A. Introduction: In their ongoing effort to provide for safe travel and livable neighborhoods, the Ogden City administration has developed a traffic management program to address citizen requests for more orderly traffic through residential areas. The program is intended to provide citizens a process by which complaints regarding traffic related issues could be investigated for a range of possible solutions. As discussed in the program, the range of solutions could include new signs and pavement markings through a variety of reconstruction options and road closures. Each request will be evaluated on the basis of need and available resources.
B. Traffic Management: Traffic can be described as fitting into one of two (2) categories; either local traffic or commuter traffic. Local traffic is that group of motorists that have destinations in the local area. For example, trips to and from the neighborhood market, school, or work may be considered local traffic on the streets that are around the destination. Traffic on the street in front of the local elementary school may experience heavier traffic volumes in the mornings when parents drive their children to school. Those types of trips are considered local traffic. Travel from one end of town to the other, or travel outside the region is by way of streets and highways designed to carry higher volumes of traffic at higher travel speeds. Trips in and out of the immediate area are considered commuter traffic.
Streets are categorized by the type of traffic they are designed to accommodate. These categories are called "functional classifications". The functional classifications are defined as follows:
1. Freeways provide for rapid and efficient movement of large volumes of through traffic between regions and across the region. Freeways do not provide direct access to adjacent property. In the Ogden area I-15, I-80 and I-84 are examples of freeways.
2. Arterials provide for through traffic movement between regions and across the city with direct access to adjacent properties. Access may be subject to control of entrances, exits, and curb use with frequent access being discouraged. Harrison Boulevard, Washington Boulevard and Riverdale Road are examples of arterials in Ogden.
3. Collectors provide for traffic movements between arterials and local streets, and provide direct access to adjacent properties. Monroe Boulevard, Lincoln Avenue and Shadow Valley Drive serve as collectors in Ogden.
4. Locals provide for direct access to abutting properties and destinations in the immediate area. They are generally residential in character and intended to have low traffic volumes and low travel speeds.
There are two (2) general types of street networks in Ogden. The central Ogden area is primarily made up of a grid network. The blocks are laid out in uniform parcels of squares and rectangles and the surrounding streets form a grid pattern. The advantage of this configuration is that it gives numerous alternatives for motorists to travel to and from their destination. The disadvantage to the grid pattern is that there is not a logical separation of local traffic and commuter traffic. In the hierarchy type of street network, traffic is more logically dispersed by trip type. Local trips can be made on local streets and commuter trips can be channeled to arterial streets by way of collectors. The hierarchy network does not provide as many travel options, but it does help reduce travel speeds and traffic volumes on local streets.
Traffic management depends greatly on streets being classified correctly according to their function, and that the proper traffic control devices are in place. Traffic control devices include signs, signals, and pavement markings. The "Manual On Uniform Traffic Control Devices" (MUTCD) sets the standards and guidelines for the shape, size, color, and placement of all traffic control devices. The MUTCD is a manual published by the federal highway administration which all public agencies are required by law to follow to help ensure nationwide uniformity in the use of traffic control devices. To be effective, a traffic control device should meet the following criteria:
Fulfill a need
Command attention
Convey a clear, simple message
Command respect of road users
Give adequate time for proper response
It is imperative that traffic control devices be restricted to their intended use. Temptation to use stop signs as speed control devices must be avoided. Misuse of traffic control devices can cause suspicion and disregard for road signs and markings, and diminish an agency's ability to act fairly and consistently when applying standards. As traffic studies are required for the traffic management program, they will be conducted in accordance with the standards established in the MUTCD.
C. Traffic Flow Characteristics: For the purposes of the traffic management program, traffic flow characteristics will primarily refer to travel speed, measured in miles per hour (mph), and traffic volume, measured in vehicles per day (vpd), or vehicles per hour (vph). Vehicles per day can sometimes be measured for several days to give an average annual daily traffic (AADT or ADT) for studies that look at typical daily traffic volumes. In order to determine if some special type of traffic management or traffic calming device is needed, it is important to understand what type of traffic characteristic is considered acceptable. If a local street is posted for twenty five (25) mph and the traffic study indicates that motorists are obeying the speed limit, measures that address excessive speed will not prove to be effective since speeding is not the problem. On the other hand, if the study indicates a much higher than expected traffic volume, then measures that move commuter traffic from the local street to a collector or arterial may resolve the concern. Since speeding on residential streets is a common complaint, how the city sets speed limits will be an important factor.
