HomeMy WebLinkAbout2024-06-03; Traffic Safety and Mobility Commission; ; Removing the College Boulevard and Palomar Airport Road Improvements Project from the Capital Improvement Program and the Associated Level of Service Deficiency DeclaratiMeeting Date: June 3, 2024
To: Traffic Safety & Mobility Commission
Staff Contact: Tom Frank, Transportation Director/City Engineer
tom.frank@carlsbadca.gov, 442-339-2766
Nathan Schmidt, Transportation Planning & Mobility Manager
nathan.schmidt@carlsbadca.gov, 442-339-2734
Subject: Removing the College Boulevard and Palomar Airport Road
Improvements Project from the Capital Improvement Program and the
Associated Level of Service Deficiency Declaration and Revising the
Melrose Drive and Palomar Airport Road Improvements Project Scope of
Work
District: 2
Recommended Action
Receive a report and make a recommendation to the City Council to adopt a resolution
authorizing:
1.Removal of the College Boulevard and Palomar Airport Road Growth Management Plan
Vehicular Level of Service Deficiency Declaration and removal of the Associated
Improvements Project No. 6028 from the Capital Improvement Program; and
2.Revising the scope of work of the Melrose Drive and Palomar Airport Road
Improvements, Capital Improvement Program Project No. 6034.
Executive Summary
This item provides an update on two separate Capital Improvement Program, or CIP, projects
that were intended to address two street facilities that were first identified as deficient in the
fiscal year, or FY, 2017-18 Annual Growth Management Plan, or GMP, Monitoring Report. In
this update, we will review the historical context behind identification of these projects and
discuss the reasons for staff's recommendation to remove one project from the city's CIP and
revise the scope of work of the other project.
Each year, staff collects monitoring data associated with the GMP/Citywide Facilities
Improvement Plan, or CFIP, performance standards, including vehicular traffic data, to
determine if the performance standards are being met, including the city’s circulation
performance standard. This analysis includes identification of deficient street facilities that are
not meeting performance/level of service, or LOS, standards.
Through this process, the City Council has the authority under General Plan Mobility Element
Policy 3-P.9, Exhibit 2, to deem a street facility built out and exempt from the LOS D standard
when certain criteria are met.
June 3, 2024 Item #4 Page 1 of 41
The roadway LOS scoring is similar to report card grades. Table 1 offers a description of the
typical traffic conditions associated with each Vehicle LOS grade, based upon the most recent
version of the Highway Capacity Manual, or HCM.
Table 1: Vehicle Level of Service (LOS) Descriptions
LOS General Operating Conditions
A Free flow where traffic moves smoothly at or
above the speed limit.
B Reasonably free flow, but speeds beginning to be
slowed by traffic conditions
C Stable flow, but speeds start to be affected by
higher traffic volumes.
D Approaching unstable flow; speeds are noticeable
slower, maneuverability is more restricted, but
there’s not constant stop-and-go traffic.
E Unstable flow; speeds are much slower, and
intermittent stop-and-go traffic is likely.
F Forced or breakdown flow; unacceptable
congestion; stop-and-go, frequent long delays
and low speeds.
Explanation & Analysis
On Aug. 7, 2023, staff presented an item to the Traffic & Mobility Commission regarding two
separate CIP projects: (1) College Boulevard and Palomar Airport Road Improvements, CIP
Project No. 6028, and (2) Melrose Drive and Palomar Airport Road Improvements, CIP Project
No. 6034.
College Boulevard and Palomar Airport Road Improvements, CIP Project No. 6028
The southbound segment of College Boulevard, extending from Aston Avenue to Palomar
Airport Road, which is located in Local Facilities Management Plan Zone 5, was previously
determined to be operating at LOS F during the afternoon, or PM, peak hour and therefore
declared deficient by the City Council on Dec. 17, 2019, as part of the FY 2017-18 GMP
Monitoring Report, Resolution No. 2019-270, Exhibit 2
In response, the City Council prioritized CIP Project No. 6028, which included the addition of a
second southbound through lane on College Boulevard. This revision was designed to fully
address the vehicular LOS deficiency and improve operating conditions to LOS B during the PM
peak hour.
Staff have continued to monitor the segment since then, and beginning in the FY 2020-21 GMP
Monitoring Report, data shows this segment now operates at an acceptable LOS B during the
previously problematic PM peak hour and LOS B during the morning, or AM, peak hour. This
improvement in LOS is attributed to a reduction in traffic volumes along College Boulevard
since 2018, as illustrated in Table 2 below. This reduction in traffic volumes has shown a
consistent trend over the past few years. Factors constructing to these reductions may include
changes in local traffic patterns, less pronounced “peaks” of traffic volumes during the busiest
June 3, 2024 Item #4 Page 2 of 41
times of day, and long-term shifts to telecommuting, all of which has contributed to reduced
traffic volumes at this location. Consequently, the vehicular LOS deficiency declaration in
Resolution No. 2019-270 is no longer applicable.
Since this segment has consistently maintained an acceptable LOS B during both the AM and
PM peak hours for the last three annual monitoring cycles, construction of the previously
identified CIP Project No. 6028 is no longer necessary, and staff recommend its removal from
the CIP and express removal of the deficiency declaration. Staff will continue to monitor this
segment in future GMP Monitoring Reports. If a future LOS deficiency is identified, staff will
return to the City Council with additional recommendations.
Table 2: Historic Average Daily Traffic Volumes (ADT) and LOS Results for Southbound College
Boulevard between Aston Place and Palomar Airport Road
Fiscal Year 2017-18 2018-19 2019-20** 2020-21 2021-22 2022-2023
ADT* 14,214 16,142 6,235 11,590 13,849 13,268
Northbound
LOS B (A) B (A) A (A) A (A) B (A) B (A)
Southbound
LOS B (F) B (F) B (B) B (B) B (B) B (B)
*ADT = Average Daily Traffic Volume **GMP Monitoring was not conducted in 2021 due to the COVID-19 Pandemic however the recorded traffic volumes are
provided for reference only.
Notes: # (#) = AM (PM) Peak Hr.
Melrose Drive and Palomar Airport Road Improvements, CIP Project No. 6034
On Dec. 17, 2019, the City Council determined the southbound segment of Melrose Drive from
the Vista city limits to Palomar Airport was deficient, built-out and exempt from the LOS
performance standard required by the GMP, Resolution No. 2019-270, Exhibit 2. At this same
meeting, the City Council directed staff to expedite CIP Project No. 6034 to partially address the
identified vehicular LOS performance standard deficiency and improve traffic operations in this
segment and waived the right-of-way open space boundary adjustment requirement under
General Plan Open Space Element Policy 4-P.6. The lane width of CIP Project No. 6034 was not
defined by City Council Resolution No. 2019-270.
This project would add a third southbound through lane on Melrose Drive approaching the
intersection with Palomar Airport Road. While the implementation of this project was, at the
time, intended to improve the deficient roadway facility operations from LOS F to LOS E during
both peak hours, the facility would still not meet the LOS D performance standard and would
remain deficient after completion of the project.
Staff recommend: (1) revising the project’s three through lane widths to a maximum of 11-foot-
wide to better balance the mobility needs of the roadway, and (2) adjusting traffic signal timing
including right-turn overlap at the eastbound right turn lane on Palomar Airport Road to
improve efficiency at the intersection.
This lane width modification will reduce funding requirements by eliminating the need for
Roadway widening. Widening Melrose Drive would negatively impact pedestrians and bicyclists
June 3, 2024 Item #4 Page 3 of 41
crossing the intersection due to longer crossing distance and increased exposure to vehicles.
Additionally, wider roads can lead to higher vehicle speeds and reduced visibility of pedestrians
and cyclists, making the crossing more dangerous and challenging.
Staff conducted a detailed intersection LOS analysis to assess the impact of the CIP project on
traffic operations at the intersection of Melrose Drive and Palomar Airport Road. Table 3 below
compares the intersection LOS between the existing conditions, with implementation of the
original CIP Project No. 6034 improvements, and with implementation of the revised CIP project
improvements as proposed by staff.
The intersection LOS analysis shows that the intersection of Melrose Drive and Palomar Airport
Road currently operates at LOS E during the AM peak hour and LOS D during the PM peak hour.
With implementation of the original CIP Project No. 6034, the intersection would still operate at
a deficient LOS E during the AM peak hour and LOS D during the PM peak hour, with traffic
delay improving by less than one second in each peak hour. Additionally, implementing the
revised CIP project improvements, including the right-turn overlap in the eastbound right turn
lane on Palomar Airport Road, would result in a slight reduction of delay by less than one
second at the intersection. The results of this intersection LOS analysis are summarized in Table
3 below.
Adding a "free right-turn" signal to the eastbound approach on Palomar Airport Road signal
allows vehicles to turn right without waiting for a green light. This can improve overall traffic
operations because it reduces the number of vehicles waiting at the light, making the
intersection more efficient. When right-turning vehicles move more freely, it also helps reduce
backups and delays for other directions of traffic.
For example, if the eastbound approach has a free right-turn signal, cars can turn right even
when the thru-lanes are red. This reduces congestion in the eastbound lane, allowing more cars
to move through the intersection during each cycle. As a result, other legs of the intersection,
like the southbound direction, can experience improvements too, because there is less overall
congestion and smoother traffic flow.
Table 3: Intersection Operations Summary for Melrose Drive/Palomar Airport Road
Melrose Drive/Palomar Airport Road Intersection LOS Results Design Scenario AM Peak Hour PM Peak Hour
LOS1 Delay (s)2 LOS1 Delay (s) 2
Existing Conditions E 66.2 D 47.8
With Original CIP Project
No. 6034 Improvements, E 65.7 D 47.4
With Revised CIP Project
No. 6034 Improvements E 66.0 D 47.6
1. Level of service (LOS) based on Highway Capacity Manual 6th Edition (2016) methodology.
2. Average delay reported in seconds per vehicle.
- Bold indicates deficient LOS
- Count data collected in November 2022
June 3, 2024 Item #4 Page 4 of 41
Based on the updated analysis of the intersection at Melrose Drive and Palomar Airport Road,
staff recommend implementing a right-turn overlap phase to the eastbound right-turn lane.
The new right-turn overlap on the eastbound approach of Palomar Airport Road from
southbound Melrose Drive is expected to improve overall traffic delay by 0.2 seconds. In
addition, staff will continue to monitor this segment as part of the annual GMP monitoring
program.
