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Circulation Element CIRCULATION ELEMENT CITY OF ENCINITAS GENERAL PLAN As Amended 8/25/93, 1/12/94 9/21/94, 5/11/95, 1/22/03, 4/18/18, and 11/28/18 TABLE OF CONTENTS Section Page Introduction to the Circulation Element C-1 Purpose of this Element C-1 Related Plans and Programs C-2 Format and Scope of this Element C-2 Circulation Element Goals and Policies C-3 Safe, Convenient, and Efficient Transportation C-3 System Roadway Functions C-5 Alternate Modes of Transit C-8 Scenic Highways C-9 Leucadia Blvd. East of I-5 C-11 Coastal Access C-13 Funding the Circulation System C-14 Related Goals and Policies C-14 Circulation Plan C-15 Roadway Facility Designations C-15 Level of Service Standards C-21 Circulation System Plan C-25 Land Use Policy and the Circulation System C-26 Alternate Modes of Transit C-26 Utilities and Transmission Facilities C-34 LIST OF TABLES Table Page Table 1: Circulation Policy Matrix C-15 Table 2: Standards for Roadway Level of Service C-23 Table 3: Roadway Capacity Standards C-24 Table 4: Level of Service Analysis for Major C-27 Intersections LIST OF FIGURES Figure Page Figure 1: Roadway Classification C-17 Figure 2: Circulation Plan C-19 Figure 3: Future Traffic Volumes: 2010 C-20 Figure 4: Future Levels of Service: 2010 C-28 Figure 5: Examples of Augmented Local Roadway C-29 Figure 6: Bikeway Classifications C-32 Figure 7: Bikeway Facilities C-33 Figure 8: Electric/Natural Gas/Liquefied Petroleum C-35 Transmission Facilities INTRODUCTION TO THE CIRCULATION ELEMENT Purpose of A sound, safe and sensible circulation system which this Element promotes the efficient movement of people and goods in and around the City is the main goals of this Element. The Circulation Element is also concerned with establishing policies and programs which will ensure that all components of the system will meet the future transportation needs of the City of Encinitas. The Circulation Technical Report prepared by Austin-Foust Associates provides background information and acts as a supporting document for the Element. The Circulation Element indicates the "general location and extent of existing and proposed major thoroughfares, transportation routes, terminals and other public utilities and facilities, all correlated with the Land Use Element of the general plan". Items of particular concern to the City of Encinitas include: • Truck traffic; • Streets, highways and freeways; • Parking facilities; • Transit and rapid transit; • Railways; • Paratransit (e.g. carpooling, vanpooling, taxi service) ; • Bicycle, pedestrian, equestrian and handicapped facilities; and • Heliports. The Circulation Element addresses the circulation improvements needed to relieve congestion, to provide mass transit services, and to lessen long-term air quality impacts related to transportation. The Element establishes a hierarchy of transportation routes with specific development standards described for each category of roadway. The transportation planning strategies proposed by SANDAL and San Diego County are also considered in the context of how they will effect the planning area. The Element also indicates the daily and peak travel demands on key arterial roadways resulting from the future development. C-1 Related Plans A number of transportation plans have been prepared by and Programs San Diego County and SANDAL. These plans focus on the development of a regional transportation system that will handle the anticipated traffic loads expected from future development. In addition, a number of plans have been prepared that indicate the location of future routes for mass transit that will include light rail as well as conventional buses. Form and Scope The following section contains goals and policies of this designed to improve overall circulation in the Element Planning Area and to address pressing circulation issues that concern the City at the present time. Subsequent sections identify specific roadway standards for both existing and future roadways and the location for future improvements. Finally, the implications of land use policy as it relates to circulation, including future traffic volumes, is described. C-2 CIRCULATION ELEMENT GOALS AND POLICIES The following goals and policies included in this Element address a wide range of issues concerning circulation in and through the City. More efficient movement of traffic on existing roadways, the establishment of standards for future roads, provision of other forms of transit, preservation of scenic highways, and improved coastal access are the major areas of concern of the following goals and policies. Safe, The following goal and supporting policies emphasize Convenient, the need to maintain a transportation system that is and Efficient capable of handling the existing and projected traffic Transportation loads in the City. To achieve this end, a number System of policies have been adopted that call for more efficient use of existing roadways by employing measures that improve the movement of traffic. GOAL 1: Encinitas should have a transportation system that is safe, convenient and efficient, and sensitive to and compatible with surrounding community character. (Coastal Act/30252) POLICY 1.1: Ensure that the arterial circulation system provides adequate connections across the freeway for convenient