Setting the proper speed limit for a given street is based on several fundamental concepts:
1. The majority of motorists drive in a safe and reasonable manner.
2. The careful and competent action of a reasonable person should be considered legal.
3. Laws are established for the protection of the public and the regulation of unreasonable behavior of a few individuals.
4. Laws cannot be effectively enforced without the consent and voluntary compliance of the majority.
Speed limits are set as a guide for the driver who is unfamiliar with the road. A motorist, who drives a road every day, typically drives at a speed they feel comfortable with; making adjustments for unexpected incidents, congestion and weather. Setting realistic speed limits makes speed laws more enforceable because it makes a clear violation more obvious as the majority of the drivers obey the posted speed limit. It is a popular misconception that simply lowering the speed limit will reduce travel speeds. If the speed limit is properly set, it will reflect the speed at which the majority of drivers feel comfortable, and consider safe and reasonable. The majority is considered to be eighty five percent (85%) of the drivers, or what traffic engineers call the eighty fifth percentile speed. Out of every one hundred (100) motorists, it has been shown that eighty five (85) will drive in a safe and reasonable manner. With that in mind, speed limits are set at the eighty fifth percentile speed, or rounded down to the nearest five (5) mph increment. Studies have shown that there are no significant changes in the eighty fifth percentile speed following the posting of a revised speed limit. Posting speed limits that are lower than the eighty fifth percentile speed only serves to create an undue burden on law enforcement to continuously monitor travel speeds.
In addition to the eighty fifth percentile speed, the terrain, topography, roadside development, pedestrian activities, and street geometry are considered when setting speed limits. Any conditions that may not be readily apparent to the driver, including accident history, should be evaluated to determine if the predicted eighty fifth percentile speed might not reflect the driver's knowledge of the prevailing conditions. Taking all of this into consideration and determining that the eighty fifth percentile speed is the proper speed to post, fifteen percent (15%) of the drivers can be expected to violate the law. Every study the city has done shows drivers traveling at speeds in excess of the eighty fifth percentile speed. Even the most drastic traffic management measures will not capture the voluntary compliance of all motorists. There will always be a few drivers that will show total disregard for the posted speed limit. It would be unrealistic to expect the goal of a particular traffic management measure or strategy to result in one hundred percent (100%) compliance with the posted speed limit. Rather, the goal of the traffic management program will be to implement measures that will reduce speeds in problem areas, as determined by an engineering study, and separate local traffic from commuter traffic to the extent that it is practical to do so. The ultimate goal of the traffic management program is to help create neighborhoods that are livable and enjoy an acceptable quality of life by managing traffic on residential streets in a manner that is appropriate and indicative of the street's functional classification.
D. Applying For The Traffic Management Program: In many cases all that may be required to calm traffic will be the installation of speed limit signs or some other traffic control device. Many residential streets do not have speed limit signs because at the time the subdivision was created there was not enough traffic to warrant the installation of speed limit signs. As the surrounding area grows and develops, travel patterns may cause an increase in traffic on what was a quiet secluded street. It may be simply a matter of installing speed limit signs to remind motorists of the proper travel speed and also assist local authorities in enforcing the speed limit. Some cases may require a more detailed investigation to determine what measures to recommend to reduce travel speeds or traffic volumes. In all cases, application for a traffic management study may be made by contacting the Ogden City traffic engineer at one of the following:
• (801) 629-8992
• Ogden City Traffic Engineer
2549 Washington Boulevard, Suite 610
Ogden, UT 84401
A petition is not required for the initial application, however, other affected residents may be contacted for their input as part of the investigation. Once the request is received, an application form must be filled out by the citizen requesting the traffic management study. The form is available from the Ogden City traffic engineer. After the traffic engineer receives the completed form, a study will be scheduled to address the issues listed on the application form. Most studies will include measurements and traffic counts to determine existing travel speeds and traffic volumes. The study may include pedestrian counts, roadway measurements, and bicycle activities along the subject street. The data collection process will usually take about ten (10) days, but may require additional time if more detailed studies are necessary. Sufficient data will be collected to provide a score based upon the following criteria:
TRAFFIC MANAGEMENT PROGRAM SCORING CRITERIA
Travel Speed (MPH):
• Posted Speed Limit
• 25–35 = 10
• 30–40 = 5
• >40 = 0
• 85th Percentile Speed
• 25–30 = 0
• 30–40 = 5
• 40 = 10
• Average Travel Speed Measured
• 25–30 = 5
• 35–40 = 10
• >40 = 15
Traffic Volume:
• Average Daily Traffic (ADT)
• <1,000 ADT = 0
• 1,000–2,000 = 5
• 2,000–5,000 = 10
• 5,000–10,000 = 15
• >10,000 ADT = 0
• Vehicles Per Hour (VPH)
• 0–50 = 0
• 50–100 = 5
• 100–500 = 10
• 500–1,000 = 15
• >1,000 = 0
Sidewalks:
• Yes = 0
• No = 5
Major Generators In The Study Area (Traffic Or Pedestrian):
• Yes = 5
• No = 0
Bike Route:
• Yes = 5
• No = 0
Transit Service:
• Yes = 0
• No = 5
Functional Classification:
• Local = 10
• Collector = 5
• Arterial = 0
Accident History (3 Year Average):
• 0/year = 0
• 1–5/year = 5
• >5/year = 10
Topography/Roadway Geometrics:
• Flat = 0
• Hills = 5
• Straight = 0
• Curves = 5
• Sight distance deficiency = 5
School Route/Crossing:
• Yes = 5
• No = 0
Maximum Total Available = 125
Cutoff = 75
All requests will be evaluated on the basis of the above scoring. As noted, the worst case scenario would be to get the maximum available score in each category; one hundred twenty five (125) total points. In order to qualify for further consideration for traffic calming or traffic management measures, the request must receive a minimum of seventy five (75) points. Those requests that do not receive the minimum score of seventy five (75) points will be returned to the applicant noting that the request does not qualify for traffic calming or traffic management measures at this time. A follow up study may be requested by the applicant at a time to be determined by the traffic engineer, but not sooner than six (6) months from the date of the original request. The date of the follow up study may be determined in part on the basis of the total score compared to the minimum required or projected developments or other activities that may have an affect of future traffic in the area.
If the request receives a score of seventy five (75) or higher, the traffic engineer will meet with the applicant to arrange for a neighborhood meeting to review the study results and receive input on specific issues related to the request. The neighborhood meeting will be typically scheduled during normal working hours, but exceptions may be made to accommodate the neighborhood. The applicant and the traffic engineer will determine the meeting place.
During the neighborhood meeting, the range of traffic calming and traffic management measures will be presented to the attendees. Not all measures will be applicable or available for consideration in all cases. Those measures that are considered to have a low probability of success or that are beyond the funding capability of the program will not be given further consideration.
E. Traffic Calming/Traffic Management Measures: The following is a brief description of the physical measures that make up the traffic management program. These measures are the items that have been approved for implementation and may be available as applicable to reduce travel speeds or traffic volumes on streets that qualify. Not all of the measures are equally effective at speed control or volume reduction. The traffic engineer will determine which measure(s) will be most applicable to each case and present it (them) to the neighborhood for consideration.
1. Signs: Signs that notify drivers of conditions that may not be immediately obvious can help in making traffic flow more orderly. Speed limit signs, stop or yield signs, pedestrian crossings, warning signs for hills, curves or blind intersections can assist drivers in adjusting their speed to match travel conditions. Children at play signs are only permitted on public streets that are adjacent to designated play areas or parks. Reduced speed placards may be added to warning signs based upon the results of an engineering study. Stop signs and multiway stops will not be used for speed control devices. Multiway stops will only be permitted if the installation meets the minimum requirements in the MUTCD. All signs will be installed in accordance with the MUTCD and by the city sign shop or authorized contractor.
2. Pavement Markings: Pavement markings include centerline striping, bike lanes, shoulder stripes, stop bars, crosswalks, and all messages painted on the street surface. On unmarked streets, adding a centerline and/or shoulder stripes will narrow the travel lane and reduce the comfort level of drivers to travel at higher speeds. The marking may consist of paint, tape or thermoplastic applications. Current weather conditions or availability of specialized applications may delay the installation of pavement markings. All pavement markings will be installed in accordance with the MUTCD and by the city or authorized contractor.
3. Textured Pavement: Textured pavement includes treatments like stamped concrete, rumble strips, and raised pavement markings. Changing the surface of the pavement can add emphasis for advance warning at critical intersections, pedestrian crossings, or other areas where a driver attention to reduced speeds is desired.
