Lakeland Area Alternatives Analysis

DRAFT Preliminary Safety Assessment

US 92/SR 546/Memorial Boulevard

November 2017

Project Limits: From North Brunnell Parkway to Lakeshore Drive

Polk County, Florida

Financial Project Identification Number (FPID): 432459-1-22-01

Prepared for:

Florida Department of Transportation District One 801 N. Broadway Avenue Bartow, Florida 33830

Lakeland Area Alternatives Analysis

DRAFT Preliminary Safety Assessment

US 92/SR 546/Memorial Boulevard

November 2017

Project Limits: From North Brunnell Parkway to Lakeshore Drive

Polk County, Florida

Financial Project Identification Number (FPID): 432459-1-22-01

Prepared for:

Florida Department of Transportation District One 801 N. Broadway Avenue Bartow, Florida 33830

Prepared by: HNTB Corporation 201 N. Franklin Street Tampa, FL 33602

______Benjamin Walker, P.E. Florida PE# 57625

Table of Contents

Executive Summary ...... ES-1

1.0 Introduction ...... 1

2.0 Existing Conditions ...... 3

3.0 Crash Analysis ...... 9

List of Figures

Figure 1: Road Safety Audit Limits ...... ES-3 Figure 2: Future Land Use ...... 5 Figure 3: Existing Sidewalks and Bike Lanes ...... 6 Figure 4 Crashes at Memorial Boulevard and SR 33 (number of crashes, % of total) ...... 16 Figure 5 Crashes at Memorial Boulevard and US 98 (number of crashes, % of total)...... 17 Figure 6 Crashes at Memorial Boulevard and Martin Luther King Ave (number of crashes, % of total) ... 18 Figure 7 Crashes at Memorial Boulevard and Lincoln Ave (number of crashes, % of total) ...... 19

List of Tables

Table 1: US 92/SR 546 Traffic Characteristics – AADT, AM and PM Peak volume (2016) ...... 7 Table 2: Summary of Collision Data ...... 11 Table 3: Lighting Conditions at the time of the Crash ...... 12 Table 4: Severity of Crash ...... 12 Table 5: Crash history of the study limits from 2011- 2015...... 13

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Executive Summary

The Florida Department of Transportation (FDOT) is working to facilitate a complete transportation network to properly support renewed growth in north Lakeland, Florida. As one example, FDOT is conducting the Lakeland Area Alternatives Analysis (LAAA) study to examine the community’s transportation needs for pedestrians, cyclists, automobiles, transit, and the movement of freight and goods.

According to the Lakeland Economic Development Council (EDC), Lakeland had a growth rate of 22.96% between 2000- 2014, which is tremendous compared to the nation’s growth rate of just under 1%. To accommodate this economic growth and development, while providing for the safety of Major destinations like draw residents and the users, context-specific infrastructure must be in place. visitors alike year-round.

Originally conceived as a study to examine the potential for widening US 98/SR37 to provide capacity needs, FDOT broadened the analysis area and scope to create what is now known as the Lakeland Area Alternatives Analysis study, to examine the community’s transportation needs in the north Lakeland area. This study’s scope adheres to FDOT’s new Complete Streets Initiative where safety, quality of life and economic development are at the forefront of design. This is in concurrence with Polk Transportation Planning Organization’s (TPO) mission to partner with the community to plan and fund transportation projects and programs that provide safe, reliable travel for all users.

In addition, the Mid-Town Community Redevelopment Area plan envisions redevelopment of the area with various principles. The Mid-Town CRA US 98/North Florida Avenue Corridor Study (2004) similarly introduces concepts to drive solutions for the US 98/North Florida Avenue Corridor. Its goals were to find solutions to “create a new image for the roadway, improve function and safety, and enhance the corridor’s development opportunities” for neighborhoods in dire need of revitalization. The

Pedestrians and bicyclists need to feel safe traveling the Study acknowledges the corridor’s function as corridor. moving large volumes of vehicular traffic, but also

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emphasizes the importance of traffic calming and corridor beautification. The Mid-Town CRA US 98/North Florida Avenue Corridor Study illustrates initial concepts for five locations in the area that meet the following goals: Embrace and enhance US98/North Florida Avenue as a landscaped transportation corridor; Encourage new development to be of a significant scale to balance the magnitude of the roadway; Improve east-west connectivity through well-defined pedestrian and vehicular connections; Improve connectivity to public amenities; Cluster activities at easily-accessible nodes and intersection; and, Provide economic opportunities.

Pedestrians and bicyclists need to feel safe traveling the corridors. Pedestrians prefer to walk in an inviting, safe space with wide sidewalks with room to comfortably walk side by side or to access businesses such as a restaurant or a boutique. Similarly, connectivity to transit is imperative to a functioning transportation system and to supporting future growth. Likewise, roadways must provide enough capacity to move vehicles. There is a true balancing act, but through working with stakeholders, analysis and creativity, solutions are achievable.

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Figure 1: Road Safety Audit Limits

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1.0 Introduction

By following FDOT’s Complete Streets Initiative, this study will analyze the transportation system’s needs that incorporates all modes of travel into a network’s and corridor’s performance evaluation.

Sports stadiums, local parks, shops, restaurants and employers are all traffic generators in the Lakeland /Bryant Stadium draws many residents and visitors throughout the year. area, drawing pedestrians, cyclists, and transit riders. Citrus Connection is a vital resource for the area, with many major routes throughout the study area, supported by a transfer station and a new park-n-ride facility within the study boundaries.

In the study area, Publix field at Citrus Connection is a vital resource for the (Tiger Town) and Henley Field, along with other area, with many major routes throughout community events, draw residents and visitors into the the study area, supported by a transfer area throughout the year. Freight and logistics are station and a new park-n-ride facility continuing to be a large part of the economy as large within the study boundaries. distribution companies that call Lakeland and surrounding areas home generate high volumes of traffic. According to the EDC, the largest employers in the area (Publix, Lakeland Regional Health, GEICO, City of Lakeland and Watson Clinic) are in industries that need various types of service providers, tradespeople, and professionals, some of which walk, bike, use transit, drive, or a combination of these modes, to reach their jobs as well as other live-work-play activities. As real-time traffic information becomes more readily available, travelers may change their daily commute pattern in terms of routes or mode. The LAAA considers all users in its quest to meet the transportation needs of the Lakeland area. Movement of freight and goods must be considered when studying transportation improvements

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The largest employers in the area are in industries that need several types of service providers, tradespeople, and professionals, some of which drive, walk, bike, use transit, or a combination of these modes, to reach their jobs as well as other live-work-play activities.

Earlier in the study, stakeholders were provided an opportunity to weigh-in and provide the team with their concerns for all transportation modes in the study area. Some ideas stakeholders have suggested for Memorial Boulevard include constructing bus-bays, creating wider lanes where possible, and improving corridor lighting. Ideas like this, and others, can come from the knowledge gained during a Roadway Safety Audit (RSA). FDOT encourages the community’s participation in the RSA for the US 92/SR 546/Memorial Boulevard (Memorial Boulevard) corridor which will be conducted from North Brunnell Parkway to Lakeshore Drive. FDOT is extending the RSAs past the LAAA study’s boundaries to review issues related to connectivity between the study area communities and the downtown development area for all users.

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2.0 Existing Conditions

The preliminary safety assessment examined the existing operational, safety, freight, and capacity issues to identify the multi-modal transportation system deficiencies for pedestrians, bicyclists, automobiles, and transit users. Through this assessment, it was determined that the current corridor design of Memorial Boulevard does not meet the needs of the community. Traffic generated by events at Publix Field at Joker Marchant Stadium creates challenges for the existing

transportation network. Also within The overpass at Kathleen Road restricts access for pedestrians and bicyclists. this segment there is an overpass at Kathleen Road which restricts access for pedestrians and bicyclists.

This corridor is an urban principle arterial with a speed limit primarily between 35 and 45 mph. The segments of Memorial Boulevard from N. Brunnell Parkway to east of Walker Avenue and from Lakeland Hills Boulevard to Lakeshore Drive are four-lane divided highways. The segment of Memorial Boulevard from east of Walker Avenue to Lakeland Hills Boulevard, is a six-lane divided highway.

Considering these characteristics, Memorial Boulevard’s preliminary context classification is slated C3C, suburban commercial. This classification provides mostly non-residential large building footprints and large parking lots built within large blocks that are disconnected with a sparse roadway network. For future C4, urban general context, improvements can be planned for including mixed-uses within small blocks with a well-connected roadway network that connects to residential neighborhoods immediately along the corridor or behind the uses fronting the roadway. Updates to the City of Lakeland’s Land Development Code may be necessary to ensure allowable uses fit with the context classification designations. Additionally, despite a number of designations that may allow and encourage urban development patterns, the future context is dependent on infill development and redevelopment dramatically changing the character of the existing corridor. Knowledge of these traits will guide in planning improvements to the corridor.

