HomeMy WebLinkAbout2024-01-09; City Council; ; Semiannual Transportation ReportCA Review GH
Meeting Date: Jan. 9, 2024
To: Mayor and City Council
From: Scott Chadwick, City Manager
Staff Contact: Tom Frank, Transportation Director/City Engineer
tom.frank@carlsbadca.gov, 442-339-2766
Subject: Semiannual Transportation Report
Districts: All
Recommended Action
Receive the Semiannual Transportation Report.
Executive Summary
The City of Carlsbad is committed to helping everyone get around the city in a safe and
convenient way, whether by foot, car, bike or public transit. In 2015, the City Council approved
an updated General Plan, which included several new policies to achieve these goals. Since that
time, the city’s Transportation Department has been working on dozens of projects and
initiatives related to transportation and traffic safety.
The changes needed to bring city streets into alignment with the policies in the General Plan
will take many years to complete. In 2018, the City Council asked staff to present updates twice
a year to measure progress and provide an opportunity for the community to learn about the
work being done. This report provides an update on progress made since June 2023, including
several projects that were added or accelerated during the citywide traffic safety emergency,
from Aug. 23, 2022, to Sept. 8, 2023.
Explanation & Analysis
The Transportation Department is working on dozens of projects and initiatives designed to
align city streets with the policies of the city’s General Plan. The General Plan reflects changes
in state law requiring cities to take a “complete streets” approach to road design. Complete
streets are streets designed to accommodate all the different ways people might want to get
around the city. By making streets more accessible for walking and biking, complete streets
support other goals such as reducing greenhouse gases, reducing vehicle traffic, supporting a
healthy lifestyle and creating a stronger sense of community.
The General Plan recognizes that one size does not fit all when it comes to transportation. The
plan puts streets into different categories, each with its own set of design goals. For example,
streets most conducive to walking and biking, such as those in the Village and along the coast,
Jan. 9, 2024 Item #15 Page 1 of 6
prioritize wider bike lanes and sidewalks. Main thoroughfares, such as El Camino Real, prioritize
car traffic.
The city’s work transforming local streets was already well underway when, on Aug. 23, 2022,
the city proclaimed a local traffic safety emergency. The main safety concern was related to
bikes including electric bikes or e-bikes; however, the city’s approach focused on encouraging
safe behaviors among all road users. In response to the local emergency, the City Council
approved a comprehensive approach to traffic safety. This approach, summarized in the Safer
Streets Together Plan, included adding new street redesign projects and moving up the timing
of others.
Below are the highlights for three significant projects from the past six months:
Reducing speeding through street design
Speeding has become a bigger problem nationwide in recent years. In Carlsbad, speeding is the
number one contributing factor in injury collisions. Slowing traffic down even five mph can
make a difference in the severity and survivability of collisions. Research shows that speed
limits are not effective in reducing speeding, and even unenforceable if set too low for the
conditions, so slowing down drivers requires actual changes to the road.
The quickest and least expensive option to slow drivers down is to change the striping to
narrow vehicle lanes to appropriate widths. The city regularly repaves streets to keep the
surface in good condition, which provides an opportunity to change the striping and narrow the
vehicle lanes.
• Narrowing lanes encourages drivers to pay more attention and slow down
• Narrowing the lanes also opens up extra space that can be used to create bike lanes and
safety buffers between sidewalks, bike lanes and car lanes
• There are national industry standards for lane widths, and all our streets meet those
standards even after lane restriping
• The city’s transportation engineers base the new lane width on several factors, including
traffic volume, speed, type of street and location
• Designing appropriate vehicle lane widths also results in lower long-term maintenance
costs for the city’s pavement infrastructure and creates a steadier and improved flow of
traffic with less delay at traffic signals and improved opportunities for cars turning right
One project currently underway focuses on restriping Carlsbad’s major east-west corridors, as
described above. The City Council authorized award of this contract on June 6, 2023. This work
began in September 2023 and is expected to be completed in early 2024. When complete, staff
will evaluate driver behavior and overall traffic operations, making minor adjustments as
needed. These corridors are:
• Carlsbad Village Drive, from Interstate 5 to College Boulevard
• Tamarack Avenue, from Carlsbad Boulevard to Carlsbad Village Drive
• Cannon Road, from Avenida Encinas to Faraday Avenue
• Poinsettia Lane, from Carlsbad Boulevard to Melrose Drive
• La Costa Avenue, from I-5 to Fairway Lane, just past El Camino Real
• Olivenhain Road, from Encinitas city limits to Rancho Santa Fe Road
Jan. 9, 2024 Item #15 Page 2 of 6
Improving crosswalks along the beach
The city has focused its safety improvements on areas with the highest rate of injury collisions.
