TO:
Honorable Mayor and Members of the City Council
THROUGH:
Bruce Moe, City Manager
FROM:
Anne McIntosh, Community Development Director
Erik Zandvliet, T.E., City Traffic Engineer
SUBJECT: Title
Approve Continuation of West Marine Neighborhood Traffic Management Plan Traffic Calming Measures and Implementation of Follow-Up Measures (Community Development Director McIntosh).
a) RECEIVE AND FILE FOLLOW UP REPORT
b) APPROVE CONTINUATION OF EXISTING TRAFFIC CALMING MEASURES
c) APPROVE IMPLEMENTATION OF PROPOSED FOLLOW-UP MEASURES
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Recommended Action
RECOMMENDATION:
Approve continuation of West Marine Neighborhood Traffic Management Plan traffic calming measures and implementation of the following additional measures:
1. Install “Not a Truck Route” signs with directional guidance on Marine Avenue at Highland Avenue.
2. Construct curbs and gutters to replace the temporary street realignment at Marine Avenue and 25th Street.
3. Remove overgrown vegetation on Flournoy Road and 27th Street to improve corner sight distance for vehicles and pedestrians.
4. Install pedestrian warning signs and high-visibility crosswalks on the north and south legs of Flournoy Road at 27th Street.
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FISCAL IMPLICATIONS:
The installation of signs will have minimal cost. The curbs, gutters, and crosswalk treatments have an estimated cost of $12,000, which will be paid from the Non-Motorized Transportation project funds already appropriated in the Capital Improvements Fund.
BACKGROUND:
On November 19, 2002, the City Council approved the Citywide Neighborhood Traffic Management Program (NTMP). This Program established a set of procedures to evaluate neighborhoods in an effort to improve livability of neighborhood streets. Since 2003, NTMP’s have been completed in the northeast, southeast, El Porto and south Valley Drive sections of the City, as well as all school area neighborhoods. The NTMP Program has been followed in developing a comprehensive traffic calming plan and conducting public outreach in the West Marine Avenue neighborhood, which is bounded by 20th Place, Highland Avenue, 23rd / 25th Streets and Valley Drive.
In June 2016, the City received a petition from residents along the 500 block of Marine Avenue asking the City to address speeding and safety issues on their street segment. The petition is signed by 30 residents in the vicinity of Marine Avenue. The residents expressed concern about excessive speeding along Maine Avenue and 21st Place and noted several blind spots in the area, especially at a short alley between 542 and 544 Marine Avenue that connects 21st Place and Marine Avenue.
In September 2016, the City received a second petition from residents along the 600 block of Marine Avenue between Blanche Road and Flournoy Road. The residents expressed concern about speeding on Marine Avenue and unsafe turns at 25th Street.
On June 22, 2017, 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 eight (8) residents in the neighborhood who identified concerns and observations about traffic and speeding within the study area.
On September 28, 2017, the PPIC discussed the evaluation of the City Traffic Engineer, reviewed written correspondence, and heard public testimony from 17 residents. The PPIC passed a motion to recommend that the City Council approve 8 of the 10 traffic calming measures recommended by staff on a six-month trial basis. The two measures not recommended were a survey of 21st Street residents to consider a one-way eastbound street, and installation of vehicle barricades on the alley west of Blanche Road. In addition, the PPIC recommended the installation of stop signs on Marine Avenue at Manor Drive in the eastbound and westbound directions on a six-month trial basis. The City Traffic Engineer supported this recommendation, due to the limited sight distance at the intersection.
On November 7, 2017, the City Council discussed the matter, heard testimony from 15 residents, and considered the PPIC recommendations. The City Council voted to approve the following measures as recommended by the Parking and Public Improvements Commission:
1. Increase enforcement of speeding and other moving violations on a regular basis.
2. Deploy the mobile speed feedback trailer periodically on Marine Avenue to raise driver awareness.
3. Install high-visibility crosswalks at the following locations:
a. West and south legs of Marine Avenue at Blanche Road
b. West and south legs of Marine Avenue at Flournoy Road
c. North leg of 21st Street at Valley Drive
d. North leg of Blanche Road at Valley Drive
e. North leg of Flournoy Road at Valley Drive, and
f. West leg of Marine Avenue at Valley Drive
4. Install pedestrian warning signs on Marine Avenue at Flournoy Road in both directions.
5. Install two 15 mph speed limit signs on 21st Place between Manor Drive and Blanche Road.
6. Realign the intersection of Marine Avenue and 25th Street with a temporary corner bulb-out to reduce speeds through the intersection on a trial basis.
