HomeMy WebLinkAbout06/01/2010, B8 - PISMO & BUCHON NEIGHBORHOOD TRAFFIC MANAGEMENT I
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councilJune 1, 2010
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CITY O F SAN LUIS O B I S P O
FROM: Jay D. Walter, Director of Public Works
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Prepared By: Jake Hudson, Trac Opera ons Manager
SUBJECT: PISMO & BUCHON NEIGHBORHOOD TRAFFIC MANAGEMENT
RECOMMENDATION
Adopt a resolution approving the Pismo/Buchon Neighborhood Traffic Management (NTM)
Action Plan.
REPORT-IN-BRIEF
In 2005 Pismo Street & Buchon Street residents submitted a petition asking the City to address
traffic issues in their neighborhood. The City deferred work on the NTM until the conflicting
Neighborhood Parking District and Mitchell Park/Senior Center parking issues were resolved in
2008. Through a significant neighborhood outreach effort over the course of 2008 to 2010, City
staff, in cooperation with neighborhood residents, has developed an action plan which was voted
on and approved by the neighborhood in 2010. The draft NTM Action Plan is now completed
and ready for Council's review and approval.
DISCUSSION
Background
The Pismo/Buchon NTM program is one of the most complex neighborhood traffic management
efforts in recent times under the current program. The Pismo/Buchon neighborhood (Attachment 1)
is situated between the northern termii of two primary arterials; Johnson Avenue and Broad Street
with neighborhood streets serving as the first paths of least resistance between the two arterials. Due
to the lack of east/west connections between Broad & Johnson, neighborhood streets also serve as
preferred routes to major traffic generators in the vicinity, such as San Luis Obispo High School and
French Hospital. These conditions make the Pismo/Buchon neighborhood susceptible to higher
speeds and traffic volumes. Due to faster emergency response times, Buchon Street has also now
been established as a primary emergency response route by the Fire Department. In addition to the
issues caused by the neighborhood's position within the City's arterial network, the local streets
within the neighborhood itself further complicate the issue. The neighborhood street network is a
grid system and as such any changes to one street will inevitably impact other streets, creating an
inherent dichotomy between the resident's interests of one street with the resident's interests of
another.
It's important to understand that the traffic issues for this neighborhood are primarily related to
City-wide circulation patterns which cannot be addressed within the scope of the NTM Program.
The recommended NTM Action Plan has been developed to help buffer traffic volumes and speeds
with the current demand through the neighborhood. However, in order to address the underlying
circulation issues, this area should be evaluated in detail as part of the Circulation Element update
including such measures as an east/west connection between Johnson & Broad, opening Marsh
Pismo &Buchon Neighborhood Traffic Management Page 2
Street to two-way traffic between Johnson and Santa Rosa, and developing travel demand reduction
or management strategies for San Luis Obispo High School.
Consistent with the City's current NTM Guidelines (1998) and the new recommended voting and
funding methodology, the following steps were taken to develop this draft plan.
1. Initial Neighborhood Contacts: In the fall of 2005 residents of the Pismo/Buchon
neighborhood submitted a petition asking the City of San Luis Obispo to address concerns about
excessive speeding and traffic volumes within the neighborhood. Due to conflicting issues with
the Residential Parking District application of the neighborhood and work on the Senior
Center/Mitchell Park parking lot, the NTM was deferred until those issues were resolved in
2008.
2.' Initial Survey of Traffic Conditions: From late 2007 to early 2008, Transportation staff
completed its preliminary analysis of conditions in the neighborhood and found that motorists
driving faster than Circulation Element desired maximums and that the volume of traffic also
exceeded Circulation Element desired maximums.
3. Petition Circulation: The NTM policy requires a petition or ballot indicating that at least 25%
of the area's households support an NTM effort. However due to the high level of neighborhood
involvement in the parking district application and the Mitchell Park parking lot, it was evident
that this level of support existed and this requirement was waived.
4. In Depth Study of Traffic Conditions: In April of 2008, a public community meeting was
held for neighborhood residents to discuss and summarize their traffic concerns (Attachment
2). At that meeting a Neighborhood Action Team comprised of residents from each of the
neighborhood streets was formed to represent the neighborhood in the development of the
NTM Action Plan. From late 2008 to mid-2009, City staff conducted an in-depth study of
neighborhood traffic conditions including traffic speeds and volumes based on these
concerns.
Traffic Volumes
Traffic volume counts conducted in the area indicated an average daily volume on Pismo Street
of 3,650 vehicles and on Buchon Street of 3,570 vehicles, both of which exceed the maximum
desired daily volume of 3,000 as established in the City's Circulation Element Policy 5.2.
Because Johnson Avenue is designated as a Residential Arterial, no maximum desired volume is
established for that street. Given these relatively high volumes within the neighborhood, City
staff further evaluated travel patterns within the neighborhood and found that 74% of the peak-
hour traffic on Buchon and 56% of the peak hour traffic on Pismo did not have a destination
within the neighborhood and may be considered cut-through traffic. Some level of pass through
traffic is expected on Pismo & Buchon as these streets are classified as residential collectors.
However, because the volumes exceed the Circulation Element desired maximums, the level of
pass-through traffic may be considered too high. The two primary traffic routes through the
neighborhood, as shown in Figure 1 below, are Johnson Broad via eastbound Buchon and via
southbound Pismo.
Pismo& Buchon Neighborhood Traffic Management Page 3
PRIMARY ROUTES THROUGH NEIGHBORHOOD
tu�T Boundary N
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'French �}
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Figure 1: Primary Routes through Neighborhood
Staff also had a unique opportunity to observe non-holiday, average weekday traffic volumes
that were not affected by the San Luis Obispo High School traffic due to a student only day off
during the study period. Based on this data, staff has found that High School traffic contributes to
approximately 70% of the peak-hour volume on Buchon and 75% of the peak hour volume on
Pismo. Attachment 3 depicts the volumes on Pismo & Buchon over the course of an average day
with and without the High School traffic. Unfortunately the Pismo & Buchon neighborhood may
not be the only neighborhood affected by the High School traffic. The Fixlini neighborhood is
currently on the NTM waiting list for similar issues that also appear to be related to High School
traffic.