circulation and rapid emergency access. POLICY 1.2: Endeavor to maintain Level of Service C as a basic design guideline for the local system of roadways understanding that the guideline may not be attainable in all cases. POLICY 1.3: Prohibit development which results in Level of Service E or F at any intersection unless no alternatives exist and an overriding public need can be demonstrated. POLICY 1.4: Require, where feasible, interconnecting offstreet pedestrian and vehicular circulation between adjacent commercial and office land uses. This policy should be required along major transportation corridors to minimize traffic conflicts associated with pedestrian and vehicular movement to and from these properties. (Coastal Act/30252) POLICY 1.5: Promote maximum utilization or expansion of existing freeways and prime arterials as an alternative to new freeway or highway construction. Encourage new and/or proposed freeway construction to be outside the Encinitas sphere of influence boundaries. C-3 POLICY 1.6: Minimize freeway, prime arterial, major, collector, and augmented local access to encourage their use as throughways rather than as access to adjacent properties. POLICY 1.7: Encourage adjacent properties to use common access points to access prime arterials, major roads, collectors and augmented local streets. POLICY 1.8: Locate major roads and prime arterials where they will bypass rather than divide residential neighborhoods. POLICY 1.9: Minimize private driveway access onto both major and collector roads. POLICY 1.10: Encourage the design of roads and traffic controls to optimize safe traffic flow by minimizing turning, curb parking, uncontrolled access, and frequent stops. POLICY 1.11: Construct roads following the natural contours to minimize cuts and fills; avoid grid street patterns when feasible. POLICY 1.12: The City will require increased off-street parking for expansions and additions to existing and future commercial and residential uses in the near coast area, will minimize curb cuts for new development in the vicinity of beach access points in order that the maximum amount of curb parking will be available to beach users, and will encourage remote parking/shuttle service and park-and-ride facilities in the Coastal Zone. The City will require that all commercial, industrial and residential uses be designed and constructed with sufficient off-street parking and loading facilities to assure adequate parking is provided with new development such that no adverse impacts on coastal access are documented. Parking ratios shall be utilized as specified and detailed in the City's Zoning Code and in implementing Specific Plans which provide sufficient parking spaces so as not to require patrons/employees/ residents to utilize parking which is necessary/required for other approved uses or street and other public parking that should otherwise be available for public use. (Coastal Act/30252) Policy 1.12 amended 5111195 (Reso. 95-32) POLICY 1.13: Emergency response routes shall be identified as a basis for implementing an Opticon or other traffic signal control system designed to reduce emergency vehicle response time. POLICY 1.14: A coordinated traffic signal system shall be developed and implemented. POLICY 1.15: The City will actively support an integrated transportation program that encourages and provides for mass-transit, bicycle transportation, pedestrians, equestrians, and car-pooling. (Coastal Act/30252) C-4 POLICY 1.16: In areas where street patterns and extensions are not complete and significant lands remain for development which do not have direct street access, neighborhood street/access plans shall be required prior to any further land division or development. The preferred system would be a trunk and branch system. POLICY 1.17: Standards shall be established and implemented to provide for adequate levels of street lighting, based on criteria of safety and related to volumes of vehicular, pedestrian and bicycle activity and potential points of conflict. Such standards shall be designed to respect different community and neighborhood needs for lighting, different community standards for design and special attention given to preservation of dark sky. POLICY 1.18: Standards shall be established and implemented to provide for a comprehensive system of traffic control devices and signing, based on sound traffic engineering principals, to assure traffic safety and preservation of community character. POLICY 1.19: The City will provide for adequate levels of maintenance of all improved components of the circulation system, such as roadways, sidewalks, bicycle facilities, roadway drainage systems, pedestrian, recreational trails, bicycle trails and facilities. POLICY 1.20: No street shall be closed without prior analysis including environmental review which addresses increases in traffic on other streets which would be created by the closure. Generally, it is undesirable that any closure increase traffic levels beyond the limits specified in this Plan for any street included in the General Plan computerized traffic model. Roadway Different types of roadways have distinctly different Function functions and these differences need to be recognized and Standards in planning for new roadways and improvements to existing ones. The following policies provide the framework