Guidebook on Pedestrian Crossings of Public Transit Rail Services (2015)

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33 C H A P T E R 5 An important factor in the design of pedestrian crossings for public rail transit services is the need to provide safe pedestrian crossings for all users, including users with disabilities. This includes pedestrian-rail crossings adjacent to roadway crossings, on dedicated pedestrian paths, or within station areas. The Americans with Disabilities Act (ADA) (55) prohibits dis- crimination based on disability in public accommodations and services, including public transit rail services. Section 504 of the Rehabilitation Act of 1973 (56) also prohibits discrimi- nation on the basis of disability by recipients of federal funds. Public entities that operate rail transit services—including transit agencies, state and local governments, and Amtrak—are required to comply with ADA guidelines and standards in new construction and additions or alterations for stations, vehicles, and other facilities. Requirements in the following documents are intended to make rail crossings accessible: • ADA Standards for Transportation Facilities (57) • Proposed Accessibility Guidelines for Pedestrian Facilities in the Public Right-of-Way (Proposed PROWAG) (58) • 2009 Manual on Uniform Traffic Control Devices (8) These documents and standards are regularly updated, so revisions may have been made to the information provided in this chapter. The Proposed PROWAG is expected to be adopted as a standard by 2015. In addition, the National Committee on Uniform Traffic Control Devices (NCUTCD) approved recommended revisions to the MUTCD for Section 8D on sidewalk and pathway rail grade crossings in June 2013 (59). These revisions were created by the Railroad/ Light Rail Transit Technical Committee. Current and Proposed ADA Technical Specifications The ADA requirements are minimum technical standards to provide access for pedestri- ans with disabilities; they are not preferred widths or designs. Currently, as noted above, two documents provide technical specifications to comply with the ADA for accessible routes and facilities: the ADA Standards for Transportation Facilities (57), adopted by the U.S. Department of Transportation in 2006, and the Proposed PROWAG (58), published by the United States Access Board in 2011. The 2006 document is a finalized standard explicitly covering transpor- tation facilities, such as stations and station areas. The Proposed PROWAG is intended to cover pedestrian facilities in the public ROW. While not finalized at this time, the Proposed PROWAG provides technical specifications especially developed to address sidewalks and street crossings, including rail crossings. In the two documents, there are some differences in the requirements, which are noted in the sections below. A difference in notation is that the ADA Standards for Transportation Facilities describes slope in proportions and the Proposed PROWAG describes Accessibility/ADA Considerations

34 Guidebook on Pedestrian Crossings of Public Transit Rail Services slopes in percentages. For example, in the ADA Standards for Transportation Facilities, a side- walk slope requirement is stated as 1:20, while the same slope requirement in the Proposed PROWAG is stated as 5 percent. ADA Standards for Transportation Facilities The ADA Standards for Transportation Facilities (57), effective November 29, 2006, contains some accessibility standards of particular relevance for rail transit crossings. These 2006 standards pre- dominantly adopt—with some changes especially relevant to transportation facilities, including rail crossings—the United States Access Board’s 2004 revisions to the technical specifications of the ADA, which have now been now adopted by the U.S. Department of Justice as the ADA Stan- dards for Accessible Design (60). The ADA Standards for Transportation Facilities includes require- ments for accessible routes and pedestrian circulation paths, walking surfaces, turning spaces, protruding objects, doorways, access gates, slopes, ramps, curb ramps, detectable warnings, and openings for wheel flanges. Walking Surfaces Walking surfaces must have a running slope not steeper than 1:20 and a cross slope of 1:48 or less, and be stable, firm, and slip resistant. A surface with a slope of more than 1:20 is considered a ramp, and the ramp or curb ramp requirements described for slope, landings, and handrails apply. Openings or grates in walking surfaces must not allow passage of a sphere more than 0.50 inch in diameter, and elongated openings must be placed so that the long dimension is perpendicular to the dominant direction of travel. An exception to this is flangeway gaps, which are permitted to be a maximum of 2.5 inches wide. Changes in level greater than 0.50 inch are not allowed. Changes up to 0.25 inch are permitted to be vertical, while changes in level between 0.25 inch and 0.50 inch are required to be beveled, with a slope not steeper than 1:2. Accessible Route Width The width of accessible routes is critical at rail crossings, especially for pedestrians who use wheelchairs. The requirements are quite specific as applied to crossings approached by way of pedestrian fencing to allow appropriate turning space. The width requirements differ somewhat between the ADA Standards for Transportation Facilities and Proposed PROWAG. When the Pro- posed PROWAG is adopted, the PROWAG standard will apply because it is specifically designed for public ROW, including street crossings. Ramps Ramps, including curb ramps, are permitted at rail transit crossings, but they must comply with ADA requirements for ramps. Ramps must have a running slope no steeper than 1:12, and the cross slope must not exceed 1:48. Handrails are required on ramps with more than 6 inches of rise. Protruding Objects Protruding objects can be hazardous for pedestrians, especially pedestrians who are blind or have low vision. Vertical clearance of at least 80 inches is required for the entire pedestrian cir- culation path. ADA standards require that objects that have their lowest surface between 27 and 80 inches protrude into accessible routes by a maximum of 4 inches, providing that they do not encroach on the required clear width of the accessible route. Therefore, only 4 inches of the counter-weight of a gate arm would be permitted to protrude into the sidewalk (see Figure 14 as an illustration of conflict). Pole or post-mounted objects, such as signs, are permitted by ADA

