[blindlaw] comments needed regarding policy for audible pedestriansignals

[McCarthy, Jim]

Chuck,
I am happy to talk through this with you off line if you would prefer.  Nevertheless, I will offer my immediate thoughts after reading.  It is a little unclear what the goal is.  This process is to prioritize intersections giving those most in need APS first.  I am convinced that there are several signalized (light controlled) intersections that do not need these devices.  However, this might be a way to provide APS at all signalized intersections in time and that may be what the Access-Board will come to require.

I think it is good to have as a part of the evaluation team a blind person and a deaf blind person when the requester is deaf blind or serves that community.  I have always found it problematic though when cities say that the centers blind people use should have some super priority.  I lived in Portland Oregon and the west part of the city was hilly with curvy streets.  Many were not straight and some had high speed traffic.  However, the audible traffic signals were almost never in those neighborhoods (the better ones I might add) because it was assumed that blind people did not frequent them.  To me that is a ghettoizing assumption that results from this process.  I do think that public transit centers and such places should have greater attention paid though and this document would do that.

Finally, in the main, I think that the traffic and street configuration factors are as they should be.  I think that the locations with the greatest need based on these factors should be the first to receive signals.  The Fresno process is similar to others I have seen, though I would prefer that the evaluation group use the factors and evaluate all signalized     intersections using the factors more than whether and how many requests were made.
Jim McCarthy
-----Original Message-----
From: blindlaw-bounces at nfbnet.org [mailto:blindlaw-bounces at nfbnet.org] On Behalf Of ckrugman at sbcglobal.net
Sent: Wednesday, March 11, 2009 8:21 AM
To: NFBnet Blind Law Mailing List
Subject: [blindlaw] comments needed regarding policy for audible pedestriansignals

The City of Fresno is proposing the policy shown below to evaluate the installation of audible traffic signals. As this is outside my expertise I would appreciate any comments regarding this document. Please feel free to contact me off list if needed.
Chuck Krugman, M.S.W., Paralegal
1237 P Street
Fresno ca 93721
559-266-9237


