Davis Highway Pedestrian Safety Project West Florida Hospital

1. May 16, 2012 APBP Pedestrian Countermeasures 1 Davis Highway Pedestrian Safety Project@ West Florida Hospital SR 291, Pensacola, FL What I had wanted to share with you is that we’ve been working on a couple different high profile crashes. They’re not high crash locations, they’re high profile crashes, because of the nature of the crash.What I had wanted to share with you is that we’ve been working on a couple different high profile crashes. They’re not high crash locations, they’re high profile crashes, because of the nature of the crash.

2. May 16, 2012 APBP Pedestrian Countermeasures 2 Project Location This particular project was in Pensacola, Florida, and most of you are maybe not so familiar with Pensacola. What we’re going to be looking at is West Florida Hospital, which is kind of wedged between two very busy roads. All these roads in red are multilane, four- or six-lane roadways; this is I-10 in Pensacola and the hospital is located—all of the facilities are on the west side of the road, except for the employee parking lot, which is on the east side. You might think that might make problems. This particular project was in Pensacola, Florida, and most of you are maybe not so familiar with Pensacola. What we’re going to be looking at is West Florida Hospital, which is kind of wedged between two very busy roads. All these roads in red are multilane, four- or six-lane roadways; this is I-10 in Pensacola and the hospital is located—all of the facilities are on the west side of the road, except for the employee parking lot, which is on the east side. You might think that might make problems.

3. May 16, 2012 APBP Pedestrian Countermeasures 3 Project Location There’s something that actually exacerbates this a little bit and that is I-10 and Escambia Bay. Here’s a question? What major event occurred to I-10 in Pensacola with Hurricane Ivan? What happened is the bridges over Escambia Bay actually failed. So what happened is the re-route goes up through here, across I-90, down 291 right by the hospital, back to I-10. So an already very busy road got even busier. The only good part in this whole picture is that congestion was so bad that it significantly reduced the speed.There’s something that actually exacerbates this a little bit and that is I-10 and Escambia Bay. Here’s a question? What major event occurred to I-10 in Pensacola with Hurricane Ivan? What happened is the bridges over Escambia Bay actually failed. So what happened is the re-route goes up through here, across I-90, down 291 right by the hospital, back to I-10. So an already very busy road got even busier. The only good part in this whole picture is that congestion was so bad that it significantly reduced the speed.

4. May 16, 2012 APBP Pedestrian Countermeasures 4 Fatal Pedestrian Crash Summary Investigate February 3, 2005 crash involving Ms. Henderson-Dunn and Ms. Caraway on Davis Highway at Klinger Street, while crossing from the hospital parking lot to the hospital where they worked as nurses. Within four weeks of crash, FDOT conducted field studies to evaluate timing of traffic signals, local vehicle speeds, roadway signage, crash history, accessibility of the overpass crossing Davis Highway just south of the intersection, roadway lighting, and pedestrian activity between the parking lot and hospital. Explored different types of equipment which may be used to enhance the crosswalk. Were not able to review the traffic crash report from the Florida Highway Patrol however. You can think about 50,000-60,000 cars coming down a five-lane roadway. We had been working with the hospital over a period of time because they kept calling and saying “somebody is going to get hit out here,” and what we didn’t know is that they were going to take their dirt lot and convert it into a 600-car parking lot. They never told us that. And we kept saying that nobody has been hit out here and everything looks fine. We just kind of went back and forth for a couple of years and just made sure that the normal stuff was there and was working well, but didn’t do anything extra. February 3rd of this year, two female nurses at the hospital were hit while crossing the roadway early in the morning, 6:30, and one nurse was killed at the scene and once nurse was very critically injured. And what made this a very high profile crash is one of the nurses was the obstetrics delivery nurse for the Pensacola area. She had delivered most of the babies that were born in Pensacola and so many people knew her and really appreciated her and so it made a lot of newspaper attention every single day. So we needed to respond fairly quickly and I live 220 miles from the crash location; my office is about 180 miles from the crash location and I was in Tallahassee, 200 miles away, at the time it occurred and so we really needed to put together a fast response to first determine what were the conditions at the time of the crash. We put together a team to work on this, multi-disciplinary in FDOT, maintenance, a safety person and myself, and our attorney. We worked through this; we explored different types of equipment that you could use to enhance a crosswalk. The really frustrating part is that as we were working through this, we were never able to see the crash report from the Florida Highway Patrol, and actually have still never seen it. That was very disappointing. You can think about 50,000-60,000 cars coming down a five-lane roadway. We had been working with the hospital over a period of time because they kept calling and saying “somebody is going to get hit out here,” and what we didn’t know is that they were going to take their dirt lot and convert it into a 600-car parking lot. They never told us that. And we kept saying that nobody has been hit out here and everything looks fine. We just kind of went back and forth for a couple of years and just made sure that the normal stuff was there and was working well, but didn’t do anything extra. February 3rd of this year, two female nurses at the hospital were hit while crossing the roadway early in the morning, 6:30, and one nurse was killed at the scene and once nurse was very critically injured. And what made this a very high profile crash is one of the nurses was the obstetrics delivery nurse for the Pensacola area. She had delivered most of the babies that were born in Pensacola and so many people knew her and really appreciated her and so it made a lot of newspaper attention every single day. So we needed to respond fairly quickly and I live 220 miles from the crash location; my office is about 180 miles from the crash location and I was in Tallahassee, 200 miles away, at the time it occurred and so we really needed to put together a fast response to first determine what were the conditions at the time of the crash. We put together a team to work on this, multi-disciplinary in FDOT, maintenance, a safety person and myself, and our attorney. We worked through this; we explored different types of equipment that you could use to enhance a crosswalk. The really frustrating part is that as we were working through this, we were never able to see the crash report from the Florida Highway Patrol, and actually have still never seen it. That was very disappointing.