Traffic Speeds
As shown in Figure 2 below, speed surveys conducted within the study area on Johnson Avenue
indicate that the prevailing speed ranged between 35-38 mph with a posted speed of 30 mph;
Pismo Street ranged from 30-32 mph and Buchon Street ranged from 31-33 mph, both with a
posted speed of 25 mph.
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Pismo&Buchon Neighborhood Traffic Management Page 4
PREVAILING SPEED VS. SPEED LIMIT
40 _ __38EAPH.._.._.._.._...._._.-..._._.._._..
35 E
30 30 MPH i
ED LIMrr
25 25 MPH MPH
SEED LIMIT 5 EEO LIMCr
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15
10 i
5
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Johnson Pismo Buchon
STREET
Figure 2: Prevailing Speed vs.Speed Limit
Based on these speed surveys all three primary streets within the NTM study area are exceeding
the maximum desired speeds as established in the City's Circulation Element Policy 5.2 and the
posted speed limits. Based on the raw data from these speed surveys it has also been determined
that approximately 25% of traffic on Buchon and Pismo are exceeding the speed limit by at least
5 mph and 7%by at least 5 mph on Johnson.
5. Initial Concept Development & Neighborhood Meetings: As previously indicated the
underlying circulation issues which are contributing to the traffic conditions within this
neighborhood cannot be addressed within the scope of the NTM Program. Therefore, the intent
of this NTM Action Plan is to help buffer traffic volumes and speeds given the inherit demand
through the neighborhood. Based on the summary of issues identified by the neighborhood
residents,detailed studies, and a significant neighborhood outreach effort, City staff developed a
NTM Action Plan which includes a series of traffic calming measures as indicated in Table 1
below. However, as allowed under the current NTM policy the Action Team requested revisions
to the plan, also shown in Table 1 below, which included an additional speed hump on Pismo
Street, closure of Buchon Street at Johnson in lieu of the other calming measures on Buchon,
and the support of a larger planning effort for the closure of Pismo Street as a second phase to
the Plan.
Table 1: Action Plan- V Draft Calming Measures
Staff Proposed Action Plan
Action Team Revised-Action Plan
I Johnson Ave.S eed Feedback Signs , M: 1 Johnson Ave.S eed:Feedback Si s
2 Johnson Ave.-Striping Reconfi uratibn " 2_ Johnson Ave Stri ing Reconfiuration
3 Johnson&Buhcon Intersection Reconfiguration 3" Pismo Street Road Diet
4 Pismo Street RoadDiet � _ 4 Pismo Stteei'S eed Humps(3)__
5 Pismo Street Speed Humps 3) 5 Pismo&Toro Raised X-Walk&Buldbouts _
6 Pismo&Toro Raised X-Walk&Buldbouts_. _ 6 Buchon Closur"e*
-_
_
7 IBuchon Street Ed2e Lines _ 7 :Pismo Closure-Phase Il* _
8 Buchon Street Speed Humps(3) 8 _Islay Street Speed Hump's -
'Aleasares Added by Action Team as allowed by NTM Guildelines
Pismo& Buchon.Neighborhood Traffic Management Page 5
Although the closure of Pismo and/or Buchon at Johnson as requested by the Action Team did
not directly infringe on City policy or minimum emergency response rates. Closuredid raise
several concerns over General Plan consistency, traffic operations, and diminished emergency
response time. Despite these concerns the NTM Policy does permit the Action Team to make
revisions to the NTM Action Plan prior to neighborhood balloting. However these closures were
ultimately not supported and are therefore no longer being considered.
6. Distribution of Draft Action Plan & 1st Ballot: On November 6, 2009, City staff in
cooperation with a professional mailing service mailed the first NTM draft Action Plan and
voting ballot to the owners and occupants of all 360 households within the study area. One vote
was counted per household for each of the calming measures, if both the owner and occupant
returned a ballot the owners vote took priority. Based on a required 51% required response rate
and a supporting 2/3 vote in order for the measure to be forwarded to the Council. The results of
the ballot is shown in Table 2 below.
Table 2: Action Plan 1st Ballot Results
Responded Vote Not To Support Vote To Support Pass
1 Johnson Ave.Speed Feed Back Signs ' 256 71% 58 23% 198 77% YES
2 Johnson Ave.Striping Reconfig. 256 71% 72 28% 184 72% YES
3 Pismo St.Road Diet 256 71% 67 26% 189 74% YES
4 1240 Pismo St.Speed Hump 256 71% 83 32% 173 68% YES
1126 Pismo St.Speed Hump 256 71% 82 32% 174 68% YES
1176 Pismo St.Speed Hump 256 71% 1 83 32% 1 173 68% 1 YES
5 1034 Islay St.Speed Hump 256 71% 80 31% 176 69% YES
6 Pismo St.Raised X-Wallk&Bulbouts 257 71% 72 28% 185 72% YES
7 Buchon Closure 256 71% 97 38% 159 62% NO
8 Pismo Closure-Phase Il 237 66% 144 61% 93 39% NO
Based on the results of the first voting ballot, the closures at Buchon and Pismo did not have 2/3 .
support from the neighborhood are therefore not being presented to the Council for approval along
with the other measures that did receive neighborhood support. However because the Buchon
closure was not supported there were no proposed traffic calming measures as part of the draft
Action Plan. Therefore staff and the Action Team prepared an amendment to the Action Plan which
included the measures that were originally recommended on Buchon in addition to a raised
crosswalk and bulb-out at Buchon and Toro.
7. Distribution of Action Plan & 2nd Ballot: On April 6, 2010, City staff in cooperation with a
professional mailing service mailed the NTM Action Plan amendments and second voting ballot
in the same manner as the first ballot. Based on a required 51% required response rate and a
supporting 2/3 vote in order for a measure to be forwarded to the Council, the results of the
ballot is shown in Table 3 below.
