as placement of permanent barriers to induce bicyclists to dismount and walk during peak hours and as a mechanism to provide separation between user groups.
M.1., File # 23-6053 Meeting Date: 5/16/2023
A view of the south pier area identified by Harbor Commission Please note that, typically, a traffic and circulation discussion is also presented to the Public Works and Sustainability Commission for feedback and recommendations to the City Council.
Staff does agree with many of the Harbor Commission’s recommendations to the City Council. First, staff agrees that the south pier area has the highest potential for conflict between cyclists and pedestrians, particularly from the restrooms to a plaza area just south of the pier. Staff also agrees that some form of physical barrier is needed within this area to help prompt bike riders to dismount in this high traffic area. Additional research is needed to determine what types of barriers would be appropriate, as this area has different slopes and surfaces. Any barriers would need to be both pedestrian friendly and ADA compliant. Likewise, staff agrees with the Harbor Commission recommendation to update signage for pedestrians/bicyclists/vehicles as appropriate, as well as adding any necessary paint along the path to further improve the visual separation of pedestrians and bicyclists.
Furthermore, staff agrees that it is possible to lift the prohibition along the bike path north of the restrooms and through the parking structure. It should be noted that the existing posted signs indicating the 5 mph speed limit on the portion of the bike lane within the parking structure is a “recommended” speed advisory and not an official maximum limit as defined by the California Vehicle Code. The difference between a speed advisory and a speed limit is that a maximum speed limit is supported by an engineering and traffic (E&T) study that takes into consideration traffic volume (pedestrians, vehicles, bicycles) and roadway design before setting an appropriate speed limit.
Speed limits supported by such a study can be enforced by the Police Department via citations with use of electronic devices, i.e. Lidar, as are used to enforce vehicular speeds on roadways.
Alternatively, the existing advisory speed signs provide guidance to the bicycle rider of a safe speed and police personnel can only warn bicyclists to slow down with no ability to issue citations.
The existing prohibition of bicycle riding is codified in the RBMC making the prohibition enforceable and giving the Police Department the ability to issue citations/fines should they catch a cyclist riding in the prohibited area. Lifting the prohibition, and not having an E&T survey supported speed limit would leave our Police Department staff with limited ability to enforce bicyclists riding in the area.
While City Council can direct staff to perform such a study, the study may result in a speed limit higher than the current 5 mph advisory limit in place now. Jurisdictions wishing to enforce speed
M.1., File # 23-6053 Meeting Date: 5/16/2023
higher than the current 5 mph advisory limit in place now. Jurisdictions wishing to enforce speed limits via citation/fine must follow the established maximum speed limit supported by the E&T study.
Staff does recommend lifting the prohibition in this area, however, instead of enforcing safety via the speed limit, staff recommends placement of yield signs at the “S-curve” located within the parking garage. Yield signs are enforceable via citation just as any traffic related sign/signal. Bicyclists would be required to yield to pedestrians when present but could proceed with caution when pedestrians are not present. Additionally, placement of yield signs would leave Police personnel with the authority to issue citations should bicyclists fail to yield or if they cross the area in an unsafe manner. Staff also recommends the placement of non-slick material on the surface of the bike lane in this area to further reduce the risk of bicycle slippage at times when yielding to pedestrians is not necessary. Public Works personnel are researching materials that can be installed in this area to increase traction.
Staff also agrees with the Harbor Commission that the existing signage needs to be upgraded. This would include the introduction of yield signs within the bike lane, as well as stop signs at any driveaisle within the parking structure that crosses the bike path. It also includes efforts to simplify and clarify to various user groups the appropriate rules and regulations including the placement of signs at various eye levels to fully capture the attention of both cyclists and pedestrians.
In conclusion, Harbor Commission and staff support lifting the prohibition north of the restrooms within the parking structure, clarifying paint/signage where appropriate, installing non-slip material at the “S-curve”, installing stop signs for vehicles where appropriate, shifting the prohibition to the area south of the restrooms and installing permanent barriers to encourage bicyclists to dismount in this area south of the restrooms. However, instead of enforcing the advisory speed limit, as proposed by the Harbor Commission, staff recommends placement of yield signs at the “S-curve,” requiring bicyclists to yield to pedestrians when present. In addition, staff recommends enforcement of the prohibition within the area south of the restrooms at all times, as opposed to the Commission’s recommendation for part-time prohibition.
COORDINATION
Waterfront and Economic Development staff worked with the Police and Public Works Departments to prepare this report.
FISCAL IMPACT
It is expected that there will be costs associated with adding or removing signage, paint, and handrails, as well as installing new physical barriers for the purposes of traffic calming. There will also be costs associated with installing a timer system for the lights. An accurate estimate of these costs will be possible when the type and extent of safety measures to be implemented is directed by Council.
APPROVED BY:
Mike Witzansky, City Manager
ATTACHMENTS
M.1., File # 23-6053 Meeting Date: 5/16/2023
· Map - Pier Parking Structure
· Letter - Improvements to Bicycle Path in Pier Parking Lot Area from Jim Light & Jim Hannon