Pedestrians, Bicycles, and Accessibility

This section presents material on non-motorized transportation or “active” transportation which is defined by the US Centers for Disease Control and Prevention as “any self ‑propelled, human-powered mode of transportation, such as walking or bicycling” as well as accessibility considerations and requirements associated with the “Americans with Disabilities Act of 1990” (ADA). PL 101-336, and the “ADA Amendments Act of 2008,” PL 110-325.”(35) Unless otherwise noted, the term “pedestrian” as used in this section refers to bicycles and other forms on non-motorized transportation in addition to pedestrians themselves. Non-motorist crossing safety should be considered at all highway-rail crossings, particularly at or near commuter stations and at non-motorist facilities, such as bicycle/walking trails, pedestrian- only facilities, and pedestrian malls. Although collisions between trains and pedestrians occur less often than collisions between trains and motor vehicles, they are more severe. Research

Results Digest 8 4

(36), which studied pedestrian/LRV collisions, cites “risky or inattentive behavior” as a factor in pedestrian collisions and cites various contributing factors taken from the National Transit Database4 which were collaborated by transit agency staff:

•Rushing to catch trains or get across intersections

•Ignoring audible and/or visual warnings at crossings

•Distractions, such as cell phones and headsets

•Not paying attention in transit malls (usually involves little or no injury)

•Intoxication

•Trespassing(36) These behavioral factors can be exacerbated by the fact that LRVs—commuter trains operating in “push” mode—as well as conventional trains operating in designated Quiet Zones may be 4 https://www.transit.dot.gov/ntd 103nearly silent approaching a crossing. For these reasons, appropriate pedestrian crossing control systems are critical for pedestrian safety. It should be noted that injuries and fatalities (whether accidental or intentional as with suicides) also occur due to trespassing within the rail ROW; however, these topics are beyond the scope of this Handbook. Practitioners should consult other resources provided by the FRA, the Federal Transit Administration (FTA), and other sources including Operation Lifesaver Incorporated (OLI) for information and guidance on treatments which complement grade crossing treatments. Pedestrian safety is enhanced when pathways and sidewalks are designed such that they cross the tracks as close to a right angle as practical. It is desirable that pathways and sidewalks be designed to maintain a relatively consistent horizontal alignment and profile of 12 feet from the nearest rail, the distance from the nearest rail to the detectable warning (if present), or the distance from the nearest rail to the stop line (if present), whichever is greater, on each approach to the crossing. Providing a pedestrian refuge area in advance of the stop line or detectable warning surface so pedestrians have a place to wait while rail traffic approaches and occupies the crossing can be beneficial to pedestrian safety. When designing new sidewalk crossings, placing the sidewalk outside of the area occupied by crossing traffic control devices for vehicular traffic is important. This includes making sure that the counterweights and support arms for the automatic gates for vehicular traffic do not obstruct the sidewalk when the gate is fully lowered. Passive and active devices may be used to supplement highway-related active control devices to improve non-motorist safety at highway-rail crossings. Passive devices include fencing, swing gates, pedestrian barriers, detectable warning surfaces, pavement markings, texturing, refuge areas, and fixed message signs. Active devices include flashers, audible active control devices, automated pedestrian gates, pedestrian signals, variable message signs, and blank-out signs. These devices should be considered at crossings with high pedestrian traffic volumes, high train speeds or frequency, extremely wide crossings, complex highway-rail crossing geometry with complex ROW assignment, school zones, inadequate sight distance; and/or multiple tracks. All pedestrian facilities should be designed to minimize pedestrian crossing time, and devices should be designed to avoid trapping pedestrians between sets of tracks.

Channelization

The behavior of pedestrians crossing railroads is difficult to control. There are a variety of reasons pedestrians may disobey or ignore traffic control devices. Also, pedestrians often seek the shortest path and therefore may not always cross the tracks at the highway or designated pedestrian crossing. Pedestrian movements should be channelized to designated engineered crossing locations which provide warnings and controls designed for pedestrian use. Current practice used by commuter rail and transit extends fencing 50 to 100 feet back from designated pedestrian crossings to direct pedestrians to the crossing. Where fencing is used, the height should be reduced to 3.5 feet maximum within 100 feet of the crossing to avoid restricting sight distance. (31) Alternatives to fencing less likely to impede sight distance include bollards or short posts with chains, or low landscaping. 104Accessibility Standards The ADA gives civil rights protections against discrimination to individuals with disabilities. It affords equal opportunity for individuals with disabilities in public accommodations, employment, transportation, State and local government services, and telecommunications. Titles II and III of the ADA include the enforceable accessibility standards called the 2010 ADA Standards for Accessible Design. The Department of Justice’s 2010 ADA Standards include standards for Accessible Routes. The Draft Proposed Right-of-Way Accessibility Guidelines (PROWAG) published by the United States Access Board, which were in rulemaking when this Handbook went to press, address many geometric features pertaining to pedestrian facilities, including the following:

