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Home My WebLink About2019-09-24; City Council; ; Update on Carlsbad Boulevard, College Boulevard and Tamarack Avenue Traffic Calming Enhancements.~ CITY COUNCIL ~ Staff Report Meeting Date: To: From: Staff Contact: Sept. 24, 2019 Mayor and City Council Scott Chadwick, City Manager Sean Haeri, Transportation Director Sean.Haeri@carlsbadca.gov or 760-602-2766 John Kim, Acting City Traffic Engineer John.Kim@carlsbadca.gov or 760-602-2757 CA Review Bk&- Subject: Update on Carlsbad Boulevard, College Boulevard and Tamarack Avenue Traffic Calming Enhancements. Recommended Action Receive an informational presentation regarding requested traffic calming measures on three corridors of interest: Carlsbad Boulevard, College Boulevard and Tamarack Avenue. Executive Summary On June 11, 2019, a Minute Motion was proposed by Council Member Schumacher, seconded by Council Member Hamilton, to bring back an analysis of changing the physical character specifically for traffic calming on the following streets: College Boulevard from Carlsbad Village Drive to Sage Creek High School, Tamarack Avenue from Skyline Road to Carlsbad Boulevard, and Carlsbad Boulevard from the Agua Hedionda Trailhead to State Street. The Motion carried unanimously 5/0. At the same meeting, a Minute Motion was proposed by Council Member Blackburn, seconded by Council Member Schumacher, that staff explore other ideas for traffic calming at the intersection of Tamarack Avenue and Valley Street since staff determined that a stop sign was not appropriate. The Motion carried unanimously 5/0. Staff will provide an update and overview of possible traffic calming strategies at these locations. Discussion City staff will first present an overview of the traffic calming process as outlined in the Carlsbad Residential Traffic Management Program (CRTMP). Currently, the CRTMP considers traffic calming on residential streets, and offers features such as speed cushions, speed tables and traffic circles that are intended for low volume/low speed streets. Residential streets, as defined by the California Vehicle Code, are unique in that no engineering and traffic survey (including a speed survey) is required to post a 25-mile per hour (mph) speed limit on a residential street. Prevailing speeds may be higher than the posted speed limit; therefore, a September 24, 2019 Item #9 Page 1 of 6 traffic calming program may be beneficial to help encourage drivers to drive closer to the posted speed limit in those situations. On all other streets in the city, the speed limit must have a valid engineering and traffic survey and be posted within 5 mph of prevailing speeds, per the requirements of the California Vehicle Code. This distinction serves to underline some of the differences in traffic calming recommendations on residential streets compared to non-residential streets. Carlsbad Boulevard, College Boulevard and Tamarack Avenue are all non-residential streets (per the definitions found in the California Vehicle Code) and not eligible for the CRTMP process as currently written. They are unique streets and staff's evaluation and proposed improvements are reflective of this characteristic. Carlsbad Boulevard from Agua Hedionda Lagoon trailhead to State Street This segment of Carlsbad Boulevard is designated as an "identity street" in the General Plan Mobility Element. Based on recent counts, traffic volumes on Carlsbad Boulevard can range from 12,000 to 20,000 vehicles per day, depending on location. As reported earlier, staff has analyzed and implemented several projects along Carlsbad Boulevard, each of which has relied on best practices and standards. During the last seven years, many improvements have been implemented along the corridor including the following: • 2012 -Pedestrian scrambles were installed at two locations along Carlsbad Boulevard (intersections at Carlsbad Village Drive and Grand Avenue) • 2012-13 -Pedestrian medians and rectangular rapid flashing beacons (RRFBs) were installed at five locations along Carlsbad Boulevard (Hemlock Avenue, Cherry Avenue, Maple Avenue, Sycamore Avenue and Oak Avenue) • 2014 -Carlsbad Boulevard and State Street roundabout, multi-use trail and road diet were installed • 2014-15 -Carlsbad Boulevard bridge railing, sidewalk and restriping improvements were completed • 2018-Slurry seal, restriping to accommodate more on-street parking and enhanced crosswalk signage and legends were installed from Beech Avenue to Mountain View Drive The General Plan Mobility Element, which was approved in 2015, has the following recommendation for identity streets: "Traffic calming devices, such as curb