The proposed revised scope of work for CIP Project No. 6034 will significantly reduce funding
requirements by eliminating the need for roadway widening. Instead, the project can be
accomplished with roadway restriping and signal timing changes, which can be implemented
more quickly and at a lower cost.
Fiscal Analysis
The approximate construction phase cost estimates and remaining budget for the two CIP
projects are as follows:
College Avenue and Palomar Airport Road (CIP Project No. 6028)
Estimated Construction Phase $1,618,500
Current remaining budget $735,000
Melrose Drive and Palomar Airport Road (CIP Project No. 6034)
Estimated Construction Phase $1,140,000
Revised Scope Estimated Construction Phase $150,000
Reduction in estimated construction cost $990,000
Current remaining budget $728,000
Removing CIP Project No. 6028 from the CIP and rescoping CIP Project No. 6034 will reduce the
estimated construction costs by over $2 million. The current appropriated remaining budget
with the proposed actions is approximately $1.3 million, which will be returned to the city's
Traffic Impact Fee Fund balance to be used for other projects.
Next Steps
Staff will present this item to the City Council at their June 11, 2024, meeting. If the City
Council approves staff’s recommendations, the remaining balance of funds for the proposed
actions will be transferred back to the Traffic Impact Fee Fund to be used for other priority
projects.
Environmental Evaluation
As discussed in Resolution No. 2019-270, the City previously determined that: 1) exempting
street facilities and intersections from the GMP circulation LOS D vehicle performance standard
is a subsequent activity of the General Plan Mobility Element for which Programmatic
Environmental Impact Report (EIR) 13-02 was prepared; 2) a notice for the activity has been
given, which includes statements that this activity is within the scope of the program approved
earlier, and that program EIR 13-02 adequately describes the activity for the purposes of
June 3, 2024 Item #4 Page 5 of 41
California Environmental Quality Act, or CEQA, Section 15168{c)(2) and (e); 3) that the proposal
to exempt certain sections of El Camino Real and College Boulevard has no new significant
environmental effect that was not analyzed as significant in program EIR 13-02; and 4) none of
the circumstances requiring a subsequent or a supplemental EIR under CEQA Guidelines
Sections 15162 or 15163 exist.
This action to remove a project from the CIP and revise the scope of work of another CIP
project does not constitute a project within the meaning of the CEQA 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. The City
further finds that such actions are subject to CEQA exemptions, including but not limited to the
commonsense exemption under CEQA Guidelines Section 15061(b)(3). The City further finds
that there is no reasonable possibility that these modifications will have a significant effect on
the environment due to unusual circumstances, and further finds that there are no usual
circumstances. Numerous roadways have 11-foot through lanes including Palomar Airport
Road, College Boulevard and El Camino Real. Public agencies routinely adjust signal timing such
as when the City adjusted signal timing during the local traffic safety emergency in 2022-2023
or recently at the intersection of El Camino Real and La Costa Avenue where the traffic signal
timing was changed to allow eastbound left turns and straight-through movements to happen
together. This helps because the left-turn lane often gets busier, and vehicles can still make the
turn even if the turn lane is full.
Exhibits
1. General Plan Mobility Element Policy 3-P.9 regarding exemption of street facilities from the
vehicle Level-of-Service standard
2. Traffic & Mobility Commission Staff Report: Aug. 7, 2023, Status update on CIP Project No.
6028 College Boulevard and Palomar Airport Road Improvements and CIP Project No. 6034
Melrose Drive and Palomar Airport Road, and City Council Resolution No. 2019-270.
June 3, 2024 Item #4 Page 6 of 41
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General Plan
3-P.5 Require developers to construct or pay their fair share toward
improvements for all travel modes consistent with this Mobility
Element, the Growth Management Plan, and specific impacts associ-
ated with their development.
3-P.6 Require future development projects, which are determined during
site-specific environmental review to have a significant impact on
freeway facilities (I-5 and SR-78), to implement a freeway traffic
mitigation program approved by the city that will avoid, reduce or
offset the increase in freeway traffic directly attributable to the
proposed project. The mitigation program may include, but is not
limited to, payment of a fair share fee to Caltrans for necessary
improvements to affected freeway facilities or to NCTD or such
other transit agency for improvement of public transit on affected
freeways, or such other activities as will avoid, reduce or offset the
project’s significant impacts on freeway facilities.
3-P.7 Encourage Caltrans to identify and construct necessary improve-
ments to improve service levels on Interstate-5 and State Route 78.
3-P.8 Utilize transportation demand management strategies, non-auto-
motive enhancements (bicycle, pedestrian, transit, train, trails,
and connectivity), and traffic signal management techniques as
long-term transportation solutions and traffic mitigation measures
to carry out the Carlsbad Community Vision.
3-P.9 Develop and maintain a list of street facilities where specified modes
of travel are exempt from the LOS standard (LOS exempt street
facilities), as approved by the City Council. For LOS exempt street
facilities, the city will not implement improvements to maintain
the LOS standard outlined in Policy 3-P.4 if such improvements are
beyond what is identified as appropriate at build out of the General
Plan. In the case of street facilities where the vehicle mode of travel
is exempt from the LOS standard, other non-vehicle capacity-build-
ing improvements will be required to improve mobility through
implementation of transportation demand and transportation
system management measures as outlined in Policy 3-P.11, to the
extent feasible, and/or to implement the livable streets goals and
policies of this Mobility Element. Evaluate the list of exempt street
facilities, as part of the Growth Management monitoring program,
to determine if such exemptions are still warranted.
To exempt the vehicle mode of travel from the LOS standard at a
particular street intersection or segment, the intersection or street
segment must be identified as built-out by the City Council because:
Exhibit 1
a. acquiring the rights of way is not feasible; or
b. the proposed improvements would significantly impact the envi-
ronment in an unacceptable way and mitigation would not
contribute to the nine core values of the Carlsbad Community
June 3, 2024 Item #4 Page 7 of 41
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City of Carlsbad
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3 c.the proposed improvements would result in unacceptable
impacts to other community values or General Plan policies; or
d.the proposed improvements would require more than three
through travel lanes in each direction.
3-P.10 Allow the following street facilities to be exempt from the vehicle
LOS standard identified in Policy 3-P.4, subject to the requirements
described in Policy 3-P.9.
•La Costa Avenue between Interstate-5 and El Camino Real
•El Camino Real between Palomar Airport Road and La Costa Avenue
•Palomar Airport Road between Interstate-5 and College Boulevard
•Palomar Airport Road between El Camino Real and Melrose Drive
3-P.11 Require new development that adds vehicle traffic to street facili-
ties that are exempt from the vehicle LOS standard (consistent with
3-P.9) to implement:
a.Transportation demand management strategies that reduce the
reliance on single-occupant automobile and assist in achieving
the city’s livable streets vision.
b.Transportation system management strategies that improve
traffic signal coordination and improve transit service.
3-P.12 Update the Citywide Facilities and Improvements Plan to ensure
consistency with the General Plan. This includes updating the cir-
culation LOS standards methodologies to reflect a more balanced/
multi-modal approach.
3-P.13 Use public outreach to educate and encourage alternative modes of
travel and inform the community about the benefits of participation
in new programs, approaches and strategies that support Mobility
Element goals and policies.
3-P.14 Require performance measures tied to transportation facilities and
services to comply with the Climate Action Plan and other state reg-
ulations and policies.
Street Design and Connectivity
3-P.15 Evaluate methods and transportation facility improvements to
promote biking, walking, safer street crossings, and attractive
streetscapes. The City Council shall have the sole discretion to
approve any such road diet or vehicle traffic calming improvements
that would reduce vehicle capacity to or below a LOS D; this also
applies to streets where the vehicle is not subject to the MMLOS
standard as specified in Table 3-1.
3-P.16 Design new streets, and explore funding opportunities for existing
streets, to minimize traffic volumes and/or speed, as appropriate,
within residential neighborhoods without compromising connec-
tivity for emergency first responders, bicycles, and pedestrians
Vision; or
June 3, 2024 Item #4 Page 8 of 41
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consistent with the city’s Carlsbad Active Transportation Strat-
egies. This should be accomplished through management and
June 3, 2024 Item #4 Page 9 of 41
Meeting Date: Aug. 7, 2023
To: Traffic and Mobility Commission
Staff Contact: Tom Frank, Transportation Director
Tom.Frank@carlsbadca.gov, 442-339-2766
Subject: Status update on Capital Improvement Program No. 6028 College
Boulevard and Palomar Airport Road Improvements and Capital
Improvement Program No. 6034 Melrose Drive and Palomar Airport Road
Recommended Action
Receive status update report on Capital Improvement Program (CIP) No. 6028 College
Boulevard and Palomar Airport Road Improvements and CIP No. 6034 Melrose Drive and
Palomar Airport Road Improvements
Background
This item provides an update on two separate CIP projects that were intended to address
deficient street facilities identified in the fiscal year (FY) 2017-18 Annual Growth Management
Plan Monitoring Report (GMP). In this update, we will review the Vehicle Level of Service (LOS)
of the related street facilities and other associated actions.
Each year, staff collects monitoring data associated with the GMP/Citywide Facilities
Improvement Plan (CFIP) performance standards, including vehicular traffic data to determine if
the performance standards are being met, including the city’s circulation performance
standard. This analysis includes identification of deficient street facilities that are not meeting
performance / LOS standards. Through this process City Council has the authority under
General Plan Mobility Element Policy 3-P.9 to deem a street facility built out and exempt from
the LOS D standard when certain criteria are met.
CIP No. 6028 College Boulevard from Aston Avenue to Palomar Airport Road
The southbound segment of College Boulevard, extending from Aston Avenue to Palomar
Airport Road, was previously determined to be deficient by the City Council on December 17,
2019, as part of the FY 2017-18 GMP Monitoring Report (Resolution No. 2019-270). However,
the City Council did not exempt the segment from further improvements and instead prioritized
CIP Project No. 6028, which aimed to address the deficiency by constructing an additional
southbound through-lane on College Boulevard approaching Palomar Airport Road.
Staff continued to monitor the segment and, beginning in the FY 2020-21 GMP Monitoring
Report, data shows this segment now operates at an acceptable LOS B during the previously
Aug. 07, 2023 Item # 5 Page 1 of 635
Exhibit 2
June 3, 2024 Item #4 Page 10 of 41
problematic PM peak hour. This improvement is attributed to a reduction in traffic volumes
along College Avenue, as illustrated in Table 1 below.