It is this mix of adjacent land uses which leads to meeting the City’s goal of a livable community where one can live, work, and play nearby, see Figure 2. Specifically, this land use mix also leads to the layered

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transportation needs of the users by requiring safe access to walking, bicycling, transit and vehicular modes.

Sidewalks and bike facilities, both along the corridor and connecting from adjacent communities, are vital to a Complete Streets network. This connectivity is a cornerstone to a vibrant and sustainable community as well. As shown in Figure 3, Cyclists are forced to share the sidewalk and the roadway. most of the Memorial Boulevard corridor possesses sidewalks on both sides of the roadway, but the width varies and buffers are not always provided. There is a high amount of sidewalk connections on cross streets, especially on the eastern side of the corridor. There are currently many areas with no bike lanes located along Memorial Boulevard and riders are forced to either share the road or the sidewalk in areas with high levels of traffic stress. Closer to the downtown area, multiple locations lack marked crossings making the area inconvenient and uncomfortable for pedestrian traffic and bikes. For a downtown area to thrive, sidewalks and crosswalks must be available for people as they work, play and stay.

Memorial Boulevard is served by Citrus Connection Route 14, one of their highest ridership routes, between Dr. Martin Luther King, Jr. Boulevard and N. Ingraham Avenue. North-south connections are offered by Routes 1, 3, 15, and 46.

Within the study area, Interstate 4 (I-4), Kathleen Road, SR 35 (N. Florida Avenue) and Memorial Boulevard are designated Polk County truck routes. These corridors act as connectors to I-4, which is also one of Florida’s Strategic Intermodal System Corridors. The corridor’s proximity to these truck routes promotes truck overflow onto Memorial Boulevard, which should be considered when evaluating for improvements. Finally, as shown in Table 1, the number of vehicles increase on Memorial Boulevard east of US 98, making safe sidewalks and bike

lanes even more of a necessity in this area. Memorial Boulevard is a Polk County designated truck route and in many areas is inconvenient and uncomfortable for pedestrians.

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Figure 2: Future Land Use

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Figure 3: Existing Sidewalks and Bike Lanes

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Table 1: US 92/SR 546 Traffic Characteristics – AADT, AM and PM Peak volume (2016)

AM Peak Volume PM Peak Volume Description AADT (East/West) (East/West)

SR 546, east of Wabash Avenue 24,600 920 / 790 870 / 820

SR 546, west of Lincoln Avenue 25,300 790 / 720 1,030 / 1,000

SR 546, west of US 98 29,100 980 / 780 1,110 / 1,080

SR 546, east of US 98 38,600 1,110 / 1,090 1,510 / 1,310

SR 546, east of Ingraham Avenue 36,600 950 / 1,320 1,610 / 1,240

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For frame of reference and comparison purposes, FDOT’s Generalized Annual Average Daily Volumes.

STATE SIGNALIZED ARTERIALS Class I (40 mph or higher posted speed limit) Lanes Median B C D E 2 Undivided * 16,800 17,700 ** 4 Divided * 37,900 39,800 ** 6 Divided * 58,400 59,900 ** 8 Divided * 78,800 80,100 ** Class II (35 mph or slower posted speed limit) Lanes Median B C D E 2 Undivided * 7,300 14,800 15,600 4 Divided * 14,500 32,400 33,800 6 Divided * 23,300 50,000 50,900 8 Divided * 32,000 67,300 68,100 FDOT Generalized Annual Average Daily Volumes for Florida’s Urbanized Areas, 12-28-2012

* - Cannot be achieved using table input value defaults. ** - Not applicable for that level of service letter grade. For the automobile mode, volumes greater than level of service D become F because intersection capacities have been reached. For the bicycle mode, the level of service letter grade (including F) is not achievable because there is no maximum vehicle volume threshold using table input value defaults.

