CONSENT  

Bill No: AB 634

Author: Salas (D)

Introduced: 2/15/19

Vote: 21

SENATE TRANSPORTATION COMMITTEE: 11-0, 6/11/19

AYES: Beall, Bates, Dodd, Galgiani, McGuire, Morrell, Roth, Skinner, Stone, Umberg, Wieckowski

NO VOTE RECORDED: Rubio

SENATE APPROPRIATIONS COMMITTEE: Senate Rule 28.8

ASSEMBLY FLOOR: 72-0, 5/9/19 - See last page for vote

SUBJECT: Traffic control devices: roundabouts: memorial and dedication signs

SOURCE: Author

DIGEST:

This bill requires roundabouts to be included in the list of highway facility types that may be used for memorial or dedication signing as designated in the California Manual on Uniform Traffic Control Devices (MUTCD).

ANALYSIS:

Existing law:

1. Assigns to the California Department of Transportation (Caltrans) the responsibility of operating and maintaining state highways, including the installation and maintenance of highway signs.
2. Requires Caltrans to, after consulting with local agencies and holding public hearings, adopt rules and regulations prescribing uniform standards and specifications for all official traffic control devices in the MUTCD.
3. Enables the Legislature to, through a concurrent resolution, request that Caltrans erect signs showing special designation upon receiving donations from non-state sources covering the cost, consistent with the signing requirements for the state highway system.

This bill requires roundabouts to be included in the list of highway facility types that may be used for memorial or dedication signing as designated in the California MUTCD, adopted pursuant to Section 21400 of the Vehicle Code.

Background

The California MUTCD. Existing law requires Caltrans to adopt rules and regulations prescribing uniform standards for traffic control devices in the state. The California Traffic Control Devices Committee (CTCDC) reviews these rules and regulations and makes recommendations to the Caltrans director, who ultimately adopts rules and regulations in the California MUTCD. The California MUTCD contains specific standards for memorial or dedication signing of bridges, freeway and highway segments, rest areas, interchanges, and vista points.

Comments

1. Author’s statement. According to the author, “AB 634 will require that roundabouts be added as a type of highway facility that may be used for memorial or dedication signing. Other highway facilities that can be named include highways and freeways, bridges, interchanges, rest areas, and vista points. A roundabout can also help define a community by displaying art or designs on the central island that represents local heritage.”
2. Need for this bill? California law does not prohibit memorialization of types of highway facilities beyond bridges, freeway and highway segments, rest areas, interchanges, and vista points. For example, SCR 114 (Gaines, Resolution Chapter 102, Statutes of 2014) designated the intersection of State Highway Route 49 and Elm Avenue in the City of Auburn as the James E. Machado Memorial Intersection. Furthermore, a section of state highway going through a roundabout could already be named under the standards in the current California MUTCD.

That being said, the change required by this bill is relatively minor, not opposed by either the California Highway Patrol or Caltrans, and provides sufficient leeway for the CTCDC to develop standards and guidance on where roundabout memorial signs should be placed (e.g. either on the roundabout itself or in the lead up to the roundabout) to alleviate safety concerns that could arise from being overly prescriptive.

Related/Prior Legislation

SCR 114 (Gaines, Resolution Chapter 102, Statutes of 2014) designated the intersection of State Highway Route 49 and Elm Avenue in the City of Auburn as the James E. Machado Memorial Intersection.

FISCAL EFFECT: Appropriation: No Fiscal Com.: Yes Local: No

SUPPORT: (Verified 6/25/19)

American GI Forum of California

American Legion-Department of California

AMVETS-Department of California

California Association of County Veterans Service Officers

California State Commanders Veterans Council

City of Delano

City of Lemoore

Military Officers Association of America-California Council Chapters

OPPOSITION: (Verified 6/25/19)

None received

ASSEMBLY FLOOR: 72-0, 5/9/19

AYES: Aguiar-Curry, Bauer-Kahan, Berman, Bloom, Boerner Horvath, Bonta, Brough, Burke, Calderon, Carrillo, Cervantes, Chau, Chiu, Choi, Chu, Cooley, Cooper, Cunningham, Daly, Eggman, Flora, Friedman, Gabriel, Gallagher, Cristina Garcia, Eduardo Garcia, Gipson, Gloria, Gonzalez, Gray, Grayson, Holden, Irwin, Jones-Sawyer, Kalra, Kamlager-Dove, Kiley, Lackey, Levine, Limón, Low, Maienschein, Mathis, Mayes, Medina, Melendez, Mullin, Muratsuchi, Nazarian, Obernolte, O'Donnell, Patterson, Petrie-Norris, Quirk, Quirk-Silva, Ramos, Reyes, Luz Rivas, Robert Rivas, Rodriguez, Blanca Rubio, Salas, Santiago, Smith, Mark Stone, Ting, Voepel, Waldron, Weber, Wicks, Wood, Rendon

