Staff Report
PREPARED BY: MATT MORLEY
DIRECTOR OF PARKS AND PUBLIC WORKS
Reviewed by: Town Manager, Assistant Town Manager, Town Attorney, Police Chief, and Finance
Director
110 E. Main Street Los Gatos, CA 95030 ● 408-354-6832
www.losgatosca.gov
TOWN OF LOS GATOS
COUNCIL AGENDA REPORT
MEETING DATE: 8/21/2018
ITEM NO: 11
DATE: AUGUST 15, 2018
TO: MAYOR AND TOWN COUNCIL
FROM: LAUREL PREVETTI, TOWN MANAGER
SUBJECT: REVIEW THE HIGHWAY 9 CORRIDOR REPORT AND AUTHORIZE THE TOWN
MANAGER TO APPLY FOR HIGHWAY SAFETY IMPROVEMENT PROGRAM
(HSIP) FUNDS FOR THE PROPOSED MASSOL AVENUE PROJECTS
RECOMMENDATION:
Review the Highway 9 Corridor Report and authorize the Town Manager to apply for Highway
Safety Improvement Program (HSIP) funds for the proposed Massol Avenue projects.
BACKGROUND:
On October 17, 2017, the Town Council authorized the Town Manager to proceed with the
Highway 9 Corridor Study, emphasizing an expanded scope that included the area between Los
Gatos Boulevard to the east and the Town limits to the west, with an emphasis on safety and
vehicle flow. Under the authority provided to the Town Manager, the consulting firm of W-
Trans was hired to complete the corridor study (Attachment 1).
The corridor consists of Los Gatos-Saratoga Road from Los Gatos Boulevard to a point just west
of Alberto Way, at which point the roadway transitions to become Highway 9 to the Town limits
at Monte Sereno. Highway 9 is under the control of Caltrans and all work completed within
that portion of the corridor must have Caltrans approval. With that in mind, the corridor study
was designed to provide an analysis of safety and efficiency needs along the route, collecting
and analyzing the data necessary to further potential future improvement proposals to
Caltrans. Where local agencies desire improvements on State routes, Caltrans typically expects
the local agency to advance the project and provide for funding for a project design that meets
Caltrans standards.
PAGE 2 OF 7
SUBJECT: REVIEW THE HIGHWAY 9 CORRIDOR REPORT AND AUTHORIZE THE TOWN
MANAGER TO APPLY FOR HIGHWAY SAFETY IMPROVEMENT PROGRAM (HSIP)
FUNDS FOR THE PROPOSED MASSOL AVENUE PROJECTS
AUGUST 15, 2018
S:\COUNCIL REPORTS\2018\08-21-18\11 Highway 9 Corridor Study\11 Staff Report FINAL.docx
8/16/2018 9:28 AM MM
DISCUSSION:
The study addressed the corridor in segments and this report will review each from west (Town
limits) to east (Los Gatos Boulevard). Throughout the analysis, recommended improvements
attempt to balance safety with the impact on traffic on this heavily traveled route.
Nevertheless, safety improvements often impact the flow of traffic through increased delays.
Conceptual project costing for the proposed improvements is provided at the end of each
section along with an asterisk to signify the projects that staff determined to be the most
effective. The corridor study in Attachment 1 contains illustrations that depict the
improvements.
Massol Avenue
The intersection at Massol Avenue is a prime focus of the study. The intersection currently has
no traffic control, but does have a pedestrian activated flashing beacon that is intended to alert
drivers when a pedestrian is crossing. Looking at accident history, this intersection experiences
collisions at a higher level than other uncontrolled intersections, including a pedestrian fatality
on September 1, 2017. Table 1 of the study provides a summary of collision rates at each
intersection.
Potential improvements at this location start in the eastbound direction entering the Town
limits from the direction of Monte Sereno. To manage speeds approaching the intersection,
potential projects include a raised median island ahead of the intersection, upgrading the
existing speed radar warning sign, and adding a rumble strip to alert drivers of the changing
conditions. These improvements would give drivers the impression of a narrower roadway and
naturally reduce speeds. In addition, providing green bike lanes approaching the crosswalk
from both directions would alert drivers of the changing conditions and help to reduce speeds.
Specific to the crosswalk at Massol, the study contemplates three potential improvements
scaled in scope, complexity, and cost. The most straightforward option is upgrading the
existing flashing beacon to an LED rectangular rapidly flashing beacon (RRFB) utilized at many of
the Town’s other crosswalks. These beacons are much more intense than the existing beacon
and would greatly improve the visibility of the crosswalk for drivers. This improvement has the
advantage of improving safety while not impacting the flow of traffic. In conjunction with the
RRFB, the addition of a raised crosswalk would further serve to reduce speeds and pro vide
pedestrian safety.
PAGE 3 OF 7
SUBJECT: REVIEW THE HIGHWAY 9 CORRIDOR REPORT AND AUTHORIZE THE TOWN
MANAGER TO APPLY FOR HIGHWAY SAFETY IMPROVEMENT PROGRAM (HSIP)
FUNDS FOR THE PROPOSED MASSOL AVENUE PROJECTS
AUGUST 15, 2018
S:\COUNCIL REPORTS\2018\08-21-18\11 Highway 9 Corridor Study\11 Staff Report FINAL.docx
8/16/2018 9:28 AM MM
DISCUSSION (cont’d):
The second option as an alternative to the RRFB is a step up in complexity, cost, and safety and
is a relatively new traffic control system gaining acceptance throughout the state. The High
Intensity Activated Crosswalk (HAWK) signal is intended for use where pedestrians need to
cross a busy roadway without the need for control of crossing vehicle traffic. The HAWK is a
pedestrian activated signal that sits dark when not needed. Upon activation, the HAWK
progresses through a yellow and red sequence to stop vehicles and allow pedestrians to cross.
These are installed in a number of locations locally, including the City of Santa Clara and they
have a helpful video and user guide online that demonstrates the use of the HAWK:
http://santaclaraca.gov/Home/Components/News/News/35048/50.
This improvement would only function when needed by pedestrians but would increase delays
along the corridor when in use. Integration with the traffic signal timing at North Santa Cruz
Avenue and University Avenue would be essential to maximiz e the efficiency of vehicle travel in
the area. The HAWK system requires drivers to stop and the infrastructure includes mast arms
that put the lights in direct view of drivers, creating a significant improvement to safety. An
important consideration of this improvement is that it is relatively progressive and many drivers
have not had the opportunity to experience one, not unlike the experience when green bike
lanes were first introduced.
The third option for this intersection is the installation of a new traffic signal to control Highway
9 and Massol Avenue as well as the pedestrian crossings. This option is the most costly and has
the most potential to create other impacts. Primarily, the signal would create additional delay
in an already congested corridor. Additionally, such a signal would likely increase cut through
commute traffic in the Almond Grove neighborhood as the left turn from Massol to Highway 9
would become easier to navigate. Typically, the need for a traffic signal is evaluated through a
warrant study, where nine criteria or warrants are evaluated. This location meets one warrant,
as described in the study, which makes a signal an option although not necessarily desirable.
The following table provides a comparative summary of the intersection control improvements.
Improvement Safety
Enhancement
Use
Acceptance
Traffic
Impact
Increase
Cut
Through
Cost
Existing N/A Easy Low N/A N/A
RRFB Medium Easy Low No Low
HAWK High Moderate Medium No Medium
Signal High Easy High Yes High
PAGE 4 OF 7
SUBJECT: REVIEW THE HIGHWAY 9 CORRIDOR REPORT AND AUTHORIZE THE TOWN
MANAGER TO APPLY FOR HIGHWAY SAFETY IMPROVEMENT PROGRAM (HSIP)
FUNDS FOR THE PROPOSED MASSOL AVENUE PROJECTS
AUGUST 15, 2018
S:\COUNCIL REPORTS\2018\08-21-18\11 Highway 9 Corridor Study\11 Staff Report FINAL.docx
8/16/2018 9:28 AM MM
DISCUSSION (cont’d):
Other considerations for these options include:
• In both the scenario of the HAWK signal and the traffic signal, there is some concern that
pedestrians would not wait for a walk sign and would proceed against the light due to the
relatively short crossing distance and the refuge island in the middle. This would be
exacerbated by the need to fit a pedestrian crossing cycle into the longer commute traffic
cycle when timing this new controller with other intersections on the corridor.
• With regard to the traffic signals at University and Santa Cruz Avenues in their current
configuration, these signals are currently coordinated and work in tandem. Caltrans has
been working on the timing of these signals over the last year and still needs to identify the
optimum cycle balancing vocal commuter complaints with local resident needs. In addition,
recent hardware issues have created further inefficiencies with these intersections. Staff
continues to work with Caltrans towards the optimal solution.
• In addition to the three options for the pedestrian crossing of Highway 9, the corridor study
included potential modifications to the pork chop island at Massol Avenue that allows a free
right turn onto Highway 9 (also known as a channelized right turn). Removal of this pork
chop island in combination with a reconstruction of the corner to extend the curb line
would remove a pedestrian-vehicle conflict. This aligns with the recommendations through
the rest of the corridor study and the recommendations of the Town’s Bicycle and
Pedestrian Master Plan.
Massol Avenue Alternatives Cost
Intersection Control (choose 1)
RRFB $111,900
HAWK * $476,400
Traffic Signal $721,900
Speed Reduction
Raised Median and Beacon* $72,200
Raised Crosswalk (RRFB only) $64,200
Bike and Ped Improvements
Green Bike Lanes* $54,860
Remove Channelized Right Turn* $158,400
PAGE 5 OF 7
SUBJECT: REVIEW THE HIGHWAY 9 CORRIDOR REPORT AND AUTHORIZE THE TOWN
MANAGER TO APPLY FOR HIGHWAY SAFETY IMPROVEMENT PROGRAM (HSIP)
FUNDS FOR THE PROPOSED MASSOL AVENUE PROJECTS
AUGUST 15, 2018
S:\COUNCIL REPORTS\2018\08-21-18\11 Highway 9 Corridor Study\11 Staff Report FINAL.docx
8/16/2018 9:28 AM MM
DISCUSSION (cont’d):
Santa Cruz Avenue
Safety improvements to the Santa Cruz Avenue intersection include a series of relatively
straight forward improvements, including more visible crosswalks, green bike lanes, and yield
markings at right turns to identify where vehicles should wait for pedestrians to cross. A more
aggressive change would remove the pork chop islands that provide for free right turns at three
corners. This safety improvement would allow for pedestrians to cross Highway 9 at controlled
crossings while concurrently creating slower speeds for vehicles turning right. The
recommended exception is the right turn from southbound North Santa Cruz Avenue to
Highway 9, where the traffic impact is not deemed acceptable due to long queue lengths.