APS Policy-03-09-LP .pdf
DRAFT ACCESSIBLE PEDESTRIAN SIGNALS (APS) INTERSECTION EVALUATION PROCEDURE BACKGROUND Accessible Pedestrian Signals (APS), also known as audible pedestrian signals, are devices that communicate information about pedestrian timing in nonvisual format such as audible tones, verbal messages, and/or vibrating surfaces. APS are used in conjunction with standard pedestrian activated traffic signals to provide the following information to pedestrians: 
list of 4 items
·
Existence of and location of the pedestrian pushbutton · Beginning of the pedestrian WALK interval · Direction of the crosswalk and location of the destination curb · Clearance signal interval list end They are used to assist blind and visually impaired persons and other persons with disabilities of all ages to cross at designated streets and intersections. 
PURPOSE
The purpose of this evaluation policy is to set forth factors to be used by the City of Fresno's Public Works Department, in cooperation with the City of Fresno's Disability Advisory Commission, in developing a priority listing of signalized intersection candidates to be retrofitted with audible devices that will provide guidance for the blind community and visually impaired persons and other persons with disabilities of all ages to cross certain streets. 
POLICY
It is the policy of the City Council that the retrofitting of existing traffic signals with APS shall be based on factors established herein and that such measurements and computations as may be required in determining priority rating of candidate locations shall be the responsibility of the Public Works Department. 
It should be noted that in special situations, an APS should not be installed because of the adverse affect it could have on pedestrian safety as a result of the overall traffic circulation pattern of an area, or unusual geometric conditions where an APS would not provide the safety benefits necessary for the blind or visually impaired individuals to cross a street. It should also be noted that some traffic signals cannot be retrofitted with APS without major costly modifications. Retrofitting of traffic signals with APS shall be subject to approval by the City Engineer. 
Important: APS are utilized to help blind and visually impaired travelers recognize when a WALK signal is operating in a given direction. An APS may enhance the safety of blind travelers in two ways: 
list of 1 items
1.
Lessens the chance of a blind or visually impaired pedestrian misjudging when the walk phase is operating, thereby lessening the chance of accidentally crossing against a signal. 
list end
list of 1 items
2.
Helps blind and visually impaired pedestrians recognize immediately when the walk phase begins, permitting them to cross the street in a timely fashion, thereby lessening the chance of being in the intersection when the signal changes. 
list end
However, it is important to recognize that the APS does not and cannot assure the blind and visually impaired pedestrians that there will be no potential traffic conflicts while crossing when the APS is operating. In particular, the blind and visually impaired pedestrians should be aware of at least four possible conflicts. 
list of 4 items
1.
Vehicles may be still clearing the intersection when the APS comes on. 
2.
Vehicles may fail to stop for the red light. This is particularly common for motorists attempting to enter on a yellow light. 
3.
Motorists may stop and make a right turn on red while watching traffic on their left but may fail to notice pedestrians on their right. 
4.
Vehicles may have right and left turns on the same phase as the pedestrian. 
list end
Because of these potential conflicts, it is important that the blind or visually impaired traveler exercise due caution for his or her well-being when crossing a street, whether or not it is equipped with APS. It is especially important that blind and visually impaired travelers be properly trained by certified orientation and mobility specialists in safe travel techniques on the public right-of-way. 
EVALUATION PROCEDURE (See attached "Evaluation Form.") The following basic considerations and evaluation factors shall be utilized to determine whether a location is eligible to be a candidate for APS and to determine its relative position on the priority list. Evaluation and scoring of factors will be conducted by an evaluation team consisting of a certified orientation-mobility specialist, a visually impaired/blind traveler and a traffic engineer. Candidate locations shall be requested by the City of Fresno Disability Advisory Commission, its working groups, and constituent requests to the ADA Coordinator's office. 
Candidate locations will be evaluated by means of the sample evaluation sheet attached. 
I. BASIC CONSIDERATIONS: 
APS normally will be considered for installation only if the following conditions are met: 
list of 5 items
A.
Intersections must be signalized. 
B.
Signals must be susceptible to retrofitting. 
C.
Signals should be equipped with pedestrian signal actuations. (See also section on "Signals without Pedestrian Actuations.") D.
Location must be suitable to installation of audible signals, in terms of surrounding land use, noise level and neighborhood acceptance. 
E.
There must be a demonstrated need for the audible signals in the form of a request from an individual or group that would use the audible signal. 
list end
II EVALUATION FACTORS
The following factors shall be used to establish a priority listing for potential audible traffic signal candidates. Candidates will be arranged in priority order of those with the highest total points (100 points maximum) on top and then in descending order. The scoring of factors will be conducted by an evaluation team consistent of a mobility specialist, a visually impaired/blind traveler and a traffic engineer. If the request for an APS was made by a deaf blind individual, or by representative of an organization serving deaf blind pedestrians in order to improve access in their geographic area, the evaluation team may also include a deaf blind rater. The decision whether to include a deaf blind rater will be made by the City Engineer. 
A) Intersection Safety
1. Accident Records: Past pedestrian accident experience at the intersection will be used as an indication of potential safety performance. Points will be based on pedestrian accidents reported by the City of Fresno's Police Department. 

table with 3 columns and 6 rows
Pedestrian Accidents
Period  
Points   
1
4 years  
1   
2
4 years  
2   
3
4 years  
3   
4
4 years  
4   
5 or more
4 years
5
table end

2. Intersection Configuration: The number of approaches to an intersection and their geometric configuration (offset, skewed, etc.) affect the ability of the blind and visually impaired persons crossing the roadway. In particular, traffic at 3-leg intersections tends not to provide adequate audible clues for the blind to permit them to effectively judge the signal phase. 

table with 2 columns and 6 rows
Configuration  
Points   
4-leg right angle intersection  
1   
3-leg T-intersection  
2   
3 or 4-leg skewed intersection  
3   
4-leg offset intersection  
4   
Other complex or multiple leg intersections
5
table end