Table 3: Action Plan-2nd Ballot Results
Responded Vote Not To Support Vote To Support Pass
I Buchon St.Raised X-Wallk 213 59% 56 26% 157 74% YES
2 1137 Buchon St.Speed Hump 213 59% 117 55% 96 45% NO
1176 Buchon St.Speed Hump 213 59% 111 52% 102 48% NO
1224 Buchon St.-Speed Hump 213 59% 111 52% 102 48% NO
3 Buchon St.Edge Lines 213 59% 11 90 42% 11 123 58% NO
4 Buchon St.Bulbouts 213 59% 11 121 57% 11 92 43% 11 NO
Pismo & Buchon Neighborhood Traffic Management Page 6
Based on the results of the second voting ballot, the raised crosswalk at Buchon and Toro was the
only measure to be amended into the NTM Action Plan (Attachment 4)which is being presented to
Council for approval. Each of the measures approved in the NTM Action Plan are descried in detail
in the action plan itself(Attachment 4). It is however important to differentiate speed bumps and
speed humps. Speed bumps, not being proposed, are typically sharp protrusions from the roadway
less that one foot in length. Speed humps,which are being proposed, are elongated protrusions from
the roadway at approximately 14-feet in length and are designed to balance speed reduction with
noise and emergency vehicle access.
Neighborhood Traffic Management Policy Issue
Based on the past 12 years of experience the City has had with its current NTM policy, City staff
has determined that particular elements of the policy continue to raise recurring issues which
need to be addressed. In October 2008, as part of the Annual Traffic Safety Report, the Council
directed staff to return with recommended revisions to the policy to address these issues.
Unfortunately, due to staff resource shortages.and unexpected work load increases (ie. Laguna
Village Shopping Center, State Route 1 Major Investment Study, etc.) this update is delayed.
However, staff is currently in the final stages of developing a complete revision and expects to
return to Council within the next three to six months with the final draft. In particular, two
recommended policy revisions that will be recommended as part of that update directly affect
this NTM Action Plan;the voting and funding methodologies.
NTM Voting Methodology
As part of the current NTM policy 51% or more of the study area's households must vote to
support the action plan in order for the action plan to be presented to Council. Under this
methodology each household that does not return their ballot inherently diminishes the ability of
the vote to be successful. Because any type of neighborhood traffic calming device will have
some form of negative tradeoff for the benefit they provide it is important to have a high level of
support for a project from the entire neighborhood. However the current 51% methodology has
been criticized as weighting the vote too heavily against action as a no response is essentially
counted as a"No" vote.
As part of the upcoming NTM policy revision staff reviewed the NTM policies of many other
California cities and found that the current City policy is actually used by less than 10% of other
agencies. The most common voting methodology is a minimum 51% response rate and a
minimum 67% of the response in favor of the project in order for it to proceed to Council. Staff
believes that this voting methodology best fits the overall NTM objective of requiring a high
level of neighborhood support without weighting the vote too heavily against action. Therefore
staff will be recommending this revision as part of the upcoming NTM policy update.
NTM Funding Methodology
As part of the current NTM policy the funding for each NTM project is established at $140 per
household in the study area, if the total project cost exceeds that dollar amount then the City and
neighborhood divide the additional cost. This funding methodology has been criticized for
having too low of a dollar-per-household allowance which in turn discourages residents to vote
for measures in concern of having to pay for them. This methodology also requires that a certain
level of City funding be available for NTM projects depending on the size of the neighborhood,
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Pismo& Buchon Neighborhood Traffic Management Page 7
which may not be the case. For example if a 300 household neighborhood voted for a NTM
project, the funding allowance dictated by the policy would be $42,000 which is slightly more
than twice the annual NTM budget of$20,000, in which case the City would not be able to meet
its fiscal commitment.
As part of the upcoming NTM policy revision staff reviewed the NTM policies of many other
California cities and found that the current City NTM funding policy is actually used by less than
10% of other agencies. The most common funding methodology is 100% funded by the City and
limited to the NTM budget established at the time of the project with any cost above and beyond
that budget to be funded by the neighborhood residents. Staff believes that this funding
methodology best fits the overall NTM objective by allowing maximum City participation while
more appropriately allowing for changes in construction costs and annual budget adjustments.
Because both of these policy issues have been identified and recommended revisions have been
established, staff believes it is appropriate to apply them to new NTM projects. Therefore staff
recommends that the Pismo Buchon NTM move forward under the new recommended
methodologies. The information and staff recommendation in this report represents the Action
Plan under the new recommended methodologies, Alternative #1 represents the Action Plan
under the current methodology.
Other Action Plan Improvements
In addition to the traffic calming measures which have received 2/3 support of the neighborhood,
staff is also recommending that additional projects be included in the Action Plan. These projects
include those already approved outside the scope of the NTM and others in order to comply with the
NTM policy on traffic diversion.
NTM Policy on Traffic Diversion—Buchon Speed Tables
The NTM policy on traffic diversion states that the application of NTM devices should not divert
traffic onto other residential collector or residential local streets that exceed the diversion standards
shown in Figure 3 of the NTM policy (Attachment 5). Due the grid-type street network of the
neighborhood, any form of traffic calming has the potential to divert traffic on to other
neighborhood streets. Therefore staff proposes to include the three speed tables and painted edge
lines on Buchon Street that did not receive 2/3 vote as a contingency follow-up project if staff
determines that traffic diversion onto Buchon street has occurred. Staff will evaluate traffic volumes
within the neighborhood at six and twelve months to determine if the thresholds identified in Figure
3 of the NTM policy have been exceeded.
Buchon & Johnson Intersection Improvements
In addition to the current NTM program, the Council has also approved $100,000 for intersection
improvements at Johnson & Buchon. Because this project has already been approved by Council
these changes were not subject to the NTM balloting requirements. Staff has,however, included the
Neighborhood Action Team in discussion and the preliminary design of this improvement.
Although this project was approved outside the NTM program it is intended to improve safety and
calm traffic in and around the Pismo/Buchon neighborhood and is therefore identified in the Action
Plan.
Pismo & Buchon Neighborhood Traffic Management Page 8
CONCURRENCES
Public Safetv
The Police and Fire Departments have both been involved in the development of the
Pismo/Buchon NTM Action Plan. The Fire Department and Police Department have both
reviewed the calming measures in the recommended Action Plan and support their
implementation. The Police Department has worked with Public Works staff not only in the
development of the Action Plan but has also been involved in the neighborhood outreach effort,
meeting with the Action Team to determine the most effective enforcement approach.
Neighborhood Action Team
A group of twelve neighborhood residents volunteered to serve on an Action Team representing
the neighborhood and each of their respective streets in the preparation of the action plan and
ballots. Over the course of the action plan development staff held approximately eight formal
Action Teams meetings and maintains ongoing communications with each of the action team
members. Each of the measures presented in the action plan are supported by neighborhood
action team. The Action Team also supported additional measures that ultimately did not receive
2/3 support of the neighborhood. These measures are identified in Tables 2 and 3.