5. May 16, 2012 APBP Pedestrian Countermeasures 5 Existing Conditions @ Klinger Ave Signalized T intersection of Davis Highway (major) and Klinger Street (minor). Crosswalks on north, east legs. Only the north leg has pedestrian signal features. Traffic signal heads replaced through recovery work following Hurricane Ivan. Posted speed 45 mph. ADT 30,000+ Traffic volumes on Klinger are low. Majority of pedestrians are crossing Davis Highway, between hospital on west side and employee parking lot on the east side. The existing conditions at Klinger; it’s a signalized T intersection and the employees park over here on this north side—they cross this side lane, it’s two lanes in each direction, north and south bound, plus turn lanes, and then this all here is a frontage to the hospital and additional patient parking and stuff. The crosswalks are only on this northern leg. Fortunately the equipment had been really old and redundant, but it was upgraded because of Hurricane Ivan, so it had new heads, new timing, and everything was actually working really well out there. The existing conditions at Klinger; it’s a signalized T intersection and the employees park over here on this north side—they cross this side lane, it’s two lanes in each direction, north and south bound, plus turn lanes, and then this all here is a frontage to the hospital and additional patient parking and stuff. The crosswalks are only on this northern leg. Fortunately the equipment had been really old and redundant, but it was upgraded because of Hurricane Ivan, so it had new heads, new timing, and everything was actually working really well out there.

6. May 16, 2012 APBP Pedestrian Countermeasures 6 Crash History Performed an intersection analysis using FDOT's CAR program on Davis Highway between Johnson Ave (MP 7.4) and Klinger Street (MP 7.2). Most recent data used (1/1/01 to 12/31/03), over a three year period. 16 total Long Form crashes, 0 fatalities, 13 injuries, 0 collisions w/ pedestrians, 0 collisions w/bikes. Crash occurred in outside southbound lane. We looked at the crash history for three years and we found that there had been 16 crashes, but there’s none that involved a cyclist or a pedestrian. So there was nothing really to say that this was an area likely to have a crash. We looked at the crash history for three years and we found that there had been 16 crashes, but there’s none that involved a cyclist or a pedestrian. So there was nothing really to say that this was an area likely to have a crash.

