Chapter 6.1
Community Health and Safety

• ALL
• Remove Code Barriers
• Create Incentives
• Fill Regulatory Gaps

Mid-block Pedestrian Crossings

INTRODUCTION

Mid-block pedestrian crossings are designated areas for pedestrians to cross the street between where vehicular intersections occur.[1] These crossings should be installed where it is convenient for pedestrians to cross the road, to incentivize greater and safer pedestrian mobility.[2] Frequently, this will mean installation in areas where jaywalking (typically, dangerous to pedestrians) already occurs at high rates.[3] When a pedestrian is able to cross a street without having to wait for the nearest intersection, they can travel on more direct and efficient routes. Additional safety design measures are preferred, as drivers are often significantly less alert to pedestrians at non-intersections, even at these formal crossing areas.[4]

A recent study found that an optimal number of midblock crosswalks could be found for local communities.[5] This study also found that:

"(1) much improvements [sic] can be reached by optimizing the quantity, locations and signal settings of crosswalks simultaneously in terms of pedestrian detour, pedestrian signal delay, and vehicular bandwidths; (2) adding more crosswalks may not contribute much additional improvement in pedestrian crossing cost when the constraint of the minimum interval between crosswalks and vehicular cost are taken into account; and (3) two-stage crosswalks are more favorable than one-stage ones for both pedestrian[s] and vehicles."[6]

Some municipalities, such as Denver, CO, are adopting the National Association of City Transportation Officials (NACTO) Urban Street Design Guide citywide, which includes significant guidance regarding the installation of mid-block pedestrian crossings.^[7] NACTO recommends, among other strategies, “the addition of vertical elements to midblock crosswalks, increasing sight distance at crosswalks, marking the crosswalk[,] and the implementation of medians or pedestrian refuge islands.”[8] It also recommends additional safety measures, such as increased signage, at mid-block crossings that are unsignalized.[9] This includes “traffic calming features, such as raised crossings and midblock curb extensions.”[10] Speed bumps may also be installed in conjunction with mid-block crossings for a traffic-calming effect.[11] The addition of traffic signals is especially important in high traffic volume areas.[12] In regard to crosswalk placement, NACTO suggests they

"should be determined according to the pedestrian network, built environment, and observed desire lines. In general, if it takes a person more than 3 minutes to walk to a crosswalk, wait to cross the street, and then resume his or her journey, he or she may decide to cross along a more direct, but unsafe or unprotected, route. While this behavior depends heavily on the speed and volume of motorists, it is imperative to understand crossing behaviors from a pedestrian’s perspective."[13]

Similarly, the Federal Highway Administration (FHA) has issued guidance tables constituting appropriate siting characteristics when locating mid-block pedestrian crossings.^[14] Considerations that have been shown to have an impact on the viability of a particular site include speed of traffic and width of road.^[15] Additionally, some ordinances now restrict parking near mid-block pedestrian crossings to prevent obstructions and promote general visibility.^[16]

Lighting conditions at mid-block crossings have had a tremendous effect in lowering fatalities. According to the FHA, “relative to dark conditions without street lighting, daylight reduces the odds of a fatal injury by 75 percent at midblock locations . . . whereas street lighting reduces the odds by 42 percent at midblock locations.”^[17]

The FHA has also developed an app that allows pedestrians to signal their intent to utilize a mid-block crossing, which then signals drivers on their smartphones and smart enabled devices to their intent to cross.[18] This holds the potential for municipalities to someday incorporate such futuristic technology into street design and ordinances.

Most municipalities with ordinances regarding mid-block crossings utilize short, generalized language allowing their construction. Sometimes that will include sections mandating their addition at certain typologies, or may include sections of preferred or mandated safety features, or both. The generalized language commonly found does leave it open for planning commissions themselves to utilize best-practice guidelines such as those discussed by the FHA and NACTO when implementing specific mid-block crossings. However, it should be noted that it would be feasible, if not preferred, for municipalities to codify those best practices within their ordinances.

EFFECTS

Mid-block pedestrian crossings are potentially the most impactful pedestrian safety measure that a municipality can enact. According to the FHA, “[p]edestrian crashes account for approximately 15 percent of all traffic fatalities annually, and over 75 percent of these occur at non-intersection locations.”^[19] Installation of mid-block pedestrian crossings is associated with a 56 percent reduction in pedestrian crashes.^[20]

One concern about the installation of mid-block crossings is delay to both foot and vehicle traffic; however, research has shown that through optimization of signalized mid-block crossings, delay and impacts are minimal.^[21] At the same time, such measures can have a traffic-calming effect, as evidenced by the results of the installation of mid-block pedestrian crossings on Hendersonville, NC’s previously dangerous Main Street.^[22] Efficacy of any particular mid-block crossing site is dependent on identification of potential dangers based upon the unique characteristics of the site, and the ability of added features to remediate such dangers.