FISCAL IMPACT
The total preliminary estimate to implement the Pismo/Buchon NTM Action Plan is $270,000. It
is important to understand that this estimate is based on rough concepts at this point. If the
Action Plan is approved, more accurate cost estimates can be established once engineering
designs are completed. The Action Plan will be funded from the NTM account and the
Buchon/Johnson Intersection Improvement project account. The NTM account has an annual
allocation of $20,000. However, due to the length of time necessary to complete the Action
Plan, allowing for carryover savings from previous years' funding, the current NTM budget is
$172,900. The Buchon/Johnson Intersection Improvement project account has a budget of
$100,000. This provides a total combined funding of$272,900 which is available to support the
Pismo/Buchon NTM Action Plan.
PRELIMINARY ESTIMATES-_ FUNDING SOURCES
Engineering.Desin $21,750 99501 NTM Acct. $172,900
Construction $217,500 90731 Buchon Johnson Int.Acct. $100,000
15%Contingencies $32,625
Miscellaneous(Pennits,Printing,etc.) $1,000
Total Project: $272,8751 Total Funds Available: $272,900
ALTERNATIVES
1. Approve the Action Plan consistent with the current NTM voting methodology. The
Council may choose to approve the Pismo/Buchon NTM Action Plan with measures that
received the required level of neighborhood support under the current NTM policy, these
measures are identified in Attachment 6 However staff does not recommend this
alternative because of the issues associated with such a methodology as identified in this
report. c p�
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Pismo& Buchon Neighborhood Traffic Management Page 9
2. Do not approve the Action Plan. The Council may choose not to approve the
PismoBuchon NTM Action Plan at this point and defer further work in this
neighborhood until the underlying circulation issues can be addressed in the Circulation
Element Update. Staff does not recommend this alternative because even if with the
underlying circulation issues were addressed, these calming measures will still provide a
measureable benefit to the neighborhood. Staff also does not recommend this because a
complete update to the Circulation Element has yet to be approved and funded.
3. Modify the proposed Action Plan to include alternative features The Council may
choose to modify the PismoBuchom'NTM Action Plan to include additional and/or
alternative features. Staff does not recommend this alternative because the proposed
Action Plan is the product of several years of community outreach and input. The Action
Plan features also represents the measures which received the support of the
neighborhood as demonstrated by the ballot results.
4. Continue consideration and direct staff and/or the Action Team to consider alternative
calming features. The Council may direct staff to evaluate alternative calming feature or
to engage in a larger planning to address the underlying circulation issues in advance of
the Circulation Element update. Staff does not recommend this alternative because the
proposed PismoBuchom NTM Action Plan represents the measures which received the
support of the neighborhood as demonstrated by the ballot result. Additionally, the
Transportation Division does not currently have the staff or fiscal capacity to facilitate
such a planning effort at this time.
ATTACHMENTS
1. Neighborhood vicinity map
2. Summarized neighborhood traffic concerns
3. Neighborhood volumes with &without high school traffic
4. PismoBuchon NTM Action Plan
5. NTM Traffic Diversion Policy
6. NTM measures supported under current voting methodology.
7. Council Resolution
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Attachment 2
SUMMARY OF NEIGHBORHOOD TRAFFIC CONCERNS
Pismo/Buchon Neighborhood Action Team
Identified Issues and Potential Causes
Item Issues Potential Causes
1 High Traffic Speeds on Johnson at the Railroad Downgrade at overpass, left turn lane striping on
Overpass. Johnson between Buchon and Pismo.
2. High Traffic Speeds on Pismo and Buchon in Lane configuration, intersection offset at
the blocks between Toro and Johnson. Pismo/Toro.
3 Cars passing on Pismo and Buchon in the Intersection offset at Pismo/Toro.
blocks between Johnson and Toro.
4. High Traffic Volume during the commute Left tum striping configuration on Johnson/Pismo
hours and when the high school gets out. encourages motorists to tum into neighborhood.
Traffic congestion at Johnson/Marsh.
5 Congestion at the intersections of No right turn lane for eastbound traffic at
Buchon/Johnson, Johnson/Pismo and Buchon/Johnson, left turning traffic backs up
Johnson/Marsh. waiting to turn left on Johnson.
6 New development will increase traffic volumes Projections from new developments should be
in neighborhood. incorporated into studies and recommendations.
7. Traffic from Santa Rosa and Osos Streets are Traffic signal configuration at Marsh/Santa Rosa
encouraged to use Buchon to access Johnson. does not have a left tum phase for southbound
traffic to tum east on Marsh.
Cut-thru traffic using neighborhood to access Traffic congestion at Johnson/Marsh, Santa
8 downtown and freeway instead of using Rosa/Marsh, one-way lane configuration on Marsh
arterials. and Mguera between Santa Rosa and Johnson.
Left turn lane design on Johnson between Buchon
and Pismo forces traffic to tum into neighborhood.
9 Left-tum lane on Johnson/Pismo forcing traffic Striping configuration on Johnson.
to tum left into neighborhood.
10. Limited sight distance at Buchon/Johnson and Large downgrade at overpass, left turn striping
at the Johnson RR overpass. configuration,high speeds at the Johnson overpass.
11. Limited sight distance for left turning traffic Parked cars restricting amount of roadway visible
from Toro onto Buchon. to motorists.
1Pedestrian access at Pismo/Toro and Limited sight distance due to parked cars. Offset of
Pismo/Buchon. the intersection at Pismo/Toro, traffic volumes and
speeds.
13. Intersection offset at Pismo/Toro. Existing road geometry and lane configuration.
14 Truck access/parking on Toro behind Scolari's. Trucks parking on Toro waiting to unload.
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Attachment 3
VOLUME COMPARISON WITH AND WITHOUT
HIGH SCHOOL TRAFFIC
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VOLUME COMPARISON WITH AND WITHOUT
HIGH SCHOOL TRAFFIC
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A ' ACHMENT 4
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Pismo/Buchon Neighborhood Traffic Management
Draft Action Plan (June, 2010)
Background
In the Fall of 2005, residents in the Pismo/Buchon neighborhood submitted a petition asking the
City of San Luis Obispo to address concerns about excessive traffic speeds, volumes, and collisions
in the neighborhood.
