An alternate circulation path complying with 1111 shall be provided whenever the existing pedestrian access route is blocked by construction, alteration, maintenance, or other temporary conditions
William W. Millar, American Public Transportation Association, October 28, 2002
American Public Transportation Association
RE: Draft Guidelines for Accessible Public Rights-of-Way
The American Public Transportation Association (APTA) is pleased to respond to the Architectural and Transportation Barriers Compliance Board's (Access Board) draft guidelines addressing accessibility in the public right-of-way.
About APTA
APTA is a nonprofit international association of over 1,500 public and private member organizations including transit systems and commuter rail operators; planning, design, construction and finance firms; product and service providers; academic institutions, transit associations and state departments of transportation. APTA members serve the public interest by providing safe, efficient and economical transit services and products. Over ninety percent of persons using public transportation in the United States and Canada are served by APTA members.
Comments
APTA has been part of this rulemaking from its inception and will continue to participate in the development of guidelines related to accessibility in the public right-of-way. Indeed, since 1999, APTA has contributed its input to the Public Rights of Way Access Advisory Committee. Now, with the release of the draft guidelines, APTA has the following comments:
1102.7.1 Bus Route Identification. Bus route identification signs shall comply with 703.5.1 through 703.5.4, and 703.5.7 and 703.5.8. In addition, to the maximum extent practicable, bus route identification signs shall comply with 703.5.5. Bus route identification signs located at bus shelters shall provide raised and Braille characters complying with 703.2, and shall have rounded corners.
Comment: Remove requirement for Braille and raised letter route identifications. It is common for transit agencies to change schedules and routes three or four times per year. Transit agencies also replace or install bus shelters often. For signs to withstand normal use, weather conditions and vandalism, it is necessary to make them of durable materials such as aluminum. This requires a separate die to be fabricated for each bus stop; the average cost of having dies fabricated begins at fifteen hundred dollars. In short, the expense of fabricating signs and the logistics of installing/replacing Braille and raised letter signs would be prohibitive to transit authorities. We suggest that the Access Board explore ways that could more practically address this issue, including new technologies.
Some stops have up to 30 or more different vehicle routes stopping at one location. The proposed change, which would lower the mid-sign reach of 48 inches
1103.3 Pedestrian Access Route Clear Width. The minimum clear width of a pedestrian access route shall be 48 inches
Comment: It could be very impractical to provide a total clear width of 54", from face of curb to the back of the sidewalk, for the accessible route due to tight right-of-ways. Many sidewalks are about 42" wide with utility poles right in the middle. Some cities also have a 24" - 36" clear zone from the face of curb where no utility poles/trees/bus signs shall be installed. Adding the 24" utility-clear zone, plus the diameter of utility pole base (about 12"-18") to the 48" ADA clear width, the sidewalk width would be 84" wide. Any such sidewalk improvement would require acquiring property from adjacent owners, which will definitely increase project cost. Such a provision would discourage local jurisdictions from improving their sidewalks.
This paragraph also may preclude a transit system from installing a bus sign on a sidewalk with less than 72" (6 ft) wide (24" clear zone from face of curb and 48" ADA clear zone). We are also concerned about the definition on accessibility clearances around the bus stop or information sign. If the 48" ruling applies around the entire sign, this poses another significant problem.
1104.3.2 Detectable Warnings. Detectable warning surfaces complying with 1108 shall be provided, where a curb ramp, landing, or blended transition connects to a crosswalk.
1108.1 General. Detectable warnings shall consist of a surface of truncated domes aligned in a square grid pattern and shall comply with 1108.
1108.1.4 Size. Detectable warning surfaces shall extend 24 inches
Comment: We recommend that truncated domes not be required at curb ramps, landings and blended transitions. In our view, truncated domes generally should only be used on transit platform edges. Truncated domes can set off muscle spasms for persons with spinal injuries in wheelchairs. Moreover, use of truncated domes in curb ramps, crosswalks, and blended transitions may cause persons with visual impairments to become confused as to where they are and could lead to serious injury. Currently, truncated domes are used at rail stations to indicate to persons with visual impairments to stop; in contrast, the guideline proposes to use truncated domes at curb ramps to indicate to a person with visual impairments to proceed. An alternative tactile tile must be used in this application. If the provision is not removed the minimum should be 36 inches
1102.3 Alternate Circulation Path. An alternate circulation path complying with 1111 shall be provided whenever the existing pedestrian access route is blocked by construction, alteration, maintenance, or other temporary conditions.
1111 Alternate Circulation Path
1111.1 General. Alternate circulation paths shall comply with 1111.
1111.2 Width. The alternate circulation path shall have a width of 36 inches
1111.3 Location. The alternate circulation path shall parallel the disrupted pedestrian access route, on the same side of the street.
1111.4 Protection. The alternate circulation path shall comply with 307 and shall be protected with a barricade complying with 1111.6 to separate the pedestrian access route and alternate circulation path from any adjacent construction, drop-offs, openings, or other hazards.
Comment: The requirement for the alternate circulation path to be parallel to the disrupted pedestrian access route and on the same side of the street is very often not possible due to the nature of constructions projects which are causing the disruption. In situations where entire rights-of-way are being built or redesigned there is often no safe area to establish a pedestrian access route which meets this guideline. We recommend that the proposed guideline be changed to read that the alternate circulation path shall be located in the safest and most direct route feasible within the scope of the construction project.
Conclusion
We appreciate the opportunity to comment on this proposal and look forward to an NPRM that accommodates the comments of all affected parties. For further information, please contact Kristin O'Grady at [... ].
Sincerely yours,
William W. Millar, President
Warren L. Sick, October 23, 2002
STATE OF KANSAS
KANSAS DEPARTMENT OF TRANSPORTATION
OFFICE OF ASSISTANT SECRETARY AND STATE TRANSPORTATION ENGINEER
Office of Technical and Informational Services
Architectural and Transportation Barriers Compliance Board
1331 F. Street NW
Suite 1000
Washington, DC 20004-1111
SUBJECT: Comments and Recommendations on the Draft Guidelines for Accessible Public Rights-of- Way submitted by the Kansas Department of Transportation.
Please accept this letter as the comments and recommendations of the Kansas Department of Transportation (KDOT) on the Draft Guidelines for Accessible Public Rights-of- Way. KDOT had in-house experts, in the fields of traffic engineering, design, construction, maintenance and legal review the draft guidelines. The attached comments are not based upon speculation or conjecture, but are real problems that will need to be addressed at some point.
KDOT personnel also had the opportunity to participate in the comments and recommendations submitted by the American Association of State Highway and Transportation Officials and would like the Access Board to consider the comments in that document as being incorporated into this letter.
Overall issues and concerns:
Maintenance issues:
The scoping requirements make it clear that the accessibility guidelines apply to new construction, alterations, and additions. However, it can be implied that the affected areas will have to be maintained to the guidelines. The cost and time associated with inspecting facilities to make sure they comply with the guidelines would seriously deplete governmental resources.
In addition, the guidelines could be used as a new standard by which right of way facilities need
to be maintained for all persons, not just the disabled. For instance, changes in elevation in a
pedestrian path must not be greater than Y4 inch
level that is 3/8 of an inch will the responsible governmental entity be held liable. In most jurisdictions, governmental entities are held to maintaining right of way in a condition reasonably safe for its intended purpose. If the proposed guidelines are construed as creating a new standard for maintenance, governmental entities will payout more settlements and judgments. In addition, the cost of maintenance would most likely be a budget breaker.
Cost implications:
When the ADA was enacted, proponents cited numerous examples where complying with the ADA requirements in new construction did not cost much more than not complying with the requirements. However, that doesn't appear to be the case with the Accessibility Guidelines for Public Rights-of-Way. The cost of installing elevators at overpasses is estimated to almost double the cost of an overpass. The cost of complying with the requirements for alternate circulation paths could add ten fold or more to the cost of conducting a short term maintenance operation on a sidewalk. Governmental entities are cutting back in most areas in an attempt to accommodate ever shrinking budgets. The guidelines as currently written would be a huge cost item competing with essential services in governmental budgets.
Conflicts with other standards:
The Proposed Guidelines for Accessible Public Rights-of-Way do not appear to consider the fact that many of the provisions contained in the Guidelines conflict with existing standards and regulations. Like many governmental entities, KDOT is legally required to follow the Manual on Uniform Traffic Control Devices (MUTCD). The Proposed Guidelines for Accessible Public Rights of Way require traffic control in locations where it may not be warranted by the MUTCD. Additionally, KDOT follows the American Association of State Highway and Traffic Officials (AASHTO) A Policy on Geometric Design of Streets and Highways (Green Book) for criteria in designing roadways. Following the proposed guidelines will interfere with meeting the criteria set out in the Green Book. For instance, meeting the cross slope requirement at cross walks on streets with vertical curves could affect the design speed of the roadway. Complying with the proposed guidelines could also affect numerous other federally mandated requirements regarding air quality, environmental issues, and historic preservation.
1101.3 Defined Terms:
Pedestrian Access Route: KDOT recommends that the definition of "Pedestrian Access Route" be changed to "An accessible corridor intended for pedestrian use within the public right-of - way." KDOT has defended numerous claims brought by pedestrians who were hurt when using a location that wasn't intended for pedestrian use, i.e. a pedestrian on an Interstate highway; a sledder on Interstate right-of-way; and a pedestrian on a controlled access facility. Without the word "intended" being included in the definition there would be arguments that paved shoulders, county roads, grassy medians, etc. need to comply with the provisions for a pedestrian access route.
1102 Scoping Requirements:
1102.2.2 Alterations (of existing Public rights-of-way]: It is KDOT's recommendation that provision governing "Alterations" specifically state that maintenance work does not trigger the need for accessibility improvements.
Additionally, KDOT recommends that a percentage limit be put on the amount spent making an "alteration" accessible. A requirement that alterations trigger the need to make accessibility improvements without any dollar limit to be spent on the accessibility improvement could cause governmental entities to not do planned alterations. Of course, if an alteration is not done because of the cost associated with making the accessibility improvements it leaves disabled and non-disabled people alike without upgrades to their pedestrian access system.
The scoping provision on alterations also provides that alterations do not have to be in compliance with the requirements if compliance is "technically infeasible". More often than not an alteration in compliance with the standards will be technically feasible, but will not be reasonable because of the amount of right of way required, the cost of making the alteration, the destruction of historic elements, and the conflicts between the accessibility guidelines and engineering standards. KDOT would request that alterations be in reasonable compliance with the accessibility guidelines.
1102.3 Alternate Circulation Path: This section requires that an alternate circulation path be provided whenever a pedestrian access route is blocked by construction, alteration, maintenance, or other temporary conditions. KDOT recommends that the words "other temporary conditions" be removed from the requirement. "Other temporary conditions" is far too general to give the proposed guideline any sense of reasonableness. A temporary condition could be when a van with a lift is unloading passengers onto the sidewalk, there is snow or ice on the sidewalk, or a family is moving and has boxes stacked on the sidewalk. Therefore, KDOT recommends the removal of the words "other temporary conditions" from the requirement in 1102.3.
1102.8 Pedestrian Crossings: This section requires that pedestrian crossings comply with the provisions of 1105. 1105 appears to apply to locations where pedestrians cross streets. In the State of Kansas the only location where it is illegal for a pedestrian to cross a street is between two signal controlled intersections and crossing those facilities where pedestrians are prohibited. Therefore, the guideline could be read as requiring all locations on Kansas streets that are not between two signal controlled intersections or on pedestrian prohibited facilities as having to comply with the provisions of 1105. KDOT recommends that the section be rewritten to apply only to marked crosswalks including any medians, pedestrian overpasses and underpasses; and any stairs or escalators.
1103 Pedestrian Access Route
1103.3 Clear Width [of Pedestrian access routes]: This section requires the minimum clear width of a pedestrian access route to be 48 inches
1104 Curb Ramps and Blended Transitions:
1104.3.4 Grade Breaks [at curb ramps and blended transitions]: This section provides that grade breaks shall not be permitted on curb ramps, blended transitions, landings, and gutter areas. KDOT recommends that an exception be written in that makes it clear that water drainage areas with grade breaks between the road cross slope and the back of the curb be allowed. There is no way to avoid a grade break in this area and still carry runoff down the street.
1105 Pedestrian Crossings:
1105.2.1 Width [of a crosswalk]: This section provides that crosswalks shall be a minimum of 96 inches
1105.2.2 Cross Slope [of a crosswalk]: The proposed guidelines require that the cross slope on crosswalks be 1:48
Second, the primary purpose of the streets is to accommodate vehicular traffic. Flattening the crosswalks in areas of hilly terrain could cause control and safety problems for vehicular traffic. This is even more of a concern for emergency vehicles. If a vehicle loses control in an intersection it is the pedestrians who are not protected and in the way of an errant vehicle.
Finally, the cost of constructing the flattened crosswalk and then making the necessary adjustments to the street, the sidewalks, utilities, and drainage would be cost prohibitive. In addition, there is the cost associated with the damaging effect on vehicles traveling through the flattened area and the costs: property, medical, time off work, and legal, surrounding foreseeable accidents in the intersection.
KDOT recommends that the guidelines require a crosswalk to be constructed with the minimum cross slope achievable while staying within generally accepted and prevailing highway design criteria.
1105.3 Pedestrian Signal Phase Timing: This section requires that pedestrian signal phase timing be calculated at 3.0 feet
1105.5.3 Approach [of pedestrian overpasses and underpasses]: The proposed guidelines mandate that elevators be installed where the rise to a pedestrian overpass exceeds 60 inches
1105.6.1 Separation [at roundabouts]: The accessibility guidelines provide that barriers be provided along the street side of the sidewalk where pedestrian crossing is prohibited at a roundabout. No other guidance is provided about what type of barrier should be used at such a location. A barrier used in this type of situation will need to be crashworthy, have tested end treatments, and not be a restriction for sight distance of the motorists. Even if such a barrier could be designed and manufactured, a barrier complying with the requirements on crashworthiness and not impairing sight distance will add substantially to the cost of constructing a roundabout. KDOT recommends this provision be dropped.