7. May 16, 2012 APBP Pedestrian Countermeasures 7 Pedestrian Activity Studies conducted on February 15th from 3:30 – 5:00 PM and from 6:30 – 8:30 AM on February 16th, 2005. PM study: 161 peds crossed Davis Highway from hospital to parking lot (west to east movement). Only one pedestrian crossed east to west. No pedestrians were observed crossing outside of marked crosswalk or walk/flashing don’t walk portion of signal phase. 53 groups were observed crossing, ranging in size from one to 11. Average group size was 3 persons. AM study: 279 peds crossed Davis Highway from parking lot to hospital (east to west movement). Four peds crossed east to west. Of the 279 pedestrians, 12 crossed outside of the walk/flashing don’t walk portion of the signal phase. Seventy-four groups were observed crossing, ranging in size from one to 12 persons. The average group size was 3.8 persons. Two pedestrians were observed crossing Davis Highway east to west at 7:31 AM, approximately 100-200 feet north of the marked crosswalk. Other site visits observed additional east to west crossing movements outside of the crosswalks between the intersections of Johnson and Klinger, or without benefit of the walk phase of the traffic light. We went out and within a week of the crash, we went out and had staff out there doing traffic counts and we counted at the time when employees were most often crossing and we counted at the time of the fatal crash. What was interesting, though, is that when people were leaving the hospital in the afternoon, leaving work, all of them were very obedient in using the signal—and also it was not the real world, because they’d had the crash and they’d been talked to—but they were all very obedient about using the signals. But when they were coming to work in the morning there was a policy that you have to punch in to the time clock in this one building that is on the west side of the roadway. And so people, even a week after this crash, were taking risks in crossing outside of the walk/flashing don’t walk portion of the signal phase, a lot of them run, they’re not looking, and so what we were really trying to do was to help these employees to make better decisions and realize it’s not worth the risk. We went out and within a week of the crash, we went out and had staff out there doing traffic counts and we counted at the time when employees were most often crossing and we counted at the time of the fatal crash. What was interesting, though, is that when people were leaving the hospital in the afternoon, leaving work, all of them were very obedient in using the signal—and also it was not the real world, because they’d had the crash and they’d been talked to—but they were all very obedient about using the signals. But when they were coming to work in the morning there was a policy that you have to punch in to the time clock in this one building that is on the west side of the roadway. And so people, even a week after this crash, were taking risks in crossing outside of the walk/flashing don’t walk portion of the signal phase, a lot of them run, they’re not looking, and so what we were really trying to do was to help these employees to make better decisions and realize it’s not worth the risk.

8. May 16, 2012 APBP Pedestrian Countermeasures 8 Signal Timing Department personnel examined the WALK and DON’T WALK timing intervals resident in the traffic controller. Signal provided 7 seconds of the white walk light, followed by 14 seconds of a flashing don’t walk clearance time for the pedestrian phase crossing Davis Highway. At this location Davis Highway consists of 4 through travel lanes (2 in each direction) plus a southbound left turn lane (56 feet wide). Although Davis Highway has a coordinated traffic signal system, the Klinger signal is currently operating in the “free” mode. Sequence at Klinger cycles totally independent and without regard to the sequence at the adjacent signals of Johnson and University. Net effect of this operation allows for creation of gaps in the progressive traffic flow along Davis Highway, and quicker response time for the pedestrian phase.

9. May 16, 2012 APBP Pedestrian Countermeasures 9 Speed Limits and Actual Vehicle Speeds The existing posted speed limit on Davis Highway transitions from 35 MPH to 45 MPH between University Parkway and Klinger Street, with the intersection at Klinger posted for 45 MPH. On February 9, 2005 FDOT conducted a speed study which began at 6:20 AM and ended at 7:30 AM. The 85th Percentile South Bound = 32 mph, 85th Percentile North Bound = 40 MPH were within the established requirements. Study may have been influenced by the presence of a marked law enforcement vehicle positioned in the painted median south of the crosswalk with their lights flashing. Given the recent increase in traffic volumes on Davis Highway and expansion of hospital facilities, appropriate to extend the 35 MPH speed zone north on Davis Highway to include the hospital and intersection with Johnson Avenue. One of the things that was really important is that there was nothing terribly wrong with this intersection but we found that we actually could reduce the speed limit. It was 35 to the south it went to 40 just south of this intersection and so the things that we did and all the things that the employees were asking us, we actually reduced the speed limit to 35 from 45. One of the things that was really important is that there was nothing terribly wrong with this intersection but we found that we actually could reduce the speed limit. It was 35 to the south it went to 40 just south of this intersection and so the things that we did and all the things that the employees were asking us, we actually reduced the speed limit to 35 from 45.

