Minutes

SAFETY ADVISORY AND TRANSPORTATION COMMITTEE The Safety Advisory and Transportation Committee Meeting was held on September 25, 2013, at 5:00 p.m. with Councilman Perza presiding in the absence of Chairman Hutchison. Members present were Mr. Davis and Mr. Keller. Mr. Dixon was absent. Mayor Carey (departed at 5:32 p.m.) was also present. AGENDA ADDITIONS/DELETIONS Mr. Keller moved for approval of the agenda, seconded by Mr. Davis and unanimously carried. Dover High School Construction Update Mrs. Ann Marie Townshend, Director of Planning and Community Development, reminded members that monthly coordination meetings with the Capital School District (the District) were continuing and had been very successful, with the next meeting scheduled for September 26, 2013. The meetings had been attended by representatives of the District, City and State agencies, and recently included the engineer from the Leander Lakes subdivision project. Mrs. Townshend reviewed a map depicting the layout of the New Dover High School Project (Attachment #1). Mrs. Townshend reminded members that concerns had been relayed by the District regarding the availability of funds and the District had indicated a possible need to re-evaluate whether they could construct the east entrance, as previously planned. She stated that last week she had attended a meeting of the Capital School Board where an update on school construction was provided by EDiS, the building contractor, and ABHA, the architect. Mrs. Townshend stated that the site plan had been approved, a request for a parking reduction had been submitted, and a public hearing had been scheduled for the Planning Commission on October 21, 2013. She indicated that the plan was to reserve areas for parking in the future rather than build the parking lots at this time. In addition, EDIS and ABHA would be providing an overview of the project similar to that provided to the Capital School Board last week. She noted that there were several issues that the District wished to present for possible revisions that would help to reduce costs, such as the number of tennis courts, seating capacity in the stadium, etc. Mrs. Townshend stated that the issue of greatest interest to the City was the east entrance to the school and she assured members that the District was aware of the City’s concerns regarding this matter. Should the District wish to eliminate the east entrance, she stated that they would be required to submit the request to the Planning Commission for a public hearing. At this time, there was no indication that the District would not move forward with construction of the east entrance. She assured members that staff would meet with the Delaware Department of Transportation (DelDOT) to discuss the functionality of the intersection and reminded members that the City had discussed the possibility of revisiting the entrance design to be reduced to “right in/right out.” Mrs. Townshend stated that all other construction on site was proceeding as planned. She stated that she would advise members of the action taken by the Planning Commission when they consider the parking request during their meeting in October.

SAFETY ADVISORY AND TRANSPORTATION COMMITTEE MEETING OF SEPTEMBER 25, 2013 PAGE 2 Mr. Davis noted that the east entrance was planned to accommodate bus traffic and that the west entrance was planned to accommodate vehicular traffic. According to a recent newspaper article, he stated that the road on the west entrance was augmented as a necessity by DelDOT, which is why the monies were not available for the east entrance. Responding, Mrs. Townshend stated that Leander Lakes submitted the apartment complex site plan before the new high school plan was submitted; however, due to the economy, construction by Leander Lakes slowed. To her recollection, the roadway was originally planned to be a 24’ - 26’ wide City street. With the addition of the school project, there was discussion as to how the road would be redesigned, and the initial conceptual design of the road by Leander Lakes did not meet the needs to serve both properties. As a result, the design of the roadway was widened in order to serve both properties. She noted that there were additional concerns regarding the connection to Tribbitt Street and connecting through Cannon Mill. As a result, it was decided to bring the connector road all the way through to Hazlettville Road, and, at that time, it was determined that the road would serve as a regional connector road. As such, it then became a DelDOT road which would be built to DelDOT standards. She was not aware of the cost difference between construction as a DelDOT road versus a City road. Responding to Mr. Davis, Mrs. Townshend explained that after the connector road was determined to be a DelDOT road, the District entered into an agreement which specified that the District would be responsible for designing and building the entrance and the road down to the school’s points of access, and Leander Lakes would pay for the additional section of the road. According to the agreement, construction must be complete by May 2014. The design, as prepared by Landmark Engineering, the engineers for Leander Lakes, had been submitted to DelDOT, who had submitted comments. The intent was to have the design finalized by the end of the year in order for construction to begin shortly after the first of the year. In addition, Mrs. Townshend noted that DelDOT was responsible for the design and installation of the HAWK signal and was paying for approximately $700,000 in sidewalk improvements on the north side of Route 8. Therefore, she assured members that DelDOT had a share of the responsibilities for the completion of this project. Ms. Karen Nickerson, 24 Stoney Drive, Heatherfield, requested additional information regarding the road that would travel through Cannon Mills. She relayed concerns that such a road would provide additional traffic on Route 8. Responding, Mrs. Townshend explained that the intent was for the road to improve traffic conditions. She stated that staff’s concern, and the reason that the interconnection was urged, was that there were over 900 units in both Cannon Mill and Village of Westover, with several of these units containing children who would attend the new school. She explained that it was assumed that some of these children would drive to school rather than walk, and without the interconnection it would be necessary for them to utilize Hazlettville Road, either Artis Drive or Mifflin Road, and Route 8 in order to access the school. She stated that since the road would not be a direct route through the subdivision, it was not anticipated that it would be utilized as a “pass through,” like Mifflin Road and Artis Drive. Ms. Nickerson explained her concern regarding the current difficulty in leaving the subdivision due to traffic. Residents were previously advised that the traffic signal at Mifflin Road would help; however, she stated that this had not provided relief. Responding, Mrs. Townshend noted that an additional traffic signal would be installed and, with signal timing, she felt that those concerns would be addressed.