NO VOTE RECORDED: Arambula, Bigelow, Chen, Dahle, Diep, Fong, Frazier, McCarty

Prepared by: Amy Gilson / TRANS. / (916) 651-4121

6/26/19 15:34:24

**** END ****

SENATE COMMITTEE ON TRANSPORTATION

Senator Jim Beall, Chair

2019 - 2020 Regular

Bill No: AB 634 Hearing Date: June 11, 2019

SUBJECT: Traffic control devices: roundabouts: memorial and dedication signs

DIGEST: This bill requires roundabouts to be included in the list of highway facility types that may be used for memorial or dedication signing as designated in the California Manual on Uniform Traffic Control Devices (MUTCD).

ANALYSIS:

Existing law:

1. Assigns to the California Department of Transportation (Caltrans) the responsibility of operating and maintaining state highways, including the installation and maintenance of highway signs.
2. Requires Caltrans to, after consulting with local agencies and holding public hearings, adopt rules and regulations prescribing uniform standards and specifications for all official traffic control devices in the MUTCD.
3. Enables the Legislature to, through a concurrent resolution, request that Caltrans erect signs showing special designation upon receiving donations from non-state sources covering the cost, consistent with the signing requirements for the state highway system.

This bill requires roundabouts to be included in the list of highway facility types that may be used for memorial or dedication signing as designated in the California MUTCD, adopted pursuant to Section 21400 of the Vehicle Code.

COMMENTS:

1. Author’s Statement. According to the author, “AB 634 will require that roundabouts be added as a type of highway facility that may be used for memorial or dedication signing. Other highway facilities that can be named include highways and freeways, bridges, interchanges, rest areas, and vista points. A roundabout can also help define a community by displaying art or designs on the central island that represents local heritage.”
   
2. Roundabouts. Caltrans defines a roundabout as an intersection where traffic travels around a central island in a counterclockwise direction. Vehicles entering or exiting the roundabout must yield to vehicles, bicyclists, and pedestrians.
   
3. The California MUTCD. Existing law requires Caltrans, after consultation with local agencies and public hearings, to adopt rules and regulations prescribing uniform standards and specifications for traffic control devices in the state. Caltrans established the California Traffic Control Devices Committee (CTCDC) to fulfill this mandate. The committee is made up of representatives from Caltrans, the California Highway Patrol, and local governments, and also consults with technical advisors. The CTCDC reviews rules and regulations and makes recommendations to the Caltrans director, who ultimately adopts and publishes rules and regulations in the California MUTCD.
   
   The California MUTCD incorporates the Federal Highways Administration’s MUTCD and includes additional policies on traffic control devices approved in California. The federal MUTCD’s section on memorial or dedication signing relates is general while the California MUTCD additionally contains specific standards for memorial or dedication signing of bridges, freeway and highway segments, rest areas, interchanges, and vista points.
   
4. Memorial signing options. The Legislature commonly adopts resolutions naming bridges, freeway and highway segments, rest areas, interchanges, and vista points to honor a deceased person for extraordinary public service. However, California law does not prohibit memorialization of other types of highway facilities. While the committee is not aware of any instances to date where the Legislature has memorialized a roundabout, SCR 114 (Gaines, Chapter 102, Statutes of 2014) designated the intersection of State Highway Route 49 and Elm Avenue in the City of Auburn as the James E. Machado Memorial Intersection. Furthermore, a section of state highway going through a roundabout could already be named under the standards in the current California MUTCD.
   
5. Need for expert review? The California MUTCD is updated yearly through a public, regulatory process. Anyone may propose a change to the California MUTCD for consideration by the experts on the CTCDC. However, this bill would short circuit this process by directly requiring roundabouts to be included in the list of highway facility types that may be used for memorial or dedication signing. This committee has previously held bills that would have required significant changes to the California MUTCD, instead directing the CTCDC to review the relevant policy. For example, SB 632 (Cannella, 2015) would have authorized a local authority to establish a 15 mph prima facie speed limit in a school zone. This bill was held in Senate Transportation and Housing Committee, which instead directed the CTCDC to review distances and effective periods of school zones.
   
   That being said, the change required by this bill is relatively minor, and is not opposed by either the California Highway Patrol or Caltrans.
   