On April 21, 2008, the City of San Luis Obispo Public Works Department held a community
meeting for neighborhood residents to discuss their traffic concerns. Based on interest expressed at
the meeting, a Neighborhood Action Team comprised of residents representing the entire
neighborhood was formed. Four neighborhood representatives attended the first Neighborhood
Action Team meeting in May 2008. At this initial meeting the Action Team members reviewed and
specified issues that they felt should be addressed as part of this Neighborhood Traffic Management
(NTM) effort. Public Works staff discussed with the Action Team the types of traffic studies that
would measure the volume, speed and travel patterns of traffic in the neighborhood and that traffic
studies would begin in the Fall once all schools were in session.
The traffic studies were conducted from September 2008 to May 2009. Five Action Team members
subsequently met with Public Works Staff in May 2009 to discuss the results of the traffic studies
and develop a cost effective solution to resolve the traffic concerns identified by the residents.
Development of the Action Plan continued as City staff met with the Action Team throughout 2009
and 2010.
Traffic Study Results
The results of the traffic studies confirmed the neighborhood concerns about traffic speeds and
volumes. As summarized in Table 1, speed surveys conducted on Johnson Avenue indicate that the
85' percentile speed ranged between 35-38 mph with a posted speed of 30 mph; Pismo Street
ranged from 30-32 mph while Buchon Street ranged from 31-33 mph, both with a posted speed of
25 mph. A license plate survey during the peak traffic hours confirmed that 74% of the traffic on
Buchon and 56%of the traffic on Pismo did not have a destination within the neighborhood. Traffic
volume counts indicated that the average daily volume of vehicles on Buchon (3,570) exceed the
Circulation Element desired maximum volume (3,000 for a Residential Collector) by 20%. Traffic
volume counts indicated that the average daily volume of vehicles on Pismo (3,650) exceed the
Circulation Element desired maximum volume by 22%.
Table 1-Traffic Volumes and Speeds
Traffic Soeeds Traffic Volumes
— — Observed
l Speed Umit. ;; Observed j Circulation Element Desired
Predominant Speed !._�
Buchon 731-33 MPH !1 25 MPH _,� 3,570 3,000
_P�smo�l. 30-32 MPH _25 MPH �I 3,650 3;000 —
Johnson I 35-38 MPH 1! 30 MPH 12,931 'iy=__ _ N/A_ —
- ATTACHMENT 4
PismoBuchon Neighborhood Traffic Management Draft Action Plan May 2010
Study Area
The study area, shown in Figure 1, was established by Public Works staff and the Action Team. The
study area boundary is based on traffic conditions in the neighborhood and the effect the proposed
traffic calming measures could have on adjacent streets.
�•. �� %
SAN LUSSUBIS 0:
HIGH-§C OOL/
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ITCHELL
NM Boundary N r
Figure 1-NTM Study Area
Statement of Objectives
The objective of this Action Plan is to improve the quality of life and the personal safety for the
residents of the PismoBuchon neighborhood by reducing vehicle speeds, reducing non-local traffic
volumes, and improving pedestrian safety. The Action Team agreed upon goals form the basis of
this Neighborhood Traffic Management Action Plan. These goals include:
Table 2-Action Plan Objectives
Current NTM Objectives_'
Johnson Speeds _ 36.7 MPH 32.5..MPH
- Pismo Speeds _ 31.0 MPH 27.5 MPH
-
Buchon Speeds _ 31.7 MPH 27.5 MPH
_— -ume--- —- 300 ADT
_ _Pismo Vol , T
-- 3 650 AD------ tL
-Buchon Volume 3;570 ADT 1�_ 3,300 ADT j
2
ATTAMMENT 4
PismoBuchon Neighborhood Tratrw Management Draft Action Plan May 2010
Traffic Calming Improvements
Based on the traffic study and neighborhood voting results,This Action Plan was developed to
address the observed traffic issues.Based on a neighborhood wide vote the following projects have
been identified as the neighborhood 's preferred solution to address these traffic issues. These
projects are depicted in Tables 3 and 4 with the locations of each of the projects shown in the map
below.
HG14SCH0
Cf
2
o�
s
7 ( NTM Boundary "
Figure 2-Location of Proposed NTM Devices
Table 3-Traffic Calming Projects (51%Response&2/3rds Support)
PROJECT ;, DESCRIPTION _ _i —"_ LOCATION _J
Speed Feedback Signs_ �I Johnson @Railroad Over a3s
--p- ^J
2 Reconfigure Travel Lanes ��Johnson (San Luis Drive to Pismo)__]
3 Road Diet(striping reconfiguration) ;i Pismo (Johnson to Santa Rosa)Y_�
4 Speed Humps(3) -JL 1126; 1176,1240 Pismo
5 Bulbouts and Raised Crosswalk Ji Pismo&Toro
6 � Raised Crosswalk !; Buchon_@_Toro
_
r— 7 i, Speed Humps_{1) -- 1034 IsIaY_
3
ATTACHMENT 4
PismoBuchon Neighborhood Traffic Management Drag Aedon Plan May 2010
Table 4-Traffic Calming Projects
Projects Description . Example
o Electronic speed display
e Reminds drivers of their speed
o May reduce vehicle speed an
Johnson Avenue: average of logo 17.
1 Speed Feedback o Replacement often needed after 5-
SPEED
Signs
7 years
o Sign reliability and maintenance
concerns 33
o New Lane configuration with a two-
way left turn lane and one thru lane
!--- -- --- -- — — o
o Will allow northbound motorists to - JOHNs011 .
merge into one lane prior to Pismo _ r
o May reduce tendency for motorists ----- - —__- --'--*
to be trapped into turning on Pismo
and driving thru the neighborhoodI
Johnson Ave:. o Will provide residents easier access a ~�
Reconfigure into/out of their driveways
2 Striping o Will provide additional capacity for 4
(San Luis Drive to the left turn lane onto San Luis Drive s\
o Concern that motorists may use the
Pismo Street).
two-way left turn as a through laneij
o Example drawings at right include
intersections improvements at _
Johnson/Buchon that will be -- -
constructed outside of the Action
Plan approval process.
o Existing 2 vehicle lanes will be
reduced to one vehicle lane
o New lane configuration will allow
for one vehicle lane,2 parking lanes , �.Qo
Pismo Street: and one bike lane.