SAFETY ADVISORY AND TRANSPORTATION COMMITTEE MEETING OF SEPTEMBER 25, 2013 PAGE 3 In response to Mr. Keller regarding whether current traffic information was analyzed, it was Mrs. Townshend’s recollection that DelDOT utilized information from the 2008 Route 8 Study in reviewing the traffic plan. Mr. Mark Luszcz, representative of DelDOT, stated that a report was received in 2011 from the District’s engineer which included a justification for the proposed traffic signal at the west entrance and that this report would have contained updated traffic counts. Mr. Les Blakeman, 209 Falmouth Way, Cranberry Run, questioned if the roadway extension would eventually travel to Hazlettville Road. Responding, Mrs. Townshend stated that although this continued to be a part of the plan, it had not been “pushed out” by DelDOT and there was no funding associated with this project. In addition, she stated that the property owner did not necessarily want to sell the right-of-way; therefore, there were several obstacles that would need to be overcome before the extension could come to fruition. Mr. Ray Paylor, 10 Yarmouth Way, Cranberry Run, stated that his property was located directly across from the new Dover High School. He questioned if there was an estimated date for the construction of the apartment complex by Leander Lakes. Responding, Mrs. Townshend stated that the City recently received comments from the Kent Conservation District relating to the stormwater review for the project. At the current pace, she estimated that construction would begin in a year. No further action was taken. Presentation on the High-Intensity Activated crossWalK (HAWK) Signal (Delaware Department of Transportation) Mr. Mark Luszcz, Chief Traffic Engineer for the Delaware Department of Transportation (DelDOT), and Mr. Steve Brown, Project Development - Road Design for DelDOT, introduced themselves and reviewed a Presentation - Route 8 & Heatherfield Way: Pedestrian Hybrid Beacon (Attachment #2). Mr. Luszcz explained that the traffic control device known as the HAWK, (High-intensity Activated crossWalK) is officially called a Pedestrian Hybrid Beacon. He indicated that the device was not a full traffic signal nor a beacon, which would be a constant flashing yellow light or a red signal ahead when flashing, but served as a hybrid of these two (2) devices. Mr. Luszcz indicated that the HAWK is used to safely control pedestrian and vehicular traffic in locations where there is a moderate to high volume of both pedestrians and vehicles in instances where a full traffic signal is not justified. He stated that many years of research had been performed to determine when a full operating traffic signal should be utilized. He explained that when a full traffic signal is utilized but not justified (based on certain criteria), negative results occur, such as accidents, unacceptable and unnecessary delays, etc. He stated that, according to the analyses of the Capital School District (the District) and DelDOT, based on the traffic and expected pedestrian volume criteria, a full traffic signal was not warranted at the east entrance of the new Dover High School (the school) at this time; however, a full traffic signal was warranted at the west entrance. He noted that the criteria could change in the future. Mr. Luszcz explained that the HAWK signal would be installed at the intersection of Route 8 and Heatherfield Way, near the proposed east entrance of the school, which was scheduled to open in the Fall of 2014. He explained that a HAWK signal would remain normally dark for vehicular traffic

