IBI GROUP 18401 Von Karman Avenue Suite 110 Irvine CA 92612 USA tel 949 833 5588 fax 949 833 5511 ibigroup.com Memorandum To/Attention Steering Committee Members Date February 17, 2016 From IBI Group Project No 35130 cc Subject David DiPierro, John Amberson Steering Committee Meeting #4 Overview Since our last Steering Committee Meeting, conducted in May 2015, city staff and the consultant team have been focused on the analysis of future Year 2035 traffic conditions for the Baseline No Project condition and two alternatives for the reconfiguration of Coast Highway. These two alternatives are described below and illustrated in the figures attached to this memorandum. Alternative 1 Modified Coast Highway Vision and Strategic Plan (CHVSP) Coast Highway would be converted into a two-lane roadway with a single traffic lane in each direction throughout Oceanside. This alternative is consistent with the CHVSP and includes the Downtown (Former Redevelopment) area where the two-lane configuration is continued as part of this alternative. Both roundabouts and traffic signals are evaluated at intersections that currently have traffic signals. Alternative 2 Four Lanes at Select Locations - Coast Highway would be converted to a two-lane roadway with a single traffic lane in each direction, except in locations approaching and departing intersections where the cross-streets serve as major access routes to Interstate 5. In these locations (between Sportfisher and Topeka, north and south of Oceanside Boulevard, and at Vista Way), Coast Highway would remain as a fourlane street. Both roundabouts and traffic signals are evaluated at intersections that currently have traffic signals and would be converted to a two-lane configuration. In fourlane segments, only traffic signals are proposed and evaluated. Both of the alternatives identified above are analyzed under two land use scenarios, one with a development plan intended to follow the outline of the CHVSP, and a second scenario that carries forward the current projected development for the corridor under the existing General Plan land use designations. The end result is the evaluation of traffic conditions for 5 different scenarios for the Year 2035 as follows: Year 2035 Baseline Year 2035 Alternative 1 with Vision Plan Land Use Year 2035 Alternative 2 with Vision Plan Land Use Year 2035 Alternative 1 with General Plan Land Use Year 2035 Alternative 2 with General Plan Land Use The purpose of the February 23, 2016 Steering Committee meeting will be to review at a high level the results of this initial traffic analysis and to receive Steering Committee input regarding a potential preferred alternative for the roadway configuration on Coast Highway that would be subject to further analysis and review. The preferred alternative could be either one of the two alternatives identified above, or potentially a hybrid roadway configuration that incorporates IBI Group is a group of firms providing professional services
IBI GROUP 2 Steering Committee Members February 17, 2016 elements from both alternatives and/or the baseline no project condition. The input from the Steering Committee will be carried forward to the final public workshop, scheduled for March 15, 2016 and a City Council Workshop, to be scheduled for April 2016. At the end of this memorandum, a potential concept for the preferred alternative is identified, based on the technical analysis completed to date. The preferred alternative would also receive further analysis through the preparation of an environmental impact report (EIR), consistent with the requirements of the California Environmental Quality Act (CEQA). The EIR work would be initiated following receipt of direction from City Council in April 2016. Analysis Process Future traffic volumes for the two roadway alternatives and five analysis scenarios identified above were derived from travel demand model forecasts conducted by the San Diego Association of Governments (SANDAG), using the Series 12 regional model. This travel demand model is the accepted model for San Diego County and the City of Oceanside, and has been utilized in the past for other recent transportation studies within the city. Using the SANDAG traffic volume forecasts, the consultant team has completed a level of service analysis for 45 study intersections, located both along Coast Highway and within the project study area west of Interstate 5. This level of service analysis was conducted using the Synchro traffic analysis software and is consistent with the City of Oceanside s current procedures for traffic analysis. The consultant team is also in the process of conducting a more detailed analysis and simulation of traffic conditions in the corridor using a traffic simulation model called Vissim. The power of this simulation analysis is that the full corridor can be analyzed as a whole, allowing for a better understanding of operations than can be obtained from localized intersection-by-intersection analysis. Initial results from this analysis may be presented at the meeting on February 23 rd, if available. Land Use Considerations As noted above, the two roadway alternatives for Coast Highway have been analyzed using two different land use scenarios for the Year 2035 condition. One scenario forecasts land use development as potentially envisioned by the CHVSP, with development focused into a series of nodes along the corridor. The second scenario utilizes the growth forecasts for land use in the corridor consistent with the Year 2035 baseline condition (current General Plan). The objective of this approach was to understand how the proposed roadway alternatives would be forecast to operate under different potential future land use scenarios. As the study effort moves into the development of the EIR, a single assumption for future land use development in the corridor will be selected.