•Minimum widths and clearances

•Accessible routes and pedestrian pathways

•Curb ramps and ramps

•Detectable warning strips

•Protruding objects These standards are available from the Access Board website at https://www.ada.gov/.(37)

MUTCD Provisions

The MUTCD presents provisions for LRT-pedestrian crossings in Sections 8C.13 and for “pathway” crossings in Section 8D. Pathways are defined in Section 1A.13 of the MUTCD as “a general term denoting a public way for purposes of travel by authorized users outside the traveled way and physically separated from the roadway by an open space or barrier and either within the highway right-of-way or within an independent alignment. Pathways include shared- use paths, but do not include sidewalks.” As such, pathways are distinguished from sidewalks which are considered part of the highway crossing. The FRA categorizes pedestrian crossings as either “pathway” or “station.” Practitioners should refer to MUTCD Section 8D for both “pathway” and “station” crossing treatments and provisions. The MUTCD Section 8C.13 includes provisions for pedestrian and bicycle signals at LRT crossings. Although designated for LRT crossings, the guidance can be applied at conventional rail crossings such as those located along sidewalks. It should be noted that 8C.13 requires that pedestrian signal heads where used shall comply with the provisions of MUTCD Section 4E.04. Provisions for “pathway” crossings not associated with sidewalks are found in Section 8D of the MUTCD. However, as noted in 8D.01, many treatments outlined in Section 8D are applicable to crossings along sidewalks.

Current Practices

Current practices and guidance, some of which has been developed from LRT-crossing research, are shown in the following sections with references to MUTCD provisions and illustrative examples of various treatments. 105Pedestrian Refuge Areas (Refer to MUTCD Section 8C.13)

•Where adjacent tracks are present, pedestrian movements should be designed to avoid having pedestrians wait between sets of tracks.

•Where a track crossing is immediately adjacent to a road in a semi-exclusive alignment, a pedestrian refuge area or island between the tracks and the road should be provided to permit pedestrians to stand clear of the tracks while waiting to cross the roadway. If there is insufficient area for a pedestrian refuge area or island between the tracks and the road, additional pedestrian signal heads, signing, and detectors (see MUTCD Section 4E.08) or flashing ‑light signals should be installed based on engineering judgement. Pathway Crossing Signs and Markings (Refer to MUTCD Section 8D.03)

•Pathway grade crossing signs shall be standard in shape, legend, and color.

•The minimum mounting height for post-mounted signs adjacent to pathways and sidewalks shall be 4 feet, measured vertically from the bottom edge of the sign to the elevation of the near edge of the pathway or sidewalk surface.

•Where used at a pathway grade crossing, the traffic control device or its support shall be at least 2 feet laterally from the near edge of the pathway. Where traffic control devices are placed over a pathway or sidewalk, the vertical clearance shall be at least 8 feet for pathways. Stop Lines and Edge Lines and Dynamic Envelope Markings (Refer to MUTCD Sections 8D.04, 3B.06 and 8B.29)

•If used at pathway crossings, the stop line should be a transverse line at the point where a pathway user is to stop. The stop line should be placed at least 2 feet farther from the nearest rail than the gate, counterweight flashing ‑light signal or Crossbuck assembly (if any of these are present) is placed, and at least 12 feet from the nearest rail.

•Edge lines (see Section 3B.06) may be used on approach to and across tracks to delineate the designated pathway user route.