"Road Diet" o May reduce vehicle speeds
3 (Johnson Avenue o Expected to reduce tendency for
to Santa Rosa St.) motorists to pass each other ,• �• ,r-„• r
oWill improve pedestrian access
o Similar to lane configuration on
Pismo west of Broad
Bo"I
4
PismoBuchon Neighborhood TriWk Management Draft Action Plan May 2010
• Rounded,raised area of pavement
• 14 feet in length,3 inches in height �.
• May reduce vehicle speeds an �-
average of 18%
Pismo Street: • Most effective at overall speed —
4 Speed Humps reductions if installed in a series
1240, 1176, 1126 • Speed reductions based on the
number and spacing of devices
• Possible increase in traffic noise r
• Concern over jarring of vehicles
Raised Crosswalk:
• Raised flat-topped area of
pavement with crosswalk markings
22 feet in length,3 inches in height
May reduce vehicle speeds by an
average of 18%
• Improved pedestrian access --
Possible increase in traffic noise -------
Pismo Street Concern over jarring of vehicles
(although less than speed humps) — -Q
At Toro Streets �;SM 0 _
5. Bulbouts: F-
t
Raised Crosswalk • An extension of the sidewalk
-- --701 ,1
and Bulbouts Will serve to physically narrow the
street and correct the wide offset of
the intersection
• Will diminish tendency for vehicles
to pass each other.
• Shorten the crossing distance for
pedestrians
• May reduce vehicle speed by an
average of 4%
• Installed on the east side of the
intersection
• Raised flat-topped area of
pavement with crosswalk markings
Buchon Street at • 22 feet in length,3 inches in height
f
6 Toro Street: • May reduce vehicle speeds by an
average of 18%
Raised Crosswalk • Improved pedestrian access —
• Possible increase in traffic noise
• Concern over jarring of vehicles
(although less than speed humps) I
Uc'Y--
5
ATTACHMENT 4
I �
PismoBachon Neighborhood Tralfrc Management Draft Acdon Plan May 2010
Rounded,raised area of pavement -
14 feet in length,3 inches in height -May reduce vehicle speeds an - — -1
f 18%
average o
Islay Street:
o May reduce the tendency for
7 Speed Hump motorists to use Islay as an alternat
1034 to Buchon
o Possible increase in traffic noise
o Concern over jarring of vehicles
Implementation & Performance Monitoring
If the City Council approves the Action Plan, City staff will immediately begin engineering and
design of the improvements, which should take approximately 4-6 months to complete. Following
design, City staff will advertise for construction bids &award a construction contract,which should
take approximately 1-2 months. Construction should take approximately 2-3 months to complete.
Once construction is completed, City staff will conduct ongoing performance monitoring of traffic
volumes, speeds, and collisions for a period of 12 months.
It is the NTM policy that the application of NTM devices should not divert traffic onto other
Residential Collector or Residential Local street that exceeds the diversion standards shown in
Figure 3 of the NTM guidelines. Therefore if after a period of 6 or 12 months staff determines the
diversion standards are exceeded staff will install three additional speed tables and painted edge
lines on Buchon street. If it is determined that any of the improvements have imposed any undue
secondary impacts, the Director of Public Works may order modification, addition, and/or removal
of NTM devices installed as part of this action plan.
BS-/ 9
6
ATTACHMENT 4
PismoBuchon Neighborhood Traffic Management Draft Acdon Plan May 2010
Cost Estimates& Funding
The Action Plan proposes to construct a series of traffic calming measures on Johnson Ave, Pismo
St, and Buchon St. as described in Table 3 and 4. If these measures fail to meet the goals of the
project as listed in Table 1, the Action Plan includes the option of installing additional traffic
calming devices. The total cost of the Action Plan is estimated at $270,000. The proposed funding
strategy is to allocate $172,900 of available City Neighborhood Traffic Management funding to the
Action Plan. This funding will be allocated to Action Plan projects 1 through 7. If after one year
performance monitoring determines that there has been an increase of traffic on Buchon, additional
traffic calming devices may be installed depending on City staff and funding resources.
Table 5-Project Funding
Action Plan Projects
1 Speed Feedback Signs (2) $18,000
2 Reconfigure Johnson Avenue $8,000
3 Pismo Road Diet $6,500
4 Pismo Speed Humps (3) $12,000
5 Pismo/Toro Bulbouts-Raised Crosswalk $85,000
6 Buchon/Toro Raised Crosswalk $5,000
7 Islay Speed Hump (1) $4,000
Total: $138,500
Approved Projects
1 Johnson& Buchon Intersection Improvements $65,000
Total: $65,000
Contingency Followup Projects
1 Edge Lines $2,000
2 Buchon Speed Tables (3) $12,000
Total: $14,000
Engineering Total: $21,750
Construction Total: $217,500
Contingency Total: $32,625
Misc.Total: $1,000
Project Total: $272,875
7
Attachment 5
NTM TRAFFIC DIVERSION POLICY
Traffic Diversion: The application of NTM devices should not divert traffic onto
other Residential Collector or Residential Local streets that exceeds the
diversion standards shown in Figure 3.
Neighborhood Traffic Management Guidelines June 1998
Figure Acceptable Increases inTraffic Volumes
On Residential Collector& Local Streets
Maximum Allowed Increase of 400
aso
Vehicles Per Day (VPD)
T
r 900
a
f 350
f
1 300 . ' + Allowed Increase In Traffi On "N -Project"
c �' Streets after NTM Devices I stalled
250--
I
50 . `
. .
+
n 200 ' ►
c , . ' • Use This Curve for
r 150 '• ResidentW Local Streets
+
e +
a 100--
s +
e rte + Maximum of 1,500 VPD for
+ /Residential Local Streets
0
50 500 925 1350 1775 2200 2625 3000
Vehicles Per Day (VPD) Before NTM Facilities Installed
How to Use This Graph:
• First check Figure 1 on page 5 to see what the particular street is classified. For Residential Local
streets,use the dashed- _ . curve. For Residential Collector streets'use the solid —curve.
• Along the bottom of the graph find the point on the scale that most closely represents the traffic level
of the"non-project street"before the NTM devices were installed.
• From the point on the bottom scale, draw a vertical line until it intersects the curve. From this
intersecting point,draw a horizontal line to the left until it intersects the vertical scale.
