City Council Memorandum
TO: HONORABLE MAYOR AND CITY COUNCIL DATE: OCTOBER 20, 2026 FROM: PUBLIC WORKS DEPARTMENT WARD: 5 SUBJECT: CONSIDERATION OF REPAYMENT OF GRANT FUNDS FOR MADISON STREET AND EMERALD STREET HAWK SIGNAL REMOVAL - SUPPLEMENTAL APPROPRIATION ISSUE:
Consideration of repayment of grant funds up to $217,991 to California Department of Transportation (Caltrans) for the reversion of High-Intensity Activated Crosswalk (HAWK) signal operations at Madison Street and Emerald Street to all-way stop control and approve supplemental appropriation.
RECOMMENDATION:
That the City Council:
Authorize Option A
Direct staff to continue implementing minor signing/striping and signal timing modifications as needed at Madison Street and Emerald Street; and Return to Council with traffic studies and recommendations in 2 years; or Authorize Option B
Authorize the Public Works Department to issue repayment of grant funds up to $217,991 to Caltrans to proceed with reversion of HAWK signal operation at Madison Street and Emerald Street back to all-way stop control; and With at least five affirmative votes, authorize the Chief Financial Officer, or designee, to record a supplemental appropriation in the amount of $264,961 in the Measure A Fund, HAWK Signals Project expenditure account from Measure A available fund balance.
BACKGROUND:
In 2018, the Public Works Department was awarded the Federal Highway Administration’s Highway Safety Improvement Program (HSIP) Cycle VII grant funding for select projects aimed at achieving significant reductions in traffic fatalities and serious injuries on public roadways.
The HSIP-funded project consisted of the removal of all-way stop control at the intersection of Madison Street and Emerald Street and installation of a HAWK signal in response to pedestrian-involved injury collisions at the intersection.
In May of 2023, the HAWK signal was installed at the intersection of Madison Street and Emerald Street. While the signal was initially supported by the community, residents expressed concerns of indecisive driver behavior due to unique intersection geometry and unfamiliarity with HAWK signal operations.
On December 3, 2025, staff brought the recommendation of a 12-month pilot project to prohibit through and left-turn movements at the eastbound and westbound approaches to the intersection of Madison Street and Emerald Street to the Transportation Board for consideration. Four members of the Casa Blanca Community Action Group (CAG) spoke during public comment and opposed city staff’s recommendation. After a thorough discussion, the Board ultimately voted 6-2 in favor of staff’s recommendation.
On January 27, 2026, staff recommended City Council approve the 12-month pilot project to prohibit through and left-turn movements at the eastbound and westbound approaches to the intersection of Madison Street and Emerald Street. Following discussion, City Council requested staff return after further community engagement.
On June 10, 2026, staff returned to CAG to share updates with the community. CAG maintained a desire to revert the HAWK signal at Madison Street and Emerald Street back to all-way stop control. Staff shared that any major alterations to the existing HAWK system would necessitate a return of grant funds to Caltrans up to $217,991 and require City Council approval.
DISCUSSION:
The Madison Street crossings are highly traveled by residents completing trips to the nearby Casa Blanca Library, Villegas Park & Community Center, nearby places of worship, and the Public Utilities building. The intersection of Madison Street and Emerald Street includes a combination of offset side street geometry, a single central crossing, and HAWK signal operations. HAWK signals have been approved for use in California since 2012, and there are several installed across the City.
The Casa Blanca Community Action Group (CAG) has furnished a letter (Attachment 3) requesting reversion of the HAWK signal at Madison Street and Emerald Street back to all-way stop control while taking advantage of the existing signal infrastructure in place to preserve an enhanced overhead traffic indication.
In their letter, the CAG states, “The reason for this request, is that several residents have been complaining since this was first installed years ago, that this system is confusing to use and results in numerous close calls both when driving a vehicle and/or walking across that intersection. When this HAWK system grant was applied for, CAG was initially supportive. While the city explained the pedestrian safety benefits of the HAWK system, it became apparent right away that the HAWK operations were confusing to both drivers and pedestrians. Despite the City’s efforts to educate the community on HAWK system operation, the community still experiences indecisive driver behavior, which leads to many near-miss collisions.” The Public Works Department coordinated with Caltrans to discuss steps necessary to revert the Madison Street and Emerald Street intersection back to all-way stop control. Because the project was grant-funded to address the specific traffic concern of pedestrian safety while crossing, the City must show the improvement is not working as intended. Public Works must also justify that the proposed conversion of the HAWK to a different kind of traffic control device is warranted and justified.
Caltrans typically views HAWK signals as an enhancement for pedestrians because the device requires a mandatory stop for a lengthier period than an all-way stop.
Initial project documentation shared with Caltrans indicated that while the construction bid line item associated with the HAWK signal totaled $217,991.00, costs limited to signal equipment totaled $177,991.00. Caltrans has requested Public Works to justify this reduction in cost with documentation. There may be an opportunity to justify further reducing the cost owed back to Caltrans because Public Works is intending to repurpose the existing signal poles, mast arms, overhead signs and signal indications for an enhanced all-way stop. Furthermore, Public Works can make the argument that the existing infrastructure may also be repurposed in the future as a potential traffic signal if warranted.