for roadway standards described in the Circulation Plan included in this Element. GOAL 2: The City will make every effort to develop a varied transportation system that is capable of serving both the existing population and future residents while preserving community values and character. (Coastal Act/30252/30253) C-5 POLICY 2.1: Adopt and implement standards for rural, semi-rural, and urban roadways within the City consistent with community character. POLICY 2.2: Require new residential development to have roadways constructed to City standards before the roads can be dedicated to the City. POLICY 2.3: Design the circulation system serving new development in such a way to minimize through traffic in all residential neighborhoods. POLICY 2.4: When considering circulation patterns and standards, primary consideration will be given to the reservation of character and safety of existing residential neighborhoods. Where conflicts arise between convenience of motorists and neighborhood safety/community character preservation, the latter will have first priority. POLICY 2.5: Route major thoroughfares and plan future road construction so that development pressure on undeveloped areas is minimized. POLICY 2.6: Periodically evaluate traffic circulation patterns of all roads in Encinitas. POLICY 2.7: The City will emphasize road construction projects which serve the Coast by including coastal access as criterion for prioritizing those routes identified in the multi-year capital improvement program. (Coastal Act/30252) POLICY 2.8: Where necessary, require acquisition of right-of-way as a condition of approval of all final subdivision maps. Encourage landscaping of rights-of-way if not being used for public roads, hiking/riding trails or beach access trails. POLICY 2.9: Develop new alternate road and intersection standards to promote retention of existing neighborhood atmosphere. POLICY 2.10: Establish landscaping buffer and building setback requirements along all roads which are local augmented status or larger, except where inappropriate. (Coastal Act 30252) POLICY 2.11: Encourage landscaping of freeway medians and freeway unpaved rights-of-way adjacent to the freeway using reclaimed water where available. C-6 POLICY 2.12: Encourage unique characteristic community design standards for traffic signals and intersection signing and other street improvements, structures and furniture. POLICY 2.13: Encourage landscaped medians and parkways on all roadways where practical. POLICY 2.14: Develop rural, semi-rural, and urban standards and criteria for private streets including a mechanism for on-going maintenance. POLICY 2.15: Establish neighborhood specific standards for streetlights including lighting levels, spacing and uniformity in appearance while recognizing that street lighting is not appropriate in dark sky areas. POLICY 2.16: Develop a program to improve alleyways with paving and drainage improvements. POLICY 2.17: New City road standards shall be established to reflect the character and image of each community. POLICY 2.18: Where possible, functioning of the street system should be improved by the installation of intersection improvements. POLICY 2.19: Minimize road widths in rural and semi- rural areas. (Rural defined as � acre and above; and semi-rural defined as having a feeling of country even if lot sizes are less than ',� acre) POLICY 2.20: When major roads must pass through neighborhoods, large right-of-way widths should be acquired to allow for landscaping, trails, etc. to offset and minimize disruption to the community. POLICY 2.21: Work with Caltrans to study the need for additional right-of-way along I-5 to allow for future expansion and widening. POLICY 2.22: To avoid impacts of the expansion and improvement of Manchester Avenue on the San Elijo Lagoon and its environmental resources, right-of-way dedication and widening shall occur to the north, away from the lagoon, rather than toward the lagoon; and the use of fill shall be prohibited. The design of the Manchester/I-5 interchange shall also avoid the use of fill and locate structures as far north as possible to avoid impacts on the lagoon. When design and improvement of Manchester Avenue and the interchange are undertaken, the County Department of C-7 Parks and Recreation, the State Department of Fish and Game, the Coastal Commission and others will be notified and given the opportunity to participate in the design and environmental review process. Policy 2.23 POLICY 2.23: No roadway link established by this Plan Amended 9121194 shall be re-classified to a greater capacity category and no new link shall be added without the affirmative vote of a majority of those voting in an election to approve such change. Alternate The private automobile will continue to be the Modes of dominant form of transportation in the Planning Area Transit in coming years. A primary focus of the following policies is to encourage people to utilize other forms of transportation and to accommodate those households that rely on public transit. GOAL 3: The City of Encinitas will promote the use of other modes of transport to reduce the dependence on the personal automobile. (Coastal Act/30252) POLICY 3.1: The needs of the handicapped will be considered in new development plans including handicapped parking, loading, etc. POLICY 3.2: Continue to