Pedestrian Crossing Guidelines

Transcription

1 Pedestrian Crossing Guidelines April 2008 (Revised 2014) Traffic Division, Engineering Department City of Kingston

2 Introduction & Background In recent years, City Council and numerous members of the public have expressed their desire for guidelines that would facilitate an increase in the number of legal pedestrian crossings throughout the City. In accordance with the Highway Traffic Act of Ontario, pedestrians in the Province of Ontario do not have the right-of-way over vehicles at locations where vehicles are not controlled by any of the following: traffic signals, intersection pedestrian signals, mid-block pedestrian signals, pedestrian crossovers, stop signs or school crossing guards. Since it is not practical to install some form of vehicular control at all locations where pedestrians cross, it is a challenge for municipalities in Ontario to provide pedestrian crossings at locations with relatively low pedestrian volumes. These Pedestrian Crossing Guidelines were developed in order to provide direction with respect to the installation of pedestrian crossings in the City. Pedestrian Facilities There are a variety of traffic controls that can be implemented to facilitate pedestrian crossings. The following pedestrian facilities are reviewed in detail in this section. Marked and Signed Crosswalks at uncontrolled locations Courtesy Crossings Pedestrian Crossovers (PXO s) Intersection Pedestrian Signals (IPS) Mid-Block Pedestrian Signals Full Traffic Control Signals As part of these guidelines, only Full Traffic Control Signals, Mid-Block Pedestrian Signals and Courtesy Crossings may be considered for installation in the City. For reasons outlined in the summary below, Intersection Pedestrian Signals (IPS), Pedestrian Crossovers (PXO s) and Marked and Signed Crosswalks at uncontrolled locations, will not be recommended for installation in Kingston. Marked and Signed Crosswalks at Uncontrolled Locations It is important when reviewing pedestrian policy to acknowledge that the Province of Ontario is unique with respect to other provinces in Canada. As part of research completed by itrans Consulting for the City in 2003, the Highway Traffic 2

3 Acts (HTA s) of all 10 provinces were reviewed in order to obtain information about pedestrian rights across Canada at non-vehicular controlled locations. This research determined that each provincial HTA contains clauses stating that a driver must yield the right-of-way to a pedestrian who is crossing the roadway within a crosswalk. While the location may or may not be a non-vehicular controlled location, six provinces (British Columbia, Saskatchewan, Manitoba, Prince Edward Island, New Brunswick and Newfoundland) explicitly identify these rights to govern crossing locations where traffic control signals are not in place or not in operation. Other provinces (Alberta, Quebec and Nova Scotia) do not explicitly state that the location must be signalized, but laws regulating pedestrian rights may still be applicable to locations without signals. In Ontario by contrast, under Clause 144 (7), the pedestrian s right-of-way is stipulated only under the section for traffic control signals and pedestrian control signals. Similar rights are stipulated under the pedestrian crossover section (overhead pedestrian flashers), but these are not applicable at non-vehicular controlled locations. Since the laws within the Highway Traffic Act of Ontario take precedence over any local by-law, municipalities are unable to develop by-laws that provide pedestrians with the right-of-way at locations with no vehicular traffic control. Furthermore, to install crosswalks at non-vehicular controlled locations throughout the City could create potential safety issues since pedestrians could mistakenly believe that they have the right-of-way. The crosswalk configuration shown in Figure 1 is common throughout Canada with the exception of Ontario. This type of pedestrian crossing is not a legal crosswalk within the Province since the black and white regulatory signage shown in the photo is not recognized within Ontario s HTA at an uncontrolled crossing. Even if the provincial Highway Traffic Act was amended to provide the right-ofway for pedestrians at non-vehicular controlled locations, there is concern that the aggressive motorist attitude towards pedestrians in Ontario is so engrained that it would be difficult to change. Without tremendous education, enforcement and support from the Province and all municipalities, there is a risk that marked and signed crosswalks at non-vehicular locations in Ontario could provide pedestrians with a false sense of security. For the above-noted reasons, the City will not support the installation of signed and marked crosswalks at locations where vehicles are not 3

4 controlled by any of the following: traffic signals, intersection pedestrian signals, mid-block pedestrian signals, pedestrian crossovers, stop signs or school crossing guards with the exception of at Courtesy Crossings where specialized markings and signage maybe installed. Figure 1 Marked and signed crosswalk at an uncontrolled location (Halifax, N.S.) Courtesy Crossings Since 2002, the City of Kingston has been completing research in order to determine how pedestrians can be accommodated at non-vehicular controlled locations. Throughout the course of this research, it was determined that in Ontario, the City of Belleville, the Town of Perth, the Town of Bancroft and the Municipality of Dysart have installed a limited number of Courtesy Crossings for pedestrians. As shown in Figure 2, these crossings are marked with oversized yellow flourescent warning signs that state COURTESY CROSSING along with a large black X. The City of Kingston installed its first Courtesy Crossing as a pilot project in 2003 on Rideau Street, and a second Courtesy Crossing on King Street in front of the Kingston General Hospital in In accordance with the Highway Traffic Act of Ontario, pedestrians still do not have the right-of-way over vehicles while in a Courtesy Crossing. So that pedestrians did not gain a false sense of security, signs were posted that stated, Caution - Vehicles Not Required to Stop. This 4

5 sign is shown in Figure 3. These signs were installed such that they were not visible to motorists. Figure 2 Courtesy Crossing (Rideau Street) Figure 3 Vehicles not required to stop sign In order to assess the effectiveness of the Courtesy Crossings, detailed Before and After Studies were completed. The studies indicated that a significantly higher number of motorists yielded to pedestrians after the Courtesy Crossings 5

6 were installed. Prior to the installation of the Rideau Street Courtesy Crossing, an average of only 22% of motorists yielded to pedestrians at the crossing. After the Courtesy Crossing was installed, the percent of motorists yielding increased to 55%. Prior to the installation of the King Street Courtesy Crossing, pedestrians crossed in front of the hospital at various unmarked locations and only 4% of motorists yielded to pedestrians. After the Courtesy Crossing was installed, the majority of pedestrian movements shifted to the marked crossing and the percent of motorists yielding increased to 44%. The Courtesy Crossing Pilot Projects on Rideau Street and on King Street demonstrated that these marked crossings have been effective at significantly increasing the percentage of motorists that stop for pedestrians Revision: In order to standardize crosswalk markings and to prepare for a potential change to pedestrian crosswalks within the Highway Traffic Act of Ontario, the City has been marking all Courtesy Crossings with white ladder-type crosswalk markings since The cost to install a Courtesy Crossing is approximately $5,000 per location. (2014 Revision) For the above noted reasons, Courtesy Crossings, with white ladder-type pavement markings and oversized fluorescent signs may be recommended for installation in Kingston. Pedestrian Crossovers (PXO) Pedestrian crossovers are designated areas that allow pedestrians to cross roads where standard traffic or pedestrian signals are not present. Pedestrians must push a button to activate the overhead flashing beacons. A photograph of a PXO is shown in Figure 4. Motorists are required by law to stop when the amber beacons are flashing but only when pedestrians are in the same lane or about to enter the same lane as the approaching vehicle. If pedestrians are in the far lane, motorists can proceed through the crosswalk with caution. Pedestrian crossovers have been problematic in some municipalities in Ontario since many pedestrians and motorists do not readily understand these devices as they are not universally applied across North America. There have been many instances of motorists not stopping at all for pedestrians, and it is common for 6

7 pedestrians to cross without activating the lights. Municipalities such as the City of Ottawa have replaced all PXO s with Intersection or Mid-block Pedestrian Signals, which are more easily understood. The Region of Durham has replaced most of their PXO s with pedestrian signals as well. For the above-noted reasons, Pedestrian Crossovers (PXO s) are not recommended for installation in Kingston. Figure 4 - Pedestrian Crossover (PXO) Intersection Pedestrian Signals (IPS) & Full Traffic Control Signals An Intersection Pedestrian Signal (IPS), also known as a half signal, is a traffic signal designed solely to assist pedestrians in safely crossing a major roadway. An Intersection Pedestrian Signal legally regulates the traffic on the main street only. Vehicles approaching an intersection from the side street are controlled by stop signs. A photograph of an IPS is shown in Figure 5. 7