7. Install an edgeline along the south side of Marine Avenue between Grandview Avenue and 25th Street to provide a separate walking area.
8. Install bike route signs and sharrows on Marine Avenue between Highland Avenue and Valley Drive.
9. Install stop signs on Marine Avenue at Manor Drive in the eastbound and westbound directions.
The City Council directed staff to move forward with a six-month trial period for the proposed recommendations and to allow the residents to work on other ways to improve the safety of the neighborhood.
On October 25, 2018, the PPIC discussed the follow up study conducted by the City Traffic Engineer after the initial measures were implemented, reviewed correspondence and heard public testimony from six residents. In addition, the PPIC considered a request for stop signs at the intersection of 27th Street and Flournoy Road. The PPIC passed a motion to recommend that City Council approve continuation of the existing traffic calming measures and to implement the following additional measures:
10. Install a “Not a Truck Route” signs with directional guidance on Marine Avenue at Highland Avenue.
11. Construct curbs and gutters to replace the temporary street realignment at Marine Avenue and 25th Street.
12. Remove overgrown vegetation on the northeast and southwest corners of Flournoy Road and 27th Street to improve corner sight distance for vehicles and pedestrians.
13. Install pedestrian warning signs and high-visibility crosswalks on the north and south legs of Flournoy Road at 27th Street.
The full PPIC staff report with exhibits and meeting minutes for the background summarized above are included in Attachment 1.
DISCUSSION:
The West Marine Avenue NTMP area is located in the northwest quadrant of the city, just north of Live Oak Park. The boundaries for this study are 20th Place, Highland Avenue, 23rd / 25th Streets and Valley Drive. There are approximately 280 residential properties within this neighborhood. This study area encompasses at least one parallel street to the north and south of Marine Avenue and includes most streets that could experience traffic diversion if major traffic calming measures were to be implemented on Marine Avenue. Primary access for the neighborhood is via Valley Drive to the east and south, Blanche Road to the north, and Highland Avenue to the west. Live Oak Park and Joselyn Center are located to the south, while Grandview Elementary School is located two full streets to the north.
The approved traffic calming measures were implemented in April 2018 through July 2018. In addition, the Police Department has deployed the mobile speed awareness trailer on Marine Avenue on a periodic basis to reinforce driver behavior.
Follow up volume and speed studies were conducted in October 2018, during typical school days. These counts were compared against counts taken in May 2017 to determine if any significant changes occurred after installation of the traffic calming measures. A significant decrease in traffic volume of about 12 to 20 percent was found when comparing the before-and-after counts. The before-and-after average speed on Marine Avenue is virtually unchanged, and still below the speed limit. Approximately 15% to 17% of the drivers exceed the speed limit, which is typical for similar residential streets. However, the City Traffic Engineer found that while the number of vehicles that exceed 30 mph is low, it was not reduced after the speed limit signs, striping and police enforcement were implemented, which would indicate an ongoing need for selective speed enforcement. No collisions have been reported during the initial measures trial period.
In field observations, the City Traffic Engineer noted that all of the initial measures have performed as expected and have had a calming effect on drivers. Driver compliance with traffic control devices has improved, enhancing overall neighborhood safety. There has been a small increase in bicyclists on Marine Avenue after the sharrows were installed.
The realigned approach at the intersection of Marine Avenue and 25th Street has had a calming effect on overall speed in the vicinity, although drivers have been seen cutting across the centerline when no other vehicles are at the corner. Based on these results, staff recommends that the intersection be permanently aligned in this manner with concrete curbs. No vehicle queues have been observed.
During the trial period, a resident noted that the number of trucks on Marine Avenue seemed disproportionately high for a residential street, and suggested signs to mitigate it. Marine Avenue is not a truck route, even though it is one of the few direct routes between Valley Drive and Highland Avenue. Per the City’s ordinance, truck drivers must use designated truck routes and take most direct (shortest) route on local streets between the truck route and their origin/destination. A sign on Marine Avenue at Highland Avenue stating that trucks shall use Manhattan Beach Boulevard or Rosecrans Avenue would help reinforce this municipal code requirement.