10. May 16, 2012 APBP Pedestrian Countermeasures 10 Accessibility of the Overpass An overpass exits 0.10 miles south of the intersection at Klinger Street on Davis Highway. Built in the 1970’s, is well maintained and open to the public for use. Approach ramps do not meet current standards for an accessible route, having a slope of 13% on the approach ramps and no level landings. No handicap parking spaces are provided for employees in the parking lot on the east side of Davis Highway. The overpass is rarely used, and even made accessible, would likely not be used since the existing signalized at-grade is more convenient.

11. May 16, 2012 APBP Pedestrian Countermeasures 11 Roadway Lighting No night time lighting is present on this section of Davis Highway. Crash occurred at approximately 6:25 AM, on an overcast morning. Civil twilight began at 6:13 a.m., with sunrise at 6:38 a.m. Hospital staff felt there was sufficient light at the time of the crash for pedestrians to be observed by an approaching driver. Enhancing the lighting of the roadway may help illuminate pedestrians crossing in low light and night time conditions. Lighting enhancements would be the responsibility of Escambia County or West Florida Hospital.

12. May 16, 2012 APBP Pedestrian Countermeasures 12 Equipment Options Hospital staff requested various strategies, including: speed bumps on Davis Highway in advance of the crosswalk, a strobe above the signal head, red light running cameras, red light indicator lamps, and pedestrian count down signals. Speed bumps are precluded by Section 15.c.2 of the Florida Green book, which states “Speed bumps may not be used on public streets”. Use of strobes to call attention to traffic signals no longer approved by FHWA. Their research found them to not be very effective. Red light running cameras are not approved for use in Florida. Red light indicator lamps are support by FDOT. Working to obtain support from local law enforcement agencies and the judicial system for their implementation. Count down signals approved for use on state roadways though FDOT Topic No. 750-000-005, Traffic Engineering Manual, but not yet implemented in D # 3. We also added, and this gets back to what Michael was saying, we added the countdown signals. We also added, and this gets back to what Michael was saying, we added the countdown signals.

13. May 16, 2012 APBP Pedestrian Countermeasures 13 Adopted Strategies FDOT implemented extension of 35 MPH speed limit zone northward past the hospital, replaced the pedestrian warning signs, and upgraded the curb ramps at the signal to include truncated domes. Encouraged Hospital to work with Escambia County to improve the night time lighting in the corridor, and installation of the pedestrian count down signals. Design and installation of count down signals would be the responsibility of the hospital, with the approval of Escambia County since they are the maintaining agency for the signal equipment at the intersection of Davis Highway and Klinger Street. Hospital replaced a fence bordering its parking lot along Davis Highway and upgraded the frequency of its nigh time shuttle service. What we saw people doing was taking a lot of risks, uninformed risks with the timing. We felt that if we added a countdown, they would take more informed risks; they’re intelligent people, they work in a hospital. So we added this countdown signal and it’s funny because they don’t really like it. I think it was just a situation where they weren’t going to like anything that we were doing. What was really important and the message I want to leave with you is, as we formed this internal team, there were some people, because of the consequences of the crash, and that we were told that there would be a crash out there, were very resistant to change anything because they felt they would increase our liability. And the loudest person in our group felt the strongest that way. So we actually had our attorney come in and sit down with us and explain to us what our liability was in this situation and it was something that I didn’t realize and I found it very rewarding and I hope it’s the same for you in other states, is that the things that we discover in our review after the crash cannot be held against us in court. It’s a fact finding mission and cannot be used against the department. If we discovered something we have immunity through Florida law. If we discovered something that we could do to reasonably make that intersection safer and failed to do it as a consequence of our investigation, we are now liable. And that was an incredible turning point because it got our traffic office to agree to lower the speed limit, to change out the ped heads to the countdown, and in addition, we also really thought about the liability and the hospital, having been told that somebody would get hurt, and then having somebody actually killed after they built that parking lot and so we got them to pay for the countdown signal. They added fencing along the parking lot so people couldn’t cross mid-stream and they’re also working with the county to add lighting to the roadway. What we saw people doing was taking a lot of risks, uninformed risks with the timing. We felt that if we added a countdown, they would take more informed risks; they’re intelligent people, they work in a hospital. So we added this countdown signal and it’s funny because they don’t really like it. I think it was just a situation where they weren’t going to like anything that we were doing. What was really important and the message I want to leave with you is, as we formed this internal team, there were some people, because of the consequences of the crash, and that we were told that there would be a crash out there, were very resistant to change anything because they felt they would increase our liability. And the loudest person in our group felt the strongest that way. So we actually had our attorney come in and sit down with us and explain to us what our liability was in this situation and it was something that I didn’t realize and I found it very rewarding and I hope it’s the same for you in other states, is that the things that we discover in our review after the crash cannot be held against us in court. It’s a fact finding mission and cannot be used against the department. If we discovered something we have immunity through Florida law. If we discovered something that we could do to reasonably make that intersection safer and failed to do it as a consequence of our investigation, we are now liable. And that was an incredible turning point because it got our traffic office to agree to lower the speed limit, to change out the ped heads to the countdown, and in addition, we also really thought about the liability and the hospital, having been told that somebody would get hurt, and then having somebody actually killed after they built that parking lot and so we got them to pay for the countdown signal. They added fencing along the parking lot so people couldn’t cross mid-stream and they’re also working with the county to add lighting to the roadway.