assist in expanding public transportation and emphasize public transportation in future development with preference given to cost-effective alternatives. (Coastal Act/30252) POLICY 3.3: Create a safe and convenient circulation system for pedestrians. (Coastal Act/30252) POLICY 3.4: Cooperate with San Diego County, SANDAL, and other jurisdictions to help plan and implement a regional multi-modal transportation system that is accessible to residents in the City. (Coastal Act/30252) POLICY 3.5: Encourage development of mass transit and transit access points along the existing I-5 freeway corridor or along the railroad right-of-way. (Coastal Act/30252) POLICY 3.6: The City should provide and encourage efficient links between possible rail transit service and other transportation modes, including rerouting of bus service to interface with transit stops. C-8 POLICY 3.7: The City will carefully review plans for transit service, while encouraging such service, so as to identify and minimize any adverse visual, noise, land use, or other development and operation impacts on the City's communities. POLICY 3.8: A program shall be developed to install sidewalks or paths, where appropriate, around schools, churches, active parks, commercial and other areas of pedestrian activity where public safety or welfare is at issue (Coastal Act/30252) POLICY 3.9: A program to install handicapped access ramps at all corners with sidewalks shall be developed. POLICY 3.10: Standards shall be established for the location and design of newsracks, signs, walls and other improvements which encroach into the public right-of-way. (Coastal Act/30251) POLICY 3.11: The City will strive to implement a safe, direct, and convenient circulation system for commuting and recreational bicycle traffic. The City will support the development of additional bicycle facilities in the Coastal Zone, including the following: all Circulation Element roads will include provisions for bicycle lanes unless precluded by design and safety considerations in which cases, alternative routes shall be provided to form a continuous network. the provision of secure bicycle storage facilities at all beaches designated for high and moderate levels of use; and the installation of bicycle and surfboard racks on all buses serving the Coastal Zone. (Coastal Act/30252) Scenic The preservation and maintenance of scenic highways is Highways emphasized in the following policies as well as policies included in the Resource Management Element. In addition, future road improvements should include design features that enhance the communities through which they pass. GOAL 4: The City should make every effort to develop a circulation system that highlights the environmental and scenic amenities of the area. (Coastal Act/30251) C-9 POLICY 4.1: Design roads to enhance scenic areas. (Coastal Act/30251) POLICY 4.2: Promote and encourage roadside and median landscaping. (Coastal Act/30251) POLICY 4.3: Separate pedestrian, bicycle, and vehicular traffic by encouraging adequate space for walking and biking by striping roadways, excepting freeways. Coastal Act/30252) Policy 4. 4 POLICY 4.4: The City has adopted a Citywide Recreation Amended 1122103 Trails Master Plan to establish a separate system of hiking trails, bicycle paths and equestrian trails from which Reso. No. 03-07 motorized vehicles shall be banned. The general location and type of each trail is shown on the Recreational Trails Master Plan Map (Recreation Element, Figure 3) . Any proposed modifications or additions to the Recreational Trails Master Plan or Recreational Trails Master Plan Map that may directly affect coastal zone resources shall require an LCP amendment. POLICY 4.5: Design and construct attractive bike paths and pedestrian ways along existing freeway overpasses and underpasses. Discourage separate pedestrian overpasses. (Coastal Act/30252) POLICY 4.6: Enforce existing laws prohibiting offroad motorized vehicles from traveling on public roads. Prohibit off road motorized vehicles from operating within city limits. POLICY 4.7: Encourage consistent signing throughout the city using international sign standards when appropriate. (Coastal Act/30251) POLICY 4.8: Develop and enforce a system of truck routes which discourages truck traffic on residential streets and roads. POLICY 4.9: Prohibit whenever legally possible, or strictly regulate billboards on city streets, roads, freeways, railroad rights-of-way, and lagoons. (Coastal Act/30251/30253) POLICY 4.10: Develop street lighting standards, where appropriate, consistent with neighborhood/community character and night sky viewing. POLICY 4.11: Keep street lighting, curbs, and gutter requirements consistent with individual neighborhood character. POLICY 4.12: Encourage undergrounding of utilities within street rights-of-way and transportation corridors. (Coastal Act/30251) POLICY 4.13: Encourage utilization of reflective devices and road striping where useful for safety. C-10 POLICY 4.14: Where feasible, minimize the dependence on private motor vehicles. (Coastal Act/30252) Leucadia Blvd. The objectives in the design and improvement of the East of I-5 Leucadia Boulevard link are to provide a truly scenic roadway; to fit and reflect the community character; to mitigate all possible negative effects on surrounding neighborhoods from noise, traffic, light