extensions (bulbouts) or enhanced pedestrian qossings should be considered and evaluated for implementation." Pursuant to prior City Council direction, staff has evaluated Carlsbad Boulevard for possible traffic calming measures. Considering the General Plan Mobility Element recommendations for identity streets, staff is considering improvements to the six uncontrolled pedestrian crosswalks on Carlsbad Boulevard at Hemlock Avenue, Cherry Avenue, Maple Avenue, Sycamore Avenue, Oak Avenue and Army/Navy Academy. The proposed improvements include: September 24, 2019 Item #9 Page 2 of 6 • Curb extensions (where feasible) • Pedestrian-activated in-pavement flashing lights to augment existing RRFBs • Continental high-visibility crosswalks • Green bicycle lane treatments in conflict areas These traffic calming improvements will provide additional safety for all modes of travel while enhancing mobility for pedestrians and bicyclists. During the fiscal year (FY) 2019-20 Capital Improvement Program {CIP} budgeting process, City Council authorized additional funds of $200,000 in the Traffic Improvement Program, CIP Project No . 6070, to be used toward this type of project in the three corridors of interest; however, additional funding may be required due to the cost of in-pavement flashing lights. For preliminary reference, the City of San Diego installed an in-pavement flashing light system at a single crosswalk in Point Loma for $120,000 in 2010. Based on multiple locations and inflation, the current allocation of $200,000 will be insufficient and staff will need to return to City Council to request additional funds if directed to pursue this option. A road diet can also be considered as a traffic calming measure for Carlsbad Boulevard, although it is not specifically recommended for identity streets in the General Plan Mobility Element. Since a road diet involves reduction of travel lanes, the resulting loss in roadway capacity may be a concern. If City Council wishes to provide direction, staff could conduct a study to determine the feasibility of a road diet on Carlsbad Boulevard between Tamarack Avenue and State Street. This study would cost approximately $20,000 to conduct and would take approximately 4-6 months to complete. College Boulevard from Carlsbad Village Drive to Cannon Road College Boulevard is designated as an "arterial street" in the General Plan Mobility Element. Arterial streets are described by the General Plan Mobility Element as, "primary vehicle routes through the city for both local and regional vehicle trips." College Boulevard was built to major arterial standards in accordance with the prior General Plan Circulation Element, and as such, was designed to carry 20,000-40,000 vehicles per day at 50 mph. Recent traffic counts indicate · that the average daily traffic (ADT) is approximately 22,000 vehicles per day. The roadway speed limit is currently posted at 45 mph, consistent with the required engineering and traffic survey. The General Plan Mobility Element restricts consideration of certain types of traffic calming on arterial streets by stating, "vertical traffic calming techniques (such as speed tables, humps, etc.) should not be considered." This restriction is based on the relatively high speeds and vehicle volumes that are present on arterial streets, which prioritize vehicular travel over pedestrians and bicyclists. For similar reasons, a road diet would not be recommended for College Boulevard since arterial streets are subject to vehicular level of service (LOS) requirements and a road diet may push LOS to an unacceptable range of E or F. The FY 2018-19 Traffic Monitoring Program indicates that this roadway segment is operating at LOS D in the AM peak hour. Based on concerns associated with drivers violating the posted speed limit of 45 mph on College Boulevard and in compliance whh recommendations found in the General Plan Mobility September 24, 2019 Item #9 Page 3 of 6 Element, staff is considering installation of six to eight permanent speed feedback signs along the corridor. These devices serve to educate the driving public and have been found to help reduce speeding. The Police Department will also continue to provide ongoing enforcement on College Boulevard. Sufficient funds exist in the FY 2019-20 Public Works budget to accommodate six to eight speed feedback signs and these will take approximately 8-10 months to design and install. Tamarack Avenue from Skyline Road to Adams Street/Interstate 5 (1-5) This segment of Tamarack Avenue functions as a collector street even though it has a high frequency of residential driveways upon it. The General Plan Mobility Element designates Tamarack Avenue as a "neighborhood connector street". This segment is striped to include one vehicular lane, a bike lane and on-street parking in each direction. There are all-way stops at Skyline Road, Park Drive and Highland Drive, and a traffic signal at Adams Street. Recent traffic counts along this portion of Tamarack Avenue indicate an ADT of approximately 8,500 vehicles per day. During the last 12 years, numerous changes have been implemented on Tamarack Avenue, including the following: • 2007.