Accessibility/ADA Considerations 35 standards to protrude into accessible routes by a maximum of 12 inches from the base of the pole or post. Gates Gates across accessible routes, such as where the approach to a crossing is constrained within railings, must provide a clear width of 32 inches, although a greater width is preferred. There must also be sufficient maneuvering space upon approaching such gates to enable people using wheelchairs to reach the gates and any operating mechanism. The requirements for maneuvering space are specific to the direction of approach, the depth of the opening, and whether the gate requires manual opening. Changes in level are not permitted within the required maneuvering distances. There are also requirements for gate latches and opening and closing force of gates. Gate latches must be operable with one hand and not require tight grasping, pinching, or turning of the wrist. Latches must be between 34 inches and 48 inches above the walking surface. Curb Ramps The ADA Standards for Transportation Facilities (57) requires truncated dome detectable warnings on curb ramps, as does the Proposed PROWAG (58). Detectable warnings must com- ply with surface specifications in the ADA and are to be installed on curb ramps 24 inches deep measured from the back of the curb on the ramp surface, excluding the ramp flare. Detectable warnings are required at platform boarding edges, where they must be 24 inches deep and extend the full length of the public use areas of the platform. Proposed Accessibility Guidelines for Pedestrian Facilities in the Public Right-of-Way The Proposed PROWAG (58) is a newer document than the ADA Standards for Transportation Facilities (57) and because it is specific to the public ROW, it is especially relevant to pedestrian- rail crossings. Some issues are explained more clearly in advisory text, and requirements specifi- cally address sidewalks along roadways, street crossings, and pedestrian signals. Figure 14. Example of conflict between a pedestrian and a counterweight. The pedestrian’s finger is resting on a bolt that protrudes 1 inch, at her eye height. Source: Fitzpatrick

36 Guidebook on Pedestrian Crossings of Public Transit Rail Services Continuous Clear Width The Proposed PROWAG (58) contains additional requirements that are intended to make at-grade rail crossings more accessible to people with mobility impairments. The continu- ous clear width of pedestrian access routes, including sidewalks and at-grade crossings, must be a minimum of 4 ft (rather than 3 ft as required by the ADA Standards for Transportation Facilities [57]). This width cannot be reduced by street furniture or other objects. Where the pedestrian route is wider than 4 ft, however, only 4 ft of the width is required to meet the addi- tional requirements. At turns or changes in direction, or where the grade exceeds 5 percent, a width greater than 4 ft is recommended. Where the pedestrian route is less than 5 ft wide, pass- ing spaces that are a minimum of 5 ft by 5 ft are required at intervals of 200 ft. Grade The grade of pedestrian-rail crossings, whether or not they are contained within pedestrian street crossings, cannot exceed 5 percent, and cross slope is limited to 2 percent. In addition to the requirements in the ADA Standards for Transportation Facilities (57) prohibiting vertical align- ment changes of more than 0.5 inch on accessible routes, the Proposed PROWAG (58) requires that at-grade pedestrian-rail crossings have a surface that is level and flush with the top of the rail at the outer edges of the rails and that the surface between the rails be aligned with the top of the rail. An advisory note discusses the choice of smooth surfaces that facilitate mobility, and guidance is provided. Flangeway Gaps Flangeway gaps can trap the front wheel of wheelchairs. While the Proposed PROWAG (58) requires that flangeway gaps be a maximum of 2.5 inches on non-freight rail track (same as the ADA Standards for Transportation Facilities [57]), it permits flangeway gaps of 3 inches on freight rail track. Because commuter rail often operates over freight rail track, the flangeway gaps on commuter-rail systems may also be 3 inches. Installation of Detectable Warnings Proposed PROWAG R208 and R305 (58) provide much greater detail regarding the installa- tion of detectable warnings, although the surface specifications are the same as those in the ADA Standards for Transportation Facilities (57). The Proposed PROWAG also includes advisory text to clarify that detectable warnings should indicate the boundary between the pedestrian and the vehicular way in locations where a flush rather than a curbed connection exists. The detectable warning surface is not intended to provide wayfinding information. Wherever detectable warn- ings are used, they must be a minimum of 24 inches deep in the direction of pedestrian travel and must extend the full width of any area in the pedestrian way where a level transition between the pedestrian and vehicular way exists. This also applies to at-grade pedestrian-rail crossings. Where at-grade pedestrian-rail crossings are within a street or highway crossing, curbs or the detectable warnings on curb ramps make additional detectable warnings at the rail crossing unnecessary unless there is a pedestrian median or refuge. As applied to at-grade pedestrian-rail crossings not within a street or highway, detectable warnings must extend the full width of the crossing. This means that the warning is not limited to a small area deemed to be the accessible route, but is required across the entire width of the pedestrian way or pedestrian circulation path. Detectable warning surfaces are required on each end of the rail crossing and must be between 6 ft and 15 ft from the centerline of the closest rail. Where there are pedestrian gates, the detectable warning surfaces must be on the side of the gates that is farthest from the rail.