and visual blight by providing substantial design and landscaping amenities; and to create a visual asset to the community. Paragraph GOAL 5: Leucadia Boulevard between I-5 and Olivenhain Amended Road is planned as a Major Arterial-Augmented. Prior 9121194 to any improvements of any portion of this link above the capacity (at LOS "D") of a two-lane local roadway, all of the following policies shall be satisfied: POLICY 5.1: The specific plan required by the Land Use Element for the unincorporated sphere area through which the Leucadia Boulevard alignment passes shall be adopted by the City. POLICY 5.2: The annexation of the sphere area to the City of Encinitas shall have been accomplished. Policy 5.3 Policy 5.3: Full design and improvement plans for the Amended 9121194 length of Leucadia Boulevard between I-5 and Olivenhain Road shall be a scenic roadway, completed and adopted by the City, subject to the following: a. Design will include full landscape/street-scape design, bicycle and pedestrian facilities, recreational trails where appropriate, and intersection improvements including left and right turning movements. Where facilities cannot be accommodated within the right-of-way, additional easements/right-of-way may be required. b. The design of the Leucadia Boulevard extension will include landscaped medians and\or parkways which will be integrated with pedestrian facilities. C-11 C. Buffers such as earth berms, vegetation, broad parkways and other landscape features will be provided to protect adjacent land uses from undesirable effects of traffic, noise, pollution and light along Leucadia Boulevard. d. The extension of Leucadia Boulevard across the bluff facing Green Valley shall be aligned and developed so as to minimize grading impacts to the bluff along Green Valley. e. Wildlife corridors across the alignment of Leucadia Boulevard at the Green Valley bluff and elsewhere as warranted shall be provided to facilitate wildlife passage and provide continuous areas of habitat. f. The connection of Leucadia Boulevard to Olivenhain Road shall bridge over Encinitas Creek rather than use pipes or culverts to minimize impacts to the drainage area. g. With street design, detailed noise impact analysis shall be provided to identify where noise walls or other attenuation measures may be required. Such analysis shall assume ultimate "build-out" traffic volumes. The installation of noise walls/other measures shall be provided prior to or in conjunction with street improvement recognizing that driveways, street openings, and other existing site conditions make noise mitigation impossible. h. Where it is necessary or desirable to construct retaining or noise-attenuation walls along the Leucadia Boulevard corridor, they shall be constructed with natural-appearing materials and generously landscaped with vines, trees, and shrubbery, reflecting local community character. i. The design and improvement of Leucadia Boulevard may be considered as a two stage project: Stage I being a two lane highway and Stage II providing additional lanes and improvements as needed to accommodate ultimate projected traffic. j . A maximum of four through-travel lanes shall be designed and improved. The additional right-of-way for physical or visual mitigation shall not be used for through-lanes, however, additional right-of-way can be obtained for left and right turning improvements. k. A high priority shall be given to implement these standards in areas where 126 feet of right-of-way presently exists. C-12 1. No truck routes shall be permitted along Leucadia Boulevard from I-5 to Sidonia Street. M. The City will consider purchasing any land within the right-of-way when it is offered for sale along Leucadia Boulevard from I-5 to Sidonia Street. Coastal Many thousands of persons visit the beaches each year Access and must be provided adequate access to the beaches. The following policies, together with those included in the Resource Management Element will substantially improve coastal access in the City. GOAL 6: The City will make every effort to provide public access and circulation to the shoreline, through private dedications, easements or other methods, and public transportation or other facilities. (Coastal Act/30211/30212/30212.5/30221) POLICY 6.1: The City will continue to defend the public's constitutionally guaranteed right of safe physical access to the shoreline. (Coastal Act/30211/ 30212/30214) POLICY 6.2: The City will cooperate with the State to insure that lateral beach access is protected and enhanced to the maximum degree feasible, and will continue to formalize shoreline prescriptive rights. Irrevocable offers of dedication for lateral accessways between the mean high tide line and the base of the Coastal bluffs shall be required in new development consistent with Section 30212 of the California of the California Coastal Act of 1976. (Coastal Act/30212/30214) POLICY 6.3: The City will encourage continued public vertical access by: Investigating and identifying all acquired access, improved and unimproved; Maintaining all City-owned improved access and view points and seeking to improve the unimproved access and view points within the City boundaries; Cooperating with the State in planning for the Cardiff and San Elijo State Beach areas and the South Carlsbad State Beach area to increