This purpose of this report is to update the City Council on the ongoing reverse lane study conducted jointly by the Street Transportation department and the Arizona State University (ASU) Phoenix Urban Research Lab (PURL) and to seek direction on any next steps the City Council desires regarding reverse lanes.

THE ISSUE

In 2007, City Council requested staff to conduct a study of the reverse lanes. The technical study was conducted by the Street Transportation Department in collaboration with PURL, which completed the quality-of-life analysis. The study evaluated various aspects of the 7^th Avenue and 7^th Street reverse lanes, including an opinion survey of nearby residents, business merchants and motorists who use or are affected by the reverse lanes. The findings were presented to the City Council on October 7, 2008. The City Council then requested staff to study the effects of light rail operations on reverse lane traffic volumes and to survey neighborhoods in north Phoenix. The City Council also suggested several alternatives to the reverse lanes and asked staff to report back on the feasibility of these options before July. Revenue-generating options to pay for sign enhancements to improve safety and awareness were also identified and investigated. This report presents findings on these requests.

OTHER INFORMATION

Traffic counts on the reverse lane streets were recorded in November 2008, prior to light rail operations, and compared to 2009 traffic after light rail. The average traffic volume on 7^th Avenue and 7^th Street since light rail operations started has reduced approximately nine percent. The percentage of drivers using the reverse lanes was approximately the same before and after light rail opening. However, a weakened local economy has resulted in reduced traffic counts citywide - as much as 19 percent over the past four years. Therefore, the traffic has decreased an average of 28 percent on 7^th Avenue and 7^th Street over the last four years, but it is inconclusive as to whether traffic changes were due to light rail operations.

In its earlier research, PURL concluded that most respondents felt that sign upgrades and the addition of more left-turn opportunities would be beneficial. Their research also found that most individuals living near the reverse lanes would favor returning the lanes to normal two-way left turn lane operation.

At the October 7, 2008 City Council presentation, Council voted to install a pedestrian signal on 7^th Avenue at Glenrosa to assist pedestrians crossing 7^th Avenue. The type of pedestrian signal selected is an experimental device known as a High Intensity Activated CrossWalK (HAWK) beacon, which will allow pedestrians to cross 7^th Avenue on a protected “WALK” phase. The Street Transportation Department has completed the design of this device and construction is scheduled to begin this summer.

In April 2009, PURL conducted additional opinion surveys of residents from neighborhoods in zip codes with the highest reverse lane usage (north Phoenix). These zip codes extend from Glendale Avenue to Union Hills Drive and from I-17 to SR-51. Approximately 100 residents responded, and PURL reported the following results:

●	Residents in this area were more satisfied with the reverse lanes than other stakeholders surveyed.
●	About half felt that the lanes were safe.
●	Slightly more than half agreed that the lanes made travel quicker and about 40 percent thought the lanes did not improve local convenience.
●	A majority agreed that there would be more congestion if lanes were removed.
●	Seventy-five percent agreed that the operation of the lanes was clear.
●	This group strongly supported enforcement against drivers making illegal left turns at signalized intersections along the reverse lanes.
●	The group favored improvements to the reverse lane signs and more left-turn opportunities along each reverse lane street.

During the analysis of the reverse lanes, staff evaluated Council recommendations and other alternatives. The results of the evaluation of several options are presented below.

One suggestion was to convert the reverse lanes to toll lanes to generate revenues. In this scenario, reverse lanes would be reserved for drivers paying a toll. Toll lanes are commonly found on freeways and highways and are not normally used on city streets. A toll lane concept would need to be examined in more detail before an accurate cost estimate and business impact could be developed. Details to be addressed would include the types of technology available for toll payment, local or business access for non-toll users, and the possibility that additional right-of-way would be needed to make the lanes work safely and efficiently. The initial estimate for this type of conversion would be in excess of $1.5 million for just the signing and striping changes. Additional costs would be incurred to install the infrastructure needed for toll collections, vehicle detection, and operations.

A suggestion was also made to generate additional revenue for the city by removing the reverse lanes and replace existing overhead signs with commercial advertisements. The Federal Highway Administration (FHWA) currently prohibits placement of any non-traffic related signs, advertisements, and announcements within the right-of-way of a street. Advertisements are strictly prohibited under Section 1A.08 of the Manual on Uniform Traffic Control Devices, (MUTCD). The Street Transportation department does not recommend this option.

Another suggestion was to leave the reverse lanes in place, but add photo enforcement on 7^th Avenue and 7^th Street, and use the revenue generated to pay for upgraded signage. While photo enforcement along the reverse lanes may have a positive safety effect, there is no guarantee of revenue generation. The costs and fine structure of the current photo enforcement program make the program revenue neutral, which would limit the revenue available for signing upgrades. Although enhanced photo enforcement is permissible in the new contract, adding photo speed enforcement on the reverse lane streets, or any where else, would have to specifically be approved by Council.