SAFETY ADVISORY AND TRANSPORTATION COMMITTEE MEETING OF SEPTEMBER 25, 2013 PAGE 4 and is activated when a pedestrian presses the activation button, much like at a crosswalk at a regular traffic signal. He stated that, once activated, the HAWK signal goes through stages to stop traffic long enough for the pedestrian to safely cross the street. Once the pedestrian crosses, traffic resumes as normal and the HAWK signal resets itself for future activation. Members reviewed a video depicting proper and improper use of a HAWK signal located in Newark. Referring to the video, Mr. Brett Martine, Traffic Engineer with DelDOT, suggested the possibility of placing an article in a local newspaper and including some type of narrative to the presentation to provide an explanation on proper utilization of the HAWK signal. Mr. Luszcz offered to take whatever action necessary to inform the public, indicating that DelDOT took extensive measures with public outreach in Newark when the signal was installed; however, there was no cooperation with the media, explaining that a press conference was held and no one attended, nor was there newspaper coverage of any kind regarding the information. Mr. Jeff Brown of the Dover Post offered to include a link on the newspaper’s website directing the public to DelDOT to obtain information on the HAWK signal. In response to Mr. Perza regarding whether any special legislation should be enacted in relation to the HAWK signal since there was no other such device being utilized in Delaware with the exception of Newark, Mr. Luszcz suggested that this be discussed with the Dover Police Department. If the City were to request some type of legislation to address violations in connection with the device, DelDOT could offer assistance. In addition, Mrs. Townshend suggested that the District become involved and introduce students to the device and how it functions. Ms. Ann Alexander, 15 Stoney Drive, Heatherfield, suggested the possibility of using a camera at the intersection. Responding, Mr. Luszcz stated that cameras installed for red light enforcement are placed in locations based on a very regimented, State-wide, data-driven prioritization system (based on accidents, etc.). He stated that DelDOT utilizes traffic monitoring cameras, which are not recorded, and that surveillance cameras were not installed by DelDOT. Mrs. Townshend confirmed that the City had installed surveillance cameras in the downtown area. Responding to Mr. Les Blakeman, 209 Falmouth Way, Cranberry Run, regarding concerns of out-of-town visitors, particularly during NASCAR weekend, Mr. Luszcz assured members that message boards, as well as permanent signage, would be erected to notify drivers of the new signal. Consideration would be given to erecting message boards specifically for race weekend. In response to Mr. Davis, Mr. Luszcz advised members that the portion of Route 8 adjacent to the school was not considered a “school zone;” therefore, no signage would be erected indicating such, nor would there be a reduction in speed limit. He stated that there was no evidence that drivers react to speed limit signs, explaining that traffic does not change speed based on the speed limit but rather the surrounding environment (main arterial road, rural area, vacant land, etc.). Should the area develop and traffic increase, this would adjust the speed of traffic in the area. Mr. Davis suggested that this matter be further considered by the Committee in the future, noting his opinion that this portion of Route 8 should be a designated school zone.

