HomeMy WebLinkAbout1MCity Council Staff Report
DATE: April 8, 2021 CONSENT CALENDAR
SUBJECT: APPROVAL OF PLANS, SPECIFICATIONS AND ESTIMATE (PS&E) AND
AUTHORIZATION TO BID THE HIGHWAY SAFETY IMPROVEMENT
PROGRAM (HSIP) CYCLE 8 TRAFFIC SIGNAL MODIFICATIONS,
FEDERAL-AID PROJECT NO. HSIPLN-5282(047) CITY PROJECT NO.
16-18 AND INSTALLATION OF A FLASHING BEACON, FEDERAL-AID
PROJECT NO. HSIPL-5282(048), CITY PROJECT NO. 16-19.
FROM: David H. Ready, City Manager
BY: Development Services Department
SUMMARY:
The construction documents (Plans, Specifications and Estimate) are completed and in
accordance with Section 7.03.040 of the Procurement and Contracting Code, the City
Council shall approve and adopt the plans, specifications and work details, and authorize
the bid request for all public projects in excess of $200,000. Approval of this item will
allow Staff to proceed with the Highway Safety Improvement Program (HSIP) Cycle 8
Traffic Signal Modifications, City Project No. 16-18, with an estimated cost of $2,530,000;
and HSIP Cycle 8 Flashing Beacon, City Project No. 16-19, with an estimated cost of
$295,000, for a combined total of $2,825,000.
RECOMMENDATION:
Approve the plans, specifications and estimate; and authorize Staff to advertise and solicit
bids for HSIP Cycle 8 Traffic Signal Modifications, Federal-Aid Project No. HSIPLN-
5282(047), City Project No. 16-18 and HSIP Cycle 8 Flashing Beacon, Federal-Aid
Project No. HSIPL-5282(048), City Project No. 16-19.
BUSINESS PRINCIPAL DISCLOSURE:
Not applicable.
BACKGROUND:
Federal Highway Safety Improvement Project (HSIP)
The federal government recognizes that highways must be continuously improved to
provide for increased traffic safety. The purpose is stated as:
ITEMNO. \ \,-\ -------1
City Council Staff Report
April 8, 2021 --Page 2
Authorize RFP: CP16-18 & CP16-19
The Highway Safety Improvement Program (HSIP) is a core Federal-aid program with the
purpose to achieve a significant reduction in traffic fatalities and serious injuries on all
public roads, including non-State-owned roads and roads on tribal land. The HSIP
requires a data-driven, strategic approach to improving highway safety on all public roads
with a focus on performance.
The HSIP is data driven, requiring applicants to demonstrate collision histories and
accident data at targeted intersections or roadways, and to identify specific traffic safety
measures to be implemented that will generate cost-benefit ratios in terms of avoided
injuries or fatalities as compared to the cost of the traffic safety measures to be
implemented. Higher cost-benefit ratios are required to be successful with receiving a
HSIP federal grant.
In November 2016, the California Department of Transportation (Caltrans) released a call
for projects to be funded through "Cycle 8" of the federal HSIP program. Staff evaluated
the traffic collision and accident data for a 4-year period and coordinated with the Palm
Springs Police Department to identify the intersections involving the highest number of
collisions. The top 30 intersections and 10 roadway segments were identified and ranked
based on collision frequency and severity of crashes. Of the top 30 intersections, for
"Cycle 8", staff identified 14 intersections within the City based on a high incidence of
right-of-way violation collisions with left-turning vehicles and traffic signal violation
collisions. Another location on Gene Autry Trail south of Salvia Road was selected for
installation of a flashing beacon assembly to add to existing warning signage on that
roadway that alerts drivers to the hazardous condition of blowing sand and to reduce
speed.