1105.6.2 Signals [at roundabouts]: This section mandates the installation of pedestrian signal devices at crosswalks on a roundabout. KDOT has serious misgivings about this requirement. Stop control signals on roundabouts defeats the purpose of roundabouts. Roundabouts keep traffic moving at a reduced speed. This in turn increases traffic capacity, reduces the severity of crashes, and reduces harmful emissions. A requirement for the installation of pedestrian signals at crosswalks in roundabouts will seriously reduce the number of roundabouts constructed. In addition, a stop control on a roundabout is unexpected by drivers. Unexpected conditions increase the likelihood of vehicle crashes injuring vehicle occupants as well as pedestrians. Finally, the proposed guidelines' mandatory provision totally ignores whether the MUTCD warrants the installation of a pedestrian signal at the crosswalk or not. KDOT recommends that this provision be removed. In the alternative, KDOT recommends that the provision be reserved until the Transportation Research Board's National Cooperative Highway Research Program Project 3-65, Applying Roundabouts in the Untied States is complete. The research project can be used as a basis for writing appropriate accessibility provisions for roundabouts.
1105.7 Turn Lanes at Intersection: This provision mimics the provision concerning pedestrian signals at roundabouts. Consequently, KDOT shares the same concerns with this provision as it does on the provision governing signals at roundabouts.
1106 Accessible Pedestrian Signal Systems: The provisions governing accessible pedestrian signal systems cover items such as audible and vibrotactile indications of the walk interval; the location of the signals; the minimum distance from other signals, (which prohibits the use of two signal heads on the same support); locator tones on the pedestrian push button; and directional and information signs that must provide information in both tactile and visual forms. KDOT's concern is the cost associated with the design, construction and maintenance of such elaborate pedestrian signals. KDOT recommends that the Access Board wait for information obtained in the National Cooperative Highway Research Program Project 3-62, Guidelines for Accessible Pedestrian Signals before setting regulations in this area.
1108 Detectable Warning Surfaces: KDOT recommends that the Access Board exclude the requirement for truncated domes on curb cuts with a slope of I: 15 or steeper. There have always been concerns over the use of truncated domes. It is known that truncated domes are difficult to maintain in winter weather, and that they cause hardships for mobility impaired persons. Allowing a curb cut that is steep enough to be noticeable to the visually impaired, not a difficult maneuver for those with mobility impairments, and is not a maintenance problem for governmental entities benefits all concerned parties.
1111 Alternate Circulation Path: This series of provisions set out the requirements for routes to be used when a pedestrian access route is closed. KDOT has serious concerns with the provisions for alternate circulation paths. A major concern of KDOT's is that no time period for the construction or maintenance activity that closes the pedestrian access route be required before triggering the requirement for an alternate circulation path. On projects that do not last more than one day the cost associated with designing an alternate path, bringing in the barrier and setting it up, signing the alternate path and then taking the alternate path down when the activity is over would significantly increase the time and cost involved in doing any type of work that requires closure of a pedestrian access route.
1111.3 Location [of alternate circulation paths]: This provision requires the alternate circulation path to be on the same side of the street as the disrupted one. In many cases this would be extremely expensive or cause a safety concern. To place the alternate circulation path on the same side of the street would require that easements be acquired and private property torn up to build a temporary walkway, or that the street be used as the pedestrian route and vehicular traffic be detoured. The first choice results in a use of taxpayer dollars that would not be supported by the public and the second results in a safety issue for both pedestrians and drivers. Furthermore, attempting to accommodate both construction traffic and the alternate circulation path would be difficult if not dangerous to pedestrians.
1111.4 Protection [of the alternate circulation path] and 111.6 Barricades [to provide protection to the alternate circulation path]: These two provisions require that barricades be placed around an alternate circulation path. KDOT's first concern is that it appears the Access Board wants to require barricades to protect pedestrians. Barricades do not provide protection. Barricades provide delineation. A barrier provides protection. However, KDOT also has concerns over using barriers around alternate circulation paths. Before a barrier is used it must be determined if the barrier, which is an obstacle to vehicular traffic, will prevent more injuries than it will cause if hit. Installation of a barrier may be acceptable at locations with high vehicle traffic and high pedestrian traffic, but at many locations a barrier would not be warranted. In addition, the barrier would have to be crash worthy in case an errant vehicle ran into it. KDOT is unaware of any product approved for this type of situation.
KDOT recommends that the requirements for alternate circulation paths follow the provisions of the MUTCD. As written the proposed guidelines are too costly, dangerous to both pedestrians and drivers, increase the time length for small jobs on the pedestrian access route, and could be impossible to apply in a reasonable manner during some types of operations.
Conclusion:
The Kansas Department of Transportation has serious concerns about the proposed guidelines. Implementing the guidelines as currently written will significantly increase construction and maintenance cost. Many provisions in the guidelines conflict with accepted practices and established guidelines for highway and street design and, if followed, could easily increase the risk of accident for both drivers and pedestrians. Numerous provisions in the guidelines create mandatory traffic control where it is not warranted under existing standards. The guidelines require engineers to choose between following the guidelines and using engineering judgment in deciding upon an appropriate and safe design.
The Kansas Department of Transportation would like to thank the Access Board for considering KDOT's comments and recommendations.
Sincerely,
Warren L. Sick,
Assistant Secretary and State Transportation Engineer
Leslie Salgado-Tamayo, October 28, 2002
Please find enclosed the comments we have on the Access Board's Draft Guidelines on Accessible Public Rights of Way. Please note that we have not commented on those items that do not affect our transit facilities. I hope that this is helpful to you in the process of preparing the new guidelines on public rights-of-way. Please call me at [...], should you have any questions or comments.
Sincerely,
Leslie Salgado-Tamayo
Chief, ADA and Special Projects,
Facilities Engineering Maryland Transit Administration
Maryland Transit Administration (MTA) - Comments on the
"Draft Guidelines for Accessible Public Rights-of-Way"
1102.2.2 Alterations. Where existing elements or spaces in the public right-of-way are altered, each altered element or space shall comply with the applicable provisions of Chapter 11.
EXCEPTION:In alterations, where compliance with applicable provisions is technically infeasible, the alteration shall comply to the maximum extent feasible.
MTA's comment
- What constitutes an "alteration"? We need more definite guidelines. This is not a new problem with ADAAG.
- We need a better definition of "maximum extent feasible". Is there a dollar amount? More guidance needed.
1102.3 Alternate Circulation Path. An alternate circulation path complying with1111 shall be provided whenever the existing pedestrian access route is blocked by construction, alteration, maintenance, or other temporary conditions.
MTA's comment
- Refer to comment under 1111.
1102.7 Pedestrian Signs. Signs for pedestrian use shall comply with 1102.7.
1102.7.1 Bus Route Identification. Bus route identification signs shall comply with 703.5.1 through 703.5.4, and 703.5.7 and 703.5.8. In addition, to the maximum extent practicable, bus route identification signs shall comply with 703.5.5. Bus route identification signs located at bus shelters shall provide raised and Braille characters complying with 703.2, and shall have rounded corners.
MTA's comment
- It is not clear if providing bus route identification signs, at bus shelters, in raised and Braille characters is required only where bus route identification signs in compliance with 703.5.5 are provided. If required, at bus shelters, what are the recommended placement locations, since shelters don't have doors?
1102.8 Pedestrian Crossings. Where a pedestrian crossing is provided, it shall comply with the applicable provisions of1105.
MTA's comment
- See comment under Section 1105.
1102.10 Stairs. Where provided, stairs shall comply with 504. Stair treads shall have a 2 inch
MTA's comment
- "2 inch
1103.3 Clear Width. The minimum clear width of a pedestrian access route shall be 48 inches
MTA's comment
- This increases the minimum clear width from 36 to 48 inches
1103.7 Surface Gaps at Rail Crossings. Where the pedestrian access route crosses rail systems at grade, the horizontal gap at the inner edge of each rail shall be constructed to the minimum dimension necessary to allow passage of railroad car wheel flanges and shall not exceed 2-½ inches (64 mm).
EXCEPTION: On tracks that carry freight, a maximum horizontal gap of 3 inch
MTA's comment
Allowing the 3-inch gap helps clear an ongoing problem where transit agencies provide their services via tracks owned by freight companies.
1104.2.1.3 Landing. A landing 48 inches
MTA's comment
- This reflects the new increased width of sidewalk (from 36 to 48 inches). This will result in increased construction costs and, in some cases require additional right-of-way. We recommend that you allow 36 inches
1104.2.2.3 Landing. A landing 48 inches
MTA's comment
- This reflects the new increased width of sidewalk (from 36 to 48 inches). This will result in increased construction costs and, in some cases require additional right-of-way. We recommend that you allow 36 inches
1104.2.2.4 Diverging Sidewalks. Where a parallel curb ramp does not occupy the entire width of a sidewalk, drop-offs at diverging segments shall be protected with a barrier.
MTA's comment
- What constitutes a drop-off where a "barrier" would be required?
1104.3.2 Detectable Warnings. Detectable warning surfaces complying with1108 shall be provided, where a curb ramp, landing, or blended transition connects to a crosswalk.
MTA's comment
- This is a new requirement that will create tripping hazards and the resulting liability as well as increased maintenance costs.
1104.3.7 Clear Space. Beyond the curb line, a clear space of 48 inches
MTA's comment
- Diagram needed in order to better understand this requirement.
1105.2 Crosswalks. Crosswalks shall comply with 1105.2.
1105.2.1 Width. Marked crosswalks shall be 96 inches
MTA's comment
- This is an increase of two feet over MUTCD's 72 inch
1105.2.2 Cross Slope. The cross slope shall be 1:48
MTA's comment
- Meeting this requirement may be highly unrealistic when dealing with existing roads or parking lots that are being upgraded.
1105.5 Pedestrian Overpasses and Underpasses. Pedestrian overpasses and underpasses shall comply with 1105.5.
1105.5.1 Pedestrian Access Route. Pedestrian overpasses and underpasses shall contain a pedestrian access route complying with1103.
1105.5.2 Running Slope. The running slope shall not exceed 1:20
1105.5.3 Approach. Where the approach exceeds 1:20
MTA's comment
- This new requirement will have major design, construction, maintenance and safety impacts on our agency. The need to have a limit to the maximum rise for a ramp is understandable. However, 60 inches
1111 Alternate Circulation Path
1111.1 General. Alternate circulation paths shall comply with 1111.
1111.2 Width. The alternate circulation path shall have a width of 36 inches
1111.3 Location. The alternate circulation path shall parallel the disrupted pedestrian access route, on the same side of the street.
MTA's comment
- Providing a 36 inch
Will Stein, P.E., October 28, 2002
We have reviewed the Americans with Disabilities Act Accessibility Guidelines and the comments and recommendations of AASHTO to the guidelines. We are in agreement with the comments and recommendations made by AASHTO. However, we would like to emphasize the requirements, which will most directly effect us.
Section 1102.2.2 - Alterations
"Where existing elements or spaces in the public right-of-way are altered, each altered element or space shall comply with the applicable provisions of Chapter 11. Exception: In alterations, where compliance with applicable provisions is technically infeasible, the alteration shall comply to the maximum extent feasible."
There is no clear definition of an alteration. We need to know what types of work such as maintenance, replacement, or improvements on the signals, roadway, or sidewalk will trigger the alteration requirement. Does it mean that any replacement, upgrade, or modification will require us to meet the provisions of Chapter 11? We could be in a position where any upgrade of existing facilities would require large expenditures of money to meet ADAAG requirements. Depending on the extra cost, projects could be postponed or moved down the priority list and replaced by other projects.
Section 1102.3 - Alternate Circulation Paths
An alternate circulation path complying with [Section] 1111 shall be provided whenever the existing pedestrian access route is blocked by construction, alteration, maintenance or other temporary conditions.
Section 1111.3 - Location [of Alternate Circulation Paths]
"The alternate circulation path shall parallel the disrupted pedestrian access route, on the same side of the street."
When a sidewalk is blocked because of construction, the natural detour route is the other side of the street or around the block to avoid the construction area. Placing a person with disabilities into a construction area with construction equipment and other hazards is not a good idea. Only in special cases where access to a particular building must be maintained do we make special provisions.
Section 1105.2.2 - Cross Slope [of crosswalks]
"The cross slope shall be 1:48
On our primary highways we normally give priority to our primary highway and carry the profile grade through the intersection. In all cases where the profile grade is over 2%, we would be required to adjust the grades to provide a 2% cross slope for the cross walk. In hilly areas with profile grades greater than 2%, using minimum length vertical curves (100' or greater), we would be faced with total replacement of the existing highway pavement to meet the 2% cross walk requirement. With steeper profile grades, we could not even meet minimum vertical curve requirements.
We recommend that the cross walk slope be tied to the existing topography in the project area, matching the profile grade of the highway like the mid-block cross walks.
Sections 1105.6, 1105.6.1, and 1105.6.2 - Roundabouts, including separation and signals.
Section 1105.6 - Roundabouts: "Where pedestrian cross walks and pedestrian facilities are provided at roundabouts, they shall comply with 1105.6."
Section 1105.6.1 - Separation [at roundabouts]:
"Continuous barriers shall be provided along the street side of the sidewalk where pedestrian crossing is prohibited. Where railings are used, they shall have a bottom rail 15 inches
Section 1105.6.2 - Signals [at Roundabouts]:
"A pedestrian activated signal complying with [Section] 1106 shall be provided for each segment of the cross walk, including the splitter island. Signals shall clearly identify which cross walk segment the signal serves."