Traffic Counts
To allow for data-driven evaluation of the HAWK-controlled intersection performance, the Public Works Department has conducted traffic studies. The purpose of these studies is to assess what is the most appropriate traffic control device for the intersections being discussed. Studies included traditional counts including the following:
Intersection Turning Movement Counts
Average Daily Traffic Counts
Pedestrian and Bicycle Counts
Traffic counts indicate that the intersection does not currently meet the necessary vehicular or pedestrian volume warrants for a traffic signal, all-way stop, or HAWK control; however, the intersection in question was posted as an all-way stop for approximately ten years prior to the installation of the HAWK control, and it would be appropriate to replace the stop control if the HAWK control were to be removed.
In August 2026, Public Works further analyzed vehicular stopping rates and rates in which vehicles proceeded on flashing red as shown on Table 1 below:
Table 1 – Vehicular Stopping Rates and Rate of Vehicles Proceeding on Flashing Red Intersection
Vehicular Stopping Rate
Rate of Vehicles Proceeding on Flashing Red
Madison Street and Emerald Street
81%
19%
Data shows that most vehicles come to a complete stop when a pedestrian is crossing Madison Street. Some vehicles may have proceeded on flashing red, but oftentimes the pedestrian had already finished crossing Madison Street. There were zero near-miss collisions noted during the observation period.
Collision Data
The Public Works Department analyzed the collision history at the intersection. For the three years prior to the HAWK signal installations, there were a total of 4 reported collisions at Madison Street and Emerald Street. In the three years since the HAWK signal was installed, there have been 0 reported collisions.
Despite public safety concerns regarding HAWK operations, total collisions have decreased since the HAWK signal has been installed.
However, the Community Action Group has continued to express concerns regarding the location as evidenced and detailed in the attached letter and staff recognize the importance of discussing these community sentiments (Attachment 3).
Ongoing Improvements
Since being notified of the community concerns, the Public Works Department has initiated improvements to enhance safety at the intersection.
Public Works recently upgraded signage at the intersection with clearer messaging to motorists. Guidance from the California Manual on Uniform Traffic Control Devices allowed the use of new regulatory signage to be used at HAWK intersections. The signage directs motorists to “Stop on Red. Yield on Flashing Red After Stop.” This is anticipated to provide enhanced information to motorists.
Public Works also recently implemented signal timing improvements. The new operation places a fixed delay between pedestrian “walk” activations. This serves to eliminate multiple consecutive pedestrian crossings across Madison Street, leading to excessive vehicular queuing and driver frustration. It also is anticipated to consolidate pedestrians to cross in larger groups, rather than individually, leading to higher visibility.
Under the recently awarded Bid No. 8221, the Fiscal Year 2025/2026 SB-1 Maintenance and Traffic Improvements Project, the existing “no left turn” activated blank-out signs will be upgraded at the intersection to restrict all turning movements while the HAWK signal is activated. This is anticipated to increase right-turning driver yielding compliance to pedestrians in the crosswalk, as well as reducing left-turning right-of-way violations during the pedestrian activation phase.
There are additional future improvements which the Public Works Department can make to address operational and safety needs at the intersections along Madison Street. One measure would be to install communications between the signalized intersection at Lincoln Avenue and Madison Street and the HAWK signals at Emerald and Freda. Under current conditions, without communications, long vehicular queues can be generated due to frequent pedestrian crossings occurring at staggered times. A coordinated timing plan could be set up to optimize traffic flow along Madison Street to ensure minimal traffic interruptions. Funding for this improvement would be identified at a later date.
Future Studies
The Public Works Department intends to continue studying the performance at the intersection of Madison Street and Emerald Street, including the traditional traffic counts, collision analysis, and specialized driver behavior counts.
FISCAL IMPACT:
The fiscal impact selecting Option A would be absorbed by Streets Maintenance operating accounts and would have no fiscal impact.
If Option B is authorized, the total fiscal impact of this action is estimated at $264,961. A supplemental appropriation will be recorded in the Measure A Fund, HAWK Signals Project account number 9893629-440313, from available fund balance as shown in Table 3 below. From these funds, a repayment amount of $217,991 would be issued to Caltrans. The cost to convert the HAWK signal to an all-way stop is estimated to total $46,970. The work to procure and install equipment would be paid through existing signal maintenance operating accounts.
Table 2. Option B - Project Costs
Item
Estimated Cost
Return Grant Funds to Caltrans
$217,991
Convert Madison Street and Emerald Street to All-Way Stop $46,970
Total Expenditures:
$264,961
Table 3. Option B - Supplemental Appropriation
Fund
Project
Account
Amount
Measure A
HAWK Signals Project
9893629-440313
$264,961
Prepared by: Brett Craig, Principal Engineer
Approved by: Nathan Mustafa, Public Works Director
Certified as to
availability of funds: Julie Nemes, Finance Director
Approved by: Kris Martinez, Assistant City Manager
Approved as to form: James Johnson, City Attorney
Attachments:
Location Map
Caltrans Correspondence
HAWK Signal Removal Request Letter
Presentation
City Council Memorandum – Consideration of Repayment of Grant Funds for Madison Street and Emerald Street HAWK Signal Removal · Page 2