The City was previously successful in receiving a HSIP Cycle 7 grant in the amount of
$3,325,200 to upgrade 17 intersections within the City to improve the safety of the
traveling public. Similarly, the request to Caltrans for a HSIP Cycle 8 grant is intended to
upgrade traffic signals at 14 more intersections, including 6 intersections operated by
Caltrans on State Highway 111 (N. Palm Canyon Dr., Vista Chino, and Gene Autry Trail).
These existing traffic signals will be upgraded with the latest in traffic safety equipment,
including installation of advanced dilemma zone detection and upgrading of ADA curb
ramps.
Traffic signals are designed with three levels of control for left turning vehicles at
intersections, as explained in this report. Some existing traffic signals will be converted
from "Permissive" or "Protected-Permissive (P/P) left-turn phasing to operate with fully
protected left-turn phasing.
• Permissive left turn
The permissive signal control uses a green light that allows for the driver turning left at
the intersection to make the turn when there is enough distance ( or "gaps") with on-
coming traffic to safely make the left turn. The driver turning left must yield to opposing
through traffic and determine when it is safe to turn left. Permissive traffic signals are
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City Council Staff Report
April 8, 2021 --Page 3
Authorize RFP: CP16-18 & CP16-19
identified by the typical 3-section vehicle lights consisting of red I yellow I green "balls" as
shown in Figure 1 below.
t t
Figure 1. Typical Permissive Left Turn
Permissive traffic signal operation allows for shorter traffic signal cycle lengths due to the
elimination of any protected left turn phases; however, permissive traffic signal operations
do not provide a dedicated phase for left turning vehicles, requiring drivers turning left to
yield to opposing through traffic and to safely determine the speed of oncoming traffic to
identify gaps in· which to turn. ·
• Protected -Permissive left turn
The Protected-Permissive (P/P) signal control uses the permissive left turn operation in
combination with a protected left turn operation and was implemented by the City at many
intersections in accordance with state standards. The P/P signal control operates by
providing a protected left turn phase when enough cars are queued to turn left, or
automatically at the start of a green phase, cycling to a permissive left turn phase allowing
left turning vehicles to turn when safe to do so with on-coming traffic.
During the protected left turn phase, opposing vehicles are stopped by a red light that will
cycle to a permissive green light. Left turning vehicles are given clearance to turn on a
green left arrow that will cycle to a yellow left arrow followed by a permissive green "ball".
The permissive green light phase will cycle through the traditional yellow and red phases
to complete the cycle. The P/P traffic signal is identified by 5-section vehicle lights that
include a red "ball" and two sections of yellow I green arrows or "balls" as shown in Figure
2 on the next page.
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City Council Staff Report
April 8, 2021 --Page 4
Authorize RFP: CP16-18 & CP16-19
t t
Figure 2. Typical Protected-Permissive (P/P) Left Turn
P/P traffic signal operation requires a longer traffic signal cycle length due to the addition
of protected · left turn phase in combination with a permissive phase; however, during the
permissive phase drivers turning left are still required to yield to opposing through traffic
and to safely determine the speed of oncoming traffic to identify gaps in which to turn
during the permissive phase. Studies have shown that a P/P signal operation can have a
lower volume of collisions than a traffic signal with permissive only operation.
• Protected left turn
The protected signal control provides a dedicated left turn phase only limiting the
opportunity for a driver to turn left at only those times a green arrow is identified for the
left turn lane(s). During the protected left turn phase, the opposing through movement is
stopped by a red light until the left turn signal cycles through the yellow and red arrow, at
which time opposing through traffic may receive the green "ball" to proceed through the
intersection and the opposing left turning vehicle is stopped by a red arrow. This is
followed by a yellow arrow and finally a red arrow. Protected traffic signals are identified
by the typical 3-section vehicle lights consisting of a red arrow I yellow arrow I green arrow
indicated over the left turn lane, and red I yellow I green "balls" for the adjacent through
lanes as shown in Figure 3 below.
I t t I
Figure 3. Typical Protected Left Turn
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City Council Staff Report
April 8, 2021 --Page 5
Authorize RFP: CP16-18 & CP16-19
Protected traffic signal operation requires a longer traffic signal cycle length as it provides
a fully dedicated phase for all left turn movements. Left turning vehicles are required to
wait through the traffic signal cycle until the green arrow is indicated. Studies have shown
that the protected signal operation can have the lowest volume of collisions due to the
complete separation of left turning vehicles from opposing traffic.
The City's two applications were among a limited number of 26 projects awarded funding
in the Riverside/San Bernardino County area (Caltrans District 8) of the 224 projects
awarded statewide. Within the Coachella Valley, Palm Springs (2 projects), Indio (2
projects) and Cathedral City (1 project) were awarded HSIP Cycle 8 funding. The City
was awarded the full combined grant request of the original project estimate of
$3,057,500 which is 100% grant funded (with no required local match).
The project locations are shown below in Figure 1 below.
Flashing
Beacon and
Delineation
Figure 1
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City Council Staff Report
April 8, 2021 --Page 6
Authorize RFP: CP16-18 & CP16-19
Caltrans administers all federal funds awarded to local transportation projects. Caltrans
is assigned federal responsibilities from the Federal Highway Administration (FHWA) with
ensuring federal compliance with obligation and use of federal funds. The City is required
to process all funding requests through Caltrans and obtain their approval prior to
proceeding with any phase of the work.
On April 11, 2017 the City received authorization to proceed with the Preliminary
Engineering (PE) Phase for the Project, to complete the environmental review and final
design for these projects.
On June 7, 2017, the City Council approved Program Supplement Agreement No's. F045
and F046 to facilitate the use of federal HSIP funds for these projects securing $545,900
in federal HSIP funds for the PE Phase.
On February 21, 2018, the City Council awarded a Professional Services Agreement with
Advantec Consulting Engineer's, Inc. (Advantec) to provide the PE Phase professional
services for these projects.
Advantec completed the environmental review and analysis required for these projects,
including compliance with both the California Environmental Quality Act (CEQA) and the
federal National Environmental Policy Act (NEPA). Caltrans is assigned responsibility by
FHWA to review and approve ·the NEPA environmental documents for local federally
funded transportation projects. On November 20, 2019 and December 23, 2020 Caltrans
approved and issued the NEPA environmental approvals for these projects.
Advantec has completed preparation of plans and specifications for these projects. Six of
the 14 intersections are located on State Highway 111 and required Caltrans approval for
encroachment permits to complete the traffic signal modifications and upgrades. Caltrans
has indicated its final approval and is expected to issue the encroachment permits
necessary for the City to request approval to proceed with the construction phase of the
project.
STAFF ANALYSIS:
The contract documents for the Project prepared by Advantec have been reviewed and
approved by the Development Services Department. The scope of the Project includes
upgrading existing traffic signals with new upgraded video and radar vehicle detection
technology, upgraded battery back-up emergency power systems, upgraded curb ramps,
and related improvements.
Some of the 14 intersections included in the project currently have what is called
"Protected-Permissive (P/P)" signal phasing, allowing left turning vehicles to turn left on
a "permissive" green light when there is no opposing traffic. To eliminate the potential for
left-turn conflicts with opposing vehicles, the HSIP grant provides funding to convert these
traffic signals to fully protected left-turn signal phasing, requiring left turning vehicles to
stop for a protected left turn green arrow before proceeding through the intersection.
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City Council Staff Report
April 8, 2021 --Page 7
Authorize RFP: CP16-18 & CP16-19
The following intersections are included in the Project:
• N. Palm Canyon Dr. (HWY 111) I San Rafael Dr.
East/West traffic on San Rafael Dr. will be converted to fully protected left turn
movements (North/South is currently fully protected left turn movements)
• N. Indian Canyon Dr. I San Rafael Dr.
