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HomeMy WebLinkAbout2025-12-09; City Council; 06; Introducing an Ordinance to Establish All-Way Stop Control at the Intersection of State Street and Laguna DriveCA Review TL Meeting Date: Dec. 9, 2025 To: Mayor and City Council From: Geoff Patnoe, City Manager Staff Contact: John Kim, City Traffic Engineer john.kim@carlsbadca.gov, 442-339-2757 Subject: Introducing an Ordinance to Establish All-Way Stop Control at the Intersection of State Street and Laguna Drive District: 1 Recommended Action Introduce an ordinance amending Section 10.28.190 of the Carlsbad Municipal Code to establish all-way stop control at the intersection of State Street and Laguna Drive. Executive Summary Staff evaluated the intersection of State Street and Laguna Drive for having stop signs in all directions in response to requests from the community and as part of the city’s ongoing efforts to improve traffic safety. The evaluation was conducted in accordance with the California Manual on Uniform Traffic Control Devices which serves as the standard and guidance document for traffic control devices installed in the state of California, including traffic signs, road surface markings and traffic signals. Based on this analysis and upon the recommendation of the Traffic Safety & Mobility Commission, staff recommend installing all-way stop control at the intersection of State Street and Laguna Drive. Staff are asking the City Council to introduce an ordinance to amend the Carlsbad Municipal Code to establish all-way stop control at this intersection. Only the City Council has the authority to make changes to the Municipal Code. Dec. 9, 2025 Item #6 Page 1 of 12 Explanation & Analysis Current roadway conditions State Street and Laguna Drive are classified as Local/Neighborhood streets in the city’s General Plan Mobility Element, the element that covers transportation. They are in the Village, in the northwest quadrant of the city. •State Street has a posted speed limit of 25 mph, while Laguna Drive is posted at 30 mph. •The surrounding land uses include residential and commercial along both streets. •The intersection of State Street and Laguna Drive has one stop sign at Laguna Drive. •North of the intersection, State Street is 40 feet wide, curb to curb, accommodating one travel lane and on-street parking in each direction. •South of the intersection, the roadway widens to 44 feet and continues with the same lane configuration. •Laguna Drive is 40 feet wide and includes one travel lane and on-street parking in each direction. •On the northeast corner of the intersection is Maxton Brown Park. It is a one-acre community park featuring green spaces, a walking trail, picnic areas and benches overlooking the Buena Vista Lagoon, making it a popular destination for nearby residents. The driveway for the residential complex at 2501 State St. was constructed on the west side of the street in 2024. The driveway is aligned directly with Laguna Drive, effectively adding a fourth approach to the intersection. As part of the project, the uncontrolled marked crosswalk with rectangular rapid flashing beacons on State Street was moved from the north side to the south side of the intersection to accommodate the driveway of the new development.1 Residents have expressed concerns about crossing this intersection because of limited visibility and the vehicle speeds on State Street. They also expressed safety concerns about crossing State Street on the north side of the intersection to visit Maxton Brown Park, where there is no marked crosswalk since the crosswalk was moved to the south. They requested additional stop signs in each direction on State Street at the intersection. All-way stop analysis The city contracted with Michael Baker International, Inc., a civil engineering firm, to conduct all-way stop analysis at 28 locations within city limits, including State Street and Laguna Drive, following the guidelines in the state’s Manual on Uniform Traffic Control Devices. The analysis evaluates factors such as vehicle, pedestrian and bike volumes. In addition, the state’s manual outlines optional criteria that may be considered, including sight distance, movement conflicts 1 Rectangular rapid flashing beacons are a type of pedestrian warning device that uses bright rapidly flashing LED lights to alert drivers when the crosswalk is in use by pedestrians. They are usually activated by a push button or pedestrian sensor and are installed at crosswalks to make people more visible and improve safety. Dec. 9, 2025 Item #6 Page 2 of 12 and overall traffic operations to assess whether all-way stop control is justified at a particular intersection. The intersection of State Street and Laguna Drive meets the state manual’s optional criteria to be justified for an all-way stop control. The optional criteria considered are: A. The need to control left-turn conflicts B. The need to control vehicle/pedestrian conflicts near locations that generate high pedestrian volumes C. Locations where a road user after stopping cannot see conflicting traffic and is not able to negotiate the intersection unless conflicting cross-traffic is also required to stop D. An intersection of two residential neighborhood collectors, or through, streets of similar design and operating characteristics where an all-way stop control would improve the traffic operational characteristics of the intersection Staff reviewed the consultant’s finding that the intersection satisfies Optional Criteria B and C, as shown in Exhibit 3. The following describes how the subject intersection satisfied the manual’s Optional Criteria B and C. Optional Criterion B The traffic data collected shows a considerable number of pedestrians crossing at this intersection – 326 pedestrians on a typical weekday – with Maxton Brown Park and businesses in the vicinity. An all-way stop with marked crosswalks would reduce potential conflicts between vehicular traffic and pedestrians at this intersection. This criterion is therefore satisfied. Optional Criterion C A stopping sight distance analysis shows that westbound drivers on Laguna Drive could achieve the minimum stopping sight distance of 150 feet looking north at southbound traffic on State Street by adding red curb, which would remove one parking space on the east side of State Street. However, due to increasing parking demand in the Village and the lack of on-site parking for Maxton Brown Park, staff recommend installing an all-way stop control at the intersection instead. The all-way stop eliminates the need to provide the 150 feet stopping sight distance. This criterion is therefore satisfied. Line of sight on westbound Laguna Drive onto State Street Westbound Laguna Drive looking north on State Street Westbound Laguna Drive looking south on State Street Object at 150’ away. Visibility of object at 150’ obstructed by parked vehicle Dec. 9, 2025 Item #6 Page 3 of 12 Additional parking restriction needed for minimum sight distance with no stop sign on State Street This graphic shows the location where additional red curbs would be needed on State Street to achieve the minimum stopping sight distance of 150 feet without the proposed stop sign on State Street. Queuing analysis Staff conducted a queueing analysis, which studied how many vehicles line up at the intersection during peak periods, to evaluate whether all-way stop control at the intersection of State Street and Laguna Drive would cause vehicles to spill back into the roundabout located 300 feet north on State Street. The analysis indicates that vehicle queues on State Street would be less than 100 feet during peak periods, so impacts to the roundabout are not anticipated. Conclusions Based on the findings presented in this staff report, which are consistent with the criteria described in the state’s Manual on Uniform Traffic Control Devices, staff recommend the installation of all-way stop control at the intersection of State Street and Laguna Drive. According to the manual, rectangular rapid flashing beacons are warning devices and not permitted at controlled crosswalk locations, including those controlled by stop signs. Because of that, the existing rapid flashing beacons on the south side of the intersection will be removed with the installation of the all-way stop signs at the State Street and Laguna Drive intersection. Traffic Safety & Mobility Commission recommendation On Oct. 6, 2025, the Traffic Safety & Mobility Commission supported staff’s recommendation to install all-way stop control at the intersection of State Street and Laguna Drive with a vote of 5/0/1/1 (one commissioner recused themselves and another was absent.) The approved minutes from this meeting are attached as Exhibit 4. Dec. 9, 2025 Item #6 Page 4 of 12 Fiscal Analysis Installation of new stop signs with “All-Way” supplemental signs, associated striping and the removal of the rapid flashing beacons will cost approximately $10,000. Sufficient funds are available in the Traffic Engineering Operating Budget to cover the proposed work. Next Steps Following the City Council’s introduction of the ordinance, the item will be scheduled for adoption at the City Council’s next meeting. The ordinance will then become effective 30 days following adoption. After the ordinance goes into effect, staff will issue a work order and perform the installation of the appropriate signage and striping, as well as the removal of the existing rapid flashing beacons at the State Street and Laguna Drive intersection. Environmental Evaluation The proposed action to establish all-way stop signs and associated roadway striping is categorically exempt from environmental review under California Environmental Quality Act Guidelines Section 15301(c) because it involves the maintenance, repair or minor alteration of existing facilities with negligible or no expansion of the existing or former use. This exemption covers changes in traffic and parking regulations, including installation and replacement of signs in connection therewith, where such changes do not establish a higher speed limit along a significant portion of the street and will not result in more than a negligible increase in use of the street. No exceptions to the categorical exemption as set forth in CEQA Guidelines Section 15300.2 or Carlsbad Municipal Code Section 19.04.070(C) apply. The proposed action is also exempt from the requirements of a minor coastal development permit and coastal development permit because the proposed action is to establish all-way stop signs. Activities of public utilities as specified in the repair, maintenance, and utility hookup exclusion adopted by the Coastal Commission, including but not limited to miscellaneous traffic safety projects, are exempt in accordance with Carlsbad Municipal Code Section 21.201.060.B.11. A permit issued by the city for a development which is categorically excluded or exempt from the coastal development permit requirements is exempt from the notice and hearing requirements of Carlsbad Municipal Code Chapter 21.201. The proposed action to adopt an ordinance amending Section 10.28.190 of the Carlsbad Municipal Code to establish all-way stop control at the intersection of State Street and Laguna Drive is also exempt from environmental review under CEQA Guidelines Sections 15061(b)(3) and 15378(b)(5) because it can be seen with certainty that there is no possibility that the proposed action may have a significant effect on the environment. Exhibits 1. City Council ordinance 2. Copy of ordinance showing proposed changes 3. California Manual on Uniform Traffic Control Devices’ all-way stop application worksheet 4. Minutes from the Oct. 6, 2025, Traffic Safety & Mobility Commission meeting (on file in the Office of the City Clerk) Dec. 9, 2025 Item #6 Page 5 of 12 Exhibit 1 ORDINANCE NO. CS-503 . AN ORDINANCE OF THE CITY COUNCIL OF THE CITY OF CARLSBAD, CALIFORNIA, AMENDING SECTION 10.28.190 OF THE CARLSBAD MUNICIPAL CODE TO ESTABLISH ALL-WAY STOP CONTROL AT THE INTERSECTION OF STATE STREET AND LAGUNA DRIVE WHEREAS, pursuant to Article XI, Section 5 of the California Constitution, and Government Code Section 37100, the City Council may pass ordinances not in conflict with the Constitution and the laws of the State of California or the United States; and WHEREAS, the City of Carlsbad, California is a charter city, duly organized under the California Constitution, the Charter of the City of Carlsbad, and the laws of the State of California; and WHEREAS, Vehicle Code Section 21100 delegates the authority to local authorities to regulate traffic by means of official traffic control devices meeting the requirements of Vehicle Code Section 21400; and WHEREAS, the City Council desires to protect the public safety and welfare of persons and property within the City of Carlsbad; and WHEREAS, the city contracted with Michael Baker International, a civil engineering firm, to conduct a multi-way stop analysis at 28 locations within the city limits, including State Street and Laguna Drive, and Michael Baker International determined that the intersection of State Street and Laguna Drive satisfied criteria for a multi-way stop based on the guidelines provided by the California Manual on Uniform Traffic Control Devices; and WHEREAS, staff reviewed the analysis by Michael Baker International and determined that the proposed intersection design meets the requirements of the California Manual on Uniform Traffic Control Devices, would improve safety, and therefore warrants the establishment of all-way stop control at the intersection of State Street and Laguna Drive; and WHEREAS, on October 6, 2025, the Traffic Safety & Mobility Commission supported staff’s recommendation to install all-way stop control at the intersection of State Street and Laguna Drive; and; WHEREAS, there are sufficient funds in the operating budget to implement the all-way stop control at the intersection of State Street and Laguna Drive. NOW, THEREFORE, the City Council of the City of Carlsbad, California, ordains as follows: 1. The above recitations are true and correct. Dec. 9, 2025 Item #6 Page 6 of 12 2.That the proposed action to establish all-way stop signs and associated roadway striping is categorically exempt from environmental review under California Environmental Quality Act Guidelines Section 15301(c) because it involves the maintenance, repair or minor alteration of existing facilities with negligible or no expansion of the existing or former use. This exemption covers changes in traffic and parking regulations, including installation and replacement of signs in connection therewith, where such changes do not establish a higher speed limit along a significant portion of the street and will not result in more than a negligible increase in use of the street. No exceptions to the categorical exemption as set forth in CEQA Guidelines Section 15300.2 or Carlsbad Municipal Code Section 19.04.070(C) apply. 3.That the proposed action is exempt from the requirements of a minor coastal development permit and coastal development permit because the proposed action is to establish all-way stop signs. Activities of public utilities as specified in the repair, maintenance, and utility hookup exclusion adopted by the Coastal Commission, including but not limited to miscellaneous traffic safety projects, are exempt in accordance with Carlsbad Municipal Code Section 21.201.060.B.11. A permit issued by the city for a development which is categorically excluded or exempt from the coastal development permit requirements is exempt from the notice and hearing requirements of Carlsbad Municipal Code Chapter 21.201. 4.That the proposed action to adopt an ordinance amending Title 10, Chapter 10.28, Section 190 of the Carlsbad Municipal Code to establish all-way stop control at the intersection of State Street and Laguna Drive is also exempt from environmental review under CEQA Guidelines Sections 15061(b)(3) and 15378(b)(5) because it can be seen with certainty that there is no possibility that the proposed action may have a significant effect on the environment. 5.Title 10, Chapter 28, Section 190 of the Carlsbad Municipal Code is amended to read as follows: 10.28.190 Laguna Drive. Drivers shall stop where the following described streets intersect Laguna Drive: Buena Vista Circle Dec. 9, 2025 Item #6 Page 7 of 12 Davis Avenue Madison Street Roosevelt Street State Street 6.This ordinance shall be effective thirty days after its adoption. 7.The City Clerk shall certify the adoption of this ordinance and cause the full text of the ordinance, or a summary of the ordinance prepared by the City Attorney to be published at least once in a newspaper of general circulation in the City of Carlsbad within fifteen days after its adoption. INTRODUCED AND FIRST READ at a Regular Meeting of the Carlsbad City Council on the 9th day of December, 2025, and thereafter PASSED, APPROVED AND ADOPTED at a Regular Meeting of the City Council of the City of Carlsbad on the __ day of ________, 2025, by the following vote, to wit: AYES: NAYS: ABSTAIN: ABSENT: APPROVED AS TO FORM AND LEGALITY: _________________________________ CINDIE K. McMAHON, City Attorney _______________________________________ KEITH BLACKBURN, Mayor _______________________________________ SHERRY FREISINGER, City Clerk (SEAL) Dec. 9, 2025 Item #6 Page 8 of 12 Exhibit 2 Staff propose amending the Carlsbad Municipal Code, Title 10 – Vehicles and Traffic, Chapter 10.28 – Special Stops, as reflected below: § 10.28.190 Laguna Drive Drivers shall stop where the following described streets intersect Laguna Drive: Buena Vista Circle Davis Avenue Madison Street Roosevelt Street State Street Dec. 9, 2025 Item #6 Page 9 of 12 California MUTCD 2014 Edition (FHWA’s MUTCD 2009 Edition, including Revisions 1 & 2, as amended for use in California) Page 1 of 2 Chapter 2B – Regulatory Signs, Barricades, and Gates January 13, 2012 Part 2 – Signs MULTI-WAY STOP CRITERIA Transportation Department, City of Carlsbad CALC JND DATE 09/23/2025 CHK JG DATE 09/23/2025 Major St: State Street Critical Approach Speed 25 mph Minor St: Laguna Drive Critical Approach Speed 30 mph Critical speed of major street traffic > 40mph RURAL (R) Otherwise URBAN (U) The decision to install multiway stop control should be based on an engineering study. The following criteria should be considered in the engineering study for multiway stop sign installation: Criteria A - Interim Traffic Control Measure SATISFIED YES NO Where traffic control signals are justified, the MULTI-WAY STOP is an interim measure that can be installed quickly to control traffic while arrangements are being made for the installation of the traffic control signal. Criteria B - Accident Experience SATISFIED YES NO Five or more reported crashes within a 12-month period that are susceptible to correction by a MULTI- WAY STOP installation. Such crashes include right-turn and left-turn collisions as well as right-angle collisions. Criteria C - Minimum Traffic Volumes SATISFIED YES NO (All Parts C.1, C.2a and C.2b below must be satisfied) C.1 Major Street Vehicular Volume Yes No U R 11AM 12PM 1PM 2PM 3PM 4PM 5PM 6PM Hour Both Approaches Major Street 300 210 414 450 458 562 503 489 425 374 Average= 459 C.2 a. Minor Street Vehicular, Pedestrian & Bicycle Volume Yes No U R 11AM 12PM 1PM 2PM 3PM 4PM 5PM 6PM Hour Both Approaches Minor Street 200 140 324 336 320 302 247 256 250 235 Average= 284 b. Minor Street Vehicle Delay Yes No N/A Peak Hour Peak Hour Volume Minimum Delay Requirement, seconds per vehicle Average Delay, seconds per vehicle 2PM 302 30 seconds 15.7 Criteria D – Combination of Criteria SATISFIED YES NO REQUIREMENT CRITERIA FULFILLED THREE CRITERIA SATISFIED 80% B. Four or more reported crashes within a 12-month period.Yes No C.1. Major Street Volume of at least 240 vehicles per hour Yes No C.2. Minor Street Volume of at least 160 units per hour Yes No Exhibit 3 Dec. 9, 2025 Item #6 Page 10 of 12 California MUTCD 2014 Edition (FHWA’s MUTCD 2009 Edition, including Revisions 1 & 2, as amended for use in California) Page 2 of 2 Chapter 2B – Regulatory Signs, Barricades, and Gates January 13, 2012 Part 2 – Signs MULTIWAY STOP CRITERIA Transportation Department, City of Carlsbad Major St: State Street Critical Approach Speed 25 mph Minor St: Laguna Drive Critical Approach Speed 30 mph Other criteria that may be considered in an engineering study include: Option A – Left Turn Conflicts SATISFIED YES NO The need to control left-turn conflicts; Option B – Vehicle/Pedestrian Conflicts SATISFIED YES NO The need to control vehicle/pedestrian conflicts near locations that generate high pedestrian volumes; Option C – Sight Distance SATISFIED YES NO Locations where a road user, after stopping, cannot see conflicting traffic and is not able to negotiate the intersection unless conflicting cross traffic is also required to stop; and Option D – Residential Street SATISFIED YES NO An intersection of two residential neighborhood collector (through) streets of similar design and operating characteristics where multi-way stop control would improve traffic operational characteristics of the intersection. Dec. 9, 2025 Item #6 Page 11 of 12 Exhibit 4 Minutes from the Oct. 6, 2025, Traffic Safety & Mobility Commission meeting (on file in the Office of the City Clerk) Dec. 9, 2025 Item #6 Page 12 of 12