Accessibility/ADA Considerations 37 Accessible Pedestrian Signals The Proposed PROWAG (58) also contains requirements for accessible pedestrian signals (APSs) where pedestrian signals are provided and refers to the MUTCD (8) for technical speci- fications. Pedestrian-rail crossings having pedestrian signals require APSs. While the ADA Standards for Transportation Facilities (57) allows signs to protrude 12 inches from their base, Section R402.3 of the Proposed PROWAG (58) limits protrusion of post- mounted objects to 4 inches (see Figure 15), and makes it clear that the requirements for pro- truding objects apply across the entire width of the pedestrian circulation path, not just the accessible route. As noted earlier, counterweights within the pedestrian circulation path are protruding objects. More details about these requirements are included with the specific treatment sections in Chapter 8. Additional Accessibility Design Guidance Manual on Uniform Traffic Control Devices The MUTCD (8) is published by FHWA to provide uniformity of traffic control devices, which include signs, signals, and pavement markings. Information relevant to various treatments used at pedestrian-rail crossings is discussed in Chapter 8 of the MUTCD (8). NCUTCD has recommended extensive revision to Chapter 8 to FHWA, so it is possible that the next edition of the MUTCD (8) may differ considerably from the 2009 edition. When there is construction that affects a pedestrian crossing or a pedestrian circulation path, the requirements in the MUTCD (8) and ADA should be considered to provide temporary routes accessible to pedestrians with disabilities. Part 6 of the 2009 MUTCD, “Temporary Traffic Control,” specifically notes that “needs of all road users (motorists, bicyclists, and pedestrians within the highway, or on private roads open to public travel [see definition in Section1A.13], including persons with disabilities in accordance with the ADA of 1990, Title II, Paragraph 35.130) through a Temporary Traffic Control zone is an essential part of highway construction, utility work, maintenance operations, and the management of traffic incidents.” Source: adapted from Proposed PROWAG, R4 (58) Figure 15. Post-mounted objects from the Proposed PROWAG, R4: “Supplementary Technical Requirements.”

38 Guidebook on Pedestrian Crossings of Public Transit Rail Services FRA Guidance The FRA Guidance on Pedestrian Crossing Safety at or near Passenger Stations (6) provides a list of ADA requirements to be incorporated into the design of stations to provide safe access to all users. These items were grouped and are summarized below (see the FRA document or the relevant ADA document for additional details): • Accessible routes should coincide with, or be located in, the same area as general circulation paths. Elements such as ramps, elevators, or other circulation devices; fare vending or other ticketing areas; and fare collection areas should be placed to minimize the distance that wheel- chair users and other persons who cannot negotiate steps may have to travel compared to the general public. See Americans with Disabilities Act Accessibility Guidelines for Buildings and Facilities (ADAAG) Section 206.3 (61). • Where it is necessary to cross tracks to reach boarding platforms, the route surface should comply with the standards for accessible routes. • Revolving doors, revolving gates, and turnstiles should not be part of an accessible route. See ADAAG Section 404.3.7 (61). • Swing gates can be difficult to operate for some persons using wheelchairs. Care should be taken to avoid a situation in which a person using a wheelchair could become trapped between two gates if he or she were unable to open the gate on the opposite side of a crossing. Automatic openers complying with ADAAG Section 404.3 (61) can be used. If manual gates are used, maneuvering clearances, gate hardware, closing speed, and opening force should comply with ADAAG Sections 309.4 and 404 (61). Swinging door and gate surfaces within 10 inches (255 mm) of the floor or ground, measured vertically, should have a smooth surface on the push side extending the full width of the door or gate (i.e., a kick plate). Parts creating horizontal or vertical joints in these surfaces should be within 1⁄16 of an inch (1.6 mm) of the same plane as the other. • Detectable warnings consisting of raised, truncated domes that comply with ADAAG Sec- tion 705 (61) should be installed on either side of the tracks at pedestrian crossings. • Where audible systems are used to communicate train arrival and track assignments to the public, a means of conveying the same or equivalent information to persons with hearing disabilities should also be provided. • Supplemental warnings can be provided by crossing bells or flashing lights connected to a train detection system so that, upon train arrival, the bell sounds and flashing lights display to indicate when it is not safe to cross. A wayside bell or half-gates can be installed to help get the pedestrian’s attention. All signs should comply with the appropriate subsections of ADAAG Section 703 (61) includ- ing, as necessary, raised characters, lettering contrast and spacing, character size and proportion, Braille, appropriate international symbols, and pictogram text descriptors.