6. Necessity or safety concerns? While the goals of this bill could be achieved without this legislation, as written, it provides sufficient leeway for the CTCDC to develop standards and guidance on where roundabout memorial signs should be placed (e.g. either on the roundabout itself or in the lead up to the roundabout) to alleviate safety concerns that could arise from being overly prescriptive.

Related Legislation:

SB 632 (Cannella, 2015) — Would have authorized a local authority to establish a 15 mph prima facie speed limit in a school zone. This bill was held in Senate Transportation and Housing.

SCR 114 (Gaines, Chapter 102, Statutes of 2014) — Designates the intersection of State Highway Route 49 and Elm Avenue in the City of Auburn as the James E. Machado Memorial Intersection.

AB 612 (Nazarian, 2014) — Required a local agency to establish minimum yellow light intervals at red light camera intersections at one second longer than the yellow light change intervals provided in the California MUTCD. This bill was gut and amended and died in Assembly Transportation.

AB 678 (Gaines, Chapter 747, Statutes of 2007) — Required Caltrans to, among other provisions, place signs encouraging people not to drink and drive and memorializing victims of drunk driving along state highways and to adopt program guidelines for the application and placement of these signs.

Assembly Votes:

Floor 72 – 0

Appropriations 14 – 0

Transportation 10 – 0

FISCAL EFFECT: Appropriation: No Fiscal Com.: Yes Local: No

According to the Assembly Appropriations Committee, “negligible costs to Caltrans. Under current law and practice, the Legislature may request Caltrans erect signs showing special designation, the cost of which are typically covered by third-party donations from non-state sources covering the cost. In addition, Caltrans, which updates the CMUTCD annually, would add roundabouts, as required by this bill, during its next regular update to the CMUTCD.”

POSITIONS: (Communicated to the committee before noon on Wednesday,

June 5, 2019.)

SUPPORT:

American GI Forum of California
AMVETS-Department of California

American Legion-Department of California

California Association of County Veterans Service Officers

California State Commanders Veterans Council

City of Delano

City of Lemoore

Military Officers Association of America-California Council Chapters

OPPOSITION:

None received.

-- END --

ASSEMBLY THIRD READING

ATR Bill Id:AB 634

Author:(Salas)

As Introduced Ver:February 15, 2019

Majority vote

SUMMARY:

Requires the California Department of Transportation (Caltrans) to include roundabouts within the California Manual on Uniform Traffic Control Devices (MUTCD) list of facility types eligible for memorial or dedication signage.

Major Provisions

See summary.

COMMENTS:

A roundabout is an intersection where traffic travels around a central island in a counterclockwise direction. Vehicles entering or exiting the roundabout must yield to vehicles, bicyclists, and pedestrians. Roundabouts can have many advantages over traffic signals when constructed in the right location, including:

1. They provide traffic calming, resulting in reduced speeds.
2. They require less maintenance, have lower yearly operational costs, and have a longer service life.
3. They reduce greenhouse gas emissions by reducing vehicle idling time.
4. The median islands provide refuge for pedestrians, allowing them to cross one direction of traffic at a time.
5. They provide additional opportunities for landscaping in the community.

Research shows that roundabouts can be an effective way to improve safety at intersections. A review of 55 roundabout installations shows a reduction of 35% in crashes. More importantly, the number of severe injuries related to crashes was significantly reduced up to 80%.

A well-designed roundabout requires motorists to slow when navigating the roadway. Because of this, roundabouts can serve as a method to alert roadway users that they are transitioning from one roadway environment to another, such as from the freeway to the local street system, or from a rural environment to one which is more urban. This is why Caltrans typically reserves the space within a roundabout for landmark and gateway monuments such as community names.

For all these advantages, Caltrans has been pursuing the installation of roundabouts when appropriate. While there are less than 50 roundabouts on the state highway system currently, Caltrans indicates that many more are planned in the future.

The MUTCD is a federal document issued as the national standard for uniform standards and specifications for all official traffic control devices in accordance with federal law. The California MUTCD incorporates the Federal Highway Administration's Manual and includes all additional policies on traffic control devices approved in California. This bill requires Caltrans to update the California MUTCD to compel Caltrans to allow memorial or dedication signs on roundabouts.

Committee concerns: There are a number of issues with this proposal. First, Caltrans updates the MUTCD every year through a public process in which anyone can propose changes to the state's uniform signage policies. In fact, the Office of Administrative Law has deemed the update of the MUTCD a regulatory process and therefore requires Caltrans to take specific steps in updating the manual each year. Engineers and other experts serve on the California Traffic Control Devices Committee and weigh the benefits as well as the safety and cost challenges of each proposal before making changes to the MUTCD. Additionally, the federal government has to approve any proposed changes before they can be adopted. It seems reasonable that, if anyone wants to change the MUTCD, he or she would propose that change to the experts on the committee and allow those who are able to best determine the safest alternatives to make the ultimate decision.