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3.0 Crash Analysis

Safety is the number one criteria for transportation improvements, yet the crash epidemic continues in the United States. According to the National Highway Traffic Safety Administration (NHTSA), the toll from highway crashes remains an important health and economic issue in this country. Each year nearly 32,000 individuals are killed and more than six million police-reported motor Safety is the number one criteria for transportation vehicle crashes occurred in the US. The estimated cost of improvements. these highway crashes is more than $871 billion annually. According to Florida Highway Safety and Motor Vehicles Annual Report for 2015, Polk County had nearly 10,000 total crashes of which 112 resulted in fatalities, nearly 7,300 in injuries, 245 pedestrian crashes, and 161 bicycle crashes that year. The report also stated that the City of Lakeland had nearly 2,900 crashes in 2015. According to the Polk TPO, there were 194 fatalities resulting from pedestrian and bicycle crashes between 2006 and According to the Polk TPO, there 2016 in Polk County. were 194 fatalities resulting from pedestrian and bicycle Collision reports were obtained from the District One Safety Office crashes between 2006 and 2016 for January 2011 through December 2015. The collision data is in Polk County. summarized in Table 2. Memorial Boulevard is a high crash corridor with 179 crashes its intersection with US 98 and 171 crashes at Lakeland Hills Boulevard between 2011-2015. A total of 790 collisions were reported within the segment during this time. Of these, 372 (47%) of the crashes were rear end collisions, 70 (9%) were left turn collisions, 41 (5%) were angle collisions, and 113 (14%) were sideswipe collisions. Rear-end crashes dominate the history. Other crashes such as angle and left- turn, can be attributed to the vehicles turning from the side-streets onto Memorial Boulevard. The highest average number of crashes occurred at the intersection of US 98 (N Florida Avenue) followed by SR 33 Rear end crashes dominate the crash history of Memorial Boulevard.

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(Lakeland Hills Boulevard). There were 179 collisions at the intersection of US 98 (N Florida Avenue), 99 (55%) were rear end collisions, 37 (21%) were sideswipe collisions and 1 was pedestrian involved. There were 171 collisions that occurred at the intersection of Lakeland Hills Boulevard, 76 (44%) were rear end collisions, 26 (15%) were sideswipe, 23 (13%) were left turn collisions, 10 (6%) were angle collisions and 4 (2%) were pedestrian involved. There were 55 collisions at the intersection of SR 563 (Martin L King Jr. Avenue), 31 (56%) of which were rear end collisions. There were 37 collisions at the intersection of N Lincoln Avenue, 11 (30%) of which were left turn collisions and 7 (19%) of which were rear end collisions.

As shown in Table 3, most of the crashes have occurred during daylight hours, possibly leading to the assumption that lighting on the corridor is sufficient. Table 4 illustrates the severity of crashes in this segment, showing 277 involving injuries, 509 involving property damage, and four total fatalities, one of which was pedestrian-

involved. Ensure that intersections are ADA compliant. As reference, Table 5 shows all collisions by type and intersection for January 2011 through December 2015. Figure 4 through Figure 7 illustrate the vehicle movements when crashes occurred at the four intersections with the highest crash counts along the corridor.

Numbers alone do not tell the whole story, and cannot provide solutions. The solutions to the national epidemic of crashes and their social impacts will be found by people gathering together, observing, and having conversations to work to implementable solutions. The study team is calling upon stakeholders and professionals to observe these areas firsthand as a group then share what are their concerns, and what they feel could be done differently. The RSAs are a “boots on the ground” approach that will allow the RSA team to view the functionality of the transportation infrastructure in real time and join to brainstorm workable solutions

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Table 2: Summary of Collision Data

200

180

160

140 Unknown

120 Sideswipe Rollover 100 Right Turn

80 Rear End

NUMBER OF CRASHES Pedestrian 60 Other Off Road 40 Left Turn 20 Head On Bicycle 0 Animal Angle

SR 546 FROM N BRUNNELL PARKWAY TO LAKESHORE DR

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Table 3: Lighting Conditions at the time of the Crash

180 170 155 160 146 140 120 2011 2012 100 83 80 2013 60 2014 39 40 37 33 40 25 2015 20 11 12 7 1 3 1 2 1 2 4 5 6 6 1 0 Dark - Lighted Dark - Not Dawn Daylight Dusk Other Lighted Table 4: Severity of Crash

160 150 140 142 140 120 2011 100 2012 80 70 2013 67 63 60 53 53 2014 34 40 2015 14 20 1 1 1 1 0 Fatality Injury Property Damage Only

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Table 5: Crash history of the study limits from 2011- 2015