IBI GROUP 3 Steering Committee Members February 17, 2016 Intersection Level of Service Results A high level summary of the traffic level of service results are presented in this memorandum. Key aspects of the analysis include the following: Intersection level of service is reported as a grade, ranging from A to F, with A representing free flow conditions and F representing very congested conditions. The City of Oceanside currently identifies level of service D as the minimum accepted level of service for intersections in the city. Intersections operating at level of service E or F typically require improvement to bring the intersection operations to an acceptable level, unless the city makes a policy decision to accept a worse level of service because the proposed project provides other benefits to the community (these benefits could include safety improvements, community amenities, or avoidance of impacts to adjacent land uses that could result from roadway widening). Table 1 on the following page summarizes the level of service analysis results assuming traffic signals for all currently signalized intersections on Coast Highway. Information regarding level of service for all 45 study intersections is presented in a graphical format to allow for ease of understanding. Information is provided for both the morning (AM) and evening (PM) peak hours for traffic. In this graphic the following color coding is utilized: Green Intersection is forecast to operate acceptably per City guidelines (A to D) Yellow Intersection is forecast to operate at level of service E Orange Intersection is forecast to operate at level of service F
Table 1 - Level of Service Summary (Traffic Signals) FORECAST AM PM AM PM AM PM AM PM AM PM ID Intersection Signal Control LOS LOS LOS LOS LOS LOS LOS LOS LOS LOS 1 Coast Highway - I-5 Ramps / Harbor Drive Signalized C E C E C E D E C E 2 Coast Highway - SR-76 Ramps Signalized B C C F B F D E B F 3 Surfrider Way - Pacific Street Four-way Stop A B A B A C A B A C 4 Coast Highway - Surfrider Way Signalized B B B C C D B C B C 5 Coast Highway - Civic Center Drive Signalized C B B B B B B B B B 6 Coast Highway - Pier View Way Signalized B B B B B A A B A C 7 Pier View Way - Horne Street Four-way Stop A E A D B E B C B E 8 Mission Avenue - Pacific Street Four-way Stop A C A C A C A C A C 9 Mission Avenue - Cleveland Street Signalized C B B B C B B C B C 10 Coast Highway - Mission Avenue Signalized B B B E B E B E B D 11 Mission Avenue - Horne Street Signalized A B A B A B A A A B 12 Seagaze Street - Tremont Street One-way Stop B C B C A B A C A B 13 Coast Highway - Seagaze Street Signalized B C C F B E B D B D 14 Seagaze Street - Freeman Street Two-way Stop B B B C B C B C B C 15 Seagaze Street - Ditmar Street Signalized A D B C B B B B A B 16 Seagaze Street - Clementine Street Two-way Stop A B A D A D A C A C 17 Coast Highway - Missouri Avenue Two-way Stop B D C D B C B D B C 18 Coast Highway - Washington Avenue Two-way Stop B D B D B C B C B C 19 Wisconsin Avenue - Pacific Street Four-way Stop A C A C A C A C A C 20 Wisconsin Avenue - Tremont Street Two-way Stop B C B C B C B C B C 21 Coast Highway - Wisconsin Avenue Signalized B B A E C F A C C E 22 Wisconsin Avenue - Freeman Street One-way Stop A A B C B D B C B C 23 Wisconsin Avenue - Ditmar Street (North) Two-way Stop A A B D C E B C C D 24 Wisconsin Avenue - Ditmar Street (South) Four-way Stop A A B E B E A C B E 25 Oceanside Boulevard - Pacific Street Four-way Stop A A A B A B A B A B 26 Oceanside Boulevard - Tremont Street Two-way Stop B C C F B F B F B E 27 Coast Highway - Oceanside Boulevard Signalized B E B E C D C D C D 28 Oceanside Boulevard - Ditmar Street Signalized B A B B C B B C C C 29 Coast Highway - Morse Street Signalized B B B C B B A B A B 30 Morse Street - Freeman Street Two-way Stop A B B C B C A B A B 31 Morse Street - Ditmar Street Two-way Stop A B A B A B A B A B 32 Cassidy Street - Pacific Street Four-way Stop A B A B A B A B A B 33 Cassidy Street - Broadway