4. Speed Humps: Speed humps will be considered only on local streets when signing, pavement markings, or textured pavement have proven to be ineffective at reducing travel speeds, and where the measured average travel speed is more than ten (10) mph over the posted speed limit. The location and spacing for speed humps will be based upon the results of an engineering study and as determined by the city traffic engineer. Streets that have speed humps may be subject to reduced maintenance activities such as sweeping, striping, and snow plowing. Prior to the construction of speed humps, all affected residents must unanimously agree to the installation.
5. Street Narrowing: Street narrowing can be an effective method to reduce travel speeds on local streets. The street is reconstructed and curb and gutter are placed in a way to physically reduce the street width. Where striping is proven ineffective, wide streets that invite higher travel speeds may be candidates for street narrowing. Adjacent property owners often end up with increased landscaping to maintain and on street parking may be eliminated. Typically, both sides of the street are treated equally for the entire length of the block, or some other logical segment.
6. Chokers, Curb Extensions, And Bulb-Outs: Chokers, curb extensions, and bulb-outs occur at the intersection, but can have the same calming effect as street narrowing. The intersection changes in curb alignment create a narrower approach to the block ahead and can cause drivers to lower their speed as they approach and pass through the intersection. The added advantage to reducing the width of the intersection is that the travel distance for pedestrians crossing the street is also reduced. In some cases it may be desirable to plant trees or landscaping in the bulb-out areas to give added emphasis to the treatment.
7. Entrance Islands, Center Medians: Entrance islands and center medians give a street character and create a sense of arrival for neighborhoods while reducing the travelway. Plantings or other appropriate features make the medians and islands more conspicuous and cause interest, which will slow drivers down. It is important that the treatment be designed in a way that will not interfere with a driver's view of pedestrians, bicyclists or oncoming traffic, and that the feature will not be a distraction to driver attention to the road.
8. Chicane: "Chicane" is a term that refers to slight changes in direction to lower travel speed. The term is used extensively in competitive sports like downhill skiing and bobsledding where speed reductions are necessary to safely maneuver through upcoming turns. In the case of traffic calming on streets, the curb line can be reconstructed in a way that will make a straight road appear to have curves. The driver will slow down to negotiate the curves. Chicanes are usually a series of two (2) to three (3) curb line deviations and can be spaced randomly to maintain the driver's attention.
9. Intersection Diverters, Street Closures: Intersection diverters and street closures will only be considered as a last resort and only on streets that are functionally classified as local. Where all other measured have failed or are considered to have a low probability of success, the city may consider closing a street or diverting traffic where traffic conditions are such that an immediate and imminent danger exists. City council approval is required for street closures, or traffic diversions that result in reduced ability to provide essential public services.
F. Program Funding: Once a request has been approved and the applicant and city have agreed upon a traffic calming method, a funding source must be identified for implementation. The city traffic engineer will prepare a detailed cost estimate and preliminary design for funding consideration. All requests must have an identified funding source approved and in place prior to design and construction of the project. Funding for projects may be available from the following sources:
1. Traffic management program funds may be set aside by the city council each year to form a pool for project funding. The city council may consider funding this program on a year to year basis during the budget process. An ordinance authorizing the city council to fund a pool for traffic management program projects will be required.
2. Capital improvement program (CIP) funds may be designated to fund traffic management program projects. Requests for projects to be included in the CIP must be submitted to the engineering division manager for consideration, and must be approved by the mayor and city council.
3. Neighborhood matching funds can be offered to accelerate the funding process. The higher the match percentage of neighborhood funds the greater the likelihood that a project will be funded with city sources. A cooperative agreement between the city and the neighborhood is required to ensure city funds are available and to outline the neighborhood responsibilities and payment process.
4. Community development block grants (CDBG) may be applied for by neighborhoods meeting the federal qualifications for CDBG funding. Application information can be obtained by contacting the neighborhood development division at 629-8941.
5. One hundred percent (100%) neighborhood funding can be offered to ensure the approved project is constructed. The amount must be adequate to fund the entire project including design, construction, inspection, and all other associated costs identified by the traffic engineer.
There may be other funding sources identified in the future. Projects will be prioritized according to their eligibility score and funding availability. (Eff. 3-14-2007)