Flournoy Road and 27th Street
Subsequent to the approval of the initial measures, the City received a petition signed by 93 Grandview School parents requesting that the existing two-way intersection be converted to a four-way stop at the intersection of Flournoy Road and 27th Street to improve pedestrian crossing safety. The City Council also discussed this petition request briefly at its March 20, 2018 meeting related to a citywide pedestrian crossing enhancement evaluation.
The intersection of Flournoy Road and 27th Street is located in a residential area north of Valley Drive and west of Sepulveda Boulevard. Flournoy Road is a roughly 22 feet wide two-lane local street between Valley Drive and Rosecrans Avenue with a 25mph prima facie speed limit. Flournoy Road has stop signs at 26th Street and 29th Street. 27th Street is also a roughly 22 feet wide local street with a 25 mph prima facie speed limit. There are two-way stop signs on 27th Street at Flournoy Road in the eastbound and westbound directions and there are pedestrian signs on Flournoy Road at 27th Street at 27th Street in the northbound and southbound directions. Grandview Elementary School is located about ¼ mile to the west of the intersection. This intersection is on the pedestrian route to school along 27th Street.
Neither Flournoy nor 27th Street is improved with curbs, gutters or sidewalks. Street parking is allowed on both sides of both streets, mostly on parking pads and other unimproved areas within the public right-of-way. Parking is prohibited on the east side of Flournoy Road for about 20 feet both north and south of 27th Street with red stripes. Street parking demand is generally light during the day to moderate at night.
Field observations were made on typical days during peak and non-peak periods. Both streets have low traffic volumes, well below four-way stop sign warrant thresholds. Clear driver right-of-way rules are assigned by stop signs on 27th Street. Pedestrian visibility is somewhat restricted from the stop locations on 27th Street due to overgrown vegetation within the City right-of-way on the northeast and southwest corners. Vehicles parked close to the intersection could impede sight distance, but this condition was not observed on a recurring basis. Vehicle speeds are low on Flournoy Road through the intersection due to the narrow street conditions.
The traffic collision history between January 1, 2012 and December 31, 2017 was analyzed for the intersection. According to City records, there have been no collisions reported near or within the intersection during this six (6) year period.
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 that existing traffic control devices are not sufficient to assign proper right-of-way or cannot be remedied through other means.
A stop sign warrant checklist was completed that indicates that multi-way stop signs are not warranted at this intersection. This intersection has sufficient right-of-way controls with two-way stop signs, does not meet minimum traffic volumes and has no reported collision history. However, the sight distance of approaching vehicles is significantly restricted due to the overgrown corner vegetation. Drivers waiting at the stop signs on 27th Street may have difficulty seeing vehicles or pedestrians approaching on Flournoy Road, and drivers on Flournoy Road may have difficulty seeing pedestrians crossing the north or south legs at 27th Street.
State guidelines call for implementing all other feasible remedies that would address safety issues be implemented prior to considering installation of additional stop signs. At this intersection, pedestrian safety can be improved by removing sight distance obstructions and raising driver awareness to potential pedestrian crossings. Therefore, the Traffic Engineer recommends that the overgrown vegetation on the northeast and southwest corners of Flournoy Road and 27th Street be removed to improve corner sight distance for vehicles and pedestrians, and pedestrian warning signs and high-visibility crosswalks be installed on the north and south legs of Flournoy Road at 27th Street.
Both the Fire and Police Departments have been involved in the preparation of the West Marine Avenue NTMP and support the recommended actions. The Departments will review any approved measures to ensure they do not impede emergency response.
PUBLIC OUTREACH/INTEREST:
By way of mailed notices, the residents and affected parties within and surrounding the study area were invited to submit comments or attend this City Council meeting to express their opinion about the trial measures (Attachment 3). Public notices were posted in three public locations and posted online on the City’s website.
ENVIRONMENTAL REVIEW
The City has reviewed the proposed activity for compliance with the California Environmental Quality Act (CEQA) and has determined that the activity is not a “Project” as defined under Section 15378 of the State CEQA Guidelines; therefore, pursuant to Section 15060(c)(3) of the State CEQA Guidelines the activity is not subject to CEQA.
LEGAL REVIEW
The City Attorney has reviewed this report and determined that no additional legal analysis is necessary.
Attachments:
1. PPIC Report with Related Exhibits - October 25, 2018
2. Mailed Public Notice