Top among these is Carlsbad Boulevard from Tamarack Avenue to the city’s northern border.
Since the last report, improvements to the crosswalk in front of the Army- Navy Academy have
been completed, and construction is underway for five additional enhanced crosswalks at Oak,
Sycamore, Maple, Cherry and Hemlock avenues.
The six crosswalks currently have existing rectangular rapid flashing beacons. The additional
safety enhancements include:
• Flashing lights in the pavement across the crosswalks to help drivers see pedestrians
• The lights are activated when a pedestrian pushes the button
• Curb extensions for all the intersections except at Maple Avenue; these extensions
make it easier for drivers to see people walking and reduce the distance people need to
cross the street; they do not impact bicyclists in the bike lane
• High-visibility crosswalk markings on Carlsbad Boulevard and its side streets
• Green painted bicycle lanes to clearly indicate the areas where bicycle and vehicle traffic
may conflict
Construction of these improvements is anticipated to be completed in spring 2024.
Expanding traffic signal capabilities
Alleviating traffic congestion remains a top priority for the city’s Transportation Department.
One way to do that is to adjust the timing of red and green lights based on traffic conditions. In
our last update, staff reported that 95% of the city’s traffic signals had been connected to a
high-speed fiber network. This allows more data to travel to and from each signal, which in turn
allows for better real-time adjustments to signal timing.
Over the past six months, three additional improvements have begun:
Bluetooth devices
In addition to connecting traffic signals to a new underground high-speed fiber network, staff
have completed work to connect 37 Bluetooth readers to the high-speed system. These readers
are attached to traffic signals at 37 of the city’s busiest intersections. The Bluetooth technology
can measure the flow of traffic between traffic signals and alert staff if there’s unexpected
slowing. For example, if there is a delay due to a traffic accident or construction, staff can make
adjustments to the signal timing in the area to get cars moving again. This system has just come
online.
California Department of Transportation coordination
One challenge in coordinating traffic signals to move cars more efficiently through the city is
that Caltrans controls traffic signals near freeway onramps and offramps. If these signals are
not in sync with the timing of city-controlled signals, backups can occur.
In the last update, staff reported that three critical Caltrans-controlled traffic signals are now
being timed to coordinate with city signals. These are at El Camino Real and state Route 78,
Palomar Airport Road and I-5, and Carlsbad Village Drive and I-5.
Jan. 9, 2024 Item #15 Page 3 of 6
Staff are now working with Caltrans to coordinate the timing of signals at Cannon Road and I-5
and at Tamarack Avenue and I-5. The signal at Poinsettia Lane and I-5 does not have the ability
to be programmed, but staff are working with Caltrans to see if that can be added.
New high-speed network
A public-private partnership with the communications infrastructure company Crown Castle
enabled the city to utilize a high-speed fiber network to increase the performance of traffic
signals. Before this network was available, the signals relied on wireless connectivity, which was
unreliable and unable to carry the amount of data needed for the signals to achieve peak
performance.
The Crown Castle fiber network allowed signals to use fiber instead of a wireless connection for
the final leg of data transmission to and from the city’s traffic management center. The signals
still use wireless signals for part of this journey.
A new agreement approved by the City Council on Dec.12, 2023, with Netly Fiber Holdings,
another communications infrastructure company, will provide access to additional high-speed
fiber along Rancho Santa Fe Road in exchange for the use of the city’s existing conduit. This
additional capacity will enable more of the transmission to be connected via fiber optics, which
will provide more reliable service. For example, wireless transmitters often need to be reset,
which requires a city staff person to travel to the site and manually perform the reset. With the
new fiber installation with Netly, these resets in the field will no longer be needed.
This partnership could be expanded to other areas of the city as Netly expands its high-speed
network.
Past six-month accomplishments summary
The following section highlights some of the Transportation Department’s additional efforts to
enhance transportation infrastructure, promote sustainable mobility options, and ensure the
safety and convenience of all road users:
• Completed construction of speed cushions,1 raised crosswalks and other enhancements
along Tamarack Avenue from Adams Street to Skyline Road to slow down speeds in
response to community concerns
• Completed construction of more than 2,550 feet of new sidewalks
• Completed crosswalk and bike lane enhancements in front of a school and sports field
near the Army-Navy Academy
• Began construction on Avenida Encinas as part of the Coastal Rail Trail to slow down
speeds and enhance safety for all modes of transportation
• Completed design for a traffic calming plan on Victoria Avenue, Highland Drive, Nueva
Castilla Way and Circulo Sequoia
• Initiated design for a traffic calming plan on Black Rail Road, Carrillo Way and Plum Tree
Road
• Initiated another neighborhood survey for a traffic calming plan on Celinda Drive
• Held a neighborhood meeting for traffic calming on Hummingbird Road
1 Speed cushions are speed humps or speed tables that include wheel cutouts to allow large emergency vehicles to
pass unaffected, while reducing passenger car speeds.
Jan. 9, 2024 Item #15 Page 4 of 6
• Deployed temporary speed feedback signs on 27 streets to address residents' speeding
concerns
• Initiated community engagement to develop Safe Routes to School plans for Sage Creek
High School and Jefferson Elementary School
• Continued engineering design on the next round of slurry seal and overlay projects to
maintain Carlsbad’s roads and extend their useful life
• Completed 90% engineering design for the Beach Access Repairs and Upgrades from
Pine Avenue to Tamarack Avenue Project
• Completed 100% engineering design and continued environmental assessment and
permitting process for the El Camino Real Widening from Arenal Road to La Costa
Avenue
• Completed 60% engineering design and initiated environmental review and permitting
for the Carlsbad Boulevard and Tamarack Avenue Intersection Improvements Project
• Collected continuous vehicle count data on El Camino Real, Palomar Airport Road, and
Rancho Santa Fe to monitor monthly and seasonal variations in traffic patterns
• Provided engineering support to re-IP controller, video, and other signal equipment for
data transmission on the new fiber optic communications network
• Completed server migration for central traffic system software to improve
communication reliability
• Completed central traffic system software upgrade to improve remote signal controller
functionality
• Completed server migration for Bluetooth travel time devices
• Established communication and required configuration updates to all Bluetooth travel
time devices
• Established remote connection with offline traffic signals
• Provided engineering design support for future pedestrian traffic signal at Avenida
Encinas and San Carlos Street
• Provided engineering design support for future traffic signal at Avenida Encinas and the
Chick-fil-A/In-N-Out area north of Palomar Airport Road
Anticipated progress for the next six months:
• Complete construction of the east-west corridors resurfacing and restriping project
• Complete construction of pedestrian improvements along Carlsbad Boulevard
• Continue construction of safety enhancements along Avenida Encinas
• Begin construction of traffic calming improvements on Victoria Avenue, Highland Drive,
Nueva Castilla Way and Circulo Sequoia
• Complete design of traffic calming plans for Black Rail Road, Carrillo Way, Nueva Castilla
Way, Plum Tree Road and on Faraday Avenue along the frontage of the future Veterans
Memorial Park
• Complete the planning phase of the Safe Routes to School projects for Sage Creek High
School, Jefferson Elementary School and Hope Elementary School