Second, roundabouts are relatively unique in California and there are many different configurations. Many drivers are unfamiliar with a roundabout, and therefore Caltrans installs a number of signs to clearly direct users (vehicles, pedestrians, and cyclists) to the safe use of the facility. Signage that isn't necessary for the direction of proper ingress and egress of a roundabout could lead to confusion, and detract from safely traversing the roundabout. Because of this potential distraction, it is unclear whether memorial or dedication signage is warranted in these type of facilities.

Finally, there are 15,092 center lane miles of state highway in California and 13,391 state-owned bridges and other structures. If every highway naming was a structure or 5 miles of highway, that creates the opportunity for more than 16,400 memorial or dedication signs throughout the state. It is unclear why it is necessary for the Legislature to create more opportunities for memorial or dedication signage through statute.

According to the Author:

According to the author, "AB 634 will require that roundabouts be added as a type of highway facility that may be used for memorial or dedication signing. Other highway facilities that can be named include highways and freeways, bridges, interchanges, rest areas, and vista points. A roundabout can also help define a community by displaying art or designs on the central island that represents local heritage."

Arguments in Support:

Two cities in the author's district wrote support letters for the bill reflecting the same reasons as the author.

Arguments in Opposition:

None on file.

FISCAL COMMENTS:

According to the Assembly Appropriations Committee, negligible costs to Caltrans. Under current law and practice, the Legislature may request Caltrans erect signs showing special designation, the cost of which are typically covered by third-party donations from non-state sources covering the cost. In addition, Caltrans, which updates the MUTCD annually, would add roundabouts, as required by this bill, during its next regular update to the MUTCD.

VOTES:

ASM TRANSPORTATION: 10-0-5

YES: Aguiar-Curry, Berman, Chu, Cunningham, Daly, Friedman, Gipson, Grayson, Medina, O'Donnell

ABS, ABST OR NV: Frazier, Fong, Bigelow, Diep, Nazarian

ASM APPROPRIATIONS: 14-0-4

YES: Gonzalez, Bloom, Bonta, Calderon, Carrillo, Chau, Eggman, Gabriel, Jones-Sawyer, Maienschein, Obernolte, Petrie-Norris, Quirk, Robert Rivas

ABS, ABST OR NV: Bigelow, Brough, Diep, Fong

UPDATED:

VERSION: February 15, 2019

CONSULTANT: Eric Thronson / TRANS. / (916) 319-2093 FN: 0000279

Date of Hearing: April 24, 2019

ASSEMBLY COMMITTEE ON APPROPRIATIONS

Lorena Gonzalez, Chair

ABPCA Bill Id:AB 634

Author:(Salas) – As Introduced Ver:February 15, 2019

Urgency: No State Mandated Local Program: No Reimbursable: No

SUMMARY:

This bill adds roundabouts to the list of highway facility types that may be used for memorial or dedication signing, as designated in the California Manual on Uniform Traffic Control Devices (CMUTCD).

FISCAL EFFECT:

Negligible costs to Caltrans. Under current law and practice, the Legislature may request Caltrans erect signs showing special designation, the cost of which are typically covered by third-party donations from non-state sources covering the cost. In addition, Caltrans, which updates the CMUTCD annually, would add roundabouts, as required by this bill, during its next regular update to the CMUTCD.

COMMENTS:

Background and Purpose. Caltrans defines a roundabout as “an intersection where traffic travels around a central island in a counterclockwise direction. Vehicles entering or exiting the roundabout must yield to vehicles, bicyclists, and pedestrians.” There are few roundabouts in California; however, Caltrans plans to install more.

The CMUTCD provides uniform standards and specifications for all official traffic control devices in California. Caltrans updates the manual annually following a public process. As noted in the policy committee analysis of this bill, California highways and structures provide thousands of naming opportunities. It is therefore unclear why statute needs to include roundabouts among the types of highway structures that may be named. Nonetheless, roundabouts often include signage of varying types and neither Caltrans nor the California Highway Patrol nor any other entity opposes this bill.