Note: Intersections with 5 or more legs will require special design. 
3. Intersection Signalization: Pre-timed intersections are the easiest for blind pedestrian because the phase interval is constant and can be observed over time. Vehicle actuated intersections are more difficult, because the pedestrian interval may be of different lengths or skipped all together. Split-phasing can provide confusing auditory information, as a traveler may interpret left-turning vehicles as a parallel traffic surge. 

table with 2 columns and 5 rows
Signalization  
Points   
Pre-timed  
0   
Vehicle Actuated  
2   
Split Phasing  
4   
Exclusive Ped Phase (for future reference)
5
table end

4. 
Width of Crossing:
Wider streets are more difficult for blind travelers to cross. If 
each leg of the intersection has a different width, points will be assigned on the 
basis of the widest street on which pedestrians are permitted to cross. Crossing 
width will be measured at the point pedestrians normally cross the street. Islands 
and medians will be included in the total crossing distance even if they are 
equipped with separate pedestrian signal actuators. These points will be 
apportioned based upon the greatest width of the crossing at the subject 
intersection. 

table with 2 columns and 7 rows
Width of Crossing  
Points   
40 feet or less  
0   
40 to 59 feet  
1   
60 to 79 feet  
2   
80 to 99 feet  
3   
100 -119  
4   
120 feet or more  
5  
table end

5. Vehicle Speed: The speed of approaching traffic reflects the ability of 
approaching traffic to stop for a pedestrian clearing the intersection as the lights 
change. Audible signals help blind pedestrians get a timely start at the beginning 
of the walk phase, thereby permitting clearing the intersection in a timely manner. 
Points are assigned on the basis of the 85 percentile speed on the fastest 
approach leg. More points are assigned on the basis of higher speeds. 

table with 2 columns and 6 rows
Speed Range  
Points   
0 - 25 mph  
1   
26 - 30 mph  
2   
31 - 35 mph  
3   
36 - 40 mph  
4   
41 mph or over  
5  
table end

B. Crosswalk Characteristics 
These points will be apportioned based upon the highest-scoring characteristics of any of the 
crosswalks at the intersection. For example, if any of the crosswalks at an intersection have a 
median island protruding into an intersection, then the intersection will receive the two points 
allotted for that characteristic. 
list of 1 items
(a)
Location of Pedestrian Push Button. Pedestrian push buttons that are too far from 
the intersection can present difficulties for blind pedestrians. They may make it 
harder for an individual to use the button as a cue for alignment and/or to push the 
button and cross in the same cycle. 
list end

table with 2 columns and 4 rows
Location of Pedestrian Actuations  
Points   
One or more ped pushbuttons located > 10 ft from curb  
1   
One or more ped pushbuttons located > 5 ft from crosswalk extended  
2   
One or more ped pushbuttons out of alignment with direction of travel  
2  
table end

list of 1 items
(b)
Median Islands Blind pedestrians have difficulties interpreting traffic clues at 
medians and islands. Efforts should be made to permit the blind to cross in one 
continuous movement. In such cases, signal timing should be extended to 
accommodate the full crossing. Divided streets with or without a pedestrian signal 
actuator in the median will be handled as a single crossing, with the width measured 
across the entire street. 
list end

table with 2 columns and 2 rows
Median Island  
Points   
Protruding into crosswalk, or cut through.  
2  
table end

list of 1 items
(c)
Alignment of Crosswalk. A skewed crosswalk is one in which the direction of travel 
on the crosswalk differs from that on the approaching sidewalk. In this context, 
skew is not defined as the angle at which streets intersect. If a blind pedestrian 
walking a straight line from the approaching sidewalk is headed toward parallel 
traffic lanes, the crosswalk is skewed. If the pedestrian would end up deviating from 
the crosswalk, but would still arrive at the opposite corner, the crosswalk is not 
defined as skewed for this purpose. 
list end
Skewed Crosswalk 
4 
(d) Distance to Alternative APS 

table with 2 columns and 6 rows
Distance to Alternative APS Crosswalk  
Points   
1 block  
0   
2 blocks  
0   
3 blocks  
2   
4 blocks  
2   
5 or more blocks  
3  
table end