Since this segment has consistently maintained an acceptable LOS B during both the AM and
PM peak hours for the last two annual monitoring cycles, construction of the previously
identified CIP No. 6028 may be no longer be necessary in the near term. Staff is planning to
implement a northbound right turn overlap approaching the subject intersection, which will
also increase the vehicle capacity of the intersection. Staff will continue to monitor this
segment as part of the annual GMP monitoring program and will provide other status update to
the Traffic and Mobility Commission in early 2024.
Table 1: Historic LOS Results for College Boulevard Southbound between Aston Place and
Palomar Airport Road.
GMP Monitoring LOS Results
Fiscal Year 2017-18 2018-19 2019-20** 2020-21 2021-22
ADT* 14,214 16,142 6,235 11,590 13,849
Northbound LOS B (A) B (A) A (A) A (A) B (A)
Southbound LOS B (F) B (F) B (B) B (B) B (B)
*ADT = Average Daily Traffic Volume **GMP Monitoring was not conducted in 2021 due to the COVID-19 Pandemic
Notes: # (#) = AM (PM) Peak Hr.
CIP No. 6034: Melrose Avenue from the City Limits and Palomar Airport Road
On December 17, 2019, the City Council determined the southbound segment of Melrose Drive
from the Vista city limits to Palomar Airport was deficient and exempt from the city’s LOS
performance standard required by the city’s GMP. At this same meeting, the City Council
directed staff to expedite CIP Project No. 6034 to improve traffic operations in this segment and
waived the right-of-way open space boundary adjustment requirement under General Plan
Open Space Element Policy 4-P.6. This project would add a third southbound through lane
approaching the intersection with Palomar Airport Road. While the implementation of this
project would improve the deficient roadway facility operations from a LOS F to LOS E during
both peak hours, the facility would still not meet the LOS D performance standard and would
remain deficient after completion of the project.
Staff has since performed a more detailed intersection LOS analysis at the intersection. The
results of this analysis show the intersection of Melrose Drive and Palomar Airport Road
currently operates at a LOS E during the AM peak hour and LOS D during the PM peak hour.
With the proposed CIP project improvements, the intersection would continue to operate at a
deficient LOS E and D during the AM and PM peak hours respectively. The results of this
intersection LOS are summarized in Table 2below.
Table 2: Intersection Operations Summary for Melrose Avenue/Palomar Airport Road for Existing
Conditions and with CIP Project Conditions.
Aug. 07, 2023 Item # 5 Page 2 of 635June 3, 2024 Item #4 Page 11 of 41
Melrose Avenue/Palomar Airport Road Intersection LOS Results AM Peak Hour PM Peak Hour
LOS1 Delay (s)2 LOS Delay (s)
Existing Conditions3 E 66.2 D 47.8
CIP No. 6034
Improvements4 E 65.7 D 47.4
1. Level of service (LOS) based on Highway Capacity Manual 6th Edition (2016) methodology.
2. Average delay reported in seconds per vehicle.
3. Bold indicates deficient LOS
4. Existing conditions analysis included count data collected in November 2022, assuming the existing
intersection configuration.
5. CIP No. 6034 Improvements utilized the count data collected in November 2022, assuming the proposed project improvements described above.
Based on the updated analysis of intersection of Melrose Drive and Palomar Airport Road, staff
recommend implementing a right-turn overlap phase to the eastbound right turn lane. The new
right turn overlap on the eastbound approach of Palomar Airport Road is expected to improve
overall traffic flow and reduce congestion at the intersection. In addition, staff will continue to
monitor this segment as part of the annual GMP monitoring program and will provide other
status update to the Traffic and Mobility Commission in early 2024.
When planning to widen an intersection, several factors must be taken into account. These
factors include:
• Latent demand of regional commuter traffic: This refers to the potential increase in
traffic volume that may occur once the intersection is widened. Melrose Avenue
provides a regional connection from the City of Vista to Palomar Airport Road and I-5.
Understanding the projected demand is crucial for designing an effective solution.
• Changes to the Regional Plan: Any modifications to the Regional Plan, such as
reductions in planned vehicle lanes and capacity on the freeway network that could
impact Carlsbad, should be considered to ensure alignment with broader transportation
goals.
• Benefits to Carlsbad from a return-on-investment standpoint: Analyzing the potential
benefits and economic returns that Carlsbad may gain from this infrastructure
improvement is essential to justify the investment.
• Negative effects on bicyclists and pedestrians: It is important to assess any adverse
impacts on safety for cyclists and pedestrians which may be created with a wider
intersection such as longer crossing distances for pedestrians and conflict zones for
bicyclists.
• Priorities of the Streets Capital Improvement projects: Considering how this
intersection widening project aligns with the broader priorities of the Streets Capital
Improvement projects will help allocate resources effectively.
Aug. 07, 2023 Item # 5 Page 3 of 635June 3, 2024 Item #4 Page 12 of 41
Next Steps
Staff will implement a new right-turn overlap phase to the eastbound right turn at the Melrose
Drive and Palomar Airport Road intersection, complete the Fiscal Year 2022-23 Growth
Management Plan/General Plan Annual Monitoring Report Circulation Section: Roadway Level
of Service Analysis, and will provide the next status update on these two projects to the Traffic
and Mobility Commission in early 2024.
Exhibits
1. City Council Staff Report: Dec. 17, 2019, Determination of four deficient street facilities
according to the Growth Management Plan and adoption of measures to address
deficiencies.
2. Fiscal Year 2021-22 Growth Management Plan Circulation Section: Roadway Level of Service
Analysis Report
Aug. 07, 2023 Item # 5 Page 4 of 635June 3, 2024 Item #4 Page 13 of 41
CA Review ltL (:r-
~ CITY COUNCIL
~ Staff Report
Meeting Date: Dec. 17,2019
To: Mayor and City Council
From: Scott Chadwick, City Manager
Staff Contact: Hossein Ajideh, Engineering Manager
hossein.ajideh@carlsbadca.gov, 760-602-2756
Subject: Determination of four deficient street facilities according to the Growth
Management Plan and adoption of measures to address deficiencies.
Recommended Action
Adopt a Resolution to:
A. Determine the following street facilities to be deficient because they do not meet the
level of service (LOS) performance standard required by the city's Growth Management
Plan (GMP):
1. Southbound El Camino Real from the Oceanside city limits to Marron Road
2. Northbound El Camino Real from Marron Road to the Oceanside city limits
3. Southbound College Boulevard from Aston Avenue to Palomar Airport Road
4. Southbound Melrose Drive from the Vista city limits to Palomar Airport Road
B. Exempt the following street facilities from the LOS performance standard, in accordance
with the General Plan Mobility Element criteria:
1. Southbound El Camino Real from the Oceanside city limits to Marron Road
2. Northbound El Camino Real from Marron Road to the Oceansidedty limits
3. Southbound Melrose Drive from Vista city limits to Palomar Airport Road
C. Expedite Capital Improvement Program (CIP) Project No. 6028, to address the deficiency
southbound College Boulevard from Aston Avenue to Palomar Airport Road, and waive
the right-of-way open space boundary adjustment requirement under General Plan
Open Space Element Policy 4-P.6
D. Expedite CIP Project No. 6034, to improve traffic operations southbound Melrose Drive
from the Vista city limits to Palomar Airport Road, and waive the right-of-way open
space boundary adjustment requirement under General Plan Open Space Element Policy
4-P.6
Executive Summary
Each year, staff collects traffic data in accordance with the GMP monitoring program to
determine if the performance standard is being met for each facility. Eight street facilities in the
city were identified in the Annual Growth Management Monitoring Report for fiscal year (FY)
2017-18 as falling short of the LOS performance standard (Exhibit 2). Exhibit 3 shows a map
with locations of these eight deficient street facilities.
Dec. 17, 2019 Item #22 Page 1 of 28
Exhibit 1
Aug. 07, 2023 Item # 5 Page 5 of 635June 3, 2024 Item #4 Page 14 of 41
These eight street facilities1 are:
1. Southbound El Camino Real from the Oceanside city limits to Marron Road
2. Northbound El Camino Real from Marron Road to the Oceanside city limits
3. Southbound College Boulevard from Aston Avenue to Palomar Airport Road
4. Southbound Melrose Drive from the Vista city limits to Palomar Airport Road
5. Southbound El Camino Real from Cannon Road to College Boulevard
6. Northbound El Camino Real from College Boulevard to Cannon Road
7. Eastbound Cannon Road from El Camino Real to College Boulevard
8. Westbound Cannon Road from College Bo\_llevard to El Camino Real
This staff report identifies measures to address deficiencies on the first four street facilities
listed above.
A future staff report will be presented to the City Council to discuss options to address the
traffic flow deficiencies on the four remaining street facilities that do not meet the required
level of service.
Discussion
Background
This is the second of three staff reports stemming from a discussion at the July 16, 2019 City
Council meeting. At that meeting, staff presented a report on how these eight deficient street
facilities had been identified in the Annual Growth Management Monitoring Report for FY
2017-18 as falling short ofthe LOS performance standard.
City Council directed staff to consider additional options to address the deficiencies and
indicated a need for a detailed discussion with additional information before the City Council
would take action on the matter. As a result, the City Manager asked that the matter be
continued to a future City Council meeting to allow time for staff to prepare presentations
related to:
1) The different ways the transportation system management (TSM) and transportation
demand management (TDM) programs work to manage traffic congestion and improve
mobility
2) Recommendations on addressing the deficient level of service on four street facilities
located outside Local Facilities Management Zone 15
3) Additional options to address the deficiencies in level of service on four street facilities
affecting Local Facilities Management Zone 15, which relates to the uncompleted
portion of College Boulevard
1 This report uses the term "street facility" and the July 16, 2019 staff report referred to deficient "street
segments." "Street facility" is a section of roadway that shares the same roadway characteristics, and
which is composed of one or more street segments, while a "street segment" is the portion of a street
facility between two intersections. In some cases, such as with the four deficient sections of roadway
discussed in this report, a street segment is also a street facility. The term "street facility" is being used
in this report for greater consistency with terminology from the General Plan Mobility Element.
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The first of these presentations occurred on Dec. 10, 2019, when staff presented an
informational report to the City Council on how the city manages traffic with TSM and TDM
programs.
This report and a subsequent one will address the eight street facilities that have been
identified as falling below the city's required LOS standard.
Deficient Street Facilities under the City's Growth Management Plan
A primary objective of the city's GMP is to ensure that adequate public facilities are provided
concurrent with growth as established by Prnposition E, which was passed by voters in 1986.