Santa Cruz Avenue Alternatives Cost
Green Bike Lanes and Crosswalks* $64,000
Remove Channelized Right Turns* $750,000
University Avenue
Modest improvements are recommended at University Avenue with the addition of green bike
lanes on the north side of the roadway. There is insufficient right of way to install green bike
lanes on the south side.
The corridor between University Avenue and Los Gatos Boulevard becomes much more difficult
to navigate. The potential for future access to the Los Gatos Creek Trail will help to guide
pedestrians and bicyclists to that route as a safer alternative.
University Avenue Alternatives Cost
Green Bike Lanes and Crosswalks* $20,000
Highway 17 Interchange
The recommendations for this location consider and support long term plans to upgrade the
interchange through Measure B. In the short term, improvements at this location could include
foliage trimming and crosswalk signage to improve safety at the existing crosswalks.
Highway 17 Alternatives Cost
Foliage Trimming and Signage* $6,600
PAGE 6 OF 7
SUBJECT: REVIEW THE HIGHWAY 9 CORRIDOR REPORT AND AUTHORIZE THE TOWN
MANAGER TO APPLY FOR HIGHWAY SAFETY IMPROVEMENT PROGRAM (HSIP)
FUNDS FOR THE PROPOSED MASSOL AVENUE PROJECTS
AUGUST 15, 2018
S:\COUNCIL REPORTS\2018\08-21-18\11 Highway 9 Corridor Study\11 Staff Report FINAL.docx
8/16/2018 9:28 AM MM
DISCUSSION (cont’d):
Alberto Way
To increase safety at Alberto Way, the study recommends the installation of radar speed signs
to help control speeds and reduction of foliage to increase visibility of pedestrians. An
approved future development project at Alberto Way would also add improvements to this
area.
Right of way constraints east of Alberto Way make impactful improvements unrealistic for all
but the most committed cyclists.
Alberto Way Alternatives Cost
Speed Signs* $65,000
Los Gatos Boulevard
Similar to Santa Cruz Avenue improvements, the focus at this location is addressing conflicts at
channelized right turns. A phased approach of utilizing pavement markings to identify locations
for vehicles to wait and ultimately removing the right turn islands woul d improve safety at this
location.
Los Gatos Boulevard Alternatives Cost
Pavement Markings* $3,800
Remove Channelized Right Turns* $647,500
Funding Alternatives
General Fund Capital Reserve – The Council could establish one or more projects utilizing these
funds. The reserve funds typically fund capital projects each year during the Capital
Improvement Program budget process.
Highway Safety Improvement Program (HSIP) – This federal funding source provides for project
funding based on evaluative criteria that measure a project’s potential for safety improvement.
Staff’s evaluation is that the HAWK project at Massol followed by the RFFB and traffic signal at
that location would be most competitive. The staff recommendation includes pursuing the
HSIP funding for the HAWK installation.
PAGE 7 OF 7
SUBJECT: REVIEW THE HIGHWAY 9 CORRIDOR REPORT AND AUTHORIZE THE TOWN
MANAGER TO APPLY FOR HIGHWAY SAFETY IMPROVEMENT PROGRAM (HSIP)
FUNDS FOR THE PROPOSED MASSOL AVENUE PROJECTS
AUGUST 15, 2018
S:\COUNCIL REPORTS\2018\08-21-18\11 Highway 9 Corridor Study\11 Staff Report FINAL.docx
8/16/2018 9:28 AM MM
DISCUSSION (cont’d):
2016 Measure B - This continues to be a potential funding source for projects, including the
trail connector and interchange upgrade projects identified above.
Other Grant Opportunities – Staff continually watches for grant opportunities to fund projects
that are beneficial for the Town and where applications can be competitive.
Although grant application deadlines may not allow for review by the Council prior to
application, staff will present the application or receipt to Council for review prior to
acceptance.
CONCLUSION AND NEXT STEPS:
The staff recommended projects should provide a starting point for the Council discussion .
Staff looks forward to the Council’s direction on next steps to implement the findings of this
study.
COORDINATION:
This report was coordinated with the Police Department and the Finance Department.
FISCAL IMPACT:
There is no anticipated fiscal impact from this report.
ENVIRONMENTAL ASSESSMENT:
This is not a project defined under CEQA, and no further action is required.
Attachment:
1. Draft Report State Route 9 Safety and Traffic Operations Analysis