Count of Crash By Type Head Left Off Rear Right Grand Roadway Angle Animal Bicycle Other Pedestrian Rollover Sideswipe Unknown On Turn Road End Turn Total N BRUNNELL PKWY 5 1 1 3 13 1 4 1 29 JEWEL AVE 1 1 2 ROSELLE AVE 1 1 3 5 NEVILLE AVE 1 1 2 CRESTVIEW AVE 1 2 1 1 2 2 9 ATLANTIC RD 4 3 5 12 SR 539/ KATHLEEN RD 1 2 3 N WALKER AVE 1 1 3 3 4 5 1 3 1 22 ANDERSON AVE 1 1 2 N LINCOLN AVE 3 2 11 4 4 7 4 2 37 N OHIO AVE 1 2 1 4 N KETTLES AVE 2 1 1 1 5

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Count of Crash By Type Head Left Off Rear Right Grand Roadway Angle Animal Bicycle Other Pedestrian Rollover Sideswipe Unknown On Turn Road End Turn Total

TEXAS AVE 1 1 2 1 2 3 10 SR 563 (MARTIN L KING JR AVE) 7 5 1 3 1 31 6 1 55 N VIRGINIA AVE 1 2 3 N NEW YORK AVE 2 4 6 N MISSOURI AVE 1 1 7 1 5 15 US 98/N FLORIDA AVE 1 4 2 10 1 16 1 99 2 1 37 5 179 N TENNESSEE AVE 2 1 9 1 3 16 N KENTUCKY AVE 1 5 1 7 SR 33/ LAKELAND HILLS BLVD 10 1 2 2 23 2 9 4 76 5 26 11 171 N IOWA AVE 1 9 1 1 12

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Count of Crash By Type Head Left Off Rear Right Grand Roadway Angle Animal Bicycle Other Pedestrian Rollover Sideswipe Unknown On Turn Road End Turn Total N VERMONT AVE 2 11 2 15 N GILMORE AVE 2 3 2 4 2 16 1 3 33 N STELLA AVE 2 2 3 3 6 14 1 2 1 34 LAKESHORE DR 9 1 1 7 1 17 49 3 2 9 3 102 Grand Total 41 1 16 6 70 26 86 11 372 16 4 113 28 790

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Figure 4 Crashes at Memorial Boulevard and SR 33 (number of crashes, % of total)

Memorial Blvd at SR 33 (2011 - 2015)

1% 2, 1% 2, 1% 11, 6% 10, 6%

26, 15% 23, 14% 2, 1% 5, 3% 9, 5%

4, 2% 76, 45%

Angle Bicycle Head On Left Turn Off Road Other Pedestrian Rear End Right Turn Roll Over Sideswipe Unknown Animal

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Figure 5 Crashes at Memorial Boulevard and US 98 (number of crashes, % of total)

Memorial Blvd at US 98 (2011 - 2015)

1, 0% 4, 2% 2, 1% 1, 0% 5, 3% 10, 6% 37, 21% 16, 9% 1, 1%

2, 1%

99, 55%

Angle Bicycle Head On Left Turn Off Road Other Pedestrian Rear End Right Turn Roll Over Sideswipe Unknown

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Figure 6 Crashes at Memorial Boulevard and Martin Luther King Ave (number of crashes, % of total)

Memorial Blvd at Martin Luther King Ave (2011 - 2015)

1, 2%

6, 11% 7, 13%

5, 9% 1, 2%

3, 5%

31, 56% 1, 2%

Angle Bicycle Head On Left Turn Off Road Other Pedestrian Rear End Right Turn Roll Over Sideswipe Unknown

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Figure 7 Crashes at Memorial Boulevard and Lincoln Ave (number of crashes, % of total)

Memorial Blvd at Lincoln Ave (2011 - 2015)

2, 5% 3, 8% 4, 11% 2, 5%

7, 19% 11, 30%

4, 11%

4, 11%

Angle Bicycle Head On Left Turn Off Road Other Pedestrian Rear End Right Turn Roll Over Sideswipe Unknown

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In summary, these tables help to illustrate the condition of the corridor. Of the 790 collisions reported, most crashes are daytime, rear-end collisions. Although 509 of the crashes only resulted in property damage, 277 involved injuries and four were fatalities. FDOT FDOT is determining projects that believes these numbers can be reduced and through this study, would improve safety, stimulate that goal can become more attainable, by finding viable the economy and enhance the alternatives that would improve safety, stimulate the economy quality of life for all residents, and aid in achieving the community’s quality of life goals. With workers, and visitors to the work accomplished in the Lakeland Area Alternatives Analysis, FDOT is determining projects that would improve safety, Lakeland area. stimulate the economy and enhance the quality of life for all residents, workers, and visitors to the Lakeland area.

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