SAFETY ADVISORY AND TRANSPORTATION COMMITTEE MEETING OF SEPTEMBER 25, 2013 PAGE 5 Mr. Perza referred to other areas in the City where crossing guards control the traffic signal, allowing pedestrians to cross roadways, and questioned if the HAWK signal could be used in a similar manner. Responding, Mr. Luszcz stated opposition, explaining that DelDOT was making a concerted effort in New Castle County to eliminate the use of crossing guards for controlling traffic signals, with plans for elimination throughout the State. Noting that crossing guards “do a great job,” he indicated that they are not professionally trained and that they actually cause more safety and operational problems than they solve. Responding to Mr. Perza, Mr. Luszcz stated that the HAWK signal had been designed so that it could potentially be converted to a full traffic signal if it met that justification, based on a future traffic study. He explained that the current actions being taken were based on projected pedestrian and vehicular traffic numbers. Mr. Luszcz indicated that it would be the State’s financial responsibility to make such changes in the future. He felt confident that the school, City, and State, would be monitoring the intersections and if there were significant issues, DelDOT staff would conduct an updated traffic study. Ms. Karen Nickerson, 24 Stoney Drive, Heatherfield, relayed concern that the children living in Cranberry Run who were attending school would not walk down to Heatherfield East to cross over to the school. Responding, Mr. Luszcz stated that Route 8 should not be crossed without the assistance of a traffic signal; however, DelDOT had no control over the actions individuals would take in this regard. At the request of Mrs. Townshend, Mr. Bruce Ashby, Transportation Supervisor for the District, stated that it was anticipated that the students residing in Cranberry Run, Heatherfield, and off Route 8 down to the traffic signal at Dover-Kenton Road, such as the apartments in the area, Mallard Pond, etc. would be walking to school. It had been estimated that this would consist of approximately 100 students. Responding to Mrs. Townshend, Mr. Luszcz stated that a crosswalk at the west entrance was not currently in the plans. Noting that there were no sidewalks, Mrs. Townshend questioned if there would be more compliance with using the signals to cross Route 8, particularly for those students who reside in Cranberry Run, if they could cross at the west entrance. Mr. Ashby indicated that it would be a shorter distance for students from Cranberry Run to walk to the east intersection than the west intersection. Mr. Martine stated that, in addition to working for DelDOT, he also served as the President of the Cranberry Run Homeowners Association. He advised members that since sidewalk had not been installed all the way down to the west intersection, it was anticipated that the students would do some type of diagonal crossing. He felt that consideration of any type of connection down to the west entrance may be more accommodating than to have a “backtrack” situation. Responding, Mr. Luszcz felt that, although it would not be difficult to retrofit the west entrance to include a crosswalk, it was not currently included in the plans.

SAFETY ADVISORY AND TRANSPORTATION COMMITTEE MEETING OF SEPTEMBER 25, 2013 PAGE 6 Mr. Steve Brown advised members that DelDOT was currently tasked to install sidewalks only from Marsh Creek connecting to the existing sidewalk in Heatherfield and then on the west side of Stoney Drive to Cranberry Run. He stated that a five-foot (5’) sidewalk, hugging the curb, would be installed, weaving in and out for mailboxes and utility poles. He stated that DelDOT was tasked to have these sidewalks installed in order to get students safely from those developments to the HAWK signal. Mr. Blakeman referred to an “S” shaped sidewalk from Route 8 to the front door of the school, which he felt would encourage students to cross at the appropriate location. Responding, Mrs. Townshend stated that this sidewalk had not yet been constructed and suggested that it be re-evaluated. Mr. Perza noted that Delaware State University had a wall erected across their facility along Route 13 and questioned the possibility of erecting a wall or fence to deter students from crossing Route 8. In response to Ms. Alexander’s concerns regarding the traffic flow in the area, Mrs. Townshend stated that the entire function of the west intersection would be evaluated. Responding to Ms. Dorothy Adams, 102 Falmouth Way, Cranberry Run, Mr. Luszcz stated that a presentation and a mock demonstration of the HAWK signal had been provided to students in Newark and he offered to do the same or similar for the students at the new High School. Ms. Adams advised members that there was not a right turn lane into Cranberry Run, noting that there was a lane present but that there was a white line which discouraged crossing. When turning into Cranberry Run, she stated that vehicles pass using the lane for oncoming traffic. She relayed concern that this may cause a bad accident and questioned the possibility of a turn lane being installed. Responding, Mr. Martine, indicated his opinion that the recent street resurfacing in front the subdivision, provided a great opportunity for the addition of a turn lane. However, he explained that the guidelines for a turn lane stipulate the accommodation for a bike lane as well, and with the additional 4 foot bike lane, the roadway in front of Cranberry Run was 1 foot, 6 inches shy of the correct layout. He stated that, after examining the matter, the only recommendation was to possibly increase the shoulder from 8.5 feet. He stated that there was a 12 foot gore area (the yellow marking in the center of the roadway), which provides a neutral space for vehicles traveling west to pass turning vehicles, but he highly recommended that all motorists use the shoulder when turning into the subdivision, to allow vehicles to pass. In response to concerns of Mr. Sam Adams, 102 Falmouth Way, Cranberry Run, Mr. Luszcz indicated that when there is a single white line, vehicles are discouraged from crossing over; however, it is permitted. He explained that when there is a double white line, vehicles are prohibited from crossing over. Mr. Ray Paylor, 10 Yarmouth Way, Cranberry Run, advised members of an incident whereby he was given a warning by a Camden Police Officer for making a right turn from the shoulder, explaining that there was a vehicle in front of him stopped to make a left and he wanted to make a right, so he went around the vehicle on the shoulder and turned. Responding, Mr. Martine could not explain the

SAFETY ADVISORY AND TRANSPORTATION COMMITTEE MEETING OF SEPTEMBER 25, 2013 PAGE 7 Police Officer’s position since there was only one (1) vehicle being “passed,” explaining that if more than one (1) vehicle had been passed and the shoulder was used to advance, he would better understand the situation. He assured members that, in accordance with the governing publications utilized by traffic engineers, such a movement is legal. He again encouraged the use of the shoulder for residents turning into Cranberry Run. Mrs. Townshend personally thanked Mr. Luszcz, Mr. Brown, and Mr. Jim Satterfield from DelDOT for all of their work and diligence in working with the City and the District on this project. Mr. Perza thanked everyone for their participation at this meeting. Mr. Davis moved for adjournment, seconded by Mr. Keller and unanimously carried. Meeting adjourned at 6:12 p.m. Adam M. Perza Acting Chairman AMP/JS/jg/dd/tm S:\AGENDAS-MINUTES-PACKETS\Committee-Minutes\2013\09-25-2013 SA&T.wpd Attachments Attachment #1 - Map Depicting the Layout of the New Dover High School Project Attachment #2 - Presentation - Route 8 & Heatherfield Way: Pedestrian Hybrid Beacon

ATTACHMENT #1 SA&T Committee Meeting of 09/25/2013 SA&T Committee Meeting of 09/25/2013 ATTACHMENT #1

ATTACHMENT #2 SA&T Committee Meeting of 09/25/2013 Mark Luszcz, P.E., PTOE DelDOT Chief Traffic Engineer Presentation to: Dover Safety Advisory & Transportation Committee SA&T Committee Meeting of 09/25/2013 September 25, 2013 ATTACHMENT #2

 What?  Why?  Delaware Experience

 Also known as a HAWK: High-Intensity Activated Crosswalk  Invented in Tucson, AZ  Successfully tested for over 10 years  Adopted by FHWA in 2010  Goal: safely control pedestrian and vehicular traffic, where there is a moderate to high volume of both pedestrians and vehicles, but a full traffic signal is not justified

 Full traffic signal not justified  High pedestrian traffic expected  High speeds and traffic volume on SR 8  Use of western access traffic signal not feasible: ◦ No sidewalk ◦ Unreasonably far from pedestrian routes  FHWA PHB criteria met

Dover High School Plan Full traffic Pedestrian signal Hybrid Beacon

 Route 72 & Farm/Webb Lane  Southeast side of Newark  Serves UD Agricultural Building  Installed in August 2010

Pedestrian Hybrid Beacon

 Much lower compliance than expected led to: ◦ Continued monitoring ◦ In depth study (including National Expert) ◦ Targeted police enforcement ◦ Several modifications:  Reduced sign clutter  Installed overhead ped warning signs  Added backplates  Added roadway lighting  Installed supplemental beacons  Re-striped for separate left-turn lanes  Problems related to high speeds, curve, low ped volumes  Compliance improved but not ideal

Original Installation Route 72 & Farm/Webb Lane

Current PHB Route 72 & Farm/Webb Lane

Mark Luszcz, P.E., PTOE Delaware Department of Transportation Chief Traffic Engineer (302) 659-4062 mark.luszcz@state.de.us