Stopping traffic at roundabouts is contrary to the philosophy of roundabouts and defeats the purpose of constructing them in any location.
We recommend "reserving" section 1105.6 through 1105.6.2 until the Transportation Research Board's National Cooperative Highway Research Program (NCHRP) Project 3-65, "Applying Roundabouts in the United States", is complete.
Sincerely,
Will Stein, P.E.
Design Methods Engineer
Iowa Department of Transportation
American Association of State Highway and Transportation Officials (AASHTO), October 23, 2002
[PDF Version]
James C. Codell, III, President
Secretary
Kentucky Transportation CabinetJohn Horsley
Executive Director
Mr. Scott Windley
Architectural and Transportation Barriers Compliance Board
Office of Technical and Informational Services
1331 F Street NW, Suite 1000
Washington, DC 20004-1111
SUBJECT: AASHTO Comments and Recommendations on the US Access Board's
Draft Guidelines for Accessible Public Rights-of-Way
In response to the federal notice of availability of the draft Guidelines for Accessible Public Rights-of-Way, the American Association of State Highway and Transportation Officials (AASHTO) respectfully submits the attached comments and recommendations. These comments were adopted by the AASHTO Board of Directors on October 14, 2002, and represent the official AASHTO recommendations on the draft accessibility regulations.
AASHTO would like to thank the US Access Board for the opportunity to comment on the draft guidelines at this early stage in their development. We believe that these guidelines will be an important step in improving accessibility on our transportation system throughout the country. In addition, AASHTO appreciates the Access Board's extensive outreach efforts in the preparation of the draft guidelines, including technical experts from the transportation and public works fields in addition to advocates for the disabled community.
However, as stated in the attached comments, additional work is needed to ensure that the final rule does not impose overwhelming costs and manpower demands, as well as liability exposure, on the State DOTs. AASHTO requests that the US Access Board provide cost estimates for the implementation of these guidelines to illustrate the potential financial impacts on the implementing agencies prior to the release of the Notice of Proposed Rule Making. In addition, we feel that several proposed guidelines will have unintended negative effects on safety and/or accessibility due to their restrictive wording. AASHTO recommends keeping the guidelines as flexible as possible to ensure that the best solution can be implemented in any given situation. AASHTO would like to offer its expertise and the expertise of its members to work cooperatively with the Access Board to refine specific technical issues and develop further guidance.
Finally, it should be noted that several million dollars worth of research is currently underway through such agencies as the National Institutes of Health and the Transportation Research Board that addresses many of the issues discussed in the draft guidelines. Research topics include pedestrian safety and accessibility at roundabouts and free-flow turn lanes, innovative treatments at unsignalized pedestrian crossings, and guidance on installing accessible pedestrian signals. AASHTO feels it would be premature to make final decisions on these issues without the benefit of the latest research.
Thank you for your consideration of the views of the State Transportation Departments as you develop a Notice of Proposed Rule Making on accessible public rights-of-way. If you have questions or need additional information on the attached material, please contact Dr. Anthony Kane, Director of AASHTO's Office of Engineering and Technical Services, at [ ... ].
Sincerely,
James C. Codell, III
President
Attachment
cc: John Horsley
Comments and Recommendations
on the
Draft Guidelines for
Accessible Public Rights-of-Way
Submitted to:
United States Architectural and Transportation Barriers Compliance Board
By:
American Association of State Highway
and Transportation Officials
October 2002
Adopted by resolution of the AASHTO Board of Directors
October 14, 2002
Contents:
Introduction
Broad Issues/Concerns
Technical Comments
Definitions
Areas of Primary Concern
Line-by-Line Comments and Recommendations
Resolution of the AASHTO Board of Directors
Comments and Recommendations on the Draft Guidelines for Accessible Public Rights-of-Way
October 2002
Introduction
AASHTO would like to thank the US Access Board for the opportunity to comment at this early stage on the draft Guidelines for Accessible Public Rights-of-Way. These guidelines will be an important step in improving accessibility for disabled persons throughout the country on our transportation system. We applaud the Access Board's inclusion of a wide range of people and expertise on the Public Rights-of-Way Access Advisory Committee, which developed the Building a True Community report, on which these draft guidelines are based. It is obvious that the work that went into developing the draft guidelines was extensive, and we appreciate these efforts.
As we enter the next phase of development, which includes the refinement of specific technical issues and the development of further guidance and research, AASHTO would like to offer its expertise and the expertise of its members in working cooperatively with the Access Board. Currently, the guidelines provide little or no allowance for engineering judgment to be exercised in the design and construction of these facilities to ensure the safety and welfare of the public, especially in situations where we feel the guidelines will produce unintended consequences. In many cases, extremely specific requirements have been set forth, and there appears to be very little room for developing alternate and sometimes better solutions. These issues need to be addressed appropriately before the release of a proposed rule.
The following pages contain AASHTO's comments on the draft guidelines, based on reviews by several State Department of Transportation (DOT) experts representing a cross-section of transportation engineering disciplines, including planning, design, construction, safety, maintenance, public transportation, and others. We feel that these responses represent "real life" concerns and issues that will be encountered if the guidelines are releases as-is, and that it would be better to address them now rather than wait until there are problems and conflicts in the implementation phase. AASHTO welcomes the opportunity to work cooperatively with the US Access Board to address these issues, and stands ready to offer assistance and expertise where it is needed.
Broad Issues/Concerns
. Maintenance Implications - It is unclear to AASHTO what type and amount of additional maintenance these regulations imply for the long term, as well as how often all aspects of the public right-of-way will need to be inspected for consistency with these accessibility guidelines. The increase in inspection, inventory, and maintenance that would be needed appears to be tremendous given the wide range of facilities and features that must be accommodated, including complex signal systems, street furniture, elevators, work zones, and additional signing. In addition, start-up costs for developing a system to track all of these features and mainstream them into DOT operations, as well as into the transportation funding approval process, will take a significant effort on the part of the States and local jurisdictions.
. Relationship to Other Regulations - AASHTO is also unclear as to how these proposed guidelines relate to other regulations that must be met within the transportation field, such as air quality, historical preservation, and environmental protection regulations. Many of the proposed accessibility guidelines, if implemented, could have profound impacts on the ability of States and local jurisdictions to meet these existing federal mandates. These conflicts could result in substantial penalties being levied or the denial of transportation funding if existing regulations are not met; or, conversely, they could result in the inability of the State or local area to implement portions of the accessibility guidelines in order to meet the existing laws. Additional details are included in the discussion of specific draft guidelines, but a few examples include the following:
? Air quality regulations could be an issue if numerous additional traffic signals are installed, or if traffic congestion is increased through the wholesale reduction in "green time" for motor vehicles.
? Historic preservation issues could be a problem if the alterations include the installation of non-historic treatments, such as concrete sidewalks in historic districts that are traditionally brick or stone, or infringements on historic buildings or properties.
? Environmental regulations may be in conflict with these guidelines where additional right-of-way is required, since a strong demonstration of need is required for such acquisitions.
It will need to be determined which regulations take precedence when there is a conflict and additional guidance will need to be provided to the State DOTs and others when this issue is resolved. Additional information should be sought from groups that deal with these issues on a regular basis.
. Cost Implications - Obviously, cost will always be an issue when new unfunded mandates are being proposed. As discussed in AASHTO's recent Bottom Line Report, 2002, estimated annual needs with regard to the nation's transportation system have reached $90 billion, while the current federal highway program hovers around $30 billion per year. This discrepancy represents a tremendous shortfall in funds, and it means that State DOTs and local jurisdictions are already stretching their dollars extremely thin. Several proposals contained in the draft guidelines would carve another sizable chunk out of the pie. Finding additional funding sources for these projects, as opposed to simply earmarking existing highway funding, would be a significant help in getting the needed accessible features out on the highway system in a timely manner. AASHTO calls on the US Access Board to provide cost estimates and a financial plan for the implementation of these guidelines to illustrate the potential financial impacts of their proposed solutions to accessibility issues on the implementing agencies prior to the release of the Notice of Proposed Rule Making. AASHTO is willing to work cooperatively with the Access Board in this endeavor.
Technical Comments
. Construction Tolerances - Tolerances within the highway construction industry are rarely to the nearest millimeter - and, in some cases, inches are too precise. Highway construction tolerances are not the same as those in architectural design. The Access Board needs to revise the units of measure used throughout these guidelines appropriately based on the item being measured. Examples of this excessive precision include the maximum curb ramp length of 4,570 mm and a maximum vertical change along the pedestrian access route of 6.4 mm. There is concern that this precision is not achievable in the field and that the State DOTs could be held liable if the dimensions of accessibility features are off by as little as a millimeter. At its Annual Meeting in October 2002, AASHTO funded a research project through the National Cooperative Highway Research Program (NCHRP), which is a subgroup of the National Academy of Sciences, to develop appropriate construction tolerances for the various items listed in the draft guidelines. The results of this study will be provided to the Access Board to assist in the development of appropriate highway construction tolerances within the proposed guidelines.
. Metric Conversions - Metric conversions should be soft conversions based on existing highway construction conversion standards. This will help minimize such odd and unachievable dimensions as 6.4 mm maximum change in vertical, 305 mm minimum post spacing, and 1,220 mm minimum pedestrian access route width.
. Notation for Slope - AASHTO recommends the use of current standard notation for slope, e.g., 1V:48H, which stands for "1 vertical to 48 horizontal," throughout the guidelines. This notation was developed to prevent confusion between the metric and US Customary notations, which are exactly opposite each other (1:48 in
In addition, AASHTO suggests using the terms "steeper" and "shallower," instead of "greater than" and "less than," when referring to slopes.
Definitions (from Section 1101.3, Defined Terms)
Proposed Revisions
. Accessible Pedestrian Signal - AASHTO proposes using the definition of Accessible Pedestrian Signal that is included in the Manual on Uniform Traffic Control Devices (MUTCD, 2000, p. 4A-1), which is a federally-mandated set of standards for the transportation industry: "A device that communicates information about pedestrian timing in non-visual format, such as audible tones, verbal messages, and/or vibrating surfaces."
. Cross Slope - Revise this definition in the draft guidelines by deleting the second sentence, which states: "This is usually called superelevation on curves in the public right-of-way (see superelevation)." This additional information is confusing and inaccurate from an engineering perspective, and the term "superelevation" does not appear in the draft guidelines. The definition for cross slope should be as follows: "The slope that is perpendicular to the direction of travel."
. Pedestrian Access Route - Refine this definition to state: "An accessible corridor intended for pedestrian use within the public right-of-way." AASHTO is concerned that highway projects such as shoulder closings in rural areas or pothole-filling projects on parts of the roadway not intended for pedestrian use (but which may, from time to time, be used by pedestrians) would invoke the need to provide an alternate circulation path, which would constitute a huge additional expense. In addition, it seems clear that it was not the Access Board's intent to require shoulders or other parts of the roadway (exclusive of the crosswalks) to fall under the other requirements in these guidelines, such as the maximum cross slope of 1V:48H (Section 1103.4) or the restriction on changes in level (Section 1103.8), but it is possible that this interpretation could be promulgated if the phrase "intended for" is not added to the definition.
Proposed Additions
. Alteration - A tremendous amount of clarification is needed related to the term "alteration," as well as the requirements that it triggers. Currently, this term is open to a wide range of interpretation, which is likely to expose public agencies to potential lawsuits. In addition, standard engineering terminology needs to be used to ensure that the requirements are understood and implemented correctly. If a concise definition cannot be developed that adequately explains the varying levels of alteration and their associated requirements/improvements, then additional guidance in this area will be necessary. AASHTO proposes working cooperatively with the Access Board to address this issue. (See also comments under Section 1102.2.2, Alterations.)
. Edge Delineation - AASHTO recommends removing the term "barrier" from the guidelines and replacing it with "edge delineation" or a similar phrase where appropriate. As currently used, the term "barrier" has a different meaning from that commonly understood by transportation engineers, which will lead to confusion regarding what is required or desired. The AASHTO Roadside Design Guide, a nationally recognized set of guidelines for roadside safety issues, defines "barrier" as follows:
A roadside barrier is a longitudinal barrier used to shield motorists from natural or man-made obstacles located along either side of a traveled way. It also may be used to protect bystanders, pedestrians, and cyclists from vehicular traffic under special conditions. (Roadside Design Guide, p. 5-1)
To the typical highway engineer, examples of barriers include the massive concrete "Jersey" barriers seen often along major freeways, steel or timber guardrail, and 3-strand cable systems. These barriers must meet very specific performance criteria to ensure that they can safely contain and redirect errant motor vehicles.
Based on the usage of the term "barrier" in the draft guidelines, it is assumed that barriers could include walls, raised lips, or even planting or vegetative strips. The primary purpose behind this type of barrier seems to be to indicate to the visually impaired that: 1) the sidewalk is diverging at a parallel curb ramp (Section 1104.2.2.4); or 2) they are leaving the pedestrian access route and they should redirect themselves appropriately (Section 1105.6.1). Serious consideration should be given to renaming this feature for clarification purposes, as well as to prevent the construction or installation of many unintended and undesired roadside features that could be safety hazards for motor vehicle users.
. Roadway - AASHTO recommends defining the term "roadway" to include bridges to ensure that the ADAAG requirements for "structures" (a common term for bridges in transportation engineering) are not applied to bridges. Bridges are natural extensions and connections of roadways and are part of the public right-of-way; thus, their accessibility requirements should be guided by the proposed guidelines for public rights-of-way. A simplified version of the definitions for "highway" and "roadway" found in the MUTCD (2001, p. 1A-16 and 1A-19) could be used: "The portion of the public way ordinarily used for vehicular travel, shoulder, or parking, inclusive of bridges, but exclusive of the sidewalk or curb."