All directions will be converted to fully protected left turn movements
• N. Indian Canyon Dr. I Vista Chino (HWY 111)
North/South traffic on N. Indian Canyon Dr. will be converted to fully protected left turn
movements (East/West is currently fully protected left turn movements)
• Sunrise Way I Vista Chino (HWY 111)
No changes to left turn movements (all directions currently fully protected left turn
movements)
• Gene Autry Trail I Vista Chino (HWY 111)
No changes to left turn movements (all directions currently fully protected left turn
movements)
• Clubhouse View I Vista Chino
No changes to left turn movements (all directions currently fully protected left turn
movements)
• N. Indian Canyon Dr. I Tachevah Dr.
No changes to left turn movements (all directions will remain permissive left turn
movements to assist in access to Desert Regional Hospital)
• S. Palm Canyon Dr. I Ramon Rd.
No changes to left turn movements (all directions currently fully protected left turn
movements)
• Ramon Rd. I Farrell Dr.
All directions will be converted to fully protected left turn movements
• Ramon Rd. I Vella Rd. I Kirk Douglas Way
No changes to left turn movements (all directions currently fully protected left turn
movements)
• Gene Autry Trail (HWY 111) I Ramon Rd.
No changes to left turn movements (all directions currently fully protected left turn
movements)
• Ramon Rd. I San Luis Rey Dr.
No changes to left turn movements (all directions currently fully protected left turn
movements)
• S. Palm Canyon Dr. I Mesquite Ave.
North/South traffic on S. Palm Canyon Dr. will be converted to fully protected left turn
movements (East/West will remain permissive left turn movements due to low traffic
volumes)
• Gene Autry Trail (HWY 111) I Mesquite Ave. I Dinah Shore Dr.
East/West traffic on Mesquite Ave. / Dinah Shore Dr. will be converted to fully
protected left turn movements (North/South is currently fully protected left turn
movements)
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City Council Staff Report
April 8, 2021 --Page 8
Authorize RFP: CP16-18 & CP16-19
With City Council approval, Staff will advertise the Project in the Desert Sun, submit the
Notice Inviting Bids to plan rooms1, and provide the bid documents free of charge to
prospective bidders. A copy of the contract documents are on file with the Engineering
Division.
Staff recommends that the City Council approve the contract documents and authorize
Staff to formally solicit construction bids for these projects.
ENVIRONMENTAL IMPACT:
Section 21084 of the California Public Resources Code requires Guidelines for
Implementation of the California Environmental Quality Act ("CEQA"). The Guidelines
are required to include a list of classes of projects which have been determined not to
have a significant effect on the environment and which are exempt from the provisions of
CEQA. In response to that mandate, the Secretary for Resources identified classes of
projects that do not have a significant effect on the environment, and are declared to be
categorically exempt from the requirement for the preparation of environmental
documents. In accordance with Section 15301 "Existing Facilities," Class 1 projects
consist of the operation, repair, maintenance, permitting, leasing, licensing, or minor
alteration of existing highways and streets, sidewalks, gutters, bicycle and pedestrian
trails, and similar facilities; therefore, HSIP Cycle 8 Traffic Signal Modifications, City
Project No. 16-18 and HSIP Cycle 8 Flashing Beacon, City Project No. 16-19, are
considered categorically exempt from CEQA and Notice of Exemptions have been filed
with the Riverside County Clerk.
On December 28, 2020, Caltrans, acting as the lead agency pursuant to the National
Environmental Policy Act ("NEPA"), made an environmental determination that HSIP
Cycle 8 Traffic Signal Modifications, Federal-Aid Project No. HSIPLN-5282(047), City
Project No. 16-18, does not individually or cumulatively have a significant impact on the
environment as defined by NEPA and is excluded from the requirements to prepare an
Environmental Assessment ("EA") or Environmental Impact Statement ("EIS"), and has
considered unusual circumstances pursuant to 23 CFR 771.117(b). On the basis of this
determination under federal delegation pursuant to 23 USC 326 Caltrans has been
determined that this project qualifies for a Categorical Exclusion in accordance with 23
CFR 771.117(c)(4).