Street Two-way Stop B C B F B E B F B E 34 Cassidy Street - Tremont Street Two-way Stop B B B B B C B B B C 35 Coast Highway - Cassidy Street Signalized B B B D C F B C B E 36 Cassidy Street - Freeman Street Two-way Stop B C B B B F B C B C 37 Cassidy Street - Ditmar Street Four-way Stop A B A A A A A A A A 38 Cassidy Street - Stewart Street Four-way Stop B C A B A B A A A B 39 Vista Way - Broadway Street One-way Stop A A A A A A A A A A 40 Coast Highway - Vista Way Signalized C D E F C E D F C F 41 Vista Way - Freeman Street Two-way Stop B C D F C F C F C F 42 Vista Way - Ditmar Street Two-way Stop B D D F D F C F C F 43 Vista Way - Stewart Street Two-way Stop B C C E C F C E C E 44 Coast Highway - Eaton Street Two-way Stop B C B C C C B C C C 45 Coast Highway - Michigan Avenue Signalized A A B B A B A B A B Notes: A. Delay is expressed as an average seconds of delay per vehicle. B. LOS - Level of Service C. All intersection analysis performed using Synchro 9. D. AWSC - All way stop control E. TWSC - Two way stop control F. OWSC - One way stop control G. Unacceptable LOS shown in bold; acceptable level of service at intersection in Oceanside is LOS D. 2035 Baseline 2035 Alt 1 VP Land Use 2035 Alt 2 VP Land Use A B C 2035 Alt 1 GP Land Use D 2035 Alt 2 GP Land Use E
IBI GROUP 5 Steering Committee Members February 17, 2016 Table 2 identifies the number of study intersections forecast to operate at level of service E or F for each analysis scenario. Table 2 Summary of Intersections Operating at LOS E or F by Scenario Scenario Intersections on Coast Highway at LOS E or F 2035 Baseline No Project 2 intersections on Coast Highway 2035 Alternative 1 Vision 7 intersections on Coast Plan Land Use Highway 2035 Alternative 2 Vision 7 intersections on Coast Plan Land Use Highway 2035 Alternative 1 General 4 intersections on Coast Plan Land Use Highway 2035 Alternative 2 General 5 intersections on Coast Plan Land Use Highway Study Intersections at LOS E or F 3 intersections total 13 intersections total 16 intersections total 9 intersections total 12 intersections total In addition to the analysis summarized above, roundabouts were evaluated for both Alternative 1 and Alternative 2 at each intersection that is currently signalized and where Coast Highway is proposed to be reduced to one lane in each direction. Table 3 provides a summary of the level of service for each of these intersections with a roundabout for the PM peak hour only. For the purposes of this analysis, roundabouts were assumed to be single lane roundabouts, with the exception of the Coast Highway/SR-76 intersection where a partial two-lane roundabout would be feasible given the size of the intersection. The proposed roundabouts generally provide a similar level of service to a traffic signal (and in some cases better level of service), except in specific locations where the traffic movement or traffic volume characteristics of the intersection have a greater impact on the performance of the roundabout. These locations are: Coast Highway/Mission Avenue The one-way traffic flow on Mission Avenue creates an unbalanced flow of traffic volume into the roundabout, which increases delay. Coast Highway/Seagaze Drive The one-way traffic flow on Seagaze Drive creates an unbalanced flow of traffic volume into the roundabout, which increases delay. Further, the heavy southbound left turn movement from Coast Highway to Seagaze impacts roundabout performance as left turning vehicles occupy more of the roundabout and conflict with a greater number of traffic approaches than do through and right turn movements, creating more potential delay. Coast Highway/Vista Way - The heavy southbound left turn movement from Coast Highway to Vista and the heavy westbound left turn movement from Vista to Coast Highway impacts roundabout performance as left turning vehicles occupy more of the roundabout and conflict with a greater number of traffic approaches than do through and right turn movements, creating more potential delay.
