TO:
Honorable Mayor and Members of the City Council
THROUGH:
Bruce Moe, City Manager
FROM:
Talyn Mirzakhanian, Community Development Director
Erik Zandvliet, T.E., City Traffic Engineer
SUBJECT:Title
Consideration of the Parking and Public Improvements Commission Recommendations for Initial Traffic Calming Measures Related to the Oak Avenue / Manhattan Village Shopping Center Neighborhood Traffic Management Study; Consideration of a Resolution to Add Stop Signs at Four Intersections and Adoption of a Determination of Exemption Pursuant to Section 15301(c) of the California Environmental Quality Act (CEQA) (Community Development Director Mirzakhanian).
(Estimated Time: 1 Hr.)
A) APPROVE TRAFFIC CALMING MEASURES
B) ADOPT RESOLUTION NO. 24-0045
C) ADOPT DETERMINATION OF EXEMPTION PURSUANT TO CEQA
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RECOMMENDATION:
Staff recommends that the City Council approve the following Parking and Public Improvements Commission recommendations for initial traffic calming measures related to the Oak Avenue / Manhattan Village Shopping Center Neighborhood Traffic Management Study with supplemental enforcement of speeding and stop sign violations:
1. Install speed limit signs at all entrances to the residential neighborhood in the study area;
2. Construct curb, gutter and sidewalk to replace the painted edgeline in the curve at Ardmore Avenue and 33rd Street;
3. Conduct a pedestrian safety study at the intersection of Marine Avenue and Cedar Avenue;
4. Prohibit parking on west side of Oak Avenue for 30 feet north of 27th Street and trim tree branches on northeast corner of Oak Avenue and 27th Street;
5. Conduct a study to verify recurring non-resident parking intrusion and determine if a residential parking permit program would be appropriate on residential streets immediately west of the commercial properties along Sepulveda Boulevard between Manhattan Beach Boulevard and 33rd Street; and
6. Adopt Resolution No. 24-0045 approving stop signs in all directions at the following intersections:
a. 17th Street and Oak Avenue;
b. 19th Street and Oak Avenue;
c. 19th Street and Elm Avenue; and
d. 18th Street and Cedar Avenue.
FISCAL IMPLICATIONS:
The recommended initial traffic calming measures can be implemented with currently budgeted funds, with the exception of new sidewalk, curb and gutters on the south side of 33rd Street west of Sepulveda Boulevard, which would need to be added to the City’s Capital Improvements Plan (CIP) as a future project subject to funding prioritization and grant opportunities.
BACKGROUND:
On November 19, 2002, the City Council approved the City-Wide Neighborhood Traffic Management Program (NTMP). The NTMP established a set of procedures to evaluate neighborhoods in an effort to improve livability of neighborhood streets. It created a consistent way for the City to evaluate traffic requests, so that a comprehensive plan can be implemented to minimize adverse impacts both before and after implementation of traffic calming measures. Since 2003, NTMP’s have been completed in five areas of the City, as well as for all school area neighborhoods.
In 2014, the City approved an expansion and remodel of the Manhattan Village Shopping Center. One of the conditions of approval required the developer to contribute $20,000 towards a City-initiated traffic study to determine if the expansion causes any adverse traffic impacts to the neighborhoods surrounding the shopping center. The study area includes the neighborhoods immediately adjacent to Sepulveda Boulevard between Rosecrans Avenue and Manhattan Beach Boulevard, with emphasis given to streets that are alternate routes to/from the shopping center.
Previous traffic calming actions in the study area included a full street closure of 30th Street just west of the commercial properties along Sepulveda Boulevard (1985); truck prohibition signs on Marine Avenue west of Sepulveda Boulevard (1989); additional stop signs, crosswalks and centerline on Marine Avenue between Pacific Avenue and Sepulveda Boulevard (1999); and a Shopping Center/Sepulveda Boulevard wayfinding sign on Ardmore Avenue at Pacific Avenue (1999).
On July 5, 2023, the City Council approved a number of initial traffic calming measures to address speeding and collisions on Valley Drive between 27th Street and Sepulveda Boulevard. These measures include a double yellow centerline; speed-activated flashing speed limit sign; center median island and road narrowing; marked crosswalks and bulb outs at Elm Avenue and Walnut Avenue; and stop signs on Valley Drive at Pine Avenue. While the stop signs at Pine Avenue have been installed, other measures have not yet been implemented. All of the initial measures will be reviewed approximately six months after installation to analyze their effectiveness and determine whether additional measures are necessary.
On August 24, 2023, the Parking and Public Improvements Commission (PPIC) discussed the initial study area findings made by the City Traffic Engineer. The PPIC also heard public testimony from six residents who identified concerns and observations about traffic and speeding within the study area. This testimony as well as written comments received before and after the meeting were used to evaluate potential traffic calming measures.
On March 28, 2024, the PPIC considered the Traffic Engineer’s analysis of the study area findings and staff’s recommendations of initial traffic calming measures at a public meeting attended by the study area’s residents. After hearing public testimony from seven residents, reviewing written correspondence and discussing the matter, the Commission voted unanimously to support staff’s recommended traffic calming measures.
DISCUSSION:
The Oak Avenue Neighborhood Traffic Management Study area is generally defined as the corridor of parallel streets to the east and west of Sepulveda Boulevard including cross-streets that would likely experience traffic or parking intrusion related to the shopping center. It is roughly bounded by Rosecrans Avenue, Village Drive, Magnolia Avenue, Manhattan Beach Boulevard, and Pine Avenue. Primary access for the neighborhood west of Sepulveda Boulevard is via Valley Drive, Ardmore Avenue, 27th Street and Marine Avenue. Primary access for the neighborhood east of Sepulveda Boulevard is via Marine Avenue, Meadows Avenue, Manhattan Beach Boulevard and 18th Street. Manhattan Village Shopping Center is located east of Sepulveda Boulevard between Marine Avenue and Rosecrans Avenue. Residential properties within the study area are mainly single family homes. The land uses along Sepulveda Boulevard, Rosecrans Avenue, and Marine Avenue are primarily retail, office and personal services, with some restaurants. No elementary schools are located within the study area. The street network is shown on the Location Map attached to this report.
Sepulveda Boulevard is classified as a Regional Arterial roadway pursuant to the City’s adopted Mobility Plan. Rosecrans Avenue is classified as Major Arterial roadway. Marine Avenue is classified as a Residential Collector Street west of Sepulveda Boulevard and a Minor Arterial roadway to the east. Manhattan Beach Boulevard is classified as a Minor Arterial roadway west of Sepulveda Boulevard and a Major Arterial roadway to the east. Valley Drive and Ardmore Avenue are classified as Residential Collector Streets. All other streets within the study area are Local Streets.
Pursuant to the City’s Mobility Plan, Local Streets are intended “solely for access to adjacent residential land uses. They provide for circulation within a residential neighborhood, including bicycle and pedestrian access. Any through traffic, including through traffic from one residential neighborhood to another, is discouraged. Local streets have one lane in each direction and have speed limits of 25 miles per hour or slower. Curbside parking is generally allowed where the street width is sufficient to support both moving traffic and parking lanes.”
The neighborhood streets in the study area east of Sepulveda Boulevard between Rosecrans Avenue and Valley Drive are improved with curb, gutters and sidewalks with parkways. Neighborhood streets in the study area west of Sepulveda Boulevard north of Valley Drive are improved with curb, gutters and some sidewalks, while the streets south of Ardmore Avenue are improved with rolled curbs and some parking pads. Parking is generally allowed on both sides of residential streets. A full street closure is located on 30th Street west of the commercial properties along Sepulveda Boulevard to discourage commercial traffic intrusion into the neighborhood.
Traffic Volumes
The NTMP study began in 2018 when the City conducted baseline traffic counts prior to construction of the shopping center expansion. In December 2022, the City conducted follow-up traffic counts after the shopping center was substantially completed, and then compared those counts to baseline traffic counts. It should be noted that the follow-up counts were made during the holiday season to capture peak daily volumes. A comparison of before-and-after traffic volumes is detailed in the Daily Traffic Volume Map attached to this report.