Proposition E established broad guidelines for determining adequacy of public facilities. An
important component of the GMP is the Citywide Facilities and Improvements Plan (CFIP) that
includes specific performance standards for each of the 11 public facilities, including circulation
that addresses the livable streets network. The following performance standard was defined for
the livable streets network:
Implement a comprehensive livable streets network that serves all users of the system -
vehicles, pedestrians, bicycles and public transit. Maintain LOS D or better for all modes
that are subject to this multi-modal level of service {MM LOS} standard, as identified in
Table 3-1 of the General Plan Mobility Element, excluding LOS exempt intersections and
streets approved by the City Council.
The CFIP divided the city into 25 Local Facility Management Zones (LFMZs). Each LFMZ is
required to have an adopted Local Facilities Management Plan that must describe the
following:
• How the LFMZ will be developed
• How compliance with the GMP standards will be achieved
• What public facilities will be required to maintain each performance measure
• What financing mechanisms will be used to fund these facilities
The GMP requires development activity to stop in an LFMZ if a performance standard is not
being met, unless arrangements satisfactory to the City Council are made guaranteeing the
facilities and improvements that will addres.s the deficiency. No development permits or
building permits can be issued in the affected LFMZ until the problem is resolved.
However, SB 330, which was adopted on October 9, 2019 and is effective January 1, 2020, limits
public agencies' ability to deny housing developments and may impact the city's ability to
prohibit development and building permits under the GMP. The City Attorney's Office is
evaluating SB 330 and will update the City Council on its impacts in the near future.
FY 2017-18 Annual Monitoring Report and Four Street Facility Deficiencies
Each year, staff monitors the 11 different public facility systems, including for circulation, and
submits a report to City Council comparing performance data against the adopted standards.
The Annual Growth Management Monitoring Report for FY 2017-18 identified a total of eight
street facilities that do not have exemptions from the performance standard and that do not
meet the performance standard. This staff report identifies measures to address deficiencies on
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four of these street facilities. A future staff report will discuss the remaining four deficient
street facilities.
Table 1 summarizes the monitoring data and recommended actions needed to address the
deficiencies on these four street facilities. The table presents: a) the LOS reported in the report
("Without Actions"), b) the LOS expected after the recommended action is taken ("With
Actions"), and c) the LFMZs that would be affected by the deficiency if the recommended
actions are not implemented.
Table 1
Proposed Actions to Address Deficiencies at Four Street Facilities
Deficient LOS Affected From To Recommended Actions Without With Street Facility Actions Actions LFMZ (*)
1. El Camino Oceanside Marron Exempt from LOS D E E 1
Real City Limits Road standard(**)
2. El Camino Marron Oceanside Exempt from LOS D E E 2
Real Road City Limits standard(**)
3. College Aston Palomar Implement CIP No. 6028 F B 5
Boulevard Avenue Airport (add 2nd through lane)
Road
4. Melrose Vista City Palomar Exempt from LOS D F E 18
Drive Limits Airport standard(**);
Road Implement CIP No. 6034
(add 3rd through lane);
Notes:
* · Local Facilities Management Zone (LFMZ) that is affected by deficiency
** Transportation Demand Management (TDM)/Transportation System Management (TSM) measures
will be applied to development adding traffic to the street facilities exempt from the LOS D standard
Based on this information, staff recommends that City Council determine that a deficiency
exists at each of the street facilities listed in Table 1 per Carlsbad Municipal Code (CMC) Section
21.90.130 (c):
If at any time it appears to the satisfaction of the city manager that facilities or
improvements within a facilities management zone or zones are inadequate to
accommodate any further development within that zone or that the performance
standards adopted pursuant to Section 21.90.100 are not being met he or she shall
immediately report the deficiency to the council. If the council determines that a
deficiency exists then no further building or development permits shall be issued within
the affected zone or zones and development shall cease until an amendment to the city-
wide facilities and improvements plan or applicable local facilities management plan
which addresses the deficiency is approved by the city council and the performance
standard is met.
Measures to Address Street Facility Deficiencies
When a street facility deficiency is determined to exist, in accordance with CMC Section
21.90.080 and 21.90.130, the following options exist:
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• Where a feasible improvement project exists to achieve the performance standard:
o City Council can identify and fund a city improvement project that will result in
the street facility meeting the performance standard
o City Council can adopt an arrangement guaranteeing the improvement project
that will result in the street facility meeting the performance standard
• Where no feasible improvement project exists to achieve the performance standard:
o City Council can determine the street facility is built out and exempt from the
LOS D standard under General Plan Mobility Element Policy 3-P.9. Apply
TDM/TSM strategies to development that adds vehicle traffic to the exempt
street facilities.
If a feasible improvement project exists that the city will not undertake, and there is no private
arrangement guaranteeing the improvement project, then City Council would prohibit issuing
development and building permits in affected LFMZs until the performance standard is met or
an arrangement guaranteeing the improvement is adopted.
The General Plan Mobility Element acknowledges that the city cannot always rely on adding
roadway capacity to address deficiencies. In other words, the city cannot always build our way
out of traffic congestion. The City Council has the authority to deem a street facility "built out"
and exempt from the LOS D standard when the following build-out criteria are met in
accordance with General Plan Mobility Element Policy 3-P.9:
Develop and maintain a list of street facilities where specified modes of travel are exempt
from the LOS standard {LOS exempt street facilities}, as approved by the City Council. For
LOS exempt street facilities, the city will not implement improvements to maintain the LOS
standard outlined in Policy 3-P.4 if such improvements are beyond what is identified as
appropriate at build out of the General Plan. In the case of street facilities where the vehicle
mode of travel is exempt from the LOS standard, other non-vehicle capacity-building
improvements will be required to improve mobility through implementation of
transportation demand and transportation system management measures as outlined in
Policy 3-P.11, to the extent feasible, and/or to implement the livable streets goals and
policies of this Mobility Element. Evaluate the list of exempt street facilities, as part of the
Growth Management monitoring program, to determine if such exemptions are still
warranted. To exempt the vehicle mode of travel from the LOS standard at a particular
street intersection or segment, the intersection or street segment must be identified as built-
out by the City Council because:
a. acquiring the rights of way is not feasible; or
b. the proposed improvements would significantly impact the environment in an
unacceptable way and mitigation would not contribute to the nine core values of the
Carlsbad Community Vision; or
c. the proposed improvements would result in unacceptable impacts to other
community values or General Plan policies; or
d. the proposed improvements would require more than three through travel lanes in
each direction.
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. General Plan Mobility Element Policy 3-P.11 requires new development that adds vehicular
traffic to street facilities that are exempt from the vehicle LOS D standard to implement:
• TDM strategies that reduce the reliance on single-occupant automobile and assist in
achieving the city's livable streets vision; and
• TSM strategies that improve traffic signal coordination and improve transit service.
Recommended Actions to Address the Four Deficient Street Facilities
Staff has considered the feasible improvement project options to address these deficiencies
and recommends that the City Council adopt the following measures to address the four street
facility deficiencies covered in this report:
1. Southbound El Camino Real from Oceanside City Limits to Marron Road
Staff recommends the City Council determine this street facility to be built out and exempt
from the LOS D standard, under General Plan Mobility Element Policy 3-P.9 (d), because
addressing this deficiency through roadway improvements would require widening El Camino
Real to create an additional through lane. This would require more than three through travel
lanes in each direction.
This street facility is located in LFMZ 1. Under General Plan Mobility Element Policy 3-P.11,
future development that adds traffic to this exempt street facility will be required to implement
appropriate TDM and TSM strategies.
2. Northbound El Camino Real from Marron Road to Oceanside City Limits
Staff recommends the City Council also determine this street facility to be built out and exempt
from the LOS D standard, under General Plan Mobility Element Policy 3-P.9 (d), because
addressing this deficiency through roadway improvements would require widening El Camino
Real to create an additional through lane. This would require more than three through travel
lanes in each direction.
This street facility is located in LFMZ 2. Under General Plan Mobility Element Policy 3-P.11,
future development that adds traffic to this exempt street facility will be required to implement
appropriate TDM and TSM strategies. The TSM strategies will include collaborating with the
California Department of Transportation (Caltrans) and the City of Oceanside staff to improve
traffic signal operations across jurisdictional boundaries.
3. Southbound College Boulevard from Aston Avenue to Palomar Airport Road
Staff recommends the City Council expedite CIP Project No. 6028 to address the deficiency of
southbound College Boulevard by adding a second through lane, and waive the right-of-way
open space boundary adjustment requirement under General Plan Open Space Element Policy
4-P.6. This project, as shown in Exhibit 4, is expected to address the reported deficiency and
bring the stretch of roadway up to the desired levels of servLce.
In the July 16, 2019 City Council presentation, staff recommended the City Council designate
this street facility to be built out and exempt from meeting the required standard.
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That recommendation was based on concerns that restriping the roadway to add a through
lane would eliminate a bicycle lane, raising safety issues and conflicting with the Mobility
Element's Table 3-1 guidelines on bike lanes, and that the small strip of land needed to widen
the roadway while keeping the bike lane was protected by the city's Habitat Management Plan
(HMP}.
After further analysis and review, staff has determined the road widening described in CIP
Project No. 6028 will not encroach into the hard line HMP, and that the CIP project will keep the
required bike lane. After completion of this project, the street facility is expected to meet the
LOS D performance standard.
Currently, about $150,000 of CIP funding is available for this project design, but approximately
$450,000 of additional funding is expected to be needed to complete this project. A cost
estimate of the anticipated additional funding will be presented to the City Council once staff
has had an opportunity to scope the project. The proposed project improvements currently
include existing right-of-way for future roadway improvements; however, additional right-of-
way will be needed from the adjacent city-owned parcel to extend the right-turn lane.
The CIP Project No. 6028 improvements are within a coastal and wetland area. So, this project
may require some mitigation for its impact on sensitive habitat or species. HMP requirements
would include mitigation for various impacts from a ratio of 1:1 up to approximately 3:1 within
the coastal zone for both coastal sage and wetland habitat, respectively, depending on
acceptance from the permitting agencies. A cost estimate of the anticipated additional funding
will be presented to City Council once staff has had an opportunity to scope the project.
4. Southbound Melrose Drive from Vista City Limits to Palomar Airport Road
Staff recommends the City Council expedite CIP Project No. 6034 to improve traffic flow of
southbound Melrose Drive, and waive the right-of-way open space boundary adjustment
requirement under General Plan Open Space Element Policy 4-P.6. This project would add a
southbound right turn lane on Melrose Drive and re-stripe the existing lanes to provide a third
southbound through lane approaching the intersection with Palomar Airport Road as shown in
Exhibit 5.
This project is expected to improve traffic circulation, as described in Table 1, but is not
expected to meet the LOS D performance standard. Therefore, the street facility is expected to
remain deficient after completion of the project.
The city has set aside approximately $465,000 of CIP funding for this project, but approximately
$100,000 of additional funding is expected to be required to complete this project. A cost
estimate of the anticipated additional funding will be presented to the City Council once staff
has had an opportunity to scope the project. In 2012, the City Council authorized staff to solicit
bids on this project under Resolution No. 2012-252, but the project did not move forward due
to changes in priorities at that time.
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Staff recommends the City Council also determine this street facility to be built out and exempt
from the LOS D standard, under General Plan Mobility Element Policy 3-P.9 (d). CIP Project No.
6034 only adds a third through lane; however, future roadway improvements to address the
anticipated remaining deficiency would require further widening of Melrose Drive to
accommodate a fourth through lane, which would conflict with General Plan Mobility Element
Policy 3-P.9 (d).
This stretch of roadway is located in LFMZ 18. Under General Plan Mobility Element Policy 3-
P.11, future development that adds traffic to this exempt street facility will be required to
implement appropriate TDM and TSM strategies.
As part ofthe FY 2017-18 annual growth management monitoring report update, this item was
presented to the Traffic and Mobility Commission on Dec. 2, 2019, who approved support of
staff's recommendations to the City Council by a vote of 6-0-0-1 with Chair Mona Gecan absent.
Attached as Exhibit 6 are the draft minutes from that meeting.
Fiscal Analysis
No new CIP projects have beeri identified in this staff report, but additional funding is expected
to complete the existing CIP projects. Staff has outlined the anticipated future funding needs
below and will adjust the project costs as part of the FY 2020-21 CIP approval process or
separately for City Council approval.
I ANTICIPATED FUNDING REQUEST
CIP PROJECT NOS. 6028 AND 6034
Current Appropriation (6028) $150,000
Future Appropriation Needed (6028) $450,000
TOTAL ANTICIPATED FUNDS NEEDED $600,000
Current Appropriation (6034) $465,000
Future Appropriation Needed (6034) $100,000
TOTAL ANTICIPATED FUNDS NEEDED $565,000
Next Steps
Consistent with the City Council's direction, staff will update the applicable LFMP and CFIP as
needed to comply with the CMC and GMP. Field data has been collected and analysis is being
conducted to prepare the next Annual Growth Management Monitoring Report, fiscal year
2018-19.
Environmental--Evaluation (CEQA)
Exempting street facilities and intersections from the Growth Management Program circulation
LOS standard is an activity that was previously evaluated in the Final Program Environmental
Impact Report (EIR) 13-02 for the General Plan update (GPA 07-02), dated Sept. 22, 2015. The
City Council may declare certain street facilities as built-out and approve LOS exemptions
consistent with General Plan Mobility Element Policy 3-P.9 provided that subsequent
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development projects located in LFMZs with exempted facilities incorporate appropriate TOM
and TSM measures to reduce project impacts.
The EIR evaluated the potential environmental effects of the implementation of General Plan
policies and Climate Action Plan measures that would reduce congestion and vehicle-related
demand through TOM and TSM. Therefore, pursuant to California Environmental Quality Act
(CEQA) Guidelines Section 15168 (c) (2), the action to exempt the recommended street facilities
from the Growth Management Program circulation LOS performance standard is within the
scope of the Final Program EIR 13-02 and no further CEQA compliance is required.
Street improvement projects recommended in this staff report will be subject to appropriate
project-level CEQA review during their planning and design prior to implementation.
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.
Exhibits
1. City Council Resolution.
2. Annual Growth Management Monitoring Report for fiscal year 2017-18: Circulation Section
3. Map of Deficient Street Facilities with Local Facility Management Zones
4. Location Map for College Boulevard and Palomar Airport Road, CIP No. 6028
5. Location Map for Melrose Drive and Palomar Airport Road, CIP No. 6034
6. Draft Minutes from the Dec. 2, 2019 Traffic and Mobility Commission Meeting
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RESOLUTION NO. 2019-270
A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF CARLSBAD, CALIFORNIA,
DETERMINING DEFICIENCIES OF FOUR STREET FACILITIES ACCORDING TO THE
GROWTH MANAGEMENT PLAN AND ADOPTION OF MEASURES TO ADDRESS
DEFICIENCIES.
WHEREAS, on July 1, 1986 the City Council passed and adopted Ordinance No. 9808 amending Title
21 of the Carlsbad Municipal Code (CMC) by the addition of Chapter 21.90 establishing a Growth
Management Plan {GMP) for the city; and
WHEREAS, on Nov. 4, 1986, Carlsbad voters passed Proposition E, initiative Ordinance No. 9824,
establishing residential dwelling unit limits in the city's four quadrants and requiring that public facilities be
made available concurrent with need in accordance with the city's growth management program; and
WHEREAS, the GMP makes the approval of new development contingent upon adequacy of public
facilities, based on performance standards for eleven identified public facilities; and
WHEREAS, the Citywide Facilities and Improvements Plan {CFIP) includes the circulation
performance standard that requires facilities to maintain Level of Service (LOS) D or better, excluding LOS
exempt intersections and streets approved by the City Council; and
WHEREAS, the GMP requires annual monitoring to measure adequate performance of various
public facilities, including circulation; and
WHEREAS, the General Plan Mobility Element, adopted in September 2015, requires that the city's
LOS analyses for growth management purposes use Highway Capacity Manual {HCM) methodology; and
WHEREAS, staff employed HCM methodology for its LOS analyses in the fiscal year (FY) 2017-2018
annual monitoring report, in lieu of the city's prior use of the Intersection Capacity Utilization-Carlsbad {ICU-
C) methodology; and
WHEREAS, CMC Section 21.90.080 states, "If at any time after the preparation of a local facilities
management plan the performance standards established by a plan are not met then no development
permits or building permits shall be issued within the local zone until the performance standard is met or
arrangements satisfactory to the City Council guaranteeing the facilities and improvements have been
made."; and
WHEREAS, the General Plan Mobility Element, Policy 3-P.9, allows City Council to exempt the vehicle
mode of travel from the LOS D standard for a street intersection or facility that has been identified as built-
out because one or more enumerated criteria has been met; and
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WHEREAS, General Plan Mobility Element Policy 3-P.11 requires new development that adds vehicle
traffic to street facilities that are exempt from the vehicle LOS D standard to implement Transportation
Demand Management (TDM) and Transportation System Management (TSM) strategies to improve the
efficiency of the existing transportation system, reduce reliance on single-occupant automobiles and
provide attractive alternatives to driving an automobile according to the city's livable streets vision; and
WHEREAS, the FY 2017-2018 annual monitoring report identified the following four street facilities
not meeting the LOS D performance standard, and that roadway improvement projects and/or exemptions
from the performance standard can fully address these deficiencies: El Camino Real southbound from
Oceanside city limits to Marron Road; El Camino Real northbound from Marron Road to Oceanside city
limits; College Boulevard southbound from Aston Avenue to Palomar Airport Road; and Melrose Drive
southbound from Vista city limits to Palomar Airport Road; and
WHEREAS, on July 16, 2019, city staff presented recommended actions to City Council to address
the LOS D performance standard deficiencies identified in the FY 2017-2018 annual monitoring report for
the four above-described street facilities, and City Council returned the item with direction for staff to
formulate alternate solutions; and
WHEREAS, city staff continue to recommend addressing the LOS deficiencies at El Camino Real
southbound from Oceanside city limits to Marron Road and El Camino Real northbound from Marron Road
to Oceanside city limits through an exemption to the LOS D standard pursuant to Mobility Element Policy
3-P.9, because roadway improvements would require more than three through lanes in each direction of
travel, which is inconsistent with the General Plan Mobility Element; and
WHEREAS, city staff now recommend modified actions to address the deficiencies at College
Boulevard southbound from Aston Road to Palomar Airport Road and at Melrose Drive southbound from
Vista city limits to Palomar Airport Road; and
WHEREAS, the July 16, 2019 staff report recommended an exemption from the LOS D standard,
pursuant to Mobility Element Policy 3-P.9, for the deficiencies at College Boulevard southbound from Aston
Road to Palomar Airport Road, due to staff's prior determination that the addition of a second southbound
through lane on College Boulevard would remove the existing bike lane and that the road widening could
impact existing hardline Habitat Management Plan (HMP) preserve area, impact sensitive upland and/or
riparian habitat in the Coastal Zone, and be constrained by an existing SDG&E powerline easement and
tower support. Upon further examination by staff, the addition of a second southbound through lane
would not require removal of the existing bike lane and, furthermore, the necessary widening would not
impact existing hardline HMP preserve area; and
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WHEREAS, city staff have determined after further study the LOS deficiency at College Boulevard
southbound from Aston Road to Palomar Airport Road can be fully addressed by constructing the existing
Capital Improvement Program (CIP) Project No. 6028 to add a second southbound through lane on College
Boulevard with a waiver of the adjacent right-of-way from open space boundary adjustment requirements
under General Plan Open Space Element Policy 4-P.6, and would not impact the ability of Local Facility
Management Zone (LFMZ) 5 to meet the GMP open space standard; and
WHEREAS, the July 16, 2019 staff report stated that CIP Project No. 6034 would fully address the
deficiency at Melrose Drive southbound from Vista city limits to Palomar Airport Road; and
WHEREAS, city staff have determined after further study that the LOS D deficiency at Melrose Drive
southbound from Vista city limits to Palomar Airport Road cannot be fully addressed by constructing the
existing CIP Project No. 6034, and staff now recommends an exemption from the LOS D standard, pursuant
to Mobility Element Policy 3-P.9, for this street facility; and
WHEREAS, although it will not fully address the LOS D deficiency at Melrose Drive southbound from
Vista city limits to Palomar Airport Road, city staff recommend implementing CIP No. 6034 to widen Melrose
Drive to add a third southbound through lane on Melrose Drive with a waiver of the adjacent right-of-way
from open space boundary adjustment requirements under General Plan Open Space Element Policy 4-P.6.