Table 3 - Intersection Roundabout Level of Service 2035 Alt 1 VP Land Use 2035 Alt 2 VP Land Use 2035 Alt 1 GP Land Use 2035 Alt 2 GP Land Use FORECAST B C D E AM PM AM PM AM PM AM PM ID Intersection LOS LOS LOS LOS LOS LOS LOS LOS 2 Coast Highway - SR-76 Ramps A A A A A A A B 4 Coast Highway - Surfrider Way A E A F A D A D 5 Coast Highway - Civic Center Drive A D -- -- A B -- -- 6 Coast Highway - Pier View Way A F -- -- A D -- -- 10 Coast Highway - Mission Avenue B F -- -- A F -- -- 13 Coast Highway - Seagaze Street A F -- -- A F -- -- 21 Coast Highway - Wisconsin Avenue A D A F A B A E 27 Coast Highway - Oceanside Boulevard A F -- -- A C -- -- 29 Coast Highway - Morse Street A D A D A B A C 35 Coast Highway - Cassidy Street A D A F A B A F 40 Coast Highway - Vista Way B F -- -- A F -- -- 45 Coast Highway - Michigan Avenue A B A C A A A B Notes: A. Delay is expressed as an average seconds of delay p B. LOS - Level of Service C. All intersection analysis performed using Traffix 7. D. Unacceptable LOS shown in bold; acceptable level of service at intersection in Oceanside is LOS D.
IBI GROUP 7 Steering Committee Members February 17, 2016 Observations from LOS Analysis As noted earlier in this memorandum, the alternatives traffic analysis is intended to inform the identification of a preferred alternative that would be subject to further traffic analysis and that could also be refined to address poor level of service forecasts that may exist for a particular intersection. For example, an intersection reported as having a level of service of E or F in this analysis could be modified as part of the preferred alternative to address the traffic constraint and to provide for an acceptable level of service. In this case, the intersection level of service analysis is a tool that is used to help in the process of identifying a preferred alternative, but it should not be used as the sole determining factor in the identification of the preferred alternative. Other considerations, including community input, safety, roadway continuity, and community context should also be considered when identifying the preferred alternative. The analysis of the preferred alternative in the EIR will not only involve analysis of intersection level of service, but also the forecasted change in vehicle miles traveled and greenhouse gas emissions for the corridor compared to the baseline condition. Senate Bill 743 (SB 743) requires by 2018 that local cities use the change in vehicle miles traveled created by a project to determine potential traffic impacts in place of level of service analysis when preparing an EIR. The land use changes proposed as part of the CHVSP are intended to promote walking, cycling, and transit use, activities that all help to reduce auto trips and vehicle miles traveled. Additionally, the presence of roundabouts may result in improved conditions for greenhouse gas emissions because of the ability for roundabouts to permit a more continuous flow of traffic through the corridor when compared to traffic signals. Initial Recommendations An initial recommendation for the preferred alternative is proposed below, based on the analysis of the alternatives identified above and incorporating input and comments received from the Steering Committee and community throughout the multi-year study process that has occurred. The following represents the initial proposed preferred alternative for discussion on February 23 rd. The alternative is also graphically depicted in the figures attached to this memorandum. Segment 1 Harbor Drive to SR-76 One traffic lane in each direction with Class II striped bicycle lanes and a center two-way left turn lane south of the San Luis Rey River. North of the river a two-way left turn may or may not be provided. Provide on-street parking throughout this segment except in locations where curb bulb outs and mid-block crossings are proposed. Parallel parking would be provided south of the river and back-in angle parking to the north of the river. Further improvements to be determined for the Coast Highway/Harbor Drive intersection to provide an acceptable level of service. High levels of delay are caused by traffic volumes on the I-5 on/off-ramps. Segment 2 SR-76 to Wisconsin One traffic lane in each direction with Class II striped bicycle lanes and a center two-way left turn lane or raised median depending on the presence of driveways. Provide on-street parking throughout this segment except in locations where curb bulb outs and mid-block crossings are proposed. Provide a modified two-lane roundabout at Coast Highway and SR-76. Provide a transition from two lanes to one lane in each direction on Coast Highway north and south of SR-76 to facilitate the two-lane roundabout in this location.
IBI GROUP 8 Steering Committee Members February 17, 2016 Retain traffic signals at the intersections of Coast Highway at Mission Avenue and Seagaze Drive. Further examine as part of the traffic analysis for the preferred alternative the performance of a traffic signal and a roundabout at the intersections of Coast Highway at Surfrider, Civic Center, and Pier View given the proximity of these intersections to traffic signals at Mission and Seagaze. Provide a single lane roundabout at the intersection of Coast Highway at Michigan. Segment 3 Wisconsin to Oceanside One traffic lane in each direction with Class II striped bicycle lanes and a center two-way left turn lane or raised median depending on the presence of driveways. Provide on-street parking throughout this segment except in locations where curb bulb outs and mid-block crossings are proposed. Provide a single lane roundabout at the intersections of Coast Highway at Wisconsin and Oceanside. Modify the intersection at Oceanside and Tremont through traffic control (signal or stop sign) or preclusion of specific traffic movements to address the poor level of service at this intersection. Segment 4 Oceanside to Morse One traffic lane in each direction with Class II striped bicycle lanes and a center two-way left turn lane. Provide on-street parking throughout this segment except in locations where curb bulb outs and mid-block crossings are proposed. Further examine as part of the traffic analysis for the preferred alternative the performance of a traffic signal and a roundabout at the intersection of Coast Highway at Morse. Segment 5 Morse to South City Limit One traffic lane in each direction with Class II striped bicycle lanes and a center two-way left turn lane or raised median depending on the presence of driveways. Provide on-street parking throughout this segment except in locations where curb bulb outs and mid-block crossings are proposed. Retain the traffic signal at the intersection of Coast Highway at Vista Way and modify the lane configuration at this intersection to provide an acceptable level of service. Provide a single lane roundabout at the intersection of Coast Highway at Cassidy. Modify the intersections of Freeman, Ditmar, and Stewart with Vista Way to provide better level of service and to discourage or preclude cut-through traffic. Modify the intersection at Cassidy and Broadway with new traffic control (likely a four-way stop) to address the level of service at this intersection.
OVERVIEW OF ALTERNATIVES Using input received from the community in the May 2014 public workshop, a No Build condition and two alternatives were identifi ed for Coast Highway for the purposes of evaluating future traffi c conditions using the SANDAG regional travel demand model. These alternatives were identifi ed with the help of the Coast Highway Corridor Study Steering Committee, which includes residents, property owners, and business owners in the Coast Highway corridor. No Build Condition Traffic Signal 4 Lanes 2 Lanes Key Attributes: Maintains existing traffi c lanes and traffi c signals. Serves as a point of comparison for alternatives with regard to level of service for autos, bikes, peds and transit. Alternative 1 - Modified Vision Plan Concept Traffic Signal 2 Lanes Key Attributes: Converts Coast Highway from 4 lanes to 2 lanes. Proposes roundabouts to optimize traffi c fl ow at intersections currently controlled by signals. Creates space in public right-of-way for bicycle facilities, wider sidewalks, additional landscaping, and/or additional on-street parking. Alternative 2 - Four Lanes at Select Locations Traffic Signal 4 Lanes 2 Lanes Key Attributes: Converts Coast Highway from 4 lanes to 2 lanes, except in locations where key east-west streets provide connections to I-5. Proposes roundabouts in place of traffi c signals in 2-lane sections.