•Refer to MUTCD Section 8B.29 for use of dynamic envelope markings. In an LRT/pedestrian mall, the dynamic envelope may be delineated in its entirety. (34) Recommended Practices for Stop Lines and Detectable Warnings Detectable warning surfaces mark boundaries between pedestrian and vehicular ways where there is no raised curb. Detectable warning surfaces contrast visually with adjacent walking surfaces, either light-on-dark, or dark-on-light. Detectable warning surfaces are required by 49 CFR 37, Appendix A, 406.8 and by the ADA where curb ramps are constructed at the junction of sidewalks and the roadway, for marked and unmarked crosswalks. Proposed guidelines developed by the United States Access Board (R304.2.3) will require use of detectable warnings at all grade crossings whether along sidewalks or pathways located so that the edge nearest the rail crossing is 6 feet minimum and 15 feet maximum from the centerline of the nearest rail. (37) The March 2014 update by the Access Board provides recent information on the design and placement of detectable warning surfaces. (38) 106• A stop line should be provided at a pathway crossing if the surface where the marking is to be applied can retain the application of the marking

•Detectable warnings should be used at pathway crossings where pedestrian travel is permitted and at sidewalk crossings and should extend across the full width of the pathway or sidewalk

•Detectable warnings should be placed immediately in advance of the pathway or sidewalk stop line (if present)

•The near edge of the detectable warnings should be located no less than 12 feet from the nearest rail and be at least 2 feet in depth

•Where the distance between the center line of two tracks exceeds 38 feet, additional detectable warnings, designating the limits of a pedestrian refuge area, should be used at sidewalk or pathway crossings Crossbuck Assemblies and Swing Gates (Refer to MUTCD 8D.05) The MUTCD indicates a Crossbuck Assembly shall be installed on each approach to a pedestrian crossing except at station crossings and sidewalk crossings located within 25 feet of the traveled way. The MUTCD also contains provisions for use of swing gates which shall be designed to open away from the tracks and automatically return to the closed position. Use of swing gates should consider the crossing user’s ability to detect the presence of approaching rail traffic. (ADA Accessibility Guidelines for Buildings and Facilities [ADAAG] contains information regarding spring hinges and gate opening forces.) Active Traffic Control Devices (Refer to MUTCD 8D.06) The MUTCD requires that flashing ‑light signals, where used at a pathway crossing, shall be provided for each direction and that a bell or other audible warning device shall be provided. The flashing red lights shall be aligned horizontally. Reduced ‑size lenses may be used at a lower height at pathway crossings, however, the units shall have a diameter of at least 4 inches and a minimum mounting height of 4 feet except where installed between tracks, in which case a minimum mounting height shall be 1 foot. 107Current practice considers the following:

•Flashing-light signals, bell or audible warning device may be omitted at pathway or sidewalk crossings that are located within 25 feet of an active warning device at a crossing that is equipped with those devices.

•Additional pairs of flashing ‑light units, bell or audible warning devices may be installed on the active traffic control devices at a crossing from the back side of those devices.

•Pedestrian signal heads as described in Chapter 4E (of the MUTCD) utilizing Upraised Hand and Walking Person symbols should not be used at a pathway or sidewalk crossing except where a traffic control signal is used to control both rail and highway vehicles. Pedestrian Automatic Gates (Refer to MUTCD 8D.06) The MUTCD recommends that automatic gates used at pathway crossings should be a minimum of 2.5 feet and a maximum of 4 feet above the walkway, however, where a vehicular gate extends across a sidewalk, the location, placement and height prescribed for vehicular gates shall be used (see Section 8C.04.). Current practice considers the following:

•When an automatic gate is used at a sidewalk crossing, a separate mechanism should be provided for the sidewalk gate, instead of a supplemental or auxiliary gate arm installed as a part of the same mechanism.

•If used at a pathway or sidewalk crossing, automatic gate arms should be provided with a minimum of one light as shown in MUTCD Figure 8C.6. This light should be continuously illuminated whenever the warning system is active.

•If used, additional lights on the automatic gate arm should be installed in pairs and flashed alternately in unison with other flashing ‑light units (see MUTCD Figures 8C.5 and 8C.6.).

•Where automatic pedestrian gates are installed across pathway or sidewalk crossings, an emergency escape route should be available to provide egress away from the track area when the gates are activated.

•An emergency exit route can be provided by use of a swing gate in combination with a pedestrian automatic gate. In this circumstance, the swing gate should be signed as an “Emergency Exit” on the track side and provided with a “DO NOT ENTER” (R5-1) sign on the side facing away from the tracks.

•If used at a pathway or sidewalk crossings, the gate configuration, which might include a combination of automatic pedestrian gates and swing gates, should provide for full-width coverage of the pathway or sidewalk on each approach to the crossing.