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MEMORANDUM Request: in 2008 the East AGENDA ITEM#: MEMORANDUM TO: Downtown Design Review Board FROM: Mark Donaldson, Executive Director DATE: March 18, 2009 SUBJECT: East Tennessee Community Design Center’s Knoxville CBID Parking Sign Study ______________________________________________________________________ Request: In 2008 the East Tennessee Community Design Center (ETCDC) inquired of the Downtown Design Review Board (Board) its interest to undertaking a study of parking signs downtown in an attempt to understand the scope of sign litter in the Central Business District and motivate the City of Knoxville to consider efforts to reduce the use of signs to regulate parking. The Board encouraged ETCDC in this effort. Authority: Among the objectives listed in creating the Board at Article 4, Section 26 (D-1 Downtown Design Overlay District) is the following: A.(2) Create quality publicly-oriented spaces, including streets, pedestrian ways, parks and squares that are safe and beautiful. To meet that objective, the Board is provided the following responsibility: E.(3) Advise the Mayor, City Council, Metropolitan Planning Commission and Historic Zoning Commission on means to improve downtown design, incentives that could be used to foster good design, and programs that should be pursued to foster beautification, safety and related public purposes downtown. Background: The focus of the ETCDC study is the role of signs in managing on-street parking in downtown Knoxville. Parking related signs are a subset of regulatory traffic sings intended to instruct road users on what they must do (or not do) in the driving and parking environment. The study offers examples of alternatives to excessive signs that are effective and more visually pleasing. Combinations of fewer signs, increased painting and striping and www.knoxmpc.org attention to streetscape design can enhance the visual quality of the streets of downtown Knoxville. Analysis. Regulatory signs should serve to protect and enhance the health, safety and welfare of all users within the public realm. Regulatory and warning signs should be used conservatively because these signs, if used in excess, tend to lose their effectiveness. In general, movements that are obvious, consistent with basic motor vehicle law, and consistent with driver expectations do not require redundant signs. A reduced number of signs can be effective, while enhancing the pedestrian experience and improving the quality of the streetscape. Findings: The ETCDC study finds that 1) excessive signs contribute to visual blight and increase maintenance costs leading to unattractive, vandalized and deteriorated signs; 2) Multiple sign posts, head and shoulder clearance issues and decreased visibility create dangerous obstacles for pedestrians; and 3) Sign clutter detracts from the visual environment, obstructing views and vistas that create the atmosphere and character of downtown. Staff Recommendation: The Board should consider a recommendation to Mayor Haslam that the City of Knoxville initiate a program to reduce the number of public signs downtown. Such a program should focus on removal of redundant signs, increase the use of painting as a regulatory tool, and consider the use of streetscape design as an alternative method of traffic, parking and pedestrian control. Knoxville CBID Parking Sign Study January 30, 2009 Knoxville, Tennessee This report is being provided to and at the request of the Downtown Design Review Board, Amy Haynes, Bob Alcorn, David Dewhirst, Gregg White, Joe Petree, John Sanders, J.Finbarr Saunders, Kim Henry, Mike Reynolds, and Madeleine Weil. Intern review and supervision by Mark Donaldson, Metropolitan Planning Commission Executive Director. Project Funding and Contributions provided by: • Cornerstone Foundation of Knoxville (Student Internship Funding) • City of Knoxville Community Development Block Grant • Knox County Government • United Way of Greater Knoxville • Tennessee Arts Commission and the National Endowment for the Arts • The East Tennessee Community Design Center Board of Directors • Members of the Community Design Center EAST TENNESSEE COMMUNITY DESIGN CENTER 1300 N. BROADWAY KNOXVILLE, TN 37917 (865) 525-9945 WWW.ETCDC.ORG Table of Contents: • Introduction and Goals ........................................................1 • Regulatory Signage .............................................................2 • Research ..............................................................................4 • Case Studies ......................................................................13 • Alternatives to Signage .....................................................20 • Conclusion ........................................................................27 • References .........................................................................28 Introduction & Goals Objectives: The East Tennessee Community Design Center has been requested by the Downtown Design Review Board to study and provide a report of findings relative to on-street parking control signs and markings within downtown Knoxville. The study will consider the effectiveness of signs in managing downtown on-street parking and the impact of these signs on the quality of the pedestrian experience and mobility, as well as the aesthetics of the downtown streetscape. It will review what is perceived to be “sign litter” that takes up space within pedestrian walkways, congesting them and reducing mobility, especially for persons with disabilities. Thanks to: Cornerstone Foundation of Knoxville has provided the resources to enlist the assistance of a University of Tennessee student intern, Caleb Lillard, for this study. CORNERSTONE FOUNDATION OF KNOXVILLE 1 Regulatory Signage The focus of this study is the role of signs in managing on-street parking in downtown Knoxville. Parking related signs are a subset of regulatory traffic signs intended to instruct road users on what they must do (or not do) in the driving and parking environment. The term regulatory sign describes a range of signs that are used to indicate or reinforce traffic laws, regulations or requirements which apply at all or specified times or places upon a street or highway, the disregard of which may constitute a violation. A sample of on-street parking signs include: - No Parking - designates a specific area that is not to be used for parking;’ - Timed Parking - designates a specific area that is available to the general public but only for a specific amount of time. Any time spent within the designated area beyond the allotted time is subject to a parking citation; - Handicap Parking - designates a specific area that is reserved for authorized handicapped users; - Police Parking - designates a specific area that is to be used by authorized police users only; and - Commercial Loading - designates a specific area to be used by vehicles authorized for downtown commercial deliveries and loading only. Within downtown Knoxville, commercial loading zones are available to the general public from 6 p.m. to 6 a.m. 2 Sample Signs 3 Research Regulatory signs serve to protect and enhance the health, safety and welfare of the general public. All regulatory and warning signs in the public right-of-way must meet the design and installation requirements of the Manual of Uniform Traffic Control Devices (MUTCD). Effective signs provide clear information and instruction to vehicle operators, pedestrians, and bicyclists. Properly installed signs facilitate legal, safe, and orderly use of public roadways. Regulatory and warning signs should be used conservatively because these signs, if used in excess, tend to lose their effectiveness. In general, movements that are obvious, consistent with basic motor vehicle law, and consistent with driver expectancy do not require redundant signing(2). Currently, the number of signs located in downtown Knoxville is not space effective. There are too many signs, and they are excessively redundant. The result is sign litter made up of signs themselves and their posts - congesting walkways and presenting mobility constraints, especially for persons with disabilites or with strollers or delivery carts who require wide, unobstructed sidewalks. Sign clutter, poor streetscape design, and undefined street parking can seri- ously restrict pedestrian movement and limit streetside activity essential to a vibrant downtown atmosphere. The first step toward increasing space effectiveness of signs is to complete an exhaustive survey of all regulatory signs in the downtown area. There are many signs that remain from previous, now outdated, parking scenarios. Many of these signs could be candidates for immediate removal to quickly reduce sign litter. On the next page is an example of the difference removing sign litter can make on the aesthetics of the downtown streetscape (Figures 1 and 2). Figure 1 shows an existing streetscape at Cumberland Avenue, between Locust and Walnut Streets. Figure 2 shows the same block with two ‘no parking’ signs removed. Without the excessive signs, the streetscape is improved and the sidewalk is less congested. One sign remains to inform drivers that there is no parking allowed along this part of the block. 4 Before (with signs) Figure 1 After (no signs) Figure 2 5 Another approach to parking control is the use of streetscape elements. Bulb-outs, tree planters, and set-off parking areas define where and where not to park without the use of signs. Over the next two pages, two charts have been provided for better understanding of the problem at hand. These charts
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