8 Figure 5 - Photograph of Intersection Pedestrian Signal (IPS) Pedestrians must push a button to activate the walk indication which is then followed by the typical flashing red hand display. Motorists on the major roadway, facing the traffic signals, must obey the signal displays as at any other type of traffic signal. Motorists on the side street must stop at the stop sign as at any stop controlled intersection. After coming to a complete stop, motorists are permitted to turn onto the major roadway only when it is clear and safe to do so, yielding the right-ofway to pedestrians crossing the main street, pedestrians crossing the side street as well as vehicles travelling along the major street. Intersection Pedestrian Signals are relatively common in Canada but are not utilized in the City of Toronto or in the United States. These jurisdictions install pedestrian signals at mid-block locations only. Since the stop control on the side street can be confusing for motorists when combined with signal control on the major street, Intersection Pedestrian Signals will not be considered further as a pedestrian crossing option in Kingston. If pedestrian signals are required at an intersection, full traffic control signals may be installed. The function of a full traffic control signal is to alternate the right-of-way between conflicting streams of vehicular traffic or vehicular traffic and pedestrians crossing a roadway, with maximum efficiency and safety. As part of the City s Pedestrian 8

9 Crossing Guidelines, a full traffic control signal would consist of signal heads in all directions for vehicles in addition to pedestrian fixtures and crosswalks. The cost to install a full traffic control signal is currently between $180,000 and (2014 Update) $220,000. For the above noted reasons, Intersection Pedestrian Signals will not be considered as a pedestrian crossing option in Kingston. If pedestrian signals are required at an intersection, full traffic control signals may be installed. Mid-Block Pedestrian Signals Since Mid-Block Pedestrian Signals are installed between intersections, side street traffic is a non-issue. As with an IPS, pedestrians must push a button to activate the walk indication and motorists on the roadway are subject to the same regulations as at any full traffic signal. Mid-Block pedestrian signals provide the legal right-of-way to pedestrians and are effective and easily understood by both pedestrians and motorists. The cost to install a Mid-Block Pedestrian Signal is approximately $150,000. Mid-Block Pedestrian Signals may be considered for pedestrian crossings at non- intersection locations. Guidelines for the Installation of Pedestrian Facilities The following guidelines are to be utilized to determine where traffic signals for pedestrians (full or mid-block) or Courtesy Crossings could be installed in the City. (Updated 2014) Since the City now uses Miovision video cameras to conduct traffic counts, children and seniors count for one pedestrian unit each within the total pedestrian count as opposed to two pedestrian units each. Traffic Division staff will however use engineering judgement for areas with numerous children or seniors crossing in order to determine the most appropriate type of pedestrian facility. Table 1 provides an example of how a specific location would be assessed for a traffic signal for a pedestrian while Table 2 provides a sample assessment for a Courtesy Crossing. Traffic Signals for pedestrians (full or mid-block) 9

10 Pedestrian volume is greater than an average of 80 per hour over the peak 6 hours of the day. If adjacent to a school, pedestrian volume is greater than an average of 80 per hour over the peak 3 hours of the day Vehicle volume is greater than 15,000 vehicles per day Connecting sidewalks must be present Two-lane or four-lane roadway Operating speed (85 th percentile speed) is greater than 60 km/h No other traffic control device within 200 metres Courtesy Crossings Pedestrian volume is greater than an average of 50 per hour over the peak 6 hours of the day. If adjacent to a secondary school*, pedestrian volume is greater than an average of 50 per hour over the peak 3 hours of the day Average annual daily traffic volumes are between 3500 and 15,000 Connecting sidewalks must be present Two-lane roadway only (one lane in each direction) Operating speed (85th percentile speed) is less than 60 km/h Good sight distance No other traffic control device within 200 metres Can be located mid-block or at intersections Asphalt must be in good condition such that thermoplastic inlaid crosswalk markings can be installed *Note: Courtesy Crossings should not be installed adjacent to elementary schools since young children may be more apt to gain a false sense of security and mistakenly believe that they have the right-of-way over vehicles. At locations where high numbers of young children are crossing, a traffic signal or a crossing guard may be more appropriate. 10