Between 2018 and 2022, daily traffic volume on Sepulveda Boulevard decreased by about 15 percent. Correspondingly, it was found that traffic volumes on the study area streets decreased by a similar amount, as shown in the Daily Traffic Volume Map. One exception is a small increase of less than 36 vehicles per day on Elm Avenue between Manhattan Beach Boulevard and 19th Street.
Vehicle Speeds
Before and after speed counts were conducted on key streets at neighborhood entry points to determine if speeding is prevalent or has changed within the study area. The speed survey results are summarized in the Speed Survey Map attached to this report.
The average and 85th percentile speeds (speed at or below which 85 percent of motorists drive) on all studied street segments remained the same or slightly decreased between 2018 and 2022. Three street segments have 85th percentile speeds above the speed limit, including Oak Avenue between 35th Street and Rosecrans, Oak Avenue between 17th Street and Marine Avenue, and 18th Street east of Cedar Avenue.
Collision History
A review of the collision history within the neighborhood was conducted for the period between January 1, 2018 and December 31, 2022. The review found no locations with recurring collisions that would indicate a high crash rate within the study area, with the exception of a portion of Valley Drive between Elm Avenue and Oak Avenue. As noted above, the City Council recently approved traffic calming measures on this street segment that is expected to help reduce the potential for collisions.
Neighborhood Feedback
Prior to and subsequent to the August 24, 2023 PPIC meeting, the City received public comments from residents in the study area which are summarized below:
A. High volumes and backed up traffic on Marine Avenue
B. Speeding on 19th Street between Poinsettia Avenue and Oak Avenue
C. Speeding on Oak Avenue (various locations)
D. Requests for stop signs in all directions at 17th Street and Oak Avenue
E. Petition for stop signs in all directions at 19th Street and Elm Avenue
F. Requests for stop signs in all directions at 19th Street and Oak Avenue
G. Pedestrian crossing concerns at Marine Avenue and Cedar Avenue
H. Limited driver visibility at 18th Street and Cedar Avenue
I. Safety concerns where Ardmore Avenue, 33rd Street and Oak Avenue join
J. Cut-through traffic and failure to stop at the intersections along Magnolia Avenue
K. Commercial parking in neighborhood around 30th Street and Oak Avenue
L. Unsafe turning movements at Marine Avenue and 25th Street
M. Pedestrian access needed on 30th Street between Oak Avenue and Sepulveda Boulevard
Potential Traffic Calming Measures
The NTMP includes a toolbox of traffic calming measures that can be deployed to address certain neighborhood traffic issues. Each toolbox measure has different advantages, disadvantages, costs and limitations. Level One and Two tools are intended to be implemented as initial trial measures, with Level Three tools considered only if initial measures fail to meet the intended outcome. Level One tools are listed below and described more fully in the NTMP Handbook attached to this report:
Level One Tools
• Enhanced Police Enforcement
• Speed Monitoring Trailer
• Neighborhood Traffic Watch Program
• Higher Visibility Crosswalk
• Pedestrian Crossing Signs
• Electronic Speed Limit Signs/Larger Static Speed Limit Signs
Level Two Tools
• Traffic Signal Adjustments to Discourage Cut-Through Traffic
• Turn Restrictions Via Signage
• Rumble Strips/Dots
• Speed Awareness and Electronic Signs
• Crosswalk Warning System
• Raised Median Island
• Entry Island (Neighborhood Identification Island)
• Mid-Block Narrowing
• Chokers at Intersections
• Lane Reduction/Lane Narrowing (Restriping)
• Stop Sign as Traffic Control Measure
• Parking Restrictions
In addition to the NTMP toolbox, the City Traffic Engineer referred to the City’s Pedestrian Crossing Enhancement Policy and Mobility Plan for guidance and appropriateness of certain measures. After fully evaluating the advantages, disadvantages, physical conditions, and potential for various toolbox measures to address the identified concerns, the City Traffic Engineer recommends the following specific traffic calming measures below:
Enhanced Police Enforcement
Targeted police enforcement is recommended for locations with elevated speeds for the neighborhood, specifically Oak Avenue (entire length), 18th Street between Cedar Avenue and Magnolia Avenue, and 19th Street between Poinsettia Avenue and Oak Avenue. In addition, stop sign violations at intersections along Magnolia Avenue should be targeted for enhanced enforcement.