• Estimate the number on this vertical scale: This number is the number of additional vehicles per day
that will be allowed on this particular strect after the NTM devices have been installed.
Attachment 6
NTM MEASURES SUPPORTED UNDER THE CURRENT
VOTING METHODOLOGY (51 % OF ALL HOUSEHOLDS)
ProRects Description Example
(51% of HH's)
Electronic speed display
Reminds drivers of their speed
May reduce vehicle speed an
Johnson Avenue: average of ion
1 Speed Feedback o Replacement often needed after 5 YOUR
SPEED
Signs
7 years
Sign reliability and maintenance
concerns
New Lane configuration with a
two-way left turn lane and one
a
thru lane — —
Will allow northbound motoriststo ;
merge into one lane prior to Pismo
May reduce tendency for motorist u °
to be trapped into turning on
Pismo and driving thru the `
neighborhood
Johnson Ave: Will provide residents easier
Reconfigure access into/out of their driveways
2 Striping @ Will provide additional capacity for
(San Luis Drive to the left turn lane onto San Luis
Drive '\
Pismo Street)
Concern that motorists may use
the two-way left turn as a through -
lane
Example drawings at right include
intersections improvements at
Johnson/Buchon that will be
constructed outside of the Action
Plan approval process.
Existing 2 vehicle lanes will be
reduced to one vehicle lane
New lane configuration will allow
for one vehicle lane,2 parking r®w� srcmu ��n�
Pismo Street: lanes and one bike lane.
3 "Road Diet" a May reduce vehicle speeds
(Johnson Avenue a Expected to reduce tendency for
to Santa Rosa St.) motorists to pass each other WAV r
o Will improve pedestrian access
Similar to lane configuration on
Pismo west of Broad
90 -ate
Attachment 6
NTM MEASURES SUPPORTED UNDER THE CURRENT
VOTING METHODOLOGY
Projects Description Examale
151%of HH'sl
ised Crosswalk:
Raised flat-topped area of
pavement with crosswalk markings
ZZ feet in length,3 inches in height
May reduce vehicle speeds by an
average of 18%
• Improved pedestrian access
• Possible increase in traffic noise
Pismo Street Concern over jarring of vehicles
At Toro Street: (although less than speed humps) pISM
0 .
4 ulbouts:
Raised Crosswalk _
An extension of the sidewalk
and Bulbouts
Will serve to physically narrowthe
street and correct the wide offset
of the intersection
Will diminish tendency for vehicles I —
to pass each other.
Shorten the crossing distance for
pedestrians
May reduce vehicle speed by an
averse of 4%
��-a3
ATTACHMENT
RESOLUTION NO. (2010 Series)
RESOLUTION OF THE COUNCIL OF THE CITY OF SAN LUIS OBISPO
ADOPTING A NEIGHBORHOOD TRAFFIC MANAGEMENT (NTM)ACTION
PLAN FOR THE PISMO & BUCHON NEIGHBORHOOD
WHEREAS, In June 1998, the City Council adopted Resolution 8811 which
establishes guidelines that direct how Neighborhood Traffic Management Plans should be
prepared; and
WHEREAS, consistent with these adopted guidelines, residents of the Pismo &
Buhcon neighborhood have worked with City Transportation staff to prepare a draft
NTM Plan for the Pismo and Buchon Neighborhood; and
WHEREAS,ballots distributed to all households within the study area requesting
support of the draft NTM plan measures resulted in at least a 51%response rate and a
supporting 2/3rds vote, and this level of support exceeds the recommended minimum
level required; and
WHEREAS, the City Council finds that the preparation of the Action Plan is
consistent with the standards and protocol contained within the NTM guidelines adopted
by resolution 8811, the recommended voting and funding methodology revisions to those
guidelines, and that the installation of the measures identified in the action plan are
reasonable methods for pursuing City NTM goals along this particular corridor.
BE IT RESOLVED,by the City Council of the City of San Luis Obispo as
follows:
SECTION 1., The City Council adopts the Pismo & Buchon Neighborhood
Traffic Management Plan, attached as Exhibit A, and direct the Public Works
Department to implement the improvements as called for by the Action Plan.
On motion of Council Member seconded by
and on the following roll call vote:
AYES:
NOES:
ABSENT:
The foregoing resolution was adopted this first day of June, 2010..
i
ATTACHMENT �
Resolution No. (2010 Series)
Page 2
Mayor, David F. Romero
ATTEST
City Clerk, Elaina Cano
APPROVED AS TO FORM:
City Attorney, Christine Dietrick
B(8-dY
--'TD FILE
MEETING AGENDA
'! DATE4/4 ITEM
#-
momcoonc,t mEMoRanoum
June I st, 2010
TO: City Council
E; COUNCIL 'CDD DIR
�BABT"*n//u62 "FIN DIR
VIA: Katie Lichtig, City Manager 'I]ACA9A9hrti?{^,-ee-FIRE CHIEF
I *TTOFINEY [2r-PW DIR
FROM: Jay Walter, Public Works Director 0 CLERK/ORIG IT-POLICE CHF
13 DEPT HEADS IrREC DIR
Tim Bochum, Deputy Public Works Dir 7ctor - ��3 Cl'GTIL DIR
Jake Hudson, Traffic Operations Manager ���� SHR DIR
nlaiJTtnt�s � �'Bualcr�
SUBJECT: Pismo & Buchon Neighborhood Traffic Management Ciryg
Staff has received several questions regarding the Pismo & Buchon Neighborhood Traffic
Management Plan that is scheduled for consideration at Today's Council meeting. Many of these
questions mirror specific issues we have identified in the current NTM process that are currently
under consideration in the update to the NTM Guidelines. Staff is in the process of updating these
guidelines and will be bring these recommendations forward for Council consideration later this
year. Postponing the Pismo & Buchon NTM until these revisions were completed was considered,
however because it had been postponed since 2005 first due to the Residential Parking District
effort and then the Mitchell Park / Senior Center parking lot, staff did not feel it was appropriate to
postpone this NTM for Council consideration any longer.
The following are questions and responses regarding the Pismo & Buchon NTM have been received
since the staff report was published.
1) Its not clear from the staff report what the staff recommendation would be in the absence of the
NTM process. Is what the neighborhood voted on was based on a laundry list of possible
alternatives staff gave them or on a uniform staff recommendation that just happened to have
multiple parts?
