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RESOLUTION NO. 2014-214 OF THE CITY COUNCIL OF THE CITY OF CHULA VISTA ACCEPTING THE RECOMMENDATION TO IMPLEMENT STRIPING MODIFICATIONS ON HILLTOP DRIVE BETWEEN PALOMAR STREET AND MAIN STREET FOR TRAFFIC CALMING PURPOSES AND AUTHORIZING A BIKE LANE ON HILLTOP DRIVE WITHIN THE LIMITS OF THE TEMPORARY TRAFFIC CALMING AREA
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RECOMMENDED ACTION
Recommended Action
Council adopt the resolution.
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SUMMARY
Staff completed an Engineering and Traffic Survey (survey) for a segment on Hilltop Drive in accordance with the California Vehicle Code, which indicates that the posting of speed limits be determined by a survey for each street with a posted speed limit within the City. Based on the results of this survey, the speed limit on Hilltop Drive, between Palomar Street and E. Rienstra Street should be increased from 30 mph to 35 mph. However, city staff recommends the implementation of traffic calming strategies along this segment of Hilltop Drive as recommended by the Safety Commission. After the traffic calming measures have been implemented, a new survey will be conducted to determine and verify the appropriate posted speed limit along this segment of Hilltop Drive.
ENVIRONMENTAL REVIEW
The Development Services Director 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 (Existing Facilities) of the State CEQA Guidelines. Thus, no further environmental review is necessary.
BOARD/COMMISSION RECOMMENDATION
The Safety Commission, at their public meeting on April 2, 2014, requested the city staff to consider implementing various traffic calming measures including bike lanes and restriping in lieu of raising the speed limit along Hilltop Drive between Palomar Street and E. Rienstra Street. Additionally, one resident at the meeting voiced opposition to raising the speed limit at the meeting.
The Safety Commission, at their meeting on September 3, 2014, reviewed city staffs' proposal for traffic calming measures. Two alternatives were presented and both were deemed acceptable. The two-lane alternative was more favorable overall to the Safety Commission. In addition, several public speakers and written comments were received that voiced opposition to raising the speed limit. City staff also met with Paul Woods, Director of Planning and Construction, Sweetwater Union High School District, and his feedback was neutral towards the options proposed in front of Castle Park High School.
DISCUSSION
Hilltop Drive between Palomar Street and Main Street is 5,769 feet (1.09 miles) long and 64' - 68' curb-to-curb wide. The street is classified as a Four Lane Major, with no bike lanes and parking on only portions of the west side between Palomar Street and E. Rienstra Street. This roadway is a designated bike route and the "Bike Route" signage is in place. South of E. Rienstra Street, parking is allowed on both sides.
North Segment
The north segment on Hilltop Drive between Palomar Street and E. Rienstra Street (0.4 miles in length) is being repaved as part of an existing CIP project, STL-397. The funding for the striping modification would be included with this project; however, additional striping cost north of Palomar Street and South E. Rienstra Street for striping transitional purposes would need to be added via change order. The adjacent land uses in this segment include Castle Park High School on the east, single family dwellings with driveway access on the west and multi-family units.
On April 2, 2014, staff presented to the Safety Commission an Engineering and Traffic Survey on Hilltop Drive between Palomar Street and E. Rienstra Street for approval. It was determined in the Engineering and Traffic Survey that the proposed speed limit should be increased from 30 mph to 35 mph. At the meeting, the Safety Commission requested further review of the proposed increase and to research whether any traffic calming measures could be implemented. The Safety Commission discussed traffic calming measures such as re-striping and reducing the number of travel lanes and adding bike lanes.
Middle Segment
The middle segment on Hilltop Drive is between E. Rienstra to Orange Avenue (0.3 miles in length) and is not part of the existing pavement project. The adjacent land uses in this segment include a commercial strip mall, very close proximity to Loma Verde Elementary School and single family dwellings with direct driveway access. The current posted speed limit is 35 mph.
South Segment
The south segment on Hilltop Drive is between Orange Avenue and terminating at Main Street (0.37 miles in length). This is also not part of the existing pavement project. The adjacent land uses in this segment include a few commercial properties, single family dwelling with direct driveway access and industrial properties closer to Main Street. The current posted speed limit in this segment is 35 mph.
The Safety Commission discussed traffic calming implementation but never made a motion which addressed the limits of implementing the measures. To provide continuity along the entire Hilltop Drive corridor, staff developed alternatives that cover all three segments.
On September 3, 2014, city staff presented two traffic calming striping modification alternatives (see attached) to the Safety Commission. Striping modifications can be used to reduce the traveled lane width, reduce the number of lanes and add bike lanes. By narrowing the traveled lane width, motorists sense that the roadway feels tighter and narrower. Motorists tend to slow down and try to stay within the striped lane.
The two alternatives are:
Narrow 4-Lane Alternative No. 1
This first alternative maintains the existing 4 lanes, 2 lanes in each direction. Bike lanes in each direction will be added throughout the corridor. Parking will only be allowed on the west side of the North Segment. The Middle and South segments will have parking on both sides of the street. In order to accommodate the proposed bike lanes, the traveled lane widths were reduced to 10 feet in width.