Speed Limit Signs
Speed limit signs should be posted on all streets entering residential neighborhood from arterial streets to remind drivers of the 25 MPH speed limit, including:
• 14th Street west of Sepulveda Boulevard;
• 18th Street east of Sepulveda Boulevard;
• 19th Street west of Sepulveda Boulevard;
• 22nd Street east of Sepulveda Boulevard;
• Cedar Avenue south of Marine Avenue;
• Magnolia Avenue south of Marine Avenue;
• Elm Avenue north of Manhattan Beach Boulevard; and
• Pine Avenue north of Manhattan Beach Boulevard.
Mid-block Narrowing
The existing painted edgeline and white delineator markers on Ardmore Avenue west of Oak Avenue are consistently run over and ignored. Eastbound speeds through the curve are too high for the driver sight distance needed to see vehicles at the intersection of Oak Avenue, or stopped vehicles waiting for the traffic signal at Sepulveda Boulevard. Construction of a raised curb in place of the painted edgeline would reduce approach speeds on Ardmore Avenue and increase sight distance for drivers on Oak Avenue. The narrowed roadway would provide sufficient parkway width to construct a sidewalk to connect the existing sidewalks on Ardmore Avenue and 33rd Street. A conceptual sketch of the narrowed roadway and sidewalk is attached as an exhibit attached to this report.
Pedestrian Crossing Evaluation
The City recently modified the turn lanes and signal timing at the intersection of Marine Avenue and Cedar Avenue to improve traffic and pedestrian safety. To accommodate dual southbound left turns and address concerns about pedestrian-vehicle conflicts, the crosswalk on the east leg of Marine Avenue was removed. This change has subsequently generated pedestrian crossing concerns. The Traffic Engineer has initiated a study to determine if any additional changes should be made to the crossing locations or signal timing at this intersection to enhance pedestrian safety further.
Multi-way Stop Signs
The State of California has established guidelines for the installation of stop signs. These criteria have been widely accepted and are used by the City of Manhattan Beach. Multi-way or all-way stop controls are generally recommended when one or more of the State criteria are satisfied and indicate the existing traffic control devices are not sufficient to assign proper right-of-way and cannot be remedied through some other means. The Traffic Engineer has evaluated five locations for multi-way stop signs, which are summarized below and detailed in Stop Sign Warrant Checklists attached to this report:
1. 17th Street at Oak Avenue Stop Signs
A stop sign warrant checklist was completed that indicates multi-way stop signs are warranted at this intersection. This intersection has sufficient right-of-way controls with two-way stop signs and does not meet minimum street volumes or collision history criteria. However, the short distance to Sepulveda Boulevard and restricted sight distance of approaching vehicles in the westbound direction combined with a higher than expected approach speed on 17th Street are special conditions that justify stop signs in all directions.
2. 19th Street at Oak Avenue Stop Signs
A stop sign warrant checklist was completed that indicates multi-way stop signs are warranted at this intersection. This intersection has sufficient right-of-way controls with two-way stop signs and does not meet minimum street volumes or collision history criteria. However, the short distance to Sepulveda Boulevard and restricted sight distance of approaching vehicles in the westbound direction combined with a higher than expected approach speed on 17th Street are special conditions that justify stop signs in all directions.
3. 19th Street at Elm Avenue Stop Signs
A stop sign warrant checklist was completed that indicates multi-way stop signs are warranted at this intersection. This intersection has sufficient right-of-way controls with a stop sign on Elm Avenue and does not meet minimum minor street volumes or collision history criteria. However, the sight distance for drivers waiting at the stop signs on Elm Avenue is somewhat restricted due to property walls on the northeast corner. In addition, the narrow street width on the west leg require motorists in both directions to take turns sharing a single travel lane.
4. 18th Street at Cedar Avenue Stop Signs
A stop sign warrant checklist was completed that indicates multi-way stop signs are warranted at this intersection. This intersection has sufficient right-of-way controls with a stop sign on the north approach and does not meet minimum street volumes or collision history criteria. However, the restricted sight distance of approaching vehicles in the westbound direction due to a vertical curve and a higher than expected approach speed on 17th Street are special conditions that justify stop signs in all directions. In addition, a high-visibility crosswalk should be installed on the north approach to connect the residential sidewalks to the commercial area along Sepulveda Boulevard.
5. Oak Avenue at 27th Street Stop Signs
A stop sign warrant checklist was completed that indicates multi-way stop signs are not warranted at this intersection. This intersection has sufficient right-of-way controls with a stop sign on the east and west approaches and does not meet minimum street volumes or collision history criteria. There are sight obstruction on the northwest and northeast corners that can be remediated by the removal of one street parking space on the west side of Oak Avenue north of 27th Street, and the trimming of overgrown tree branches on the northeast corner. The speed surveys do not indicate prevalent speeding on Oak Avenue.
Resident Parking Permit Zone
There is heavy parking demand during the day near the intersection of Oak Avenue and 30th Street on weekdays. Field observations confirm that employees of businesses along Sepulveda Boulevard are parking in the neighborhood west of the street barrier on 30th Street. Parking is also heavy along Oak Avenue between Manhattan Beach Boulevard and 17th Street in locations where commercial properties abut Oak Avenue. While there is no sidewalk on 30th Street between the commercial and residential zones, there are gaps in the large pots dividing the two zones that allow for some pedestrian access. Constructing a fully accessible path through this street closure would allow residents to walk to and from businesses along Sepulveda Boulevard, but conversely might encourage more non-resident parking in the neighborhood west of Sepulveda Boulevard by employees of those businesses.
The City could consider a residential parking permit program in these two areas similar to the existing resident parking permit program east of Downtown. The existing parking program allows for short-term parking without a permit, while extended parking requires a permit hangtag, which would be issued to residents only. Prior to implementation, a parking study should be conducted to verify non-resident parking intrusion and confirm that residents are supportive of a parking permit program. The results of the study would be presented to the Commission for review and recommendations before being presented to City Council for approval of a new resident parking permit zone.
PUBLIC OUTREACH:
Residents and property owners in the study area were notified by mail and invited to the PPIC meetings on August 24, 2023 and March 28, 2024, to provide public testimony. The same residents were notified by mail of this agenda item and were invited to attend the City Council meeting or provide public input. The general public has been informed of this agenda item as part of the City’s standard meeting notice practices via public bulletin boards, website calendar. All written or voicemail correspondence related to this matter received prior to posting the agenda for this item has been attached to the staff report.
ENVIRONMENTAL REVIEW:
The City has reviewed the proposed project for compliance with the California Environmental Quality Act (CEQA) and has determined that the project qualifies for a Class 1(c) categorical exemption pursuant to Section 15301(c) Existing Facilities of the State CEQA Guidelines, as the project involves a change in traffic regulations on an existing street that would not significantly increase or decrease the amount of traffic on either street. Furthermore, there are no features that distinguish this project from others in the exempt class; therefore there are no unusual circumstances. Accordingly, no further environmental review is necessary.
LEGAL REVIEW:
The City Attorney has approved the resolution as to form and determined that no additional legal analysis is necessary.
ATTACHMENTS:
1. Resolution No. 24-0045
2. PPIC Staff Report with Exhibits - March 28, 2024
3. PPIC Minutes - March 28, 2024
4. Recommended Initial Traffic Calming Measures Map
5. Correspondence Received After Commission Meeting (March 28, 2024)