: Harbor Drive to SR-76 Alternative 1: Modifi ed Vision Plan Concept Objectives: Provide bicycle lanes on Coast Highway. Maintain on-street parking. Provide for left turn access to side streets and driveways. 66 ft 66 ft Traffic Signal 2 Lanes
: Harbor Drive to SR-76 Alternative 2: Four Lanes at Select Locations Objectives: Provide bicycle lanes on Coast Highway. Modify on-street parking to provide for improved sidewalks. 66 ft 11 ft 66 ft Traffic Signal 4 Lanes 2 Lanes
: SR-76 to Wisconsin Alternative 1: Modifi ed Vision Plan Concept Objectives: Provide bicycle lanes on Coast Highway. Maintain on-street parking. Surfrider to Wisconsin 11 ft 11 ft SR-76 to Surfrider 11 ft 11 ft 11 ft Traffic Signal 2 Lanes
: SR-76 to Wisconsin Alternative 2: Four Lanes at Select Locations Objectives: For Alternative 2, provide additional lane capacity near key east-west streets. (Red Section Only) Surfrider to Seagaze (Red Section Only) SR-76 to Surfrider and Seagaze to Wisconsin 11 ft 11 ft 11 ft (Blue Section Only) Traffic Signal 4 Lanes 2 Lanes
: Wisconsin to Oceanside Alternative 1 - Modifi ed Vision Plan Concept Objectives: Provide bicycle lanes on Coast Highway. Maintain on-street parking. Traffic Signal 2 Lanes
: Wisconsin to Oceanside Alternative 2 - Four Lanes at Select Locations Objectives: For Alternative 2, provide additional lane capacity near key east-west streets. (Red Section Only) 11 ft 11 ft 11 ft (Blue Section Only) Traffic Signal 4 Lanes 2 Lanes
: Oceanside to Morse Alternative 1: Modifi ed Vision Plan Concept Objectives: Provide bicycle lanes on Coast Highway. Provide on-street parking in select locations. 8-9 ft 8-9 ft Traffic Signal 2 Lanes
: Oceanside to Morse Alternative 2: Four Lanes at Select Locations Objectives: For Alternative 2, provide additional lane capacity near key east-west streets. (Red Section Only) 11 ft 11 ft 11 ft 11 ft (Blue Section Only) 11 ft Traffic Signal 4 Lanes 2 Lanes
: Morse to Vista Alternative 1: Modifi ed Vision Plan Concept Objectives: Provide bicycle lanes on Coast Highway. Provide on-street parking in select locations. Traffic Signal 2 Lanes
: Morse to Vista Alternative 2: Four Lanes at Select Locations Objectives: For Alternative 2, provide additional lane capacity near key east-west streets. (Red Section Only) (Blue Section Only) Traffic Signal 4 Lanes 2 Lanes
PROPOSED PREFERRED ALTERNATIVE FOR DISCUSSION No Build Condition Traffic Signal 4 Lanes 2 Lanes Key Attributes: Maintains existing traffi c lanes and traffi c signals. Serves as a point of comparison for alternatives with regard to level of service for autos, bikes, peds and transit. Preferred Alternative - Two Lane Coast Highway Traffic Signal 2 Lanes Roundabout Key Attributes: Converts Coast Highway from 4 lanes to 2 lanes. Proposes roundabouts in selected locations to optimize traffi c fl ow at intersections currently controlled by signals. Creates space in public right-of-way for bicycle facilities, wider sidewalks, additional landscaping, and/or additional on-street parking.
: Harbor Drive to SR-76 Objectives: Provide bicycle lanes on Coast Highway. Maintain on-street parking. Provide for left turn access to side streets and driveways. 66 ft North of San Luis Rey River 66 ft South of San Luis Rey River 11 ft 11 ft 11 ft Traffic Signal 2 Lanes Roundabout
: SR-76 to Wisconsin Objectives: Provide bicycle lanes on Coast Highway. Maintain on-street parking. SR-76 to Surfrider 11 ft 11 ft to be studied Surfrider to Wisconsin 11 ft 11 ft to be studied Civic Center to Seagaze Traffic Signal 2 Lanes Roundabout
: Wisconsin to Oceanside Objectives: Provide bicycle lanes on Coast Highway. Maintain on-street parking. to be studied to be studied 11 ft 11 ft 11 ft Traffic Signal 2 Lanes Roundabout
: Oceanside to Morse Objectives: Provide bicycle lanes on Coast Highway. Provide on-street parking in select locations. 8-9 ft 8-9 ft Traffic Signal 2 Lanes Roundabout
: Morse to Vista Objectives: Provide bicycle lanes on Coast Highway. Provide on-street parking in select locations. Traffic Signal 2 Lanes Roundabout