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#10 Discussion and possible action on a proposed red flag program CITY MANAGER’S OFFICE MEMORANDUM December 2, 2011 TO: City Council FROM:Rebecca Smith, Management Assistant SUBJECT: Review and Possible Action on Red Flag Program Request Earlier this year Councilmember Rashkin requested a memo examining the implementation of a red flag program. The Public Works Department compiled the attached materials summarizing the varied experiences other communities had with a flagging program. During the December 12 council meeting, staff is requesting direction from the council whether to pursue the implementation of a red flag program. City Manager Recommendation The Council needs to determine if they feel this project warrants the staff time necessary for successful implementation. Background As described in the attachments, a red flag program allows pedestrians to carry a brightly-colored flag with them as they cross the street to help motorists take notice of their presence. A red flag program is not a traffic control device and does not change the requirements of motorists. The purpose of the program is to increase visibility of pedestrians. Communities surveyed had varied experiences using the red flag program. Several communities experienced less than ideal outcomes with low community interest in assisting with the program in La Crosse; low use of the program in Eau Claire; and flags being stolen in DePere. While others, such as Salt Lake City and over 50 sites in Dane County, are experiencing positive results with public interest in promoting, maintaining and using the flag program. Implementation Implementing this program would include defining the program; developing program intersection criteria; determining the approval process for program intersections; developing program rules (what happens if all of the flags are stolen); determining funding guidelines; working with volunteer groups; creating communication materials about the program; initially setting up and maintaining the other logistics of the program. Staff estimates approximately ten (10) hours of work is necessary to establish a red flag program, plus additional time a new intersection is suggested for inclusion in the program. Possible Pilot Locations One location where a red flag pilot/test program may be viable in Janesville is at the crosswalk on Main Street in front of Hedberg Public Library. Staff contacted the Library Director and he felt the Library and/or Library Friends may have interest in being a test site crosswalk, but would want to know the details of the red flag program, such as funding, logistics and responsibilities. If implemented, this location could be evaluated after 6 to 12 months to determine if the program should be allowed at other pedestrian crossings. This program works best in intersections with high pedestrian use, such as near universities or busy pedestrian shopping areas. Staff is unsure how many, if any, intersections in Janesville would meet the criteria for a flag program. ENGINEERING DIVISION MEMORANDUM August 31, 2011 TO:CARL WEBER, DIRECTOR OF PUBLIC WORKS/CITY ENGINEER FROM:DENNIS RYAN, ASSISTANT ENGINEERING MANAGER SUBJECT:PEDESTRIAN RED FLAG PROGRAM Per your request, I have completed some research on this topic.The program involves placing red (or orange) flags in containers at each end of a crosswalk. Pedestrians wanting to cross the street; 1)pick up a flag to signal to drivers their intent to cross the street, 2) hold the flag in the air during the crossing, and 3) place the flag in a container on the far side of the intersection. It appears Kirkland, Washington and Salt Lake City, Utah started programs several years ago and now other communities have followed suit. The Safe Community Coalition of Madison and Dane County program is based on the experience of these communities.I have included a copy of their publication, entitled “Flags Over Dane County;Adopt-A-Crosswalk Program”(Attachment #1).Idid some checking on the Dane County program as well as other Wisconsin locations and gathered the following information: Dane County …Approximately 50 sites funded and administered by the Safe Community Coalition. Proposed locationsare checked andapproved by the “local traffic safety agency”. At the City of Madison, that is the Pedestrian-Bicycle Coordinator in the Traffic Engineering Divisions.At Middleton, it is a Sergeant in the Police Department. LaCrosse …1 location currentlyin front of the Court House, but 2 more are planned as part of a pilot program wheremore data will be gathered on the effectiveness of the program. Currently administered by the LaCrosse County Bike and Pedestrian Coordinator who is attempting to find a community group to pass the baton to, so far with “no takers”.A newspaper article indicates the County received a $500 federal grant to fund the project. Eau Claire …A 2010 pilot program of 3 locations adjacent to Luther Midelfort (a health care facility) “petered-out” after 3 to 6 months. The City supported the trial andMidelfort security staff administered the program as part of their job. They found that people were not using the flags. DePere …In 2008, the City implemented a program at intersections along Broadway at the request of a Broadway business owner “who noticed that people have a hard time crossing the street near his business”. The current Director of Public Works indicated the program “…in my opinion is not working as well as