(e) Requests for APS 
New requests for APS will be recorded by the ADA Coordinator. Requestors will be 
asked to specify the reason for the request (e.g. proximity on a route to school or work), 
the difficulty they encounter at the intersection, and the time of day that presents the 
greatest difficulty. This information may be used by the Orientation and Mobility 
Evaluation team in assessing the intersection. 

table with 2 columns and 4 rows
APS Requests  
Points   
1 request  
1   
2 recent documented requests  
2   
3 or more recent, documented requests  
3-4  
table end

B) Pedestrian Usage 
Blind pedestrians share many characteristics with the sighted population in that they go to public 
places, business, social, educational and medical facilities. At the same time they have 
special needs. For example, they may have a greater reliance on public transportation than 
sighted persons. Audible signals should be placed with the view of improving mobility of blind 
persons and making more facilities accessible to them. Proximity of signals to these facilities 
may assure a greater degree of utilization. 
list of 1 items
1.
Proximity to facilities for people who are blind or visually impaired:
This includes the 
Department of Rehabilitation, Social Security offices, Valley Center for the Blind and 
other similar facilities. Special consideration may be given to senior citizens complexes 
or public housing facilities that have one or more blind or visually impaired persons in 
residence. Points are assigned on the basis of blocks or distance (1 block equals 400 
feet) from proposed APS site to subject facility. The closer the two are, the more points 
are assigned. 
list end

table with 2 columns and 6 rows
Proximity  
Points   
4 to 6 blocks  
2   
3 blocks  
4   
2 blocks  
6   
1 block  
8   
At subject facility  
10  
table end

2. Proximity to key facilities utilized by all pedestrians (blind and sighted.): This includes 
medical, educational, social, recreational, shopping, commercial, business, public and 
governmental facilities. Points are assigned on the basis of blocks or distance (1 block 
equals 400 feet) from proposed APS site to subject facility. In case of multiple facilities, 
points will be assigned on the basis of the closest facility. 

table with 2 columns and 6 rows
Proximity  
Points   
4 to 6 blocks  
1   
3 blocks  
2   
2 blocks  
3   
1 block  
4   
At subject facility  
5  
table end

3. Access to public transit: Because blind and visually impaired persons rely heavily upon 
public transportation (bus or trolley), special consideration will be given to those 
proposed APS sites that have heavy general use, serves any of the facilities indicated 
above (Ref. B-1 and B-2), or serves as a transfer point and serves 2 or more transit 
routes within a one-block walking distance. 
list of 1 items
a)
Number of transit stops and/or transit routes within one block of proposed audible 
signal site. 
list end

table with 2 columns and 6 rows
Number of Routes and Stops  
Points   
1 - 2 routes and 1 stop  
1   
3 or more routes and 1 stop  
2   
1 - 2 routes and 2 stops  
3   
3 or more routes and 2 stops  
4   
2 or more routes and more than 2 stops  
5  
table end

b) Passenger usage is based upon the total passengers boarding and debarking each 
day at a transit stop or transfer point within a one-block walking distance. 

table with 2 columns and 7 rows
Passengers Boarding and Debarking Each Day  
Points   
0 - 49  
0   
50-149  
1   
150-249  
2   
250-499  
3   
500-999  
4   
1,000 and over  
5  
table end

C) Traffic Conditions 
Vehicle volumes, traffic distribution, traffic congestion and flow characteristics may assist or 
impede the blind traveler in crossing an intersection. Blind pedestrians can function best when 
crossing signalized intersections that are at right angles with a moderate but steady flow of 
traffic through the intersection on each leg and with a minimum of turning movements (right or 
left turns). Traffic that stops on each leg during each signal cycle is particularly helpful. Traffic 
that is either light, or very heavy, or erratic in its flow makes it difficult for the blind traveler to 
pick up audible clues as to whether the light is red or green. In such cases, audible signals will 
assist in determining when it is possible to cross the street. Points may be assigned by the 
evaluation team based upon their perception of the relative importance of each of these factors 
(which are not necessarily dependent upon the total average daily traffic). Candidate locations 
may score up to a maximum of 5 points for each of the following factors depending upon overall 
traffic distribution. 