Aside from safety, there are additional benefits to improving the walkability of neighborhoods, including decreasing incidence of obesity and diabetes by more than ten percent.[23] Research also shows that “people who walk or bike to a commercial area spend more money per month than those who accessed the area by automobile,” creating additional economic benefit to mid-block pedestrian crossings in retail areas.[24] As a result of these benefits, it is often desirable for developers and a variety of entities to initiate requests for mid-block pedestrian crossings.[25] Once proposed, typically the requestor must follow the guiding municipal ordinance, prepare designs and impacts for the proposed mid-block crossing, apply for and receive permits and municipal oversight approval, and, ultimately, fund the development.[26]

EXAMPLES

Oklahoma City, OK

Oklahoma City, OK has had a provision regarding mid-block pedestrian crossings since 1970, with short, broad language.[27] This has allowed Oklahoma City to continue experimenting with new ideas around mid-block crossings, and implementing responsive, contextual solutions. In 2017, in response to a downtown trolley installation and increasing pedestrian retail traffic, Oklahoma City treated the downtown area as a pilot project for revamped mid-block crossings, including more visible and consistent signage, decreased vehicle traffic speeds, and strategic use of new stoplights.[28] One mid-block crossing was added at a location where, previously, over 16,000 pedestrians jaywalked daily.[29] One Oklahoma City Traffic and Transportation Commission report shows the extent to which this broad ordinance allows the consideration of new factors, such as the latest FHA guidelines and studies, localized collision and incident reports, and municipal zoning plans and studies.[30]

To view the provisions, see Oklahoma City, OK, Code of Ordinances § 32-75 (1980).

West Orange, NJ

The state of New Jersey struggled with high pedestrian fatalities for years, and in the late 2000’s, it made a commitment to make $20 million available to municipal governments for pedestrian safety improvements.[31] Since the majority of pedestrian deaths occurred in crosswalks, crosswalk safety and innovation became a statewide priority.[32] With that backdrop, West Orange, NJ, adopted a simple pedestrian crossing ordinance, where each time a crossing is approved, the descriptive location is codified within the ordinance itself.[33] The information regarding each crossing is detailed in the amendment and codifies the descriptive location, allowing for siting nuance and changing best practices.[34] By way of example, the latest approved mid-block pedestrian crossing contained the following:

"A highly visible crosswalk with cross hatchings will be painted across Main Street at this location. Additionally, pedestrian crossing and advanced pedestrian crossing signs will be installed in each direction, and the signs at the crosswalk will contain rectangular rapid flash beacons that will be pedestrian activated when pedestrians wish to cross."[35]

Such an approach allows for site-by-site codification and customization of mid-block pedestrian crossings.

To view the provisions, see West Orange, NJ, Code of Ordinances § 7-30 (2017).

Cary, NC

Cary, NC set forth a provision that proscribes the construction of mid-block crosswalks (without control of right-of-way) at certain locations that contain particular characteristics unsafe for crossing pedestrians.[36] First, the provisions exclude construction at locations with 4 or more lanes of traffic without a raised median and where either the average daily traffic volume exceeds 9,000 or the speed limit is higher than 30 miles per hour.[37] Second, they exclude construction at locations with four or more lanes that do have raised medians, but the average daily traffic volume is over 12,000, and also has a speed limit 40 miles per hour or over.[38] Thirdly, they exclude construction where the street contains three travel lanes and the average daily traffic volume exceeds 9,000 or the speed limit is 40 MPH or greater.[39] Lastly, construction of mid-block crossings is excluded on a two-lane residential street where the average daily volume is less than 400 or greater than 12,000.[40]

To view the provision, see Cary, NC, Town Policies, Policy Statement 128 (2000).

ADDITIONAL EXAMPLES

Albuquerque, NM, Code of Ordinances §6-5-6-6 (5) (2015) (introducing brief guidelines for both controlled and uncontrolled mid-block pedestrian crossings, and requiring highly visible features to be included; such crossings are to be implemented “where necessary”).

Spokane, WA, Code of Ordinances § 17H.010.210 (2014) (adopting mid-block crossings, with mid-block crossing pedestrian refuges in areas with sufficient pedestrian traffic, and where construction would meet national safety standards such as the FHA’s Best Practices Design Guide and NACTO standards, as determined by engineering studies).

San Antonio, TX, Unified Development Code, App. G, Ch. 8(C) (2019) (providing that mid-block crossings are to be constructed on all blocks longer than 550 feet; curb extensions should be provided at most of these locations).

Upper Arlington, OH, Code of Ordinances § 7.12 (2017) (adopting, as part of their section on traffic calming measures, expectations that mid-block crossings will have bulb outs/curb extensions, be marked by different paving material, have appropriate signage where necessary, and that at particularly wide mid-block crossings there must be pedestrian crossing islands).

Thibodaux, LA, Code of Ordinances §(e)(3)(b) (2016) (providing that mid-block marked pedestrian crossings are not to be placed across streets without control of right-of-way that also lack certain specific safety characteristics at their location).