-Pavement overlay and restriping of Tamarack Avenue, Skyline Road to 1-5 to one vehicular lane, a bike lane and on-street parking in each direction • 2016 -RRFB installation at Tamarack Avenue and Valley Street • 2017-Adult crossing guard analysis at Tamarack Avenue and Valley Street • 2018 -Enhanced enforcement along Tamarack Avenue • 2018 -Adult crossing guard implementation at Tamarack Avenue and Valley Street • 2018 -Temporary speed feedback signs installation • 2019 -Permanent speed feedback signs installation (construction complete by November 2019) On June 3, 2019, the Traffic Safety Commission (TSC) received a staff report regarding the all- way stop analysis at the intersection of Tamarack Avenue and Valley Street. On that date, the TSC voted unanimously in support of staff's recommendation that the city not establish an all- way stop at the intersection of Tamarack Avenue and Valley Street. The TSC made a subsequent motion, which also passed unanimously, to consider alternative solutions consistent with the General Plan Mobility Element to address safety, speeding and visibility issues at the intersection. The General Plan Mobility Element has the following recommendation for neighborhood connector streets: "Mid-block pedestrian crossings and traffic calming devices should be considered, but only at locations with high pedestrian activity levels or major/destination/attractions." Based on the concerns received from the pubiic regarding traffic speeds on Tamarack Avenue, the TSC's recommendation to consider alternative solutions to provide pedestrian safety at Valley Street, and utilizing recommendations found in the General Plan Mobility Element for neighborhood connector streets, staff is considering the following traffic calming improvements at the intersection of Tamarack Avenue and Valley Street: September 24, 2019 Item #9 Page 4 of 6 • Curb extensions on either side of the marked crosswalk • Replacement of the existing RRFB system with a hybrid pedestrian traffic signal A hybrid pedestrian traffic signal is a special type of hybrid beacon used to warn and control traffic at an unsignalized location to assist pedestrians in crossing a street at a marked crosswalk. A hybrid pedestrian traffic signal offers more positive vehicle control than a RRFB system but does not have a green signal indication. Since a traffic signal utilizes a green signal indication, which may not be consistent with the desire to provide traffic calming on Tamarack Avenue, staff is not proposing a traffic signal at this location. There is an existing CIP project programmed in FY 2025-29 for $210,000 for a traffic signal at Tamarack Avenue and Valley Street, which would be used to fund this project. While these recommendations will help address specific concerns near the vicinity of Tamarack Avenue and Valley Street, staff understands that there are speeding concerns throughout the corridor. Therefore, if the City Council wishes to provide direction, staff could initiate a study to consider other traffic calming measures on Tamarack Avenue between Skyline Drive and Adams Street/I-5. This study would cost approximately $50,000. A portion of funds in CIP Project No. 6070, Traffic Improvement Program, could be used for this effort but additional funds may be required to implement any recommendations resulting from the study. It is estimated that this study would involve public outreach and will take between 10-12 months to complete. Tamarack Avenue from Jefferson Street/I-5 to Carlsbad Boulevard This segment of Tamarack Avenue is also designated as a neighborhood connector street in the General Plan Mobility Element, and it has a moderate frequency of residential driveways. Along this segment of Tamarack Avenue, the city implemented a roadway realignment project in the early 1990s. That project established the current layout/footprint of the roadway, which includes a limited segment of raised medians, one traveling lane in each direction with bike lanes and limited on-street parking. In 2002, the Coastal Rail Trail was constructed from Oak Avenue to Tamarack Avenue. At the intersection of the trail and Tamarack Avenue, the railroad median and