table with 3 columns and 6 rows
Heavy Traffic Flow  
Vehicles per hour  
Points   
Approach traffic on all legs is in excess of 2,000 vehicles per hour during any peak hour.  
2,000 - 2,999  
1   
Approach traffic on all legs is in excess of 2,000 vehicles per hour during any peak hour.  
3,000 - 3,999  
2   
Approach traffic on all legs is in excess of 2,000 vehicles per hour during any peak hour.  
4,000 - 4,999  
3   
Approach traffic on all legs is in excess of 2,000 vehicles per hour during any peak hour.  
5,000 - 5,999  
4   
Approach traffic on all legs is in excess of 2,000 vehicles per hour during any peak hour.  
6,000 and over  
5  
table end

table with 3 columns and 7 rows
Off Peak Traffic Presence Direction 1   
Points   
At least two vehicles present on both directions on parallel street, expressed as a percentage of ten cycles.  
Constant (≥ 90%)  
0   
At least two vehicles present on both directions on parallel street, expressed as a percentage of ten cycles.  
Heavy (70-80%)  
1   
At least two vehicles present on both directions on parallel street, expressed as a percentage of ten cycles.  
Moderate (50-60%)  
2   
At least two vehicles present on both directions on parallel street, expressed as a percentage of ten cycles.  
Light (30-40%)  
3   
At least two vehicles present on both directions on parallel street, expressed as a percentage of ten cycles.  
Occasional (<30%)  
4   
At least two vehicles present on both directions on parallel street, expressed as a percentage of ten cycles.  
None (no through lanes to create surge noise.  
5  
table end

table with 3 columns and 7 rows
Off Peak Traffic Presence 
Direction 2   
Points   
At least two vehicles present on both directions on parallel street, expressed as a percentage of ten cycles.  
Constant (≥ 90%)  
0   
At least two vehicles present on both directions on parallel street, expressed as a percentage of ten cycles.  
Heavy (70-80%)  
1   
At least two vehicles present on both directions on parallel street, expressed as a percentage of ten cycles.  
Moderate (50-60%)  
2   
At least two vehicles present on both directions on parallel street, expressed as a percentage of ten cycles.  
Light (30-40%)  
3   
At least two vehicles present on both directions on parallel street, expressed as a percentage of ten cycles.  
Occasional (<30%)  
4   
At least two vehicles present on both directions on parallel street, expressed as a percentage of ten cycles.  
None (no through lanes to create surge noise.  
5  
table end

E.) Mobility Evaluation 
Each intersection being considered for audible signals should be evaluated by a certified 
orientation and mobility specialist. Based on the judgment of the O-M specialist and the 
evaluation team, additional points may be assigned based on observed or special conditions not 
adequately covered by any of the previous factors. This may include a heavy right-turn volume, 
right-turn island, right-turn signals, limited cone of "visibility", etc. 
Points 
Mobility and miscellaneous factors 
0-15 
Signals without Pedestrian Actuations 
Signalized intersections without pedestrian actuations may be considered for evaluation under 
this priority system, provided the following conditions are met: 
list of 3 items
1.
There must be a demonstrated problem or need that can be alleviated by the 
installation of an audible signal in the form of a request from an individual or group 
that would use the audible signal. 
2.
The evaluation team must unanimously concur with the need. 
3.
Appropriate pedestrian actuation buttons and circuits must be provided as part of the 
APS installation. 
list end
Accessible Signals at New Signal Installations 
Accessible signals will be considered for new signal installation if it is determined that 
installation is warranted by the criteria established above. 
Public Notice of Installation of Accessible Signals 
The City recognizes that the installation of an APS may be of interest to the community, 
especially residents in the immediate vicinity of the candidate intersection. In addition, research 
has indicated that APS are more effectively used by blind and visually impaired pedestrians if 
they have notice of its location and a basic understanding of the type of signal installed. 
Accordingly, the Director of Public Works will provide a notice to neighbors in a 350 feet radius 
from the intersection of the proposed installation of an APS at that site, and invite concerned 
citizens to contact him in writing. In addition, the Department of Public Works will issue press 
releases and informing the public and organizations serving people with disabilities, especially 
visual impairments, of type and location of proposed and installed APS. 
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