2-Lane Alternative No. 2a and 2b
The second alternative reduces the total number of lanes from 4 to 2, one lane in each direction. It also adds bike lanes and a two-way left turn lane median throughout the corridor. A buffer will be added to provide separation between the vehicles and the bike lanes. Parking will only be allowed on the west side of the North Segment. The Middle and South segments will have parking on both sides of the street. The traveled lane width will be 12 feet. This alternative was striped in eastern Chula Vista on Rutgers Avenue between Gotham Street and Otay Lakes Road.
Based on the review of each alternative, it was determined that the second alternative, one-lane of traffic in each direction, should provide the best traffic calming technique. In 2013, the Average Daily Traffic (ADT) along Hilltop Drive, between Palomar Street and Orange Avenue, was measured to be 8,553, which is below the design ADT of 12,000. Based on volume to capacity "design standards", the anticipated level of service (LOS) for the two-lane alternative is "A", but as volumes exceed 12,000 ADT, the LOS could be closer to LOS "D". Per SANDAG, the 2020 Year projected ADT along this segment of Hilltop Drive is 12,200.
These striping changes would be considered a pilot implementation, rather than permanent, of calming and complete streets concepts. The pilot program is intended to be a five year program, extending through FY 2019-20; however, in order to ensure that the LOS remains at acceptable levels during the interim period, staff will monitor the Hilltop Drive corridor on an annual basis as part of the GMOC annual Traffic Monitoring Program to determine whether this segment of Hilltop Drive would need to revert back to a 4-lane facility prior to the 2019-20.
If the program continues through the FY 2019-20, staff will study the segment of Hilltop Drive would need to revert back to a 4-lane facility. The study will take into account land uses, trip generations and current ADT volumes over this period of time. Staff will evaluate the LOS of this corridor utilizing the Highway Capacity Manual (HCM) travel time methodology. This is the similar method we use for the annual Growth Management Oversight Commission report. The HCM methodology is a more accurate measure of traffic congestion. Currently, using the HCM methodology, the segment of 'L' Street to Orange Avenue is at LOS "B". Once the community has had a chance to adjust to the striping changes, staff will conduct another survey and will present a report to the Safety Commission and the City Council recommending the appropriate posted speed limit.
As part of the City's Bikeway Master Plan amendments and adoption, bike lanes along Hilltop Drive and the conversion of urban four-lane undivided roadway to a three lane cross section (one lane in each direction and a two-way left turn lane) will be evaluated and addressed. The FY 2014/15 CIP includes a budget for the Master Plan update to be completed by early 2016. In order to allow installation of bike lanes at this location, a resolution is needed regarding the temporary reclassification of Hilltop Drive's bike route to a bike lane within the same limits as the traffic calming segment. This segment of roadway is not being reclassified. This modification is also in alignment with typical "complete streets" guidelines.
Conclusion:
City staff recommends implementation of Alternative 2 with traffic calming limits of Palomar Street to Main Street. The striping changes will provide an opportunity to evaluate the effectiveness of the traffic calming measures through FY2019-20. Once the community has had a chance to adjust to the striping changes, city staff will conduct another survey and present a report to the Safety Commission and the City Council, if needed, indicating the recommended posted speed limit.
Traffic calming techniques have proved to be an effective method in reducing speeds on a roadway. By narrowing the widths of traveled lanes, reducing the number of lanes, incorporating bike lanes and making the corridor pedestrian friendly, it tends to make the dynamics of the roadway more user friendly for everyone. This project also provides another opportunity to implement and evaluate "complete streets" strategies in the City.
DECISION-MAKER CONFLICT
Staff has reviewed the property holdings of the City Council and has found no property holdings within 500 feet of the boundaries of the property which is the subject of this action. Staff is not independently aware, and has not been informed by any Council member, of any other fact that may constitute a basis for a decision maker conflict of interest in this matter.
LINK TO STRATEGIC GOALS
The City's Strategic Plan has five major goals: Operational Excellence, Economic Vitality, Healthy Community, Strong and Secure Neighborhoods and a Connected Community. The goal of this action item is to support the Strong and Secure Neighborhood strategy identified in the City's Strategic Plan by providing safer roadways.
CURRENT YEAR FISCAL IMPACT
North Segment
The proposed project to re-stripe the segment of Hilltop Drive, from Palomar Street to E. Rienstra Street would be part of an existing pavement project, STL-397. Funding would be provided through this project. The estimated cost is $35,000. An additional $2,000 would be required to provide the transitional striping north of Palomar Street and south of E. Rienstra Street. There are sufficient Gas Tax and State Grant funds in the CIP. Therefore, there is no additional impact to the Gas Tax and State Grant funds.
Middle and South Segments
The proposed traffic calming measures on Hilltop Drive between E. Rienstra Street and Main Street, which includes removal of existing striping and the new striping, is estimated to be $55,000.
The costs for extending the traffic calming beyond E. Rienstra Street to the south will also be funded by the existing pavement project. There are sufficient funds available in STL-397 to complete this work. Therefore, there is no additional impact to the Gas Tax and State Grant funds.
ONGOING FISCAL IMPACT
Upon completion of the project, the improvements will require only routine City maintenance.
ATTACHMENTS
1. Location Map
2. Hilltop Drive Alternative No. 1
3. Hilltop Drive Alternative No. 2a (North Segment, parking on west side only)
4. Hilltop Drive Alternative No. 2b (Middle and South Segments, parking on both sides)