CIP No. 6_034 will improve traffic congestion at this location and the resulting decrease in an existing parklet
of ornamental landscaping will not impact the ability of LFMZ 18 to meet the GMP open space standard;
and
WHEREAS, for the street facilities of El Camino Real southbound from Oceanside city limits to
Marron Road, El Camino Real northbound from Marron Road to Oceanside city limits, College Boulevard
southbound from Aston Avenue to Palomar Airport Road, and Melrose Drive southbound from Vista city
limits to Palomar Airport Road, staff recommends that the City Council adopt measures, as described in the
associated Staff Report, that either construct improvements to restore a deficiency to an acceptable level
of service, or determine the deficient street facility to be built-out and exempt from the LOS D standard
and apply TOM and TSM strategies to new development that adds vehicle traffic to the exempt street
facilities; and
WHEREAS, the City Planner has determined that: 1) exempting street facilities and intersections
from the GMP circulation LOS D vehicle performance standard is a subsequent activity of the General Plan
Mobility Element for which Programmatic Environmental Impact Report (EIR) 13-02 was prepared; 2) a
notice for the activity has been given, which includes statements that this activity is within the scope of the
program approved earlier, and that program EIR 13-02 adequately describes the activity for the purposes
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of California Environmental Quality Act (CEQA) Section 15168{c)(2) and (e); 3) that the proposal to exempt
certain sections of El Camino Real and College Boulevard has no new significant environmental effect that
was not analyzed as significant in program EIR 13-02; and 4) none of the circumstances requiring a
subsequent or a supplemental EIR under CEQA Guidelines Sections 15162 or 15163 exist.
NOW, THEREFORE, BE IT RESOLVED by the City Council of the City of Carlsbad, California, as follows:
1. That the above recitations are true and correct.
2. That the City Council determines a deficiency of the LOS D performance standard exists for the
following street facilities based on the results of the FY 2017-2018 growth management annual
monitoring report:
a. El Camino Real southbound from Oceanside city limits to Marron Road
b. El Camino Real northbound from Marron Road to Oceanside city limits
c. College Boulevard southbound from Aston Avenue to Palomar Airport Road
d. Melrose Drive southbound from Vista city limits to Palomar Airport Road
3. That the City Council determines El Camino Real southbound from Oceanside city limits to
Marron Road, and El Camino Real northbound from Marron Road to Oceanside city limits, are
built-out and exempt from the LOS performance standard for the vehicle mode of travel under
General Plan Mobility Element Policy 3-P.9 (d), as roadway improvements to address the
deficiencies would require more than three through travel lanes in each direction, such that
future development which adds vehicle traffic to these exempt street facilities shall implement
TDM and TSM strategies in accordance with General Plan Mobility Element Policy 3-P.11.
4. In relation to the street section of Melrose Drive southbound from Vista city limits to Palomar
Airport Road, City Council directs staff to expedite the roadway improvements under existing
CIP Project No. 6034 to partially address the identified LOS performance standard deficiency
and, under General Plan Open Space Element Policy 4-P .6, City Council waives any right-of-way
open space boundary adjustment requirements applicable to CIP Project No. 6034.
5. That the City Council determines Melrose Drive southbound from Vista city limits to Palomar
Airport Road to be built-out and exempt from the LOS performance standard for the vehicle
mode of travel under General Plan Mobility Element Policy 3-P.9 (d), as the construction of
existing CIP Project No. 6034 will only partially address the LOS deficiency and additional
roadway improvements to fully address the deficiency would require more than three through
travel lanes in each direction, such that future development which adds vehicle traffic to these
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exempt street facilities shall implement TDM and TSM strategies in accordance with General
Plan Mobility Element Policy 3-P.11.
6. In relation to the street section of College Boulevard southbound from Aston Avenue to
Palomar Airport Road, City Council directs staff to expedite the roadway improvements under
existing CIP Project No. 6028 to address the identified LOS performance standard deficiency,
and, under General Plan Open Space Element Policy 4-P.6, City Council waives any right-of-way
open space boundary adjustment requirements applicable to CIP Project No. 6028.
PASSED, APPROVED AND ADOPTED at a Regular Meeting of the City Council of the City of Carlsbad
on the 17th day of December 2019, by the following vote, to wit:
AYES: Hall, Blackburn, Bhat-Patel, Schumacher.
NAYS: None.
ABSENT: None.
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Exhibit 2
CIRCULATION
A. Performance Standard
Implement a comprehensive livable streets network that serves all users of the system -
vehicles, pedestrians, bicycles and public transit. Maintain level of service (LOS) D or
better for all modes that are subject to this multi-modal level of service (MMLOS)
standard, as identified in Table 3-1 of the General Plan Mobility Element, excluding LOS
exempt intersections and streets approved by the City Council.
The service levels for each travel mode are represented as a "grade" ranging from LOS A
to LOS F: LOS A reflects a high level of service for a travel mode (e.g. outstanding
characteristics and experience for that mode) and LOS F would reflect an inadequate level
of service for a travel mode (e.g. excessive congestion for vehicles, inadequate facilities
for bicycle, pedestrian, or transit users).
B. Livable Streets
The California Complete Streets Act (2008) requires cities in California to plan for a
balanced, multi-modal transportation system that meets the needs of all travel modes.
Accomplishing this state mandate requires a fundamental shift in how the city plans and
designs the street system -recognizing the street as a public space that serves all users
of the system (elderly, children, bicyclists, pedestrians, etc.) within the urban context of
that system (e.g. accounting for the adjacent land uses).
• Prior to adoption ofthe General Plan Mobility Element on September 22, 2015, the
growth management circulation performance standard was based on the circulation
needs of a single mode of travel....: the automobile.
• The General Plan Mobility Element identifies a new livable streets strategy for mobility
within the city.
• The livable streets strategy focuses on creating a 'multi-modal' street network that
supports the mobility needs of pedestrians, bicyclists, transit users, and vehicles.
• Providing travel mode options that reduce dependence on the vehicle also supports
the city's Climate Action Plan in achieving its goals of reducing greenhouse gas
emissions within the city.
C. Street Typology
The city's approach to provide livable streets recognizes that improving the LOS for one
mode of transportation can sometimes degrade the LOS for another mode. For example,
pedestrian friendly streets are designed to encourage pedestrian uses and typically have
slow vehicle travel speeds and short-distance pedestrian crossings that restrict vehicle
mobility. Therefore, the General Plan Mobility Element's livable streets approach
Dec. 17, 2019 Item #22 Page 15 of 28Aug. 07, 2023 Item # 5 Page 19 of 635June 3, 2024 Item #4 Page 28 of 41
Exhibit 2
identifies, based on the location and type of street (street typology), the travel modes for
which service levels should be enhanced and maintained per the MM LOS standard (LOS
D or better).
• Mobility Element Table 3-1 describes the livable street typologies and Figure 3-1
depicts the livable street system.
• The street typology identifies which modes of transportation are subject to, and which
modes are not subject to, the MM LOS standard.
• The vehicle mode of travel is subject to the MM LOS standard only on the following
street typologies: Freeways, Arterial Streets, Arterial Connector Streets, and Industrial
Streets.
• The city has historically monitored vehicle LOS along 26 street segments.
o When the Mobility Element was adopted in 2015, eight of those street
segments were designated with street typologies where the vehicle is
accommodated but is not subject to the MM LOS standard.
o These eight street segments are streets where the LOS of other travel modes
(pedestrian, bicycle, transit) is a priority.
o These eight street segments were not monitored for vehicular LOS in this
report.
o Vehicular LOS data was collected along the remaining eighteen (26-8=18)
street segments as discussed below.
D. Methods to Measure Multi-Modal Level of Service (MMLOS)
• Vehicle LOS is measured as described below.
• The method to measure pedestrian, bicycle and transit LOS is based on the approach
used in preparation of the General Plan Environmental Impact Report (EIR), which
identifies attributes of a location and identifies a qualitative LOS grade based on the
attributes of the pedestrian, bicycle or transit facility. Each attribute contributes to a
point system that, when the total points for all attributes are added together,
corresponds to a qualitative letter grade. Following the adoption of the General Plan
Mobility Element and the MMLOS standard, city staff developed the MMLOS Tool,
which refines the method used in the General Plan EIR.
E. Changing How Vehicle LOS is Measured
During this reporting period, changes were made to how vehicle LOS is measured, in
comparison to previous years. The changes are summarized below and were made to
be consistent with the General Plan Mobility Element, recent changes to the California
Environmental Quality Act (CEQA), and the latest version of the Highway Capacity
Manual (HCM).
Dec. 17, 2019 Item #22 Page 16 of 28Aug. 07, 2023 Item # 5 Page 20 of 635June 3, 2024 Item #4 Page 29 of 41
Exhibit 2
, • Eliminated intersection vehicle LOS analysis.
The city has historically monitored vehicle LOS using both intersection and street
segment methodologies. The city eliminated the use of intersection LOS analysis and
now evaluates vehicle LOS using only street segment LOS analysis.
• Updated street segment vehicle LOS analysis.
The methodology used to evaluate vehicle LOS along street segments was updated to
be consistent with the Highway Capacity Manual, per the General Plan Mobility
Element. This update resulted in significantly reduced roadway capacities which
subsequently led to significantly lower LOS results on most roadway segments.
• Re-Defined street segments to monitor.
The 18 street segments that were historically monitored and will continue to be
monitored for vehicle LOS have been divided into 43 smaller street segments.
Changes in the number of lanes, signal spacing or speed limit define the segment
division. For this reporting period, traffic counts were not collected for all 43 street
segments. Rather, traffic counts were collected at the same 18 historical locations as
in previous years, and vehicle LOS is reported for the 18 street segments that align
with the historical locations. The other 25 street segments (43-18=25) were not
monitored in this report. All 43 street segments will be monitored in 2019.
• Changing vehicle LOS monitoring from summer conditions to average spring/fall
conditions.
The schedule for collecting field data for vehicle LOS was changed from summer to
spring and fall data collection. The industry standard is to monitor traffic in the spring
and fall to reflect typical conditions when school is in session. This report reflects
traffic data gathered in the fall of 2018. Traffic data is scheduled to be collected in the
spring of 2019.
Dec. 17, 2019 Item #22 Page 17 of 28Aug. 07, 2023 Item # 5 Page 21 of 635June 3, 2024 Item #4 Page 30 of 41
Exhibit 2
F. LOS D Exemptions
The City Council has the authority to exempt a street facility from the LOS D standard if
the street facility meets one or more of the following criteria from General Plan Mobility
Element Policy 3-P.9:
To exempt the vehicle mode of travel from the LOS standard at a particular street
intersection or segment, the intersection or street segment must be identified as built-out
by the City Council because:
a. Acquiring the rights of way is not feasible; or
b. The proposed improvements would significantly impact the environment in an
unacceptable way and mitigation would not contribute to the nine core values of
the Carlsbad Community Vision; or
c. The proposed improvements would result in unacceptable impacts to other
community values or General Plan policies; or
d. The proposed improvements would require more than three through travel lanes
in each direction.
The following street facilities were identified in the General Plan and are expected to
provide a vehicle level of service below LOS D at buildout. Per General Plan Mobility
Element Policy 3-P.10, the following street facilities, including the intersections along
these segments, are exempt from the vehicle level of service standard:
• La Costa Avenue between lnterstate-5 and El Camino Real
• El Camino Real between Palomar Airport Road and La Costa Avenue
• Palomar Airport Road between lnterstate-5 and College Boulevard
• Palomar Airport Road between El Camino Real and Melrose Drive
G. FY 2017-18 Facility Adequacy Analysis
This report includes circulation facility adequacy analysis for FY 2017-18. The details of
all LOS results are found in the 2018 GMP traffic monitoring data. The following table
summarizes the street segments where vehicle and other modes of transportation exceed
(do not meet) the MM LOS standard (LOS Dor higher).
1. Street Segments with Vehicle LOS Exceeding LOS D Standard
Compared to previous growth management monitoring reports, this report identifies
more street segments that do not meet the MM LOS standard -LOS Dor higher. The
increase in segments with a LOS below Dis primarily due to the changes in how vehicle
LOS is measured (as summarized above), and to a lesser degree changes in volume of
vehicles compared to previous years. Following this report, city staff will deliver a
Dec. 17, 2019 Item #22 Page 18 of 28Aug. 07, 2023 Item # 5 Page 22 of 635June 3, 2024 Item #4 Page 31 of 41
Exhibit 2
more detailed report to the City Council on the vehicle LOS reported in the table below
and shown in Figure 4.
Deficient Level of Service Adjacent Facility
Roadway From To (LOS) Management Zone
Segment AM PM (LFMZ)
El Camino Real Oceanside Marron Road E E 1, 2
City Limits
El Camino Real Marron Road Oceanside E E 1, 2
City Limits
El Camino Real College Blvd . Cannon Road C F 5, 8, 14, 15, 24
El Camino Real Cannon Road College Blvd F B 5, 8, 14, 15, 24
College Blvd. Aston Palomar B F , 5
Avenue Airport Rd .
Melrose Drive Vista City Palomar F E 5, 18
Limits Airport Rd .
Cannon Road El Camino College Blvd D F 8, 14,15,24
Real
Cannon Road College Blvd El Camino E D 8, 14, 15, 24
Real
2. Roadway Segments with Pedestrian LOS Exceeding LOS D Standard
None (all of the roadway segments monitored met the LOS standard)
3. Roadway Segments with Bicycle Los Exceeding LOS D Standard
None (all of the roadway segments monitored met the LOS standard) . .
4. Roadway Segments with Transit LOS Exceeding LOS D Standard
None (the recently adopted Travel Demand Management ordinance addresses all
outstanding issues)
Dec. 17, 2019 Item #22 Page 19 of 28Aug. 07, 2023 Item # 5 Page 23 of 635June 3, 2024 Item #4 Page 32 of 41
· t ✓r,
\\ ·~~ ·--_pt✓~y-
\ \ 1
_.--~¥~
I
--Deficient Street Segment
Highway
== Major Street
== Planned Street
-+-+-+-+-+ Ra i I road
Lagoon
( City of
Carlsbad
Deficient Street Segments
-"'--
Wi:eu:u..&.'4 -~r ~-/
With Local Facility
Management Zones
"".-='""., .. 3,0C-0
Figure 4: Deficient Street Segments and LFMZ
Exhibit 2
Dec. 17, 2019 Item #22 Page 20 of 28Aug. 07, 2023 Item # 5 Page 24 of 635June 3, 2024 Item #4 Page 33 of 41
Exhibit 2
H. Buildout Facility Adequacy Analysis
The Environmental Impact Report for the 2015 General Plan evaluated how buildout of
the land uses planned by the General Plan will impact the vehicle, pedestrian, bicycle and
transit levels of service, and identified that additional circulation facilities may need to be
constructed in order to meet the GMP performance standard at buildout. The following
summarizes the results of that evaluation:
Vehicle Level of Service at Buildout
• Additional future road segments (extensions of College Boulevard, Poinsettia Lane
and Camino Junipero) needed to accommodate the city's future growth were
identified as part of the General Plan update. The General Plan Mobility Element
identifies these needed future road segments as "Planned City of Carlsbad Street
Capacity Improvements."
• The General Plan also called out the need to implement the scheduled lnterstate-5
North Coast Project and lnterstate-S/lnterstate-78 Interchange Improvement Project
that are needed to accommodate future growth.
• The Capital Improvement Program (CIP) funds projects that will upgrade the LOS
including several roadway widenings along El Camino Real near: College Road
(northbound), La Costa Avenue (southbound), and Cassia Road (northbound).
• The General Plan EIR identifies travel demand management (TDM) and traffic system
management (TSM) as mitigation measures for roadway sections that have been
given LOS exemptions.
Pedestrian, Bicycle and Transit Level of Service at Buildout
Improvements to pedestrian, bicycle and transit facilities may be needed to ensure
compliance with the MM LOS standard at buildout. Needed improvements will be
identified after the city has completed an evaluation of the facility according to the
roadway typology.
I. Next Steps
Carlsbad Municipal Code f 21.90.130 (c) states:
If at any time it appears to the satisfaction of the city manager that facilities or
improvements within a facilities management zone or zones are inadequate to
accommodate any further development within that zone or that the performance
standards adopted pursuant to Section 21.90.100 are not being met, he or she
shall immediately report the deficiency to the council. If the council determines
that a deficiency exists, then no further building or development permits shall be
issued within the affected zone or zones and development shall cease until an
Dec. 17, 2019 Item #22 Page 21 of 28Aug. 07, 2023 Item # 5 Page 25 of 635June 3, 2024 Item #4 Page 34 of 41
Exhibit 2
amendment to the city-wide facilities and improvements plan or applicable local
facilities management plan which addresses the deficiency is approved by the city
council and the performance standard is met.
A staff report will be sent to the City Council that includes the following:
• a list of the street segments subject to the LOS D standard and do not meet this
standard;
• a list of these deficient street segments that meet the conditions for an
exemption;
• a list of projects that could be implemented to meet the LOS D standard;
• a request that City Council determine which of these segments is deficient,
identify which ones should gain exemptions, and identify which projects to fund
in order to meet the LOS D standard.
Dec. 17, 2019 Item #22 Page 22 of 28Aug. 07, 2023 Item # 5 Page 26 of 635June 3, 2024 Item #4 Page 35 of 41
i , I , I
I I
I I
T ' --Deficient Street Segment
Highway
== Major Street
==· Planned Street
-+--+--+-+-+ Ra i I road
Lagoon
( City of
Carlsbad
Deficient Street Segments
W1ith Local Facility
Management Zones
Exhibit 3
Dec. 17, 2019 Item #22 Page 23 of 28Aug. 07, 2023 Item # 5 Page 27 of 635June 3, 2024 Item #4 Page 36 of 41
:,:
I
LOCATION MAP
BEFORE
I
t
PALOMAR AIRPORT RD.
AFTER
g
a:l
~ ...J cl c...,
PALOMAR AIRPORT RD.
PROPOSED IMPROVEMENTS
PROPOSED
IMPROVEMENTS
LI!il
~
PROPOSED
IMPROVEMENTS
PACIFIC
OCEAN
PROJECT NAME
COLLEGE BOULEVARD & PALOMAR AIRPORT
ROAD INTERSECTION IMPROVEMENTS
PROJECT
NUMBER
6028
PLOTTED BY: SCOTT EVANS PLOT DATE:B/31/11 PATH:F: \AURORAI.IVYROJEC7S\AUTOCAD\FOR BRANDON OCT 2O19\FORBRANDONNOV2O19_COl.1£GEATPAR_J.DWG
EXHIBIT
4
Dec. 17, 2019 Item #22 Page 24 of 28Aug. 07, 2023 Item # 5 Page 28 of 635June 3, 2024 Item #4 Page 37 of 41
PROJECT NAME
LOCATION MAP
BEFORE AFTER
Cl:: a
bl 0
I
Q:::
cj
::!l;
I t
"' "' 't It '; '; -
PALOMAR AIRPORT RD. PALOMAR AIRPORT RD.
PROPOSED IMPROVEMENTS
PROPOSED
IMPROVEMENTS
CITY Of OCEANSIDE
PAClf'IC
OCEAN
78
MELROSE DRIVE & PALOMAR AIRPORT
ROAD INTERSECTION IMPROVEMENTS
PROJECT
NUMBER
6034
EXHIBIT
5
PLOTTED BY: Aurora Moreno-Valdez PLOT DA 7E:: 11/15/19 PA 1H: F: \AURORAMVYROJEC75\AUTOCAD\FOR BRANDON OCT 2O19\FORBRANDONNOV2O19_J.,/ELROSEA 1PAR_3.DKG Dec. 17, 2019 Item #22 Page 25 of 28Aug. 07, 2023 Item # 5 Page 29 of 635June 3, 2024 Item #4 Page 38 of 41
Exhibit 6
TRAFF I C AND MOBILITY COMMISSION
Minutes Council Chambers
1200 Ca rls bad Village Drive
Ca rlsbad, CA 92008
M onday, Dec. 2, 2019, 5:00 p.m.
CALL TO ORDER: Vice-Chair Johnson called the Meeting to order at 5:01 ff m. ✓,;'(? ",
•Aiz; ,. <W?, ROLL CALL: Present: Johnson, Hunter, Penseyres, Fowler, Linke ,and Pere,z. ll;f .,,_:,?{-Absent: Gocan ;;:;~ ',,;-,, ~, ~,, ,·,,;, ?;~?{(. dd?,» ':, -i::.-,~,,;, .-,:,.,../J"•:r~// ' .,,~ii',
APPROVAL OF MINUTES: // fw,,,, •• <1'.?;-2:-:;, 1~ ; ~0-~
Motion by Commissioner Hunter, seconded by Comrnissi.oher Fowle ~;to approve the rrfin(ftef for
Nov. 4, 2019, with the request to include the letter that C~h1issio,nfr:L1r:ike prepared \d~~ to the City • ·//,/,;,;,,, ,;:,?'· , , Council · ,:,_;:,.,,4::; . ~½
Motion carried 4/0/2/1 {Abstained: Hunter and Johnson, Absentf:,G.oc;an) -/✓• '·:.-;;:}/;:~. ·;{~~>-·· •'·.~~~ ;,-w.,,,, ~{f"0-
PUBLIC COMMENTS ON ITEMS NOT LISTED'ONTHE AGENtf}~t {~/?