Analysis Prepared by: Jay Dickenson / APPR. / (916) 319-2081

Date of Hearing: April 1, 2019

ASSEMBLY COMMITTEE ON TRANSPORTATION

Jim Frazier, Chair

ABPCA Bill Id:AB 634 (

Author:Salas) – As Introduced Ver:February 15, 2019

SUBJECT: Traffic control devices: roundabouts: memorial and dedication signs

SUMMARY: Requires the California Department of Transportation (Caltrans) to include roundabouts within the California Manual on Uniform Traffic Control Devices (MUTCD) list of facility types eligible for memorial or dedication signage.

EXISTING LAW:

1. Assigns to Caltrans the responsibility of operating and maintaining state highways, including the installation and maintenance of highway signs.
2. Requires Caltrans to, after consulting with local agencies and holding public hearings, adopt rules and regulations prescribing uniform standards and specifications for all official traffic control devices in the MUTCD.
3. Enables the Legislature to, through a concurrent resolution, request that Caltrans erect signs showing special designation upon receiving donations from non-state sources covering the cost, consistent with the signing requirements for the state highway system.

FISCAL EFFECT: Unknown

COMMENTS: A roundabout is an intersection where traffic travels around a central island in a counterclockwise direction. Vehicles entering or exiting the roundabout must yield to vehicles, bicyclists, and pedestrians. Roundabouts can have many advantages over traffic signals when constructed in the right location, including:

1. They provide traffic calming, resulting in reduced speeds.
2. They require less maintenance, have lower yearly operational costs, and have a longer service life.
3. They reduce greenhouse gas emissions by reducing vehicle idling time.
4. The median islands provide refuge for pedestrians, allowing them to cross one direction of traffic at a time.
5. They provide additional opportunities for landscaping in the community.

Research shows that roundabouts can be an effective way to improve safety at intersections. A review of 55 roundabout installations shows a reduction of 35% in crashes. More importantly, the number of severe injuries related to crashes was significantly reduced up to 80%.

A well-designed roundabout requires motorists to slow when navigating the roadway. Because of this, roundabouts can serve as a method to alert roadway users that they are transitioning from one roadway environment to another, such as from the freeway to the local street system, or from a rural environment to one which is more urban. This is why Caltrans typically reserves the space within a roundabout for landmark and gateway monuments such as community names.

For all these advantages, Caltrans has been pursuing the installation of roundabouts when appropriate. While there are less than 50 roundabouts on the state highway system currently, Caltrans indicates that many more are planned in the future.

The MUTCD is a federal document issued as the national standard for uniform standards and specifications for all official traffic control devices in accordance with federal law. The California MUTCD incorporates the Federal Highway Administration’s Manual and includes all additional policies on traffic control devices approved in California. This bill requires Caltrans to update the California MUTCD to compel Caltrans to allow memorial or dedication signs on roundabouts.

According to the author, “AB 634 will require that roundabouts be added as a type of highway facility that may be used for memorial or dedication signing. Other highway facilities that can be named include highways and freeways, bridges, interchanges, rest areas, and vista points. A roundabout can also help define a community by displaying art or designs on the central island that represents local heritage.”

Committee concerns: There are a number of issues with this proposal. First, Caltrans updates the MUTCD every year through a public process in which anyone can propose changes to the state’s uniform signage policies. In fact, the Office of Administrative Law has deemed the update of the MUTCD a regulatory process and therefore requires Caltrans to take specific steps in updating the manual each year. Engineers and other experts serve on the California Traffic Control Devices Committee and weigh the benefits as well as the safety and cost challenges of each proposal before making changes to the MUTCD. Additionally, the federal government has to approve any proposed changes before they can be adopted. It seems reasonable that, if anyone wants to change the MUTCD, he or she would propose that change to the experts on the committee and allow those who are able to best determine the safest alternatives to make the ultimate decision.

Second, roundabouts are relatively unique in California and there are many different configurations. Many drivers are unfamiliar with a roundabout, and therefore Caltrans installs a number of signs to clearly direct users (vehicles, pedestrians, and cyclists) to the safe use of the facility. Signage that isn’t necessary for the direction of proper ingress and egress of a roundabout could lead to confusion, and detract from safely traversing the roundabout. Because of this potential distraction, it is unclear whether memorial or dedication signage is warranted in these type of facilities.

Finally, there are 15,092 center lane miles of state highway in California and 13,391 state-owned bridges and other structures. If every highway naming was a structure or 5 miles of highway, that creates the opportunity for more than 16,400 memorial or dedication signs throughout the state. The committee may wish to consider whether it is necessary for the Legislature to create more opportunities for memorial or dedication signage through statute.

REGISTERED SUPPORT / OPPOSITION:

Support

None on file.

Opposition

None on file.

Analysis Prepared by: Eric Thronson / TRANS. / (916) 319-2093