11 Table 1 Assessment for Pedestrian Signal Sample Location: Sir John A Macdonald Blvd & Elmwood Street Note: a pedestrian signal was installed here in 2002 Actual Required* Condition Met Pedestrian Volume (average/h) Yes Vehicle Volume (AADT) 22,200 15,000 Yes Vehicle Speed (km/h) 63 greater than 60 Yes Number of Lanes 4 2 or 4 Yes Sidewalks Present Yes Yes* Yes Traffic Control within 200 metres Yes No No 5 Conditions met Recommendation install pedestrian signal These conditions must be met for safety-related reasons. 11

12 Table 2 Assessment for Courtesy Crossing Sample Location: King Street at Kingston General Hospital Note: a Courtesy Crossing was installed here in 2003 Actual Required* Condition Met Pedestrian Volume (average/h) Yes Vehicle Volume (AADT) 12,000 between 3500 Yes and 15,000* Vehicle Speed (km/h) 51 less than 60* Yes Number of Lanes 2 2* Yes Sidewalks Present Yes Yes* Yes Traffic Control within 200 metres Yes No No Sight Distance Good Good* Yes Pavement condition Good new or good* Yes 7 Conditions met Recommendation- Install courtesy crossing *These conditions must be met for safety-related reasons. 12

13 The Engineering Department currently maintains a list of locations where upgraded pedestrian facilities could be considered. This list has been compiled based on requests from members of the public, Councillors, City staff and school boards. Traffic Division staff will continue to add locations to this list that meet the criteria on a request basis. The Pedestrian Crossing Guidelines will be utilized to assess and rank locations for potential pedestrian upgrades so that pedestrian facilities could be installed as budget permits. Traffic Division staff will continue to maintain a list of locations for future pedestrian crossings and will add locations that meet the criteria on a request basis. The City s Pedestrian Crossing Guidelines will be utilized to assess and rank locations and pedestrian facilities may be installed as work schedules and budget permits. Conclusions In recent years, City Council and numerous members of the public have expressed their desire for guidelines that would facilitate an increase in the number of legal pedestrian crossings throughout the City. In accordance with the Highway Traffic Act of Ontario, pedestrians in the Province of Ontario do not have the right-of-way over vehicles at locations where vehicles are not controlled by any of the following: traffic signals, intersection pedestrian signals, mid-block pedestrian signals, pedestrian crossovers, stop signs or school crossing guards. Since it is not practical to install some form of vehicular control at all locations where pedestrians cross, it is a challenge for municipalities in Ontario to provide pedestrian crossings at locations with relatively low pedestrian volumes. These Pedestrian Crossing Guidelines were developed in order to provide direction with respect to the installation of pedestrian crossings in the City. As part of the Guidelines, Full Traffic Signals, Mid-Block Pedestrian Signals and Courtesy Crossings may be considered for installation. In order to determine where and what type of pedestrian facility should be installed, factors such as pedestrian volumes, vehicle volumes, vehicle speeds, number of lanes, sight distance, presence of sidewalks and distance to nearest controlled crossings will be considered for each proposed location. Pedestrian volumes at some locations may not meet the minimum guidelines due to the lack of an existing appropriate pedestrian crossing. It is therefore important that professional engineering judgement be utilized along with the guidelines to determine whether or not an improved pedestrian facility is appropriate at a particular location. 13

14 The following summarizes the City of Kingston s Pedestrian Crossing Guidelines: The City will not support the installation of signed and marked crosswalks at locations where vehicles are not controlled by any of the following: traffic signals, intersection pedestrian signals, mid-block pedestrian signals, pedestrian crossovers, stop signs or school crossing guards with the exception of at Courtesy Crossings where specialized markings and signage may be installed. Courtesy Crossings, with white ladder-type pavement markings and oversized fluorescent warning signs may be recommended for installation in Kingston. Pedestrian Crossovers (PXO s) are not recommended for installation in Kingston. Intersection Pedestrian Signals (IPS) are not recommended as a pedestrian crossing option in Kingston. If pedestrian signals are required at an intersection, full traffic signals may be installed. Mid-Block Pedestrian Signals may be considered for pedestrian crossings at non-intersection locations. Traffic Division staff will continue to maintain a list of locations for future pedestrian crossings and will add locations that meet the criteria on a request basis. The City s Pedestrian Crossing Guidelines will be utilized to assess and rank locations and pedestrian facilities may be installed as work schedules and budget permits. 14