. Roadway Preservation and Preventative Maintenance - AASHTO recommends using the following definition for roadway preservation and preventative maintenance, and feels that these activities should be exempt from the requirement to install additional accessibility features:
Roadway Preservation and Preventative Maintenance are activities undertaken to provide and maintain serviceable roadways and/or planned strategies of cost-effective treatments to an existing roadway and its appurtenances that preserve the system, retard future deterioration, and maintain the functional condition of the system. Also, the process used to extend the functional condition by adding longer life to the roadway surface without increasing the structural capacity of the roadway.
Proposed Deletions
. Running Slope - Both "grade" and "running slope" are used throughout the guidelines interchangeably. For example, the term "grade" is used in Section 1103.5 when referring to the Pedestrian Access Route, but "running slope" is used in Section 1105.2.3, which refers to crosswalks (which are part of the pedestrian access route). AASHTO recommends removing the term "running slope" from the guidelines and using "grade" consistently, since it is more common among transportation engineers.
. Superelevation - AASHTO recommends removing this term from the definitions since it is not used in the draft guidelines. However, if the Access Board includes it, then the definition needs to be clarified to ensure its accuracy: "The increased cross-slope on a roadway curve that assists in counteracting the lateral acceleration imposed on traveling vehicles."
Areas of Primary Concern
Section 1102.2.2 - Alterations
"Where existing elements or spaces in the public right-of-way are altered, each altered element or space shall comply with the applicable provisions of Chapter 11. EXCEPTION: In alterations, where compliance with applicable provisions is technically infeasible, the alteration shall comply to the maximum extent feasible."
Background
AASHTO's major concern with this section of the draft guidelines is that there is no clear definition of an "alteration." It appears that alterations, and the accessibility improvements that are associated with them, constitute a "sliding scale" where greater alterations will necessitate more substantial accessibility accommodations. While this seems logical, it is very much open to interpretation, which, in AASHTO's view, means open to litigation. It is unclear what specific types of modifications to the sidewalk, roadway, signals, etc., trigger accessibility improvements, and which improvements are required.
For example, does re-striping the roadway trigger any accessibility improvements? Filling potholes? Conducting underground utility work for significant distances? (Utility work is typically permitted, but not carried out, by the State DOT.) The question of modifications triggering accessibility improvements is also unclear in the area of traffic signal installations. For example, do signal bulb replacements trigger accessibility improvements? Signal re-timing? Signal head replacements/changes? Box hardware improvements? Pole relocation? There are so many different types of "alterations" and so many different interpretations of this term that additional guidance is necessary. To simplify the issue, it might be possible to tie accessibility improvements to standard categories of highway projects, such as "roadway preservation," "preventative maintenance," "rehabilitation," "reconstruction," etc.
Once the "trigger" has been determined, the next question becomes, "What accessibility improvements should reasonably be expected to be made?" For example, if pavement reconstruction is determined to be a "trigger," then does this necessitate constructing curb ramps? Widening the sidewalk? Reconstructing parking spaces? Installing accessible pedestrian signals? Depending on the extra cost and time added to the project to accomplish these improvements, which could be substantial depending on the type of project being undertaken, it is possible in such politically driven agencies as state and local transportation departments that a project could be postponed or pushed down the priorities list (due to lack of time and/or funds) in favor of more straight-forward projects that can be accomplished more quickly and easily.
In all such proposed guidance, standard engineering terminology needs to be used to ensure that the requirements of this section are understood and implemented correctly by the transportation agencies. If a concise explanation cannot be developed in the Guidelines that adequately details the varying levels of alteration and their associated requirements/improvements, then additional guidance in this area will be necessary.
Additional concerns of AASHTO surround the interpretation of the phrases "technically infeasible" and "maximum extent feasible." This terminology does not indicate a level of reasonableness in the construction of accessibility improvements, since almost anything is "technically" feasible. The more likely reason that the accessibility guidelines will not be met is due to significant social, economic, or cost constraints, such as tearing down or altering a building that abuts the existing right-of-way, conflicting with historic preservation issues, etc.
Related to the issue of "maximum extent feasible" is the determination of whether this has been accomplished. Who will make this determination? The US Department of Justice? The US Department of Transportation? If it becomes a self-certification process, how can a State DOT reduce its exposure to unnecessary and very expensive legal challenges? In this case, it would be helpful to State and local governments if a simple format were developed to document these decisions to help lessen the possibility of litigation and to help protect them in legal disputes.
Recommendations
1.) AASHTO proposes working with the Access Board to develop additional guidance related to the definition of "alterations" and the accessibility improvements they trigger, using typical highway construction/engineering terminology to ensure understanding by implementing agencies. Specific examples of alterations and their associated accessibility improvements would be extremely helpful. A "cookbook" type approach would be preferred by the State DOTs to help ensure that they are meeting the guideline and to assist in averting costly legal action by outside groups. Of primary concern is the potential for requiring accessibility improvements in conjunction with routine roadway preservation and preventative maintenance (see proposed definitions). AASHTO recommends exempting these work activities from triggering additional accessibility features.
2.) The phrases "technically infeasible" and "maximum extent feasible" should be removed from the text because they do not accurately portray the conditions surrounding the ability to implement certain guidelines. These terms are open to interpretation and present a very real concern to the DOTs regarding liability. Replacement terms could include "reasonable" or "practicable," which allow some room for the balancing of competing interests.
An option that should be considered as an alternative to using these terms would be to set a maximum cost limit, as a percentage of the highway construction project, which could be used to determine if an accessibility treatment is an unreasonable expenditure given the size of the project being undertaken. A process such as this would be easy to understand by the highway agencies and would prevent small projects from triggering huge associated investments that could lead to the cancellation of the project.
3.) AASHTO proposes to work cooperatively with the Access Board in the development of an "accessibility design exception" process to be used when it is not reasonable to install certain accessibility features. This process could be based on the existing design exception process that has been used in the transportation engineering field for decades. The process would serve to document and get appropriate sign-offs on the effort to meet the "maximum extent feasible" guideline (or other such replacement guideline) so that these types of decisions are not constantly litigated through the courts. Since the Federal Highway Administration (FHWA) will likely be the agency that adopts and regulates these provisions, it should be the entity to determine if the State DOT did its job "to the maximum extent feasible."
Section 1102.3 - Alternate Circulation Paths
"An alternate circulation path complying with [Section] 1111 shall be provided whenever the existing pedestrian access route is blocked by construction, alteration, maintenance, or other temporary conditions."
Section 1111.3 - Location [of Alternate Circulation Paths]
"The alternate circulation path shall parallel the disrupted pedestrian access route, on the same side of the street."
Background
This section of the guidelines calls for the construction of alternate circulation paths when the existing pedestrian access route (i.e., the sidewalk) is temporarily blocked. In addition, this alternate path must be accessible and must be provided on the same side of the street. AASHTO has serious concerns regarding these guidelines related to many different issues, including pedestrian safety, the location of the alternate path, the guideline's application to short-duration projects, the Board's definition of "other temporary conditions," liability exposure of the State DOTs, the apparent prohibition of street closures, and the likely increases in project cost and time. Requiring this provision in every situation will have serious unintended consequences that we feel confident the Access Board would prefer to avoid. AASHTO feels that existing standards found in the MUTCD more effectively address the need and proper consideration for alternate circulation paths.
While it may be preferable to have an alternate circulation path parallel to and on the same side of the street as the disrupted pedestrian access route, this is not always possible, nor is it always advisable. For example, in a situation where construction traffic must cross the same-side alternate circulation path, this guideline puts pedestrians in direct conflict with construction traffic. Thus, in this case, for pedestrian safety reasons, it would be preferable to have the alternate circulation path across the street or at some other location.
In addition to the safety issue, AASHTO feels that there are other considerations that must be addressed when determining where to locate the alternate circulation path. AASHTO interprets these guidelines to require infringements into the roadway (properly shielded) for the alternate circulation path when there are no other reasonable alternatives. However, AASHTO feels that there is a point at which the congestion, delay, and cost to vehicle users due to lane closures would outweigh the need to provide the alternate path on the same side of the street, and would thus warrant this requirement unreasonable (or in the Access Board's terminology, "technically infeasible"). In addition, depending on the extent or type of construction project (such as a utility repair or installation), the alternate path on the "same side of the street" may come very close to crossing the street, so the option should be available to properly close the sidewalk on the "construction side" of the street and utilize the pedestrian access route on the opposite side of the street.
It also appears that there was no consideration given to the length of time that a disruption to the pedestrian access route would occur. Would the design and construction of a properly protected alternate circulation path be required for a disruption of 15 minutes? 2 hours? There is no consideration for what would be reasonable from this standpoint - the guideline states that a same-side alternate circulation path must be constructed in every case. Especially for small, short-duration projects, this guideline would increase costs significantly, as well as increasing the time and effort, both in design and construction, needed to conduct these projects. In addition, there is tremendous concern from the State DOTs that they would be held responsible (and liable) for checking and enforcing accessibility compliance, even if the work being done is performed by another (or private) entity or a local jurisdiction. This would require substantial inspection time, money, and manpower that the DOTs do not have.
In addition to the length of time a disruption occurs, there is also a concern regarding the types of disruptions that could be considered "other temporary conditions." AASHTO understands that accommodations should be made during events such as street fairs, parades, and the like, but this guideline could also be interpreted to include such uncontrollable events as a moving company placing boxes or furniture on the sidewalk, or the accumulation of snow and ice, which strikes such large areas that it prevents any jurisdiction from providing accessible pedestrian facilities in all locations within a specified period of time. These situations need to be exempted from this requirement, or the applicable situations should be specified.
This guideline also appears to prohibit the closure of sidewalks under any circumstance, which could lead to the prevention of road closures during construction if they have sidewalks. It might also force the State DOT or local jurisdiction to construct a protected pedestrian path (or paths) through the construction area in the vicinity of the disrupted sidewalks, which could dramatically increase the cost and complexity of staging construction projects, as the contractor would have to work "around" the pedestrian path(s) and relocate it/them when work needs to be done in that area.
As currently written, the guideline conflicts with the existing federal standards for traffic control, contained in the Manual on Uniform Traffic Control Devices (MUTCD), which provide for an "alternate route," but not necessarily paralleling the original route. While this conflict does not indicate which guideline should be changed, AASHTO believes that the MUTCD does a much more effective job of addressing all of the concerns that must be considered in a work zone and, thus, better protects the pedestrian. The MUTCD states that "provisions should be made for persons with disabilities as determined by an engineering study." The draft guideline in Section 1111.3 essentially takes away the judgment of the engineer, who is responsible not only to oversee projects, but also to provide for the safe and efficient mobility needs of all citizens. In addition, the MUTCD accounts for many situations that the current guideline does not effectively address, such as pedestrian conflicts with work site vehicles, as noted in the excerpt below:
There are three considerations in planning for pedestrians in temporary traffic control zones:
A. Pedestrians should not be led into conflicts with work site vehicles, equipment, and operations.
B. Pedestrians should not be led into conflicts with vehicles moving through or around the work site.
C. Pedestrians should be provided with a safe, convenient path that replicates as nearly as possible the most desirable characteristics of the existing sidewalk(s) or a footpath(s).
Consideration should be made to separate pedestrian movements from other work site activity and motor vehicle traffic. Pedestrians should be appropriately directed with advance signing that encourages them to cross to the opposite side of the roadway. In urban and suburban areas with high motor vehicle traffic volumes, these signs should be placed at intersections so that pedestrians are not confronted with midblock work sites that will induce them to attempt skirting the work site or making a midblock crossing.
?Whenever it is feasible, closing off the work site from pedestrian intrusion may be preferable to channelizing pedestrian traffic along the site with temporary traffic control devices?.
From Manual on Uniform Traffic Control Devices, FHWA, 2001, Section 6D-01
In addition to conflicts with the MUTCD, the guideline also appears to conflict with the current Code of Federal Regulations (28 CFR 36.211, "Maintenance of accessible features") regarding the allowance for temporary closures, which states:
a) A public accommodation shall maintain in operable working condition those features of facilities and equipment that are required to be readily accessible to and usable by persons with disabilities by the Act or this part. b) This section does not prohibit isolated or temporary interruptions in service or access due to maintenance or repairs.
However, the phrase "temporary interruptions" is not well defined or explained, which leaves it open to interpretation.
Recommendations
AASHTO recommends using the language found in Section 6D-1 of the MUTCD, discussed previously, as the guideline for considering all issues related to alternate circulation paths.
However, if this language is not acceptable, then AASHTO strongly recommends providing reasonable alternatives for locating alternate circulation paths when same-side-of-street routes or routes through construction work zones are cost prohibitive, would involve significant safety concerns to pedestrians or motor vehicle occupants, or are otherwise ill-advised.
AASHTO also recommends that a minimum time period for access route closure be specified for which the construction of an alternate circulation path would be required, such as "closures that last for a period of 24 hours or greater" or "closures which last overnight." In addition, AASHTO recommends including an exemption from this guideline for full street closures, as these are sometimes needed for safe and efficient construction.
Finally, AASHTO recommends including an exemption for uncontrollable occurrences, such as snow and ice accumulation, from the list of "other temporary conditions." For example, the guideline could read, "?or other temporary conditions over which the local jurisdiction has control."
Section 1103.4 - Cross Slope [of the Pedestrian Access Route]
"The cross slope of the pedestrian access route shall be 1:48
Section 1105.2.2 - Cross Slope [of Crosswalks]
"The cross slope shall be 1:48
Background
This provision was included in the draft guidelines to assist manual wheelchair users in negotiating the pedestrian access route. Facilities with greater cross-slopes are difficult to traverse due to the natural tendency of the wheelchair to follow the downhill slope; thus, the wheelchair user must constantly correct for this occurrence, which greatly increases the level of exertion required.
As discussed in Section 1103.2 of the draft guidelines, crosswalks (in addition to sidewalks, ramps, and other features) are considered part of the pedestrian access route, to which this stipulation applies. (Note: mid-block crossings, including crosswalks and perpendicular ramps, are exempt from this requirement per Sections 1104.2.1.2 and 1105.2.2.) Thus, crosswalks across hilly roads will need to be "tabled" or flattened out to achieve the required two percent cross slope. AASHTO is extremely concerned about the implications of this requirement, which are extensive and far reaching.
The treatments used to achieve the required cross slope on crosswalks may not conform to existing highway design and construction standards, which puts the State DOTs at risk for lawsuits. Currently, many governmental entities have a liability defense when a public project is designed in accordance with prevailing design standards. Deviating from these design standards to accommodate a requirement on cross-slope - a requirement whose safety implications have not been studied - will result in a loss of a defense regarding the design of the roadway. Design exceptions, which are needed whenever roadway designs differ from existing standards, would be needed in many cases in order to construct these "tabled" crosswalks and intersections. These design exceptions would have to be defensible in court from a motor vehicle safety perspective.
In addition, tabling the crosswalk or intersection could require adjustments in the vertical alignment of the roadway well beyond the intersection which, depending on the road's design speed, may be significant. These adjustments could lead to significant costs to redesign and reconstruct existing intersections, including the relocation of drainage features, raising/lowering adjacent sidewalks, relocating or modifying underground and adjacent above-ground utilities, and constructing retaining walls. Street elevations may end up being different from the adjacent sidewalk elevations, which poses additional pedestrian access constraints. In addition, in many cases the roadway and associated sidewalk will have to steepened on either side of the intersection to accommodate the flattened intersection. For these reasons, at a minimum, existing intersections should be exempted from this provision. If this requirement is retained, it should apply only to new construction at a new location.
Tabling crosswalks or intersections may also have unintended negative impacts on the control and safety of motor vehicles and their occupants, as well as comfort issues for those with spinal cord injuries. These concerns are heightened for emergency vehicles. Loss of control of vehicles in urban areas could have tremendous safety implications for pedestrians alongside the roadway. In addition, maintenance costs for motor vehicle users are likely to be higher, and could be significant, as a result of tabling and other remediations. Tabling could also be of concern to bicyclists and motorcyclists, depending on how they are designed/constructed. For these reasons, AASHTO believes that this guideline needs modification, even for new construction.
Finally, as mentioned in the discussion of alterations, an "accessibility design exception" process is needed to determine when the "maximum extent feasible" has been achieved and to help minimize the number of costly legal challenges.
Recommendations
AASHTO proposes tying the implementation of this guideline to the existing topography in the project area. The guideline should state that the cross slope of a crosswalk should be the minimum possible while still providing a roadway design that meets accepted roadway design criteria. While the accommodation of disabled pedestrians is of immense importance, there are many other factors that must be considered in any given intersection design. The current draft guideline serves to take away the judgment of the engineer to provide a roadway facility that is safe and functional for all users. In some cases, as detailed above, "tabling" the intersection will have many unintended negative impacts.
If the above proposal is unacceptable, AASHTO proposes to work with the Access Board on the development of design examples to better assess the potential impacts of "tabling" on the existing roadway network. These impacts include, but are not limited to, construction costs, safety of pedestrians and motor vehicle occupants, accessibility of adjacent parts of the pedestrian access routes, and vehicle user costs.
Section 1103.8 - Changes in Level [in Pedestrian Access Routes]
"Changes in level shall comply with [Section] 303. Changes in level shall be separated horizontally 30 inches
Background
Though this section refers to an existing section of ADAAG for the definition of "changes in level," it is still a major concern for the State DOTs with regard to long-term maintenance.
This guideline refers to ADAAG Section 303, "Changes in Level," which allows for a maximum vertical change in level of ¼ inch (or ½ inch with a bevel). Though this level of precision is likely to be attainable in new construction (though the metric equivalents, 6.4 mm and 13 mm, are more problematic due to construction tolerances), it would be very difficult to maintain a ¼-inch maximum vertical change along all portions of the pedestrian access route for the life of the facility. The level of inspection and maintenance effort required to stay within these guidelines, including both manpower commitments and monetary costs, would be a great burden for the State DOTs, as well as for local transportation and public works departments. How often would inspection be required? Monthly? Semiannually? Yearly? And would every crack greater than ¼ inch require immediate repair?
In addition to the level of effort, time, and cost required, there would be severe liability issues for State DOTs and local jurisdictions in attempting to maintain facilities to the exacting requirements stated in this guideline. Every crack or separation with a vertical height greater than ¼ inch on a sidewalk would be a potential lawsuit. This size crack, unfortunately, is very common and is almost impossible to prevent. Facilities in the public right-of-way, such as sidewalks, are not constructed to the same tight standards as large commercial office buildings - to do so would increase costs significantly. In addition, sidewalks and crosswalks are subjected to external forces, such as tree roots, heavy vehicles, and snow removal equipment, that contribute to their deterioration and with which buildings do not have to contend. Thus, the construction tolerances for indoor, architect-designed structures are not transferable to these facilities.
Recommendations
AASHTO has recently funded a research study through the NCHRP program to look into appropriate construction tolerances for the facilities discussed in these guidelines and recommends that the Access Board "reserve" this section until the project is complete, which should be in Summer 2003. In addition, AASHTO proposes working with the Access Board to determine appropriate and achievable monitoring systems for these issues, including such things as reasonable monitoring cycles and response times for needed corrections.
Section 1104.2 - Types [of Curb Ramps and Blended Transitions]
"Perpendicular curb ramps shall comply with [Sections] 1104.2.1 and 1104.3; parallel curb ramps shall comply with [Sections] 1104.2.2 and 1104.3; blended transitions shall comply with [Sections] 1104.2.3 and 1104.3."
Background
AASHTO assumes that the Access Board, by omission, is proposing to disallow diagonal ramps. This restriction would be problematic for many State DOTs that routinely use these features effectively. It is common practice to use diagonal ramps in certain situations and, in fact, it is required by law in at least one state. While it is true that diagonal ramps lack certain characteristics that are helpful to the blind community, such as directionality, they also have characteristics that are advantageous in other situations. Disallowing diagonal ramps limits the options of a design engineer for use in locations where they may be appropriate.
For example, at intersections with large curb radii, it is difficult to place curb ramps within the extended lines of the sidewalk. To maintain a perpendicular transition from the ramp to the roadway at these locations, as required in Section 1104.2.1, the ramp must be placed outside the curb return. This necessitates locating the crosswalk farther from the intersection, which has safety and visibility implications for both pedestrians and vehicles. The Building a True Community report developed by the Public Rights-of-Way Access Advisory Committee (PROWAAC) included many cases where the construction of diagonal ramps is necessitated by the intersection geometry, so it is unclear why the Access Board chose to disallow them.
In addition to the issues associated with new construction, there are also questions regarding how to handle existing diagonal ramps. Does the omission of diagonal ramps from this guideline require replacing them with parallel or perpendicular curb ramps when an alteration is being done in the intersection? If this is required, what level of alteration triggers the requirement to replace the diagonal ramp?
Recommendations
AASHTO recommends including diagonal ramps in the guidelines as an acceptable option for use in appropriate situations.
Sections 1105.6, 1105.6.1, and 1105.6.2 - Roundabouts, including Separation and Signals
Section 1105.6 - Roundabouts: "Where pedestrian crosswalks and pedestrian facilities are provided at roundabouts, they shall comply with [Section] 1105.6."
Section 1105.6.1 - Separation [at Roundabouts]: "Continuous barriers shall be provided along the street side of the sidewalk where pedestrian crossing is prohibited. Where railings are used, they shall have a bottom rail 15 inches
Section 1105.6.2 - Signals [at Roundabouts]: "A pedestrian activated traffic signal complying with [Section] 1106 shall be provided for each segment of the crosswalk, including the splitter island. Signals shall clearly identify which crosswalk segment the signal serves."
Background
These sections have significant implications for the future operation of roundabouts, and AASHTO is seriously concerned that these guidelines will effectively negate the advantages that their expanded implementation could provide in the United States. Based on extensive positive experiences in European countries, roundabouts are being introduced in projects throughout the nation because they provide many advantages over traditional stop-controlled intersections: 1) they reduce delay (and increase vehicle throughput) by slowing traffic at the intersection through the use of visual cues and turning movements without stopping it; 2) because of this reduction in speed, they reduce the severity of intersection crashes that occur when stop signs are missed or disregarded; and 3) they aid in improving air quality by reducing the number of vehicle stops.
The phrase "continuous barriers" implies roadside hardware, such as steel guardrail or concrete traffic barriers, to the traffic engineering community. With respect to the separation of pedestrians from traffic at roundabouts, AASHTO feels that constructing barriers such as these around roundabouts may actually decrease safety for drivers and could even trap misdirected blind pedestrians within the roundabout. In addition, the use of standard roadway barriers at intersections is undesirable due to their height and the resulting impact on sight distance available to drivers. Design engineers strive to ensure that there are no obstructions between 2 feet and 7 feet
As for signalization, it should be noted that the stopping of traffic is contrary to the philosophy of roundabouts and will defeat the purpose of constructing them. In addition to this, signalizing each intersection in the roundabout will be costly due to the sheer number of installations that would be needed, as well as dangerous to both drivers and pedestrians. Drivers are less likely to expect a traffic signal within a roundabout and may not react to it in time for safe pedestrian crossings. In addition, given the tight geometrics of the typical roundabout, placing the necessary signals in locations where they can be seen and where they will be easily understood as regulating traffic on a given portion of the roundabout will be extremely difficult. It is likely that these signals will give the pedestrian a false sense of safety when stepping out onto the roadway. Drivers are also unlikely to expect a queue within the roundabout, which will likely result in increased rear-end crashes and, potentially, subsequent impacts with pedestrians.
Recommendations
AASHTO recommends "reserving" Sections 1105.6 through 1105.6.2 until NCHRP Project 3-65, Applying Roundabouts in the United States, is complete, which is anticipated in June 2005. This $700,000 study, which is just getting underway, will investigate and propose recommendations for the safety and operation of roundabouts, including "the effects of different design configurations on the safety of bicycles and pedestrians, particularly pedestrians with disabilities." Because of the concerns this section of the guidelines has raised within the transportation community, AASHTO will be seeking additional funding for this project to both accelerate the study as well as to look more comprehensively at pedestrian accessibility issues.
After completion of this study, AASHTO recommends developing a joint working group with the Access Board, including experts from the traffic engineering, roadway design, and operations disciplines, to find mutually beneficial solutions to provide for safe and accessible pedestrian movements at roundabouts.
Section 1105.2.1 - Width [of Crosswalks]
"Marked crosswalks shall be 96 inches
Background
The current edition of the MUTCD requires a 72-inch minimum crosswalk width, while the draft guidelines require an extra two feet in all cases. This requirement for a 96-inch crosswalk does not appear to be driven by accessibility needs. While major metropolitan areas may need extra width in their crosswalks to handle large platoons of pedestrians, the decision to provide extra width should be made by considering relevant factors at a specific location and should not be mandated here.
Eight-foot wide crosswalks are excessive in many small rural towns where few pedestrians are present. In addition, the additional 24 inches
Recommendations
AASHTO recommends that these guidelines remain consistent with the MUTCD, retaining the 72-inch minimum crosswalk width.
Section 1105.3 - Pedestrian Signal Phase Timing
"All pedestrian signal phase timing shall be calculated using a pedestrian walk speed of 3.0 feet
Background
AASHTO is very concerned about this guideline, as the slower crossing speeds and longer distance for calculating the traffic signal timing will have a significant effect on traffic flow, especially in major metropolitan areas where congestion is already heavy. This guideline will slow the walking speed down by 25% (from 4 feet
The MUTCD, which contains the current federal standards for traffic signal timing, has widely accepted criteria for walking speeds and distances. Current guidelines in the MUTCD recommend the use of 4 fps, with slower speeds to be used when conditions indicate a slower speed is appropriate. In addition, the minimum distance to be used for calculating pedestrian signal phase timing is from the curb on one side of the street to the center of the farthest traveled lane on the opposite side, or to a median of sufficient width for pedestrians to wait.
The current design criteria allow the designer the flexibility to tailor the timing design of each intersection. Decreasing the walk speed at all intersections to a maximum of 3 fps will increase the duration of the signal phases that have a pedestrian component. This change will either increase the cycle length or require an inequitable split of the existing cycle. The end result will be increased delay and congestion.
The increased distance required for calculating the pedestrian signal timing, due to the inclusion of the ramp distance, will further exacerbate the impact of this guideline. The extra distance could add a minimum of 10 feet
This guideline will especially have impacts on arterial highways and other corridors with coordinated traffic signals that are used to keep traffic moving smoothly through multiple intersections. The changes proposed in this guideline could throw off timing and traffic progression in these corridors - which is critical for keeping traffic flowing smoothly - and potentially throw them into gridlock. It would be a massive effort to re-time these crucial corridors. In addition, any increase in delay at traffic signals will diminish the efforts of state and local governments to improve air quality, which is greatly affected by stop-and-go traffic, as required by the Clean Air Act.
Using the current MUTCD guidelines, the designer has the option to use the slower speed and longer distance when conditions warrant. The designer also has the opportunity to specify a pedestrian signal button that can be used to request a longer crossing time when needed, such as with an extended button push or other mechanism. A solution such as this would have far fewer impacts on the flow of traffic and would serve to provide accessibility and mobility for all citizens at a reasonable cost.
Recommendations
AASHTO recommends maintaining the design criteria for traffic signals as defined in the MUTCD. Language can be added regarding when a slower walk speed or longer distance would be appropriate for an intersection, and/or the appropriate application of push-buttons to select an extended crossing time.
Section 1105.5.3 - Approach [for Pedestrian Crossings]
"Where the approach exceeds 1:20
Background
The current ADAAG (Section 405.6) has established a maximum rise of 30 inches
AASHTO is extremely concerned about the ramifications of this guideline on existing pedestrian routes at grade-separated interchanges and bridges, since it will essentially require elevators to connect all routes between the upper and lower roadways. It will also have major cost implications for new grade separation projects, which have benefits for pedestrians such as removing at-grade crossings and allowing the direct crossing of major facilities such as freeways without having to divert to adjacent interchanges. These increased costs may lead to a decreased use of pedestrian over/underpasses. It could also lead to a decreased use of sidewalks on the upper portions of grade-separated roadways, since these will necessitate the addition of elevators. It will also likely limit the installation of new pedestrian facilities if they are not currently present at over/underpass locations.
Elevators, in addition to significantly increasing design and construction costs, will cause an increase in maintenance needs and operating costs. There are also security concerns, as they would require increased monitoring by police or other security patrols to ensure that they do not become a haven for thieves, drug addicts, or the homeless. Also, it seems possible that stairs and/or ramps would still be required at these locations to ensure continuous access in the event that the elevators are inoperative. In addition, it is not clear whether each pedestrian route at an overpass or underpass would require an elevator. For example, if a four-legged intersection is replaced with an overpass, would four elevators be required so that no road crossings are required? Finally, due to the high installation and maintenance costs of elevators, it is extremely important to define the level of alteration that would require their installation at existing locations.
Recommendations
AASHTO recommends allowing for alternate solutions, such as innovative ramp and landing designs that could reduce the impact of the rise to the pedestrian, or other reasonable mechanical means for providing accessibility. Elevators could be options for the designer in areas with high pedestrian volumes or other conditions that would warrant them, but should not be mandated as the only solution for elevation changes of five feet or more.
Section 1105.7 - Turn Lanes at Intersections
"Where pedestrian crosswalks are provided at right or left turn slip lanes, a pedestrian activated traffic signal complying with [Section] 1106 shall be provided for each segment of the pedestrian crosswalk, including at the channelizing island."
Background
Similar to the proposal to signalize roundabouts, AASHTO is extremely concerned about the ramifications of installing traffic signals at free-flow turn lanes. Signalizing these locations may actually decrease the safety of pedestrians and vehicles for many of the same reasons mentioned in the comments on signals in roundabouts. The installation of a traffic signal, or any type of traffic control, is typically the result of an extensive traffic engineering study that determines whether such a device is warranted and in the community's best interest. The MUTCD, which provides guidance for determining when signals are warranted, is based on years of experience and its guidance is familiar to the general public. Drivers do not expect to find a traffic signal at a slip lane and may not react to it in time for safe pedestrian crossings, especially if it is only occasionally activated. It is also likely that these signals will give the pedestrian a false sense of safety when stepping out onto the roadway. When activated sporadically, it will likely result in increased rear-end crashes and, potentially, subsequent impacts with pedestrians. A regulation such as this guideline, which throws out or ignores existing traffic engineering knowledge and regulations, should not be implemented.
In addition, signals are likely to have significant operational impacts on slip lanes - lowering traffic throughput in these locations - and will effectively negate the advantages they provide at high traffic volume intersections. It should be noted that any increase in delay at traffic signals will diminish efforts by state and local governments to improve air quality as required by the Clean Air Act. Furthermore, it is unclear whether this guideline is also intended to be applied to slip lanes at unsignalized intersections, which would contribute to even more confusion and potential danger for drivers and pedestrians alike. Overall, traffic signals should only be installed after a traffic engineering study has been conducted that indicates that a traffic signal is warranted.
Currently, NCHRP is embarking on two research studies related to this guideline. The first study is NCHRP Project 3-72, Lane Widths, Channelized Right Turns, and Right Turn Deceleration Lanes in Urban and Suburban Areas. As the name implies, the primary objective of the study is to develop design guidance or criteria addressing the safety and operational trade-offs of motorists, pedestrians, and bicyclists in three specific situations: selecting lane widths, channelizing right turns, and using right-turn deceleration lanes at driveways and unsignalized intersections. The study will focus on urban and suburban arterial highways with speeds of 45 miles per hour or less. In addition, the study will consider the needs of a full range of pedestrian ages and visual, as well as other, impairments. The output will include recommended language for the AASHTO "Green Book," the forthcoming AASHTO Pedestrian Guide, the AASHTO Bicycle Facilities Guide, the MUTCD, and the Traffic Control Devices Handbook. Proposals for this 2-year, $450,000 study are due in December 2002.
The second NCHRP study related to this guideline is Project 3-71, Innovative Pedestrian Treatments at Unsignalized Crossings. This project, funded at $550,000, will identify and study enhanced pedestrian treatments that are currently being used at unsignalized locations across the country to determine which ones are effective. Treatments to be studied include Yield to Pedestrian signs, in-roadway crosswalk lighting, median refuge islands, placement of an advance yield line at mid-block crosswalks, and overhead supplemental devices.
In addition, the National Institutes of Health are embarking on a study of pedestrian issues that should include information right-turn lanes.
Recommendations
AASHTO recommends "reserving" Section 1105.7, "Turn Lanes at Intersections," until further research can be conducted. AASHTO proposes working with the Access Board to develop alternative solutions for this issue when this research is complete.
Section 1106.1 - General [Accessible Pedestrian Signal Systems]
"Pedestrian signal systems shall comply with [Section] 1106."
Background
Section 1106 will require the installation of Accessible Pedestrian Signal (APS) systems at all existing signalized intersections with pedestrian indications. This will be a major cost item for State DOTs and local municipalities.
The added complexity of the systems will increase installation time and cost, as well as maintenance needs. In addition, the greater complexity of these systems will likely increase maintenance and down-time and make the system less user friendly. The increased number of components required for APS systems also makes the placement of the devices more difficult.
AASHTO supports the concept of providing APS systems to deliver consistent and unambiguous information to assist in the safe and efficient pedestrian crossing of an intersection, but believes that additional research is required. In support of this, the National Cooperative Highway Research Program has an ongoing project - NCHRP Project 3-62, Guidelines for Accessible Pedestrian Signals - that is expected to be completed in October 2004. This research project will develop guidelines and training materials for use by the State DOTs in implementing accessible pedestrian signals.
Recommendations
AASHTO recommends "reserving" Section 1106 until further research is conducted, or at least until the current NCHRP project on APS systems is complete to ensure a logical and comprehensive approach to installing these devices.
AASHTO Comments and Recommendations on the Draft Guidelines for Accessible Public Rights-of-Way
Line-by-Line Review
SECTION / TITLE / DRAFT GUIDELINE / COMMENTS AND RECOMMENDATIONS
1101 Application and Administration
1101.1 General. For the purposes of these requirements, the terms listed in section 1101.3 shall have the indicated meaning.
1101.2 Referenced Standards.
1101.2.1 MUTCD. Copies of the referenced standards may be obtained on-line from the Federal Highway Administration at http://mutcd.fhwa.dot.gov. MUTCD 2000-Millennium Edition Manual on Uniform Traffic Control Devices.
1101.3 Defined Terms.
Accessible Pedestrian Signal. A device that communicates information about the pedestrian WALK phase in non-visual format. See discussion and recommendations in Definitions Section.
Accessible Route. A continuous, unobstructed path that complies with Chapter 4.
Channelizing Island. Curbed or painted area outside the vehicular path that is provided to separate and direct traffic movement, which also may serve as a refuge for pedestrians.
Cross Slope. The slope that is perpendicular to the direction of travel. This is usually called superelevation on curves in the public right-of-way (see superelevation). See discussion and recommendations in Definitions Section.
Crosswalk. That part of a roadway at an intersection that is included within the extensions of the lateral lines of the sidewalks on opposite sides of the roadway, measured from the curbline or, in the absence of curbs, from the edges of the roadway or, in the absence of a sidewalk on one side of the roadway, the part of the roadway included within the extension of the lateral lines of the sidewalk at right angles to the centerline. Also, any portion of a roadway at an intersection or elsewhere that is distinctly indicated for pedestrian crossing by lines or other markings on the surface.
Curb Line. A line at the face of the curb that marks the transition between the sidewalk and the gutter or roadway.
Curb Ramp. A ramp cutting through a curb or built up to it.
Detectable Warning. A surface feature built in or applied to walking surfaces or other elements to warn of hazards on a circulation path.
Dynamic Envelope. The clearance required for a rail vehicle and its cargo overhang due to any combination of loading, lateral motion, or suspension failure.
Element. An architectural or mechanical component of a building, facility, space, site or public right-of-way.
Facility. All or any portion of buildings, structures, improvements, elements and pedestrian or vehicular routes located on a site or in a public right-of-way.
Grade. (See running slope).
Grade Break. The meeting line of two adjacent surfaces of different slope (grade).
Locator Tone. A repeating sound that identifies the location of the pedestrian push button.
Pedestrian Access Route. An accessible corridor for pedestrian use within the public right-of-way. See discussion and recommendations in Definitions Section.
Public Right-of-Way. Land or property, usually in a corridor, that is acquired for or devoted to transportation purposes.
Roundabout. A circular intersection that has yield control of entering traffic, channelized approaches, counterclockwise circulation, and appropriate geometric curvature to limit travel speeds on the circulatory roadway.
Running Slope. The slope that is parallel to the direction of travel expressed as a ratio of rise to run. In the public right-of-way, this is usually called grade, and is expressed in percent.
Sidewalk. That portion of a public right-of-way between the curb line or lateral line of a roadway and the adjacent property line that is improved for use by pedestrians.
Splitter Island. A flush or raised island that separates entering and exiting traffic in a roundabout.
Street Furniture. Elements in the public right-of-way that are intended for use by pedestrians.
Superelevation. Cross slope on a curve in the roadway (see cross slope). See discussion and recommendations in Definitions Section.
Walk Interval. That phase of a traffic signal cycle during which the pedestrian is to begin crossing, typically indicated by a WALK message or the walking person symbol and its audible equivalent.
1102 Scoping Requirements
1102.1 General. All areas of newly designed and newly constructed facilities in public rights-of-way and altered portions of existing facilities in public rights-of-way shall comply with Chapter 11. See discussion of and recommendations for Section 1102.2.2, Alterations, in Areas of Primary Concern section.
1102.2 Existing Public Rights-of-Way. Additions to existing public rights-of-way shall comply with 1102.2.1. Alterations to existing public rights-of-way shall comply with 1102.2.2. See discussion of and recommendations for Section 1102.2.2, Alterations, in Areas of Primary Concern section.
1102.2.1 Additions. Each addition to an existing public right-of-way shall comply with the applicable provisions of Chapter 11. Where the addition connects with existing construction, the connection shall comply with 1102.2.2. Comments: Need clarification regarding how accessible facilities "connect" to existing construction. Does the "connection" refer only to the sidewalk, or does it include the pedestrian signals and/or other features?
Recommendations: Recommend clarification of the types pf treatments necessary when "connecting" with existing construction.
1102.2.2 Alterations. Where existing elements or spaces in the public right-of-way are altered, each altered element or space shall comply with the applicable provisions of Chapter 11. EXCEPTION: In alterations, where compliance with applicable provisions is technically infeasible, the alteration shall comply to the maximum extent feasible. See discussion of and recommendations for Section 1102.2.2, Alterations, in Areas of Primary Concern section.
1102.2.2.1 Extent of Application. An alteration of an existing element, space, or area of a public right-of-way shall not impose a requirement for accessibility greater than required for new construction.
1102.2.2.2 Prohibited Reduction in Access. An alteration that decreases or has the effect of decreasing the accessibility of a public right-of-way or site arrival points to buildings or facilities adjacent to the altered portion of the public right-of-way, below the requirements for new construction at the time of the alteration is prohibited.
1102.3 Alternate Circulation Path. An alternate circulation path complying with 1111 shall be provided whenever the existing pedestrian access route is blocked by construction, alteration, maintenance, or other temporary conditions. See discussion of and recommendations for Sections 1102.3, Alternate Circulation Path, and 1111.3, Location [of Alternate Circulation Paths], in Areas of Primary Concern section.
1102.4 Sidewalks. Where sidewalks are provided, they shall contain a continuous pedestrian access route complying with 1103. The pedestrian access route shall connect to elements required to comply with Chapter 11.
1102.5 Protruding Objects. Protruding objects on sidewalks and other pedestrian circulation paths shall comply with 1102.5 and shall not reduce the clear width required for pedestrian accessible routes.
1102.5.1 Protrusion Limits. Objects with leading edges more than 27 inches
1102.5.2 Post-Mounted Objects. Free-standing objects mounted on posts or pylons shall overhang circulation paths 4 inches
1102.5.3 Reduced Vertical Clearance. Guardrails or other barriers shall be provided where the vertical clearance is less than 80 inches
1102.6 Curb Ramps and Blended Transitions. A curb ramp or blended transition complying with 1104, or a combination of curb ramps and blended transitions, shall connect the pedestrian access routes to each street crossing within the width of each crosswalk. Comments: The placement recommendations for curb ramps could increase construction costs, but the impact is expected to be minimal.
1102.7 Pedestrian Signs. Signs for pedestrian use shall comply with 1102.7.
1102.7.1 Bus Route Identification. Bus route identification signs shall comply with 703.5.1 through 703.5.4, and 703.5.7 and 703.5.8. In addition, to the maximum extent practicable, bus route identification signs shall comply with 703.5.5. Bus route identification signs located at bus shelters shall provide raised and Braille characters complying with 703.2, and shall have rounded corners. EXCEPTIONS 1: Bus schedules, timetables and maps that are posted at the bus stop or bus shelter shall not be required to comply with 1102.7. 2: Signs shall not be required to comply with 703.2 where audible signs are user- or proximity-actuated or are remotely transmitted to a portable receiver carried by an individual.
1102.7.2 Informational Signs and Warning Signs. Informational signs and warning signs shall comply with 703.5.
1102.8 Pedestrian Crossings. Where a pedestrian crossing is provided, it shall comply with the applicable provisions of 1105. Where pedestrian signals are provided at a pedestrian crossing, they shall comply with 1106. See comments and recommendations in Sections 1105 and 1106.
1102.9 Street Furniture. Street furniture that is intended for use by pedestrians and installed on or adjacent to a sidewalk shall comply with 309 and 1107. See comments and recommendations in Section 1107.
1102.10 Stairs. Where provided, stairs shall comply with 504. Stair treads shall have a 2 inch
1102.11 Handrails. Where provided, handrails shall comply with 505.
1102.12 Vertical Access. Where provided elevators shall comply with 407, limited-use/limited-application elevators shall comply with 408, and platform lifts shall comply with 410. Vertical access shall remain unlocked during the operating hours of the facility served.
1102.13 Bus Stops. Bus boarding and alighting areas shall comply with 810.2. Bus shelters shall comply with 810.3. Comments: The bus stop pads and shelter requirements should have minimal impact to state and transit agencies because requirements are similar to previous editions.
Recommendations: For clarification purposes, recommend repeating language from ADAAG Section 810.3 in
1102.14 On-Street Parking. Where on-street parking is provided, at least one accessible on-street parking space shall be located on each block face and shall comply with 1109. Comments: 1.) While this guideline attempts to propose a simple way to determine the number of accessible parking spaces in public rights-of-way, it has several unintended impacts that need to be addressed. In particular, in urban areas this provision may create a significantly higher proportion of accessible spaces than intended by the Access Board on smaller blocks (based on their commentary), due to existing restrictions, such as driveways, fire hydrants, setbacks from corners, etc. In general, one space per block face will result in a significant increase in the number of spaces as compared to ADAAG Section 208 and Table 208.2. 2.) If an entire block has parking spaces of the same dimension as an accessible space, do certain spaces need to be restricted for use as accessible spaces? 3.) Challenges are anticipated with drainage needs. See additional comments in Section 1109.
Recommendations: 1.) Recommend a combination of wording for accessible parking spaces of existing ADAAG and proposed guideline: "1 accessible space per 25 spaces, not to exceed 1 accessible space per block face."
1102.15 Passenger Loading Zones. Where passenger loading zones are provided, they shall connect to a pedestrian access route and shall provide a minimum of one passenger loading zone in every continuous 100 linear feet (30 m) of loading zone space, or fraction thereof, complying with 302, 503.2, 503.3, and 503.5. Comments: Anticipated impacts are expected to be minimal.
1102.16 Call Boxes. Where provided, call boxes shall comply with 1110.
1103 Pedestrian Access Route
1103.1 General. Pedestrian access routes shall connect to elements required to be accessible and shall comply with 1103.
1103.2 Components. Pedestrian access routes shall consist of one or more of the following components: walking surfaces, ramps, curb ramps, blended transitions, crosswalks, pedestrian overpasses and underpasses, elevators, and platform lifts. All components of a pedestrian access route shall comply with the applicable portions of this chapter.
1103.3 Clear Width. The minimum clear width of a pedestrian access route shall be 48 inches
Recommendations: 1.) Recommend allowing a reduction in the clear width of the accessible pedestrian route to 32" for short distances, similar to existing ADAAG section 403.5.1
1103.4 Cross Slope. The cross slope of the pedestrian access route shall be 1:48
1103.5 Grade. The grade of the pedestrian access route within a sidewalk shall not exceed the grade established for the adjacent roadway. EXCEPTION: The running slope of a pedestrian access route shall be permitted to be steeper than the grade of the adjacent roadway, provided that the pedestrian access route is less than 1:20
Recommendations: Recommend exempting ramps from this requirement. Also recommend that the sidewalks be allowed to exceed the roadway grades when necessary to tie into the level landing at the top of a perpendicular ramp.
1103.6 Surfaces. The surfaces of the pedestrian access route shall comply with 302.
1103.7 Surface Gaps at Rail Crossings. Where the pedestrian access route crosses rail systems at grade, the horizontal gap at the inner edge of each rail shall be constructed to the minimum dimension necessary to allow passage of railroad car wheel flanges and shall not exceed 2-½ inches (64 mm). EXCEPTION: On tracks that carry freight, a maximum horizontal gap of 3 inch
Recommendations: Recommend an exemption from this requirement until at least 4 years after appropriate gap closure technology is approved by the Federal Railroad Administration (FRA).
1103.7.1 Detectable Warnings. Where rail systems cross pedestrian facilities that are not shared with vehicular ways, a detectable warning shall be provided in compliance with 1108. See discussion and recommendations in Section 1108.
1103.8 Changes in Level. Changes in level shall comply with 303. Changes in level shall be separated horizontally 30 inches
1103.8.1 Rail Crossings. Where the pedestrian access route crosses rail systems at grade, the surface of the pedestrian access route shall be level and flush with the top of the rail at the outer edge and between the rails.
1104 Curb Ramps and Blended Transitions
1104.1 General. Curb ramps and blended transitions shall comply with 1104.
1104.2 Types. Perpendicular curb ramps shall comply with 1104.2.1 and 1104.3; parallel curb ramps shall comply with 1104.2.2 and 1104.3; blended transitions shall comply with 1104.2.3 and 1104.3. See discussion on Section 1104.2, Types [of Curb Ramps and Blended Transitions], in Areas of Primary Concern section.
1104.2.1 Perpendicular Curb Ramps. Perpendicular curb ramps shall comply with 1104.2.1, and shall have a running slope that cuts through the curb at right angles or meets the gutter grade break at right angles.
1104.2.1.1 Running Slope. The running slope shall be 1:48
Recommendations: Recommend adding the following text to Section 1104.2.2.1: "EXCEPTION: A perpendicular curb ramp shall not be required to exceed 15 feet
1104.2.1.2 Cross Slope. The cross slope shall be 1:48
1104.2.1.3 Landing. A landing 48 inches
1104.2.1.4 Flares. Flared sides with a slope of 1:10
Recommendations: Recommend changing the wording of this guideline to something similar to the "Building a True Community" Report: "The length of the flares shall be at least ten times the curb height, measured along the curb line."
1104.2.2 Parallel Curb Ramps. Parallel curb ramps shall comply with 1104.2.2, and shall have a running slope that is in-line with the direction of sidewalk travel. Recommendations: Recommend modifying wording for clarification: "?running slope that is parallel to the curb."
1104.2.2.1 Running Slope. The running slope shall be 1:48
Recommendations: Recommend keeping the "exception," as well as clarifying what specific dimension it refers to. Also recommend adding language which states that if the slope of a parallel curb ramp is steeper than 1V:20H, it does not invoke the requirements of Section 405 of ADAAG, i.e., handrails, etc.
1104.2.2.2 Cross Slope. The cross slope shall be 1:48
1104.2.2.3 Landing. A landing 48 inches
1104.2.2.4 Diverging Sidewalks. Where a parallel curb ramp does not occupy the entire width of a sidewalk, drop-offs at diverging segments shall be protected with a barrier. Comments: 1.) Is a barrier required for a minimal drop-off of a couple inches or less? Can it be sloped like the flared section of a perpendicular ramp? 2.) Should there be a recommendation for a minimum sidewalk width in which the entire sidewalk should be used for the parallel ramp?
Recommendations: 1.) Recommend allowing alternate treatments for delineating diverging segments of sidewalk at parallel curb ramps. 2.) Recommend stating a minimum width for sidewalk diverges to ensure that an unusable space is not created. 3.) Further guidance, including diagrams, would be helpful. See also discussion of "Barrier" in the Definitions section of the Overview Document.
1104.2.3 Blended Transitions. Blended transitions shall comply with 1104.3, and shall have running and cross slopes of 1:48
1104.3 Common Elements. Curb ramps and blended transitions shall comply with 1104.3.
1104.3.1 Width. The clear width of landings, blended transitions, and curb ramps, excluding flares, shall be 48 inches
1104.3.2 Detectable Warnings. Detectable warning surfaces complying with 1108 shall be provided, where a curb ramp, landing, or blended transition connects to a crosswalk. Comments: 1.) If a 1V:15H slope is considered detectable by various disabled groups, the State DOTs would welcome the reduction in cost that not having to install detectable warnings at these locations would provide. 2.) Does the crosswalk reference exclude driveways, parking spaces, and other features?
Recommendations: 1.) Recommend allowing the construction of ramp slopes steeper than 1V:15H without detectable warnings, as discussed in the commentary section of the draft guidelines. See also comments in Section 1108. 2.) Recommend clarification on locations for detectable warnings.
1104.3.3 Surfaces. Surfaces of curb ramps, blended transitions, and landings shall comply with 302. Gratings, access covers, and other appurtenances shall not be located on curb ramps, landings, blended transitions, and gutter areas within the pedestrian access route. Comments: The surface recommendations are believed to be a minimal impact on new construction. However, there are potential high costs in alteration if an access cover is located on a landing, as this would require substantial drainage or possibly utility work.
1104.3.4 Grade Breaks. Grade breaks shall not be permitted on curb ramps, blended transitions, landings, and gutter areas within the pedestrian access route. Surface slopes that meet at grade breaks shall be flush.
1104.3.5 Changes in Level. Vertical changes in level shall not be permitted on curb ramps, blended transitions, landings, or gutter areas within the pedestrian access route.
1104.3.6 Counter Slopes. The counter slope of the gutter area or street at the foot of a curb ramp or blended transition shall be 1:20
1104.3.7 Clear Space. Beyond the curb line, a clear space of 48 inches
Recommendations: 1.) Recommend that this clear space "beyond the curb line" not be required for parallel curb ramps as it would be a duplication of the landing space. 2.) Recommend clarification of where to measure clear space from for perpendicular curb ramps (assumed to be face of curb).
1105 Pedestrian Crossings
1105.1 General. Pedestrian crossings shall comply with 1105.
1105.2 Crosswalks. Crosswalks shall comply with 1105.2.
1105.2.1 Width. Marked crosswalks shall be 96 inches
1105.2.2 Cross Slope. The cross slope shall be 1:48
1105.2.3 Running Slope. The running slope shall be 1:20
Recommendations: Recommend an exception for crosswalks across superelevated (banked) sections of roadways.
1105.3 Pedestrian Signal Phase Timing. All pedestrian signal phase timing shall be calculated using a pedestrian walk speed of 3.0 feet
1105.4 Medians and Pedestrian Refuge Islands. Medians and pedestrian refuge islands in crosswalks shall comply with 1105.4 and shall be cut through level with the street or have curb ramps complying with 1104 and shall contain a pedestrian access route complying with 1103. Where the cut-through connects to the street, edges of the cut-through shall be aligned with the direction of the crosswalk for a length of 24 inches
1105.4.1 Length. Where signal timing is inadequate for full crossing of all traffic lanes or where the crossing is not signalized, cut-through medians and pedestrian refuge islands shall be 72 inches
1105.4.2 Detectable Warnings. Medians and refuge islands shall have detectable warnings complying with 1108. Detectable warnings at cut-through islands shall be separated by a 24 inch
1105.5 Pedestrian Overpasses and Underpasses. Pedestrian overpasses and underpasses shall comply with 1105.5.
1105.5.1 Pedestrian Access Route. Pedestrian overpasses and underpasses shall contain a pedestrian access route complying with 1103.
1105.5.2 Running Slope. The running slope shall not exceed 1:20
1105.5.3 Approach. Where the approach exceeds 1:20
1105.5.4 Stairs. Stairs shall comply with 504.
1105.5.5 Escalators. Escalators shall comply with 810.9.
1105.6 Roundabouts. Where pedestrian crosswalks and pedestrian facilities are provided at roundabouts, they shall comply with 1105.6. See discussion of and recommendations for Sections 1105.6, Roundabouts, 1105.6.1, Separation, and 1105.6.2, Signals, in Areas of Primary Concern section.
1105.6.1 Separation. Continuous barriers shall be provided along the street side of the sidewalk where pedestrian crossing is prohibited. Where railings are used, they shall have a bottom rail 15 inches
1105.6.2 Signals. A pedestrian activated traffic signal complying with 1106 shall be provided for each segment of the crosswalk, including the splitter island. Signals shall clearly identify which crosswalk segment the signal serves. See discussion of and recommendations for Sections 1105.6, Roundabouts, 1105.6.1, Separation, and 1105.6.2, Signals, in Areas of Primary Concern section.
1105.7 Turn Lanes at Intersections. Where pedestrian crosswalks are provided at right or left turn slip lanes, a pedestrian activated traffic signal complying with 1106 shall be provided for each segment of the pedestrian crosswalk, including at the channelizing island. See discussion of and recommendations for Section 1105.7, Turn Lanes at Intersections, in Areas of Primary Concern section.
1106 Accessible Pedestrian Signal Systems
1106.1 General. Pedestrian signal systems shall comply with 1106. See discussion of and recommendations for Section 1106.1, General [Accessible Pedestrian Signal Systems], in Areas of Primary Concern section.
1106.2 Pedestrian Signal Devices. Each crosswalk with pedestrian signal indication shall have a signal device which includes audible and vibrotactile indications of the WALK interval. Where a pedestrian pushbutton is provided, it shall be integrated into the signal device and shall comply with 1106.3.
1106.2.1 Location. Pedestrian signal devices shall be located 60 inches
Recommendations: 1.) Recommend developing illustrative standard drawings for intersections using required spacings to determine feasibility and reasonability of spacing. 2.) Recommend defining "pedestrian control device" or rewording first sentence. 3.) Recommend rewording second sentence to state: "The face of the pedestrian signal should face the crosswalk it serves."
1106.2.2 Reach and Clear Floor or Ground Space. Pedestrian signal devices shall comply with 308. A clear floor or ground space complying with 305 shall be provided at the signal device and shall connect to or overlap the pedestrian access route.
1106.2.3 Audible Walk Indication. The audible indication of the WALK interval shall be by voice or tone.
1106.2.3.1 Tones. Tones shall consist of multiple frequencies with a dominant component at 880 Hz. The duration of the tone shall be 0.15 seconds
1106.2.3.2 Volume. Tone or voice volume measured at 36 inches
1106.3 Pedestrian Pushbuttons. Pedestrian pushbuttons shall comply with 1106.3. Comments: Several of the requirements for accessible pedestrian signals are anticipated as having a major impact with regard to both cost and manpower, such as the extended button press feature, which not all controllers support and for which new national specifications would be needed.
1106.3.1 Operation. Pedestrian pushbuttons shall comply with 309.4.
1106.3.2 Locator Tone. Pedestrian pushbuttons shall incorporate a locator tone at the pushbutton. Locator tone volume measured at 36 inches
1106.3.3 Size and Contrast. Pedestrian pushbuttons shall be a minimum of 2 inches
1106.3.4 Optional Features. An extended button press shall be permitted to activate additional features. Buttons that provide additional features shall be marked with three Braille dots forming an equilateral triangle in the center of the pushbutton. Comments: 1.) The extended button push should be allowed as an alternative to using a walk speed of 3 fps and the longer crossing distance discussed in Section 1105.3. 2.) The specification of a single push button with three braille dots for additional features may preclude future enhancements to the signals, and/or the provision of a variety of features using individual buttons.
Recommendations: 1.) Recommend utilizing the extended button push as an alternative to using a 3-foot-per-second walking speed at all intersections. 2.) Recommend removal of the requirement for the Braille dots to allow for future enhancements/additional buttons.
1106.4 Directional Information and Signs. Pedestrian signal devices shall provide tactile and visual signs on the face of the device or its housing or mounting indicating crosswalk direction and the name of the street containing the crosswalk served by the pedestrian signal.
1106.4.1 Arrow. Signs shall include a tactile arrow aligned parallel to the crosswalk direction. The arrow shall be raised 1/32 inch
1106.4.2 Street Name. Signs shall include street name information aligned parallel to the crosswalk direction and complying with 703.2. Comments: 1.) This guideline would require custom signs at each and every location, which will increase the cost and time required to install and maintain as compared to simple, mass-produced arrow signs without street name information. 2.) It is not clear if Braille is required in addition to raised letters. 3.) Given the stipulations for text size and spacing, a long street name may make the sign protrude greater than 4 inches
1106.4.3 Crosswalk Configuration. Where provided, graphic indication of crosswalk configuration shall be tactile and shall comply with 703.5.1.
1107 Street Furniture
1107.1 General. Street furniture shall comply with 1107. Comments: 1.) The State DOTs are concerned that they will be held liable for privately owned street fixtures and furniture on State roads over which they have little control, simply because it falls within their right-of-way. In many cases, there are maintenance agreements with local jurisdictions, but these would do little to protect States from being sued. 2.) An inventory and monitoring system for privately owned street fixtures and furniture on public rights-of-way would need to be created and maintained by the DOTs. This would involve notable initial time and cost at start-up and potential significant costs to fix any identified problems, partly because the responsible parties for these fixtures vary from state to state. These inventories would also have training costs to teach what needs to be inventoried and maintained. Finally, these inventories would affect local jurisdictions the greatest because of the number of sites with furniture under local agencies' control. 3.) Some states cannot require a permit for nor remove newspaper boxes due to first amendment laws; thus, there is little the State DOT can do to regulate these (and possibly other) street appurtenances. 4.) The end result of all of these potential problems may be a reduction in or elimination of new street furniture.
1107.2 Clear Floor or Ground Space. Street furniture shall have clear floor or ground space complying with 305 and shall be connected to the pedestrian access route. The clear floor or ground space shall overlap the pedestrian access route 12 inches
SECTION
TITLE DRAFT GUIDELINE COMMENTS AND RECOMMENDATIONS
1107.3 Drinking Fountains. Where drinking fountains are provided, they shall comply with 602.
1107.4 Public Telephones. Where public telephones are provided, they shall comply with 1107.4.
1107.4.1 Single Telephone. Where a single public telephone is provided, it shall comply with 704.2 and 704.4
1107.4.2 Multiple Telephones. Where a bank of public telephones is provided, at least one telephone shall comply with 704.2, and at least one additional telephone shall comply with 704.4.
1107.4.3 Volume Controls. All public telephones shall provide volume controls complying with 704.3.
1107.5 Public Toilet Facilities. Permanent or portable public toilet facilities shall comply with 603. At least one fixture of each type provided shall comply with 604 through 610. Operable parts, dispensers, receptacles, or other equipment shall comply with 309. EXCEPTION: Where multiple single-user toilet facilities are clustered at a single location, at least 5 percent, but no fewer than one single-user toilet at each cluster shall comply with 603 and shall be identified by the International Symbol of Accessibility complying with 703.7.2.1.
1107.6 Tables, Counters, and Benches. Tables, counters, and benches shall comply with 1107.6.
1107.6.1 Tables. Where tables are provided in a single location, at least 5 percent but no fewer than one, shall comply with 902.
1107.6.2 Counters. Where provided, counters shall comply with 904.
1107.6.3 Benches. Where benches without tables are provided at a single location, at least 50 percent, but no fewer than one, shall comply with 903 and shall have an armrest on at least one end.
1108 Detectable Warning Surfaces
1108.1 General. Detectable warnings shall consist of a surface of truncated domes aligned in a square grid pattern and shall comply with 1108. Comments: There is a high potential for increased costs in installation, construction, and/or litigation. There are costs to perform the necessary tests to determine what materials work best under what conditions. Testing is currently being done on slipperiness and other characteristics of various materials. Differences in temperature can cause the material to separate from the concrete. Poor performance could result in high maintenance efforts and increased inspection efforts. There are questions about liability concerns when a tripping hazard is created by the separated material (how often to inspect, how soon to repair, etc.). A major concern is that if the devices are viewed as a safety treatment, the courts may require them to be installed at all locations. This would be a major impact for states and an even larger impact for municipalities.
1108.1.1 Dome Size. Truncated domes in a detectable warning surface shall have a base diameter of 0.9 inches
1108.1.2 Dome Spacing. Truncated domes in a detectable warning surface shall have a center-to-center spacing of 1.6 inches
1108.1.3 Contrast. Detectable warning surfaces shall contrast visually with adjacent walking surfaces either light-on-dark, or dark-on-light.
1108.1.4 Size. Detectable warning surfaces shall extend 24 inches
1108.2 Location. Comments: The possibility of placing detectable warnings on curb ramps leading to driveways is not addressed in the current draft guidelines. This may be advisable depending on how large the driveway is (e.g., a large business entrance) and/or whether it is depressed or not.
Recommendations: Recommend further guidance.
1108.2.1 Curb Ramps and Blended Transitions. The detectable warning surface shall be located so that the edge nearest the curb line is 6 inches
Recommendations: Recommend modifying wording: "?so that the edge nearest the curb is?from the face [or back] of curb."
1108.2.2 Rail Crossings. The detectable warning surface shall be located so that the edge nearest the rail crossing is 6 inches
1108.2.3 Platform Edges. Detectable warning surfaces at platform boarding edges shall be 24 inches
1109 On-Street Parking
1109.1 General. Car and van on-street parking spaces shall comply with 1109.
1109.2 Parallel Parking Spaces. An access aisle at least 60 inches
Recommendations: 1.) Recommend beginning section, "For accessible parking spaces,?" 2.) Recommend adding an exception stating that bike lanes are allowed to overlap the access aisle.
1109.3 Perpendicular or Angled Parking Spaces. Where perpendicular or angled parking is provided, an access aisle 96 inches
Recommendations: Recommend rewording beginning of section to state, "Where accessible perpendicular or angled parking is provided,?"
1109.4 Curb Ramps or Blended Transition. A curb ramp or blended transition complying with 1104 shall connect the access aisle to the pedestrian access route.
1109.5 Obstructions. There shall be no obstructions on the sidewalk adjacent to and for the full length of the space. EXCEPTION: This provision shall not apply to parking signs complying with 1109.6 and parking meters complying with 1109.7.2. Comments: It is unclear how far back on the sidewalk from the accessible parking space this restriction applies, i.e., how far back is "adjacent to...the space"?
Recommendations: Recommend clarifying verbiage.
1109.6 Signs. Parking spaces shall be designated as reserved by a sign complying with 502.6. Signs shall be located at the head or foot of the parking space so as not to interfere with the operation of a side lift or a passenger side transfer.
1109.7 Parking Meters. Where parking meters are provided, they shall comply with 1109.7.
1109.7.1 Operable Parts. Operable parts shall comply with 309.
1109.7.2 Location. A parking meter shall be located at the head or foot of the parking space so as not to interfere with the operation of a side lift or a passenger side transfer. EXCEPTION: Where parking meters are not provided at the space, but payment for parking in the space is included in a centralized collection box or paying station, the space shall be connected to the centralized collection point with a pedestrian access route.
1109.7.3 Displays and Information. Displays and information shall be visible from a point located 40 inches
1110 Call Boxes
1110.1 General. Call boxes shall comply with 1110. Comments: Clarification is needed on the type of roadway improvement that would trigger the need for accessibility improvements to call boxes.
1110.2 Operable Parts. Operable parts shall comply with 308 and 309.4. Where provided, labeling shall comply with 703.2 and 703.3. EXCEPTION: Mechanically operated systems in which the signal is initiated by a lever pull shall be permitted to have an activating force of 12 lbf
1110.3 Turning Space. A turning space complying with 304 shall be provided at the controls.
1110.4 Edge Protection. Edge protection complying with 405.9.2 shall be provided where the area at the call box is adjacent to an abrupt level change.
1110.5 Motor Vehicle Turnouts. Where provided, a motor vehicle turnout shall have a minimum paved area of 16 feet
1110.6 Two-Way Communication. Where provided, two-way voice communication shall comply with 1110.6, 708.2 and 708.3.
1110.6.1 Volume Controls. Volume controls complying with 704.3 shall be provided.
1110.6.2 TTY. A TTY complying with 704.4 shall be provided.
1111 Alternate Circulation Path
1111.1 General. Alternate circulation paths shall comply with 1111.
1111.2 Width. The alternate circulation path shall have a width of 36 inches
1111.3 Location. The alternate circulation path shall parallel the disrupted pedestrian access route, on the same side of the street. See discussion of and recommendations for Sections 1102.3, Alternate Circulation Path, and 1111.3, Location [of Alternate Circulation Paths], in Areas of Primary Concern section.
1111.4 Protection. The alternate circulation path shall comply with 307 and shall be protected with a barricade complying with 1111.6 to separate the pedestrian access route and alternate circulation path from any adjacent construction, drop-offs, openings, or other hazards.
SECTION
TITLE DRAFT GUIDELINE COMMENTS AND RECOMMENDATIONS
1111.5 Signs. Signs complying with 703.5 shall be provided at both the near side and the far side of the intersection preceding a disrupted pedestrian access route. Comments: Costs for installation and maintenance of signage could be moderate, especially if broadcast signage or flashing beacon lights accompanied by an audible tone are required. Additional research is needed to determine acceptable signs for various situations. In addition, these signs would need to be included in the MUTCD.
1111.6 Barricades. Barricades shall be continuous, stable, and non-flexible and shall consist of a solid wall or fence or a Type II or Type III barricade as specified in MUTCD section 6F-60 with the bottom or lower rail 1-1/2 inches
AASHTO POLICY RESOLUTION
TITLE: AASHTO'S RESPONSE ON THE US ACCESS BOARD'S
DRAFT GUIDELINES FOR ACCESSIBLE PUBLIC RIGHTS-OF-WAY
WHEREAS, AASHTO created an Ad-hoc Task Force on Accessibility in Public Rights-of-Way consisting of representatives from: the Standing Committee on Highways; the Standing Committee on Public Transportation; the Highway Subcommittees on Construction, Design, Maintenance, and Traffic Engineering; and the Joint Task Force on Non-Motorized Transportation; and
WHEREAS, the Task Force was charged with developing a response to the Draft Guidelines for Accessible Public Rights-of-Way that were recently released by the US Architectural and Transportation Barriers Compliance Board, also known as the US Access Board; and
WHEREAS, the guidelines include sections on scoping requirements, pedestrian access routes, curb ramps and blended transitions, pedestrian crossings, accessible pedestrian signal systems, work zones, street furniture, detectable warning surfaces, on-street parking, call boxes, and alternate circulation paths; and
WHEREAS, the Task Force diligently worked to represent the views of all AASHTO member state transportation departments in its recommendations; and
WHEREAS, these recommendations help to ensure accessibility for all while maintaining the engineering guidelines that have become critical to constructing, operating, and maintaining a safe and efficient transportation system.
NOW, THEREFORE, BE IT RESOLVED, that the AASHTO Board of Directors approves the recommendations developed by the Task Force on Accessibility in Public Rights-of-Way and subsequently endorsed by the Standing Committee on Highways; and
BE IT FURTHER RESOLVED, that the AASHTO Board of Directors directs that these recommendations be submitted to the US Access Board on or before October 28, 2002, as the official AASHTO response to the request for comments on the Draft Guidelines for Accessible Public Rights-of-Way; and
BE IT FURTHER RESOLVED, that the AASHTO Board of Directors calls on the US Access Board to provide cost estimates for the implementation of these guidelines to illustrate the potential financial impacts of their proposed solutions to accessibility issues on the implementing agencies prior to the release of the Notice of Proposed Rule Making on Accessible Public Rights-of-Way.