access to the trail on the north side of Tamarack Avenue were constructed. Staff is currently working on CIP Project No. 6058 for pedestrian improvements at the intersection of Tamarack Avenue and Carlsbad Boulevard, which will include modifications to Tamarack Avenue in the block between Garfield Street and Carlsbad Boulevard. Improvements will include an ADA-accessible pedestrian crossing on the west side of the intersection as well as widened sidewalks on the west side of Carlsbad Boulevard between Tamarack Avenue and Agua Hedionda Lagoon. Since staff has not received a significant amount of complaints or major concerns along this portion of Tamarack Avenue, outside of the intersection at Carlsbad Boulevard, staff is not proposing a new project at this time. Fiscal Analysis This item has no fiscal impact since it is an informational presentation. September 24, 2019 Item #9 Page 5 of 6 Next Steps Staff will proceed with the following CIP projects as described in this report: 1. Carlsbad Boulevard from Agua Hedionda Lagoon trailhead to State Street -proposed improvements to six uncontrolled pedestrian crosswalks 2. College Boulevard from Carlsbad Village Drive to Cannon Road -installation ofsix to eight permanent speed feedback sjgns 3. Tamarack Avenue and Valley Street intersection -curb extensions and hybrid pedestrian traffic signal 4. Tamarack Avenue and Carlsbad Boulevard intersection -pedestrian improvements If the City Council provides direction, staff can also pursue the following studies: 1. Feasibility of road diet on Carlsbad Boulevard between Tamarack Avenue and State Street 2. Traffic calming features on Tamarack Avenue between Skyline Drive and Adams Street/I- S. Environmental Evaluation (CEQA) Pursuant to Public Resources Code Section 21065, receiving an informational presentation on the work related to traffic control, traffic calming and traffic safety does not qualify as a "project" within the meaning of the California Environmental Quality Act (CEQA) in that it has no potential to cause either a direct physical change in the environment, or a reasonably foreseeable indirect physical change in the environment, and therefore does not require environmental review. Public Notification This item was noticed in accordance with the Ralph M. Brown Act and was available for public viewing and review at least 72 hours prior to the scheduled meeting date. September 24, 2019 Item #9 Page 6 of 6 Carlsbad Boulevard, College Boulevard and Tamarack Avenue Traffic Enhancements John Kim, Acting City Traffic Engineer Paz Gomez, Deputy City Manager, Public Works September 24, 2019 Background •On June 11, 2019, a Minute Motion to bring back an analysis of changing the physical character specifically for traffic calming on the following streets: –College Boulevard from Carlsbad Village Drive to Sage Creek High School –Tamarack Avenue from Skyline Road to Carlsbad Boulevard –Carlsbad Boulevard from the Agua Hedionda Trailhead to State Street. •On June 11, 2019, a Minute Motion that staff explore other ideas for traffic calming at the intersection of Tamarack Avenue and Valley Street since staff determined that a stop sign was not appropriate. 2 Traffic Calming •Carlsbad Residential Traffic Management Program •Program provides traffic calming to residential streets where prevailing speeds are considerably higher than 25 mph •Residential streets are posted 25 mph –no speed survey required •All other streets have speed limits that are within 5 mph of prevailing speeds per California Vehicle Code and California Manual for Uniform Traffic Control Devices 3 How Traffic Calming Works Vertical Deflection •Speed Cushions •Speed Tables •Raised Crosswalks Horizontal Deflection •Traffic Circles •Chicanes Other Methods •Speed feedback signs •Lane narrowing by striping •Lane narrowing by curb extensions 4 Traffic Calming •Carlsbad Boulevard, College Boulevard and Tamarack Avenue are not residential streets as defined in the Carlsbad Residential Traffic Management Program •Unique strategies based on recommendations in the General Plan Mobility Element are proposed 5 Carlsbad Boulevard Past Efforts to increase Mobility and Safety •2012 Overlay –Buffered bicycle lanes •2012 Pedestrian scrambles at Carlsbad Village Drive and Grand Ave •2013/15 Enhanced crosswalks and Rectangular Rapid Flashing Beacons •2014 Roundabout and trail at State Street •2014/15 Bridge railing, sidewalks and restriping •2018 Slurry seal, pedestrian crossing and restriping at Army/Navy Academy 6 Carlsbad Boulevard Mobility Element Recommendations •Posted speed limit = 30 mph per Engineering and Traffic Survey •Classified as “Identity Street” in General Plan Mobility