The following options were proposed by staff at the October 7, 2008, Work Study Session or in follow up discussions. All options except for #1 would require adequate time and funding for a significant educational campaign to ensure safe conversion of street operations:

1.	Maintain Reverse Lane Configuration: This option provides the least amount of travel delay to motorists to central and downtown Phoenix. There is no cost for this option, except for routine maintenance.
2.	Permanently Eliminate 7^th Avenue and 7^th Street Reverse Lanes: Removing the reverse lanes provides better access and circulation to arterial streets, businesses and neighborhoods, but increases intersection and segment congestion for traffic and bus transit. Travel delays could increase by an estimated 50-90 percent. The cost would be approximately $835,000 to include removal of all ground and overhead signs, re-striping of the streets, installation of left-turn arrows and new signs.
3.	Keep Reverse Lanes and Modify by Adding Overhead Flashing Beacons or Lane Control Signals:
	a.	Add flashing beacons to existing overhead signs. There would be no increase in travel delays. The cost would be approximately $3,300,000 to retrofit existing overhead poles to add flashing beacons.
	b.	Add overhead lane-use control signs. There would be no increase in travel delays. The cost to implement is approximately $15,000,000 to add additional poles and electronic lane control indicators.
4.	Test Removal of Reverse Lane on 7^th Avenue for One Year: This option would allow the Street Transportation department to evaluate the effects that reverse lane removal has on mobility, congestion, and neighborhood livability after traffic adjusts to the new conditions. Travel delays would increase 70-90 percent. Estimated cost is approximately $100,000 to include temporary covers on all existing signs along the 7th Avenue reverse lane (assumes no installation of left-turn arrows).
5.	Test Removal of Reverse Lane on 7^th Street for One Year: This option would allow the Street Transportation department to evaluate the effects that reverse lane removal has on mobility, congestion, and neighborhood livability after traffic adjusts to the new conditions. Travel delays would increase 50 to 75 percent. Estimated cost is approximately $120,000. This includes temporary covers on all existing signs along the 7th Street reverse lane, which is one mile longer than 7^th Avenue (assumes no installation of left-turn arrows).
6.	End Reverse Lane on 7^th Avenue at Camelback Road: This option would require the reverse lanes to remain in place only for the northern three miles on 7^th Avenue. Abruptly eliminating the reverse lane decreases capacity along the high-volume segment of the street and reduces the overall effectiveness of the reverse lane. Truncating the reverse lane at Camelback Road would defeat the purpose of the reverse lane and add significant congestion and safety concerns at the Camelback intersection. Lane capacity in the segment south of Camelback Road would be reduced by 25 percent in the morning and by 33 percent in the afternoon. Cost would be $250,000 to include removal of all ground and overhead signs, re-striping of the streets, installation of left-turn arrows and new signs on 7^th Avenue south of Camelback Road.
7.	Remove Reverse Lanes and Make Other Modifications to Increase Peak Flow Capacity: Staff evaluated several alternative striping and/or signal configurations to maximize capacity, including the following:
	a.	Modify Lane Configurations: Change one of the current lane configurations to three southbound and two northbound lanes, with a two-way left-turn lane, either on 7^th Avenue or 7^th Street. The other street would remain three northbound/two southbound lane configurations with a new two-way left-turn lane. Travel delays would increase 50-75 percent. Cost would be $915,000 to include removal of all ground and overhead signs, re-striping of the streets, installation of left-turn arrows and new signs, rebuilding mast arms, and traffic signal modifications.
	b.	Left Turn Arrow Priority for Peak Flow Directions: Allow permissive left turns at all arterial intersections along route but activate extended protected-permissive (green ball and arrow) times for peak north/south directions only (southbound morning and northbound afternoon). The non-peak direction (e.g., southbound afternoon) would not get left-turn arrows, only the green ball. This option optimizes peak direction traffic flow, but there is more delay in the non-peak traffic flow direction. There is still considerable loss of capacity and increased travel delay. Travel delays would increase 40-75 percent. Cost would be $835,000 to include removal of all ground and overhead signs, re-striping of the streets, installation of left-turn arrows and new signs.
	c.	Increase Green Times for Northbound and Southbound Through Traffic: With reverse lanes removed, change signal timing to favor north-south traffic on 7^th Avenue and 7^th Street. This option would adversely impact east-west traffic capacity and efficiency. This would improve north south mobility but would make east-west travel times and delay longer over current conditions. Cost would be $835,000 to include removal of all ground and overhead signs, re-striping of the streets, installation of left-turn arrows and new signs.
	d.	Convert to One-way Couplet: Re-stripe 7^th Avenue and 7^th Street as one-way streets for northbound and southbound traffic. This option would require major infrastructure modifications and significant out-of-direction travel for residential and business traffic. One-way couplets are only effective for closely spaced parallel streets. 7^th Avenue and 7^th Street are too far apart (1 mile) for this option to be practical. Travel delays would increase because it would add significant out-of-direction travel for local access to businesses and residential. Cost would be in excess of $1,500,000 for removal of ground and overhead signs, re-striping of streets, rebuilding all traffic signals, and installation of new poles and signage.

A Public Safety Awareness Program will be necessary for any alternative that is a change from current conditions to ensure the transition will be as safe as possible. The cost associated with such an awareness program will depend on the elements included, however, staff estimates costs will be between $50,000 and $100,000.

The current budget does not include funding for implementation of these alternatives. Funds would have to be identified in the existing Street Transportation Department program of projects.

RECOMMENDATION

Based on considerations of cost and traffic capacity, the Street Transportation Department recommends Option 1, maintaining reverse lane operations as is. Staff will continue to explore ways to mitigate any adverse traffic impacts caused by the existing reverse lanes. If City Council chooses other options, staff will identify and research reasonable and cost-effective methods of implementing the program and mitigating potential traffic problems. Staff seeks City Council’s input and direction.

CITY COUNCIL REPORT
COMMITTEE OF THE WHOLE AGENDA
TO:	Ed Zuercher Deputy City Manager	AGENDA DATE:		June 9, 2009
FROM:	Wylie Bearup, PE, PhD Interim Street Transportation Director	ITEM:	2
SUBJECT:	UPDATE ON THE SEVENTH AVENUE AND SEVENTH STREET REVERSE LANE STUDY

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