originally thought it might. Flags disappear and there is an issue of keeping them C:\Documents and Settings\smithr\Desktop\RedFlagMemo.doc Page 2 of 2 supplied…I would not recommend it and if there are communities with success stories I would like to hear them as well.” Based on what I’ve read, here are some of the pros and cons of these programs: PROS Relatively low start-upandmaintenance costs.The initial costs for flags, holders, informational stickers, etc. would beapproximately $200 per crosswalk. In some instances, the program maybe used as an alternate to warning lights, rapid flashing beacons, or in-road “yield-to-pedestrian”signage. CONS Flags may tend to “disappear” in some areas, especially if left out 24/7. Many times, the adopting organization brings the flags in at the end of the day and sets them out at the beginning of the dayto minimize that problem. All flags may end up on one side of the streetor in disrepair,requiringconsistent monitoring. The Dane County information suggests “…it is important to select a location where volunteers can be relied upon to monitor the flag supply”. Lack of understanding of the program requiring an education effort to teach the general public about the intent of the program. Finding communityvolunteer organization(s)willing to administer and potentially fund locations. Location criteria would have to be establishedto avoid over-use. The topic came up during the discussion ofpossible traffic signal removal at Academy & Milwaukee. Signalized intersections, especially those with pedestrian walk lights, do not appear to be considered as potential locations from whatI could gather. The red flag set-up isn’t in the federal Manual on Uniform Traffic Control Devices (MUTCD)as a recommended traffic control device and could create a false sense of security, similar to the non-MUTCD “Children at Play” signs. If Council would like to pursue a pilot program, I would recommend private service groups and/or neighborhood organizations be notified of the opportunity to request and “adopt” locations that would be reviewed and approved by the Citybut funded and managed by the adopting group. Attachment (1) Cc:Mike Payne, Engineering Manager C:\Documents and Settings\smithr\Desktop\RedFlagMemo.doc Crosswalk Flags In August of 2000, as part of the Salt Lake City Pedestrian Safety Committee’s initial efforts to reduce pedestrian involved accidents, flags were placed at six crosswalks in the downtown area. The idea for flags was brought to the attention of the pedestrian safety committee by a City Council staff member who saw them being used at a crosswalk in Ketchum, Idaho. The idea is simple. Place a container of flagsat each end of the crosswalk and instruct pedestrians to carry one with them while crossing. The brightly colored flags benefit pedestrians by making them more visible to drivers and the simple act of holding one alerts drivers that the pedestrian has a desire and intentto cross the street (admit it, we’ve all done it –you see a pedestrian standing by the side of the street and you say to yourself, “that person is just standing there and doesn’t really want to cross”, and you drive on by without yielding. With a flag inhand that excuse no longer works; you know the person wants to cross because he/she took the time to pick up a crossing flag!). In addition, many drivers have commented that simply having the brightly colored flags at both ends of a crosswalk makes the crosswalk stand out more, making it easier to notice while on the approach. As the number of city maintained flag locations downtown increased, so did public interest in having them installed outside of the downtown. Due to the difficulties in maintaining numerous outlying flag crossings, the Adopt-a-Crosswalkprogram was created in January 2001. The Adopt-a-Crosswalk program allows individuals or businesses residing within approximately 700 feet of a marked crosswalk to install crosswalk flags by “adopting” or “sponsoring” the crosswalk. To adopt a crosswalk, the sponsor agrees to occasionally monitor the flags to insure they are available at both ends of the crosswalk and to provide replacement flags as needed. In return, the City installs the flag holders, and an initial supply of flags at no cost to the sponsor. The Adopt-a-Crosswalk program has also been expanded to include elementary schools where the city agrees to provide all replacement flags at no cost as long as the school agrees to pick them up from the city when needed. For all other sponsors, the city provides replacement flags to sponsors at $.50 each –subsidizing part of the cost. As of November 15, 2005, 46 crossings have been adopted by schools and 88 by residents/businesses. The city currently maintains 40 crossing flag locations downtown. Salt Lake City map showing all crosswalk flag locations. The flags also have an excellent public education component. When first installed the flags received significant media attention and public comment resulting in a sizeable amount of public pedestrian safety awareness and education. Once the Adopt-a- Crosswalk program began functioning we began to see groups of residents coming together to adopt neighborhood locations. Neighbors talking with neighbors about crosswalk flags and the ability to personally participate in something with the potential to make their neighborhood safer have undoubtedly raised community pedestrian safety awareness. ÝæÄܱ½«³»²¬­ ¿²¼ Í»¬¬·²¹­Ä­³·¬¸®ÄÜ»­µ¬±°ÄÍ¿´¬ Ô¿µ» Ý·¬§ Ý®±­­©¿´µ Ú´¿¹­ò¼±½¨