Element •Mobility Element recommends “traffic calming devices, such as curb extensions (bulbouts) or enhanced pedestrian crossings should be considered and evaluated for implementation” 7 Carlsbad Boulevard Staff Recommendations Improvements at the existing marked crosswalks at Hemlock Avenue, Cherry Avenue, Maple Avenue, Sycamore Avenue, Oak Avenue and Army/Navy Academy consisting of: •Curb extensions (where feasible) •Pedestrian-activated in-pavement flashing lights •Continental-style high visibility crosswalks •Green bicycle lane treatments in conflict areas 8 9 Carlsbad Boulevard Locations of Proposed ImprovementsArmyaod. Navy Academy 1' --'.'b~ ~,~ -;:,;, ..... '(~-1 Q \ Fr,-3I S~e ~ CARLSBAD VILLAGE "'•B Port Carlstwd \ ~. V . l "' II / \ '2 ls ••• .,,,. " fC \ ., ~ fl g / I~ ~ .. ,, .. ~" ' .. 11 i \ . . f ~ i l SUCffSl ? f~ ~ . 'I ( j . ,!i ~ f .. l .,, ~ 'i ? .. • ~ ;\ 4 .,., ,t ... ! ,~ .,Ji l.89003 ·1 lf .~ Rr,iera 'Ln ~~ C1tyP<'lrk \ 9.,.,_0I-r Carlsbad Boulevard Examples of Proposed Improvements 10 Curb Extensions In-Pavement Flashing Lights 11 College Boulevard •Posted speed limit = 45 mph per Engineering and Traffic Survey •Classified as “arterial street” in General Plan Mobility Element •Mobility Element recommends that “vertical traffic calming techniques (such as speed tables, humps, etc.) should not be considered” 12 College Boulevard Staff Recommendations •Vertical deflection such as speed tables cannot be considered •Horizontal deflection would require road diet/Level of Service (LOS) degradation and traffic diversion into neighborhoods, therefore not recommended •Staff recommends: 6-8 permanent speed feedback signs 13 14 College Boulevard Location of Proposed Improvements ) for Dolls Q ~••·• '\ ''° \_, \ f 3 TWon-'•• <,-.," i 3 '/J l 1 .. Amefic.anft A1tcraf1 Interiors T II / I)( -,,_p~•''* c•~• \ .. Calavera Hills Commun,ty Park .. Q Cafavera Nature Prnerve c...,."lo " I / li SChool of ca~sbad / / <$ The Goddard <t> . Manposa Apa<1men1s~ 1 I Ill i ! , • ,' Cu•mngs Resort & Spa ~ "' i l Cal.avera Trail c-~ nnon Rooc ~#" • q .. ~ ..,,. ... .,.. ., •.. .;ti' Glen Ridge Apartments 9 \ • caof'!QnRd Gocgle "I LaKe ca1aver a '!' H1lung Trail J. ,i ,. Carlsbad H1ghlonds A ' Ecolog,cal Reserve Y · / .. Lau~h111g pad ~ 15 Aviara Parkway College Boulevard Examples of Proposed Improvements YOUR SPEED ••• • ~.:1. ••••••• t t t t ·, I I 1111111 : : : : ., : : t t I I I I . . . . . ' •,11u11'1' I I ...... ,·.. •,•,. I Ill I •• •••••••• : : I I • • • • • • • • ' .. • • .. .... •' . . . ... .. • Tamarack Avenue •Posted speed limit = 30 mph per Engineering and Traffic Survey •Classified as “neighborhood connector” in General Plan Mobility Element •Mobility Element recommends that “mid-block pedestrian crossings and traffic calming devices should be considered, but only at locations with high pedestrian activity levels or major destinations/attractions” 16 Tamarack Avenue Staff Recommendations At the intersection of Tamarack Avenue/Valley Street (which is a considered a high pedestrian activity location) staff recommends: •Curb Extensions •Replace Rectangular Rapid Flashing Beacon with •Hybrid Pedestrian Signal 17 18 Tamarack Avenue Location of Proposed Improvements , J V , -~· l "' Armyaoo 9 Navy Academy "~ United Sta1es Q .. , Po$tal Service ~ \ ~·· <"' CARLSBAD V I LLAGE ~lsbJd Village B \ P1uo Port Carlstwd ~ ~ \ Carlsbad <- -::..,-o ~. Callsbad Patt<s & Reaea110n HolidayPMk u.,q,cla A• c. St Patrick "'° tathohc Church ..., ~9' , ARCO Q ••• .,,,. ~~ d ~ i •4 II / \ '2 ls " fC \ r ~., ~.._ .,,.• ✓ ., g I" I .. ~ ~--, ' .. 11 i \ . . f ~ i l SUCffSl ? f~ ~ . '· (; ¢~ ... ~I>. '~~ 0-P. .,, ;~ e\, \ ... , ►-4· "'·• Ta,mt/,# CE!: ~ . ,!i t ~ f .. .,, l ~ ? 'i • .. ~ .,., ;\ 4 ¥ ,~ ~J-" ··· l Laguna .~ Riviera lf ~~ City Park 'Ln \ 9~<11-r 19 Tamarack Avenue Examples of Proposed Improvements STOP STOP QN fUSIIING OH RED RED * • rnEN PllOCtm If Cl.WI DRIVERS ..... Proceed with caution Signal has been activated SLOW down and prepare to STOP STOP then proceed with caution when clear PEDESTRIANS & BICYCLISTS Will see this ► n ► Push button to call for WALK signal or activated by bicycle passing over a detection loop Wait May take up to a minute for the signal to change Wait Start crossing after you see the Walk signal Continue crossing Countdown will begin Summary of Recommendations •Carlsbad Boulevard –in-pavement flashing lights, curb extensions and striping improvements to uncontrolled pedestrian crosswalks at Hemlock, Cherry, Maple, Sycamore, Oak and Army/Navy •College Boulevard –six to eight permanent speed feedback signs •Tamarack Avenue/Valley Street –curb extensions and hybrid pedestrian signal 20 Thank you 21