• Finalize conceptual designs for the Tyler Street Complete Street study as originally
identified in the Village and Barrio Master Plan and present to the community for input
Jan. 9, 2024 Item #15 Page 5 of 6
• Initiate planning and community outreach for a long-term project to redesign Tamarack
Avenue between Carlsbad Boulevard and Carlsbad Village Drive to further enhance
safety for all modes of transportation
• Complete the fiscal year 2022-23 Growth Management Monitoring Report, Circulation
Section
• Present the draft Sustainable Mobility Plan Implementation Plan to the Traffic Safety &
Mobility Commission
• Present the draft Local Mobility Analysis Guidelines to the Traffic Safety & Mobility
Commission
• Initiate the process of updating existing plans to meet the criteria of a Vision Zero Action
Plan
• Prepare feasibility study and alternatives analysis for intersection control at Kelly and
Park Drives and present to the Traffic Safety & Mobility Commission and the City Council
• Complete engineering plans and specifications for the Terramar Area Coastal
Improvements Project
• Complete engineering plans and specifications for the Barrio Lighting Phase II Pedestrian
Lighting Project and present locations to the community
Community Engagement
Staff have engaged with community members for all significant street improvement projects,
including through workshops, mailers, email updates and other outreach. Staff will continue to
demonstrate the city’s commitment to early and meaningful community engagement as new
projects prepare to begin.
Fiscal Analysis
This item is a presentation on the work related to management of the city’s transportation
assets, and it has no fiscal impact. No additional funding is being requested.
Next Steps
Staff will continue to provide updates on progress to provide safe and convenient options for
getting around Carlsbad, whether driving, walking or biking, as part of future semiannual
transportation reports. The next semiannual transportation report is expected to be presented
to the City Council in July 2024.
Environmental Evaluation
This semiannual transportation report does not require environmental review because it does
not constitute a project within the meaning of the California Environmental Quality Act under
Public Resources Code Section 21065 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.
Exhibits
None.
Jan. 9, 2024 Item #15 Page 6 of 6
Tammy Cloud-McMinn
From:
Sent:
To:
Steve Linke <splinke@gmail.com>
Sunday, January 7, 2024 4:54 PM
Traffic; City Clerk
Subject: 1/9/2024 City Council Agenda Item 15: Semiannual Transportation Report
Carlsbad City Councilmembers (and Traffic Safety & Mobility Commissioners):
SUMMARY
All Receive -Agenda Item # J;5.
For the Information of the:
CITY COUNCIL
DateJ.lia.iCA ✓CC~
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In the new Semiannual Transportation Report, staff again makes the false claim that the narrowing of our high speed,
high-volume arterial vehicle through-lanes to less than 11 feet in width is consistent with industry standards, and the
misleading claim that the projects will decrease speeds and improve safety. These claims have been made in numerous
staff reports and City Manager's Updates, but repetition does not make them true.
The consensus among the design standard-setting organizations, researchers, and other experts is that great caution
needs to be exercised when narrowing lanes, and that arterial lane widths less than 11 feet should be restricted to
streets with speeds of 30 to 35 mph or less with lower total volumes of vehicles and few large vehicles {buses, trucks).
Inconsistent with these standards, staff's lane narrowing projects are being done on many streets with speeds of 40 to
55 mph--some of which carry high volumes and/or are truck/bus routes.
In addition, strong evidence shows that narrowing high-speed arterial lanes has little to no meaningful effect on speeds--
let alone the completely unsupported 5 mph reduction suggested by staff. And there is no demonstrable effect on safety
outcomes. In fact, increased lane encroachments and sideswipe collisions arising from the narrowed lanes can decrease
safety for both vehicles and cyclists.
Staff is either unable to properly interpret the standards and individual research studies in the proper context, or they
are knowingly defying the expert guidance, subjecting Carlsbad's street users to potentially dangerous experimentation.
In either case, I would suggest that the "substantial evidence" requirement for "d_esign immunity" has not been met,
thereby exposing the city to liability when collisions occur, due to the creation of unsafe conditions.
While lane-narrowing on some streets may increase safety, staff's extrapolation of this approach to our high-speed,
high-volume suburban arterials is misguided and unsupported by evidence. You, as our elected leaders, should mandate
that staff provide detailed analyses for each of their lane narrowing projects, showing that they are consistent with their
cited standards: AASHTO Green Book (specifically, Section 7.3.3.2) and the Caltrans Highway Design Manual (specifically,
Section 308). If they are unable to provide that, you should end these experiments.
LACK OF STANDARDS COMPLIANCE
Staff claims that they have analyzed the conditions on all of the streets on which lanes are being narrowed and
determined that there are no safety concerns. However, in response to my public records request for those safety
analyses, none were provided. Instead, staff has only made the general statement that all of the projects are allegedly
consistent with the following national and state standards.
AASHTO "Green Book" (national standard)
Staff cites an introductory sentence in Chapter 4 of the Green Book that describes the fact that city street lane width.s
are generally between 9 and 12 feet, and they state that their 10-foot lanes are within that range. However, this is
extremely deceptive, because the next sentence explains how Chapters 5 through 8 need to be used for guidance on
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specific street types.
The relevant guidance on arterial streets (Section 7.3.3.2) indicates that 12-foot through-lanes are desirable on high-
speed, free-flowing principal arterials, while narrower 11-foot lanes are normally adequate for 45-mph or less arterials,
but 10-foot lanes are only appropriate on arterials with speeds less than 35 mph and few large vehicles (buses, trucks).
Ca/trans "Highway Design Manual" Section 308 (state standard)
Caltrans only regulates the portions of our streets at the highway interchanges, and the only reference to lane width in
this standard requires 12 feet. In fact, staff has been forced to seek special exceptions from Caltrans outside of their
standards to allow lane widths less than 11 feet at the interchanges. Thus, staffs citation of this standard to justify
widths less than 11 feet is mystifying.
Although not cited by staff, one of the most comprehensive and modern "complete streets" design standards is ITE's
"Designing Walkable Urban Thoroughfares." Similar to the Green Book, it emphasizes street context and restricts the
narrowing of arterial lanes to less than 11 feet to streets with speeds less than 35 mph.
INDIVIDUAL RESEARCH STUDIES
The only other evidence presented by staff is a 2007 research study by Potts et al., which reported no statistical
differences in collisions with narrower lanes. However, the results of this under-powered study are already incorporated
into the Green Book and other standards described above, and it includes virtually no data relevant to the projects in
Carlsbad (high-speed arterial lanes being reduced to less than 11 feet).
The largest-ever nationwide study on narrowed lanes was published last year by Hamidi et al.-strong proponents of the
practice. However, these authors also specifically recommend lanes less than 11 feet only on streets with speeds of 35
mph or less, and former ITE President Randy Mccourt issued a strong warning in an accompanying NPR interview:
"It's a slam dunk on the 20 and 25 [mph streets], but when you get to the 35, 40, you got to be very careful."
SPEED AND SAFETY NOT MEANINGFULLY AFFECTED BY LANE-NARROWING
Some small studies suggest that lane narrowing might reduce speeds by a few mph on some street types (e.g., NCH RP
Project 03-72). However, more robust, nationwide studies have concluded that lane widths have little or no effect on
speeds on high-speed suburban arterials, (e.g., NCH RP Project 17-53). Due to the much larger sample sizes and wider
geographic distribution, the latter results are considered more credible by the Transportation Research Board (NHCRP
Report 783).
But even if one assumes that narrowed lanes can reduce arterial speeds by a few mph, I am unaware of any published
evidence directly linking that to better injury outcomes-it is all assumptions layered upon other assumptions. In fact,
narrowed lanes can increase lane encroachments and sideswipes that can make things more dangerous for all users,
including cyclists (Dai et al., 2020).
Best regards,
Steve Linke
splinke@gmail.com
Carlsbad
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