The action plan does represent a uniform staff recommendation, the recommendations are specific
measures at strategic locations developed to address neighborhood concerns and to adjust traffic
volumes and speeds down towards the desired values as established in the circulation element. As
set up in the NTM guidelines the proposed list of solutions is a joint effort between staff and the
Area Action Team that prioritizes issues on behalf of the neighborhoods. Due to the grid type street
system of the neighborhood any potential. change in traffic characteristics on one street has the
potential effect to divert traffic to adjacent streets — hence a larger than normal list of potential
changes to be addressed. If the improvements were to be completed at staffs' discretion outside of
the NTM program staff would most likely implement, incrementally, the measures shown on the
left side of Table 1 in the staff report and as provided below.
j—
Table 1: Action Plan- 1"Draft Calming Measures
Staff Proposed Action Plan Action Team Revised Action Plan
I lJohnson Ave.Speed Feedback Signs I Johnson Ave.Speed Feedback Signs
2 lJohnson Ave.Striping Reconfiguration 2 Johnson Ave.Striping Reconfiguration
3 Johnson&Buhcon Intersection Reconfiguration, 3 Pismo Street.Road,Diet
4 Pismo Street Road Diet 4 Pismo Street Speed Huai s(3
5 Pismo Street Speed Humps(3) 5 Pismo&Toro Raised X-Walk&Buldbouts
6 Pismo&Toro Raised X-Walk&Buldbouts 6 Buchon Closure*.
7 Buchon Street Edge Lines7 Pismo Closure-Phase ll*
8. Buchon Street Speed Humps(3) 8 Islay Street-Speed Hump*
•,Veasums Added by Action Team as allowed by NTM Guildelines
2) On the surface the recommendation seems a bit "over-the-top." Perhaps a "belt &suspender"
approach such as feedback signs and new striping and road diet and three speed humps in one
block and raised sidewalk. Is this overkill?
Due to the layout of the neighborhood and the effect of traffic calming on one street potentially
diverting to adjacent neighborhoods the "toolbox" is larger than other NTM programs that have
recently been completed. In comparison, while it is not of the same size as the Broad/Chorro
neighborhood area, it certainly has similar issues due to the parallel nature of the neighborhood and
adjacent arterial streets. On the surface it does look like overkill, however these measures are
actually spread across 8 different blocks along four different streets within the neighborhood. It's
important in a grid type street network to have good coverage; otherwise traffic would just be
diverted onto other streets within the neighborhood and the problems displaced into other areas.
3) Would it make more sense to put stop signs at Toro instead of all the speed humps and the raised
sidewalks,particularly with both Pismo &Buchon serving as emergency routes for
Police/Fire/Ambulance?
Repeated studies have shown stops signs are not effective speed deterrents and State and Federal
code specifically state that stop signs should not be used for speed control. Reference documents
such as the California Vehicle Code, California Manual on Uniform Traffic Control Devices, and
Federal Highways Administration Manual on Uniform Traffic Control Devices all comment on this.
Speed humps and tables have proven effective in the City in addressing high end traffic speeds
along local streets, thus their recommended use in this case. They will be designed to balance speed
control with emergency vehicle access and engineering staff will work directly with fire department
staff throughout design and implementation.
4) Why are raised sidewalks are proposed at Toro but not at Santa Rosa, Santa Rosa appears to
have much more pedestrian traffic. Is that because there are already stop signs at Santa Rosa?
The raised crosswalks at Toro are recommended because of limited sight distance, observed
pedestrian & vehicle conflicts, and a relatively high volume of pedestrians. There is a fairly high
pedestrian demand between the two Housing Authority apartment complexes (approx 40-50 Units)
on Toro and Scolaris Market via their private pedestrian path that connects to Toro St. The
multiway stops along Santa Rosa Street do provide a logical break along Buchon and Pismo but
these stops used to facilitate vehicle operations at the locations and not intended to provide
pedestrian access across the streets or to address speeding issues.
5) What are the designation (Arterial vs. Collector) for other nearby streets -- Osos, Marsh
(from Santa Rosa to California), Higuera (from Santa Rosa to Johnson).
Pismi & Osos are classified as Residential Collectors the Osos, Marsh, & Higuera are classified as
Arterials in the City's Circulation Element.
6) Why is Pismo not counted as an Arterial It's certainly being used in that way—not just by
drivers, but in our circulation element. Why else have we made it one way?
Pismo is designated as a Residential Collector in the Circulation Element, not an arterial. If Pismo
were designated as an arterial in the Circulation Element it would not have likely have been
included in the NTM process although residential arterials are allowed some forms of neighborhood
traffic control through the program. Pismo was historically established as a one way street to act as
a one way couplet with Buchon which was previously a one way street as well. It functions both as
a residential street as well as a connector street between arterials in the City. It also has through
volume issues created by the one way street configuration of Marsh Street — thus the competition
for users between residents and vehicles. The volumes on Pismo current exceed the desired
maximum for its classification by approximately 22%.
7) The NTM process is concerning, specifically since it allows a neighborhood to propose the
closure of a major street(Pismo) used by all citizens as well as a street (Buchon) used by Public
Safety as an emergency route, some things need to be off the table.
Comment noted. This is one of the issues that has been identified in the current NTM policies and
should be discussed in the upcoming NTM policy revisions. The guidelines in the existing NTM
program do not offer sufficient language to prevent confusion over what is above and beyond
neighborhood traffic control. Instead, residents can sometimes believe closures or significant
changes to street alignments are the primary solutions even though staff ultimately does not concur
with the potential change to the circulation system. This is not always a negative thing. The premise
was used a few years back in determining the appropriateness of closing Morro Street at Santa
Barbara Street as part of NTM objectives as well as the focal point of the Bill Roalman Bicycle
Boulevard. Overall, it's difficult to apply one toolbox item (such as street closures) to all cases and
additional language and direction needs to be established for these major NTM elements. We
considered postponing the Pismo/Buchon NTM until the revision was complete, however because it
had been postponed for so long we did not feel it was appropriate to postpone any longer. We don't
anticipate any new NTM projects being processed before the NTM revisions are considered by
Council.
Any further questions can be directed to Traffic Operations Manager Jake Hudson at 805.781.7255.
\\chstore4\publicworks\staff-reports-agendas-minutes\ ccmemos\201 O\pismo&buchon ntm.doc