14. May 16, 2012 APBP Pedestrian Countermeasures 14 Monroe Street Pedestrian Safety Project SR 61, Tallahassee

15. May 16, 2012 APBP Pedestrian Countermeasures 15 Project Location South Monroe Street (SR 61) from Apalachee Parkway (US 27/SR 20) south to Gaines Street (SR 371) Tallahassee, FL 0.15 miles

16. May 16, 2012 APBP Pedestrian Countermeasures 16 Existing Conditions @ Madison Street Marked, signalized crosswalks on South Monroe St. (south, west leg) at Madison St., no crosswalk on north leg. Frequent conflicts with eastbound right turning vehicles, both on red and green. Madison Street has dual eastbound left turn lanes. Sidewalks on east side of Monroe St., south of Madison not accessible (no ramps at curb, parking lot entrances, steep running slope).

17. May 16, 2012 APBP Pedestrian Countermeasures 17 Potential Improvements @ Madison Street Reconstruct ramp and crosswalk on south side of intersection to remove skew, shorten crossing distance. Create larger, accessible landing on SW and SE corners. Rebuild islands on east side of Monroe St. at Holland Building parking lot to include curb ramps, accessible slope. Consider revising traffic flow into lot to reduce conflicts with pedestrians. Create raised, landscaped island in existing median to attract pedestrians to signalized crosswalks. Post “Turning Traffic Must Yield to Peds” signage.

18. May 16, 2012 APBP Pedestrian Countermeasures 18 Potential Improvements @ Madison Street 2nd Option – Close driveways, construct sidewalk on east side of Monroe St. at Holland Building parking lot to include curb ramps, accessible slope Revise traffic flow into lot to reduce conflicts with pedestrians, access from Calhoun Street.

19. May 16, 2012 APBP Pedestrian Countermeasures 19 Additional Information Crash history - There were 118 crashes over the past 6 and 1/2 years. Three involved a pedestrian, one a cyclist. These included 2 crashes where the pedestrian and cyclist were struck in the crosswalk by vehicles turning right. None of the 118 crashes were fatal. Under review by DMS as to impacts to surface parking, state owned buildings and parking garages, event staging, and possible partnership with project. Tallahassee's Downtown Improvement Authority has an interest in the project. Similar pedestrian safety issues are presented in their “Downtown Connectivity Plan”. Members of Capital Region Transportation Planning Agency Bicycle and Pedestrian Advisory Committee support pedestrian improvements at intersections, especially those which limit the risk of being struck by right turning vehicles while in the crosswalk.