On November 20, 2019, Caltrans, made an environmental determination that HSIP Cycle
8 Flashing Beacon, Federal-Aid Project No. HSIPL-5282(048), City Project No. 16-19,
does not individually or cumulatively have a significant impact on the environment as
defined by NEPA and is excluded from the requirements to prepare an EA or EIS, and
has considered unusual circumstances pursuant to 23 CFR 771.117(b). On the basis of
this determination under federal delegation pursuant to pursuant to 23 USC 326 Caltrans
1 A Plan Room is a "library" where construction professionals may view bidding documents (blueprints and
specifications) for projects seeking price estimates for specific construction products or services. There are
9 various plan rooms in southern California where the City submits its bid documents to ensure all
contractors within the area are aware of the bid solicitation.
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City Council Staff Report
April 8, 2021 --Page 9
Authorize RFP: CP16-18 & CP16-19
has been determined that this project qualifies for a Categorical Exclusion in accordance
with 23 CFR 771.117(c)(8).
FISCAL IMPACT:
Construction costs have escalated since the City submitted its original HSIP Cycle 8 grant
application to Caltrans in 2017. Although these projects are funded at 100% with federal
HSIP funds, the maximum amount of the HSIP grant cannot increase without special
consideration by Caltrans; Staff will be submitting a request for additional HSIP federal
funds. Due to escalation of construction costs, it will be necessary for the City to
supplement the HSIP federal funds with local funds to complete these projects to the
extent Caltrans is unwilling or unable to grant the City the additional HSIP federal funds.
HSIP Cycle 8 Traffic Signal Modifications, City Project No. 16-18
The City received a HSIP grant of $2,686,600 for the entire project including the PE Phase
and Construction Phase as shown in the Table below.
HSIP Funding (City Project No. 16-18) Amount
PE Phase (Environmental / Design) $479,700
Construction Engineering (Contract Admin / Inspection) $287,800
Construction $1,919,100
Total HSIP Grant $2,686,600
The initial construction estimate was $1,919,100 and has increased to $2,300,542.
Including a 10% contingency the engineer's estimate is $2,530,000 for an overall increase
of $610,900. Staff recommends identifying Local Gas Tax funds with SB1 Gas Tax funds
as the source of additional funding if additional HSIP funds cannot be secured.
Proposed Funding (City Project 16-18) Amount
Caltrans HSIP Grant $1,919,100
Local Gas Tax/ SB1 Gas Tax Funds $610,900
Construction Contract (Estimated) ($2,530,000)
Budget Remaining $0
HSIP Cycle 8 Flashing Beacon, City Project No. 16-19
The City received a HSIP grant of $370,900 for the entire project including the PE Phase
and Construction Phase as shown in the Table below.
HSIP Funding (City Project No. 16-19) Amount
PE Phase (Environmental/ Desiqn) $66,200
Construction EnqineerinQ (Contract Admin / Inspection) $39,700
Construction $265,000
Total HSIP Grant $370,900
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City Council Staff Report
April 8, 2021 --Page 1 O
Authorize RFP: CP16-18 & CP16-19
The initial construction estimate was $265,000 and has increased to $295,000 for an
overall increase of $30,000. Staff recommends identifying Local Gas Tax funds with S81
Gas Tax funds as the source of additional funding if additional HSIP funds cannot be
secured.
Proposed Funding (City Project 16-19) Amount
Caltrans HSIP Grant $265,000
Local Gas Tax/ SB1 Gas Tax Funds $30,000
Construction Contract (Estimated) ($295,000)
Budget Remaining $0
SUBMITTED:
01£
Marcus L. Fuller, MPA, PLS, PE
Director of Development Services Assistant City Manager
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