.-f:;,i .. , ,.,¼;;,~~;,,·-;,,/.,. ~;/:·
There was no public comment. *'" ., .. ;;,✓',, ;:;;:,, / , ,/.
•,• /,-,;,/.,~,.;%'-'• V ':(~; /?.~. . .. .,.. ... 7/*J?/1·,;,?j·
1/., ;p . r,;,1/,'{,;(6'/,/ ,;;,/,,2.';,:i-... ;,;;~ /~ -~::x,"
DEPARTMENTAL REPORJTS:1_~::w/ '1~/ .?:·-;,
/,/'j"·, .:;,.,.;:%~ ~ ;:--?( ','(-??:'\ ~}
, ,f};,,);,, ~;;:?: .,, ,
1. POLICE MONTHi.YREPORTJ (Staff contact:'Eieutenant Christie Calderwood, Police ··~/,%r'h'> //4 "V///
~epartment) -lnfor11J,9,,tt~f;f\'l\~:,.,,;,;, , .. ,. . « f' . . ..
L1euter;ianN::alderwood teported··orYQctober and November Events on the Traffic D1v1s1on . -,,.._I;'· W~';;y...;~,-;,,.,,. .. _ '-'.~• /2~~, .. .-,.• . .-;~,,-z.
L(t~temint 'cal~:~~g~d rep,P{}?::~ on a fatal, solo vehicle collision at the 7100 block of Corintia
,,,:i'~peet. "?fJ;? _ -~_w.✓,. -, ,,: ;::?if:a$J month during th,e;T&MC me,et{ng the commissioners inquired about a crossing guard ·, . ..-~~59~~ . ,.,.,~•~-~·~-
collision next to Calavera-Hills Elementary School and Lieutenant Calderwood reported that the '~/// ½·-?, 9~~ ''(·
crossirjt ~~ard did not ~~1,1t to press charges.
,.'q1/,?; :ff .,,, :.::.: ,///
2. FISCAL y~~,-lOl ~;.;}'ANNUAL GROWTH MANAGEMENT MONITORING REPORT UPDATE -
{Staff Contact:·\~iji~cimez, Hossein Ajideh, Public Works).
Deputy City Manager Gomez presented an. informational report on transportation systems and .. ..,,,
demand management programs.
Engineering Manager Ajideh is asking the Traffic & Mobility Commission to support staff's
recommendation on proposed actions on four deficient street facilities to the City Council.
° Commissioner Linke stressed the need to implement comprehensive Transportation Demand
Management {TOM) and Transportation System Management (TSM) programs to avoid a
piecemeal approach. He noted that the TOM program only applied to non-residential projects of
a certain size, therefore residential projects and smaller projects would not be part of the TOM
Public Works 1
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mitigation measures. He recommended staff monitor all roads including those not subject to the
auto Level Of Service (LOS) standard.
□ Commissioner Linke asked what the ridership was for the Carlsbad Connector program and if
.there was a target ridership established. Transportation Planning and Mobility Manager Schmidt
responded that early results report an average of 500 riders use the service per week and that
no ridership target was established for the program. It is a pilot project.
□ Commissioner Linke correspondence related to Fiscal Year 2017-18 Annual Growth
Management Monitoring Report Update is on file with the office of the City Clerk.
Motion by Commissioner Linke, seconded by Commissioner Hunter to SUPROrt staff's recommendation
on four deficient street facilities and to expedite Capital Improvement Pr:ogram (CIP) Project No. 6028
and CIP Project No. 6034.
Motion carried: 6/1 {Absent: Gocan) /J
Motion by Commissioner Linke, seconded by Commissione~Pow er, to recommend the City Council to
prioritize Transportation Demand Management and Transi:i ofution System Management programs to
mitigate congestion on the exemption roads.
Motion carried: 6/1 (Absent: Gocan)
3. POINSETTIA LANE TRAFFIC ANALYSIS -{Staff Contact: ofin Kim, Public Works) -
Informational item
City Traffic Engineer presented the Traffic Studies and Traffic Investigations performed at
Poinsettia Lane, the results and the recommenaation of traffic sjgnals at intersections of
Poinsettia Lane/Oriole Court/Skimmer Court anfrPoinsettia [ane/Cassia Road.
□ Acting Chair Johnson noted that result changed from LOS A to LOS F apparently due to
inconsistent LOS methodologies being applied. She recommended staff standardize the LOS
methodology to produce consistent results.
□ Acting Chair Johnson askecJ if the monitoring'of exemption streets and non-exemption streets
are eyaltf'if&;,wjJh a consistent LOS methodology. Senior Engineer Bilse explained that the same
1,~if~;th;d~fff{{f"~~~sed to evaluate both exempt and non-exempt streets.
~J i qmmissioner P€n~~hes reco mencled that staff evaluate alternatives to the proposed traffic 77❖1,~fJ/>n Poinsettia Cfi ~nd cons·der installing roundabouts. This alternative would reflect a
sin gli• lane in each dire-et ion, lower speeds and result in a more pedestrian and bicycle friendly
envirci'ri~~m: The Mult\filodal Level of Service (MM LOS) was reported as "A" for Poinsettia
Lane, and•:h.e'~id not fe.el. that adequately reflected the proposed four lane signalized high-speed
d ~ <. ?~~;-~ :;:;, roa way. ✓/ x,:,,. ;,1/;, □ Commission~r'~qjter commented that the proposed roadway configuration and traffic signals
are consistent Y-{,itli current master planning documents that call for Poinsettia Lane to be a four-
lane high-speed arterial road.
□ Commissioner Perez asked if traffic calming was proposed on Cassia Road . City Traffic Engineer
Kim noted that formal traffic calming measures were not included in the plan, but several speed
feedback signs are scheduled to be installed along Cassia Road and linked to the traffic
management center.
□ Commissioner Linke commented that roundabouts seem to be a viable option that staff should
, have considered based on the relatively low traffic volumes reported for Poinsettia Lane. _He
also agreed with Commissioner Hunter that is too late to make changes to the master plans for
Page 2 of3
Public Works
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Poinsettia Lane, and that the proposed traffic signals are appropriate for the current roadway
plans. He commented that there were numerous errors identified in the report. He noted that
the ,T&MC should have been asked to provide input at an earlier stage.
° Commissioner Fowler fully supports the Poinsettia Lane as currently designed. He disagrees
with roundabouts.
Commissioner Linke correspondence related to Poinsettia Lane Traffic Analysis is on file with the
office of the City Clerk.
Vice-Chair Johnson adjourned the'Traffic & Mobility Commission Meeting on Dec. 2, 2019, at 8:20 p.m.
Eliane Paiva, Minutes Clerk
Page 3 of3
Public Works
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Nathan Schmidt, Transportation Planning and Mobility Manager
June 3, 2024
CIP Project Updates:
College Blvd. & Palomar Airport Rd.
Melrose Dr. & Palomar Airport Rd.
RECOMMENDED ACTION
Receive a report and make a recommendation to the
City Council to adopt a resolution authorizing:
1.Removal of the College Boulevard and Palomar
Airport Road Growth Management Plan Vehicular
Level of Service Deficiency Declaration and removal
of the Associated Improvements Project No. 6028
from the Capital Improvement Program; and
2.Revising the scope of work of the Melrose Drive and
Palomar Airport Road Improvements, Capital
Improvement Program Project No. 6034.
ITEM 4: CIP Project Updates
3
REVIEW HISTORY
•Dec. 7, 2019: City Council declared facilities deficient for
Vehicle Level of Service (LOS), as part of the FY 2017-18
Growth Management Plan (GMP) Monitoring Report
•In response, City Council prioritized CIP # 6028 and # 6034 to
address the Vehicle LOS deficiencies
•CIP 6028: College Blvd. and Palomar Airport Rd.
•CIP 6034: Melrose Dr. and Palomar Airport Rd.
•Aug. 7, 2023: Staff presented an item to the Traffic & Mobility
Commission regarding these two CIP projects. Staff indicated
would return to the TMC with a status update in 2024.
ITEM 4: CIP Project Updates
College Boulevard from Aston Avenue to Palomar
Airport Road
College Blvd. north of Palomar Airport Rd.
Existing CIP
College Boulevard from Aston Avenue to Palomar
Airport Road
7
COLLEGE BLVD. / PALOMAR AIRPORT RD. CIP
STAFF RECOMMENDATION
•Construction of the previously identified CIP # 6028 is no longer
necessary
•Remove Vehicle LOS deficiency declaration from future GMP
Monitoring reports
•Rationale:
•This segment has consistently maintained an acceptable
Vehicle LOS (LOS B or better) for the last three monitoring
cycles
•Staff will continue to monitor this segment in future GMP
Monitoring Reports and return to the City Council with
additional recommendations if needed
ITEM 4: CIP Project Updates
Melrose Avenue from the City Limits and Palomar
Airport Road
Melrose Ave. north of Palomar Airport Road
Existing CIP
Melrose Ave. north of Palomar Airport Road
Proposed CIP Project Revisions
•Remove proposed additional southbound
thru-lane
•Install “Right-Turn
Overlap” signal on the eastbound right turn
lane
•Reconfigure lane widths to maximum of
11 ft. wide
Add Right-Turn
Overlap at
Eastbound PAR
Max. 11-ft Wide
Travel Lanes
Remove proposed
additional thru-Lane
Melrose Avenue from the City Limits and
Palomar Airport Road
FACTORS TO CONSIDER FOR INTERSECTION
IMPROVEMENTS
Adding additional through lane is not needed and will not affect the LOS of
the intersection. It additionally has negative issues associated with:
Reduces pedestrian experience by longer crosswalk,
Wider street promoting latent demand, higher speeds, and potentially
greater risks.
Increase VMT through Carlsbad.
More impervious pavement and runoff
Expensive construction costs, higher long term costs
NEXT STEPS
Staff will present this item to City Council at their June
11, 2024 meeting. If City Council approves staff
recommendations, the remaining balance of funds for
the proposed CIP projects will be used for other
priority projects.
ITEM 4: CIP Project Updates
RECOMMENDED ACTION
Receive a report and make a recommendation to the City Council
to adopt a resolution authorizing:
1.Removal of the College Boulevard and Palomar Airport Road
Growth Management Plan Vehicular Level of Service
Deficiency Declaration and removal of the Associated
Improvements Project No. 6028 from the Capital Improvement
Program; and
2.Revising the scope of work of the Melrose Drive and Palomar
Airport Road Improvements, Capital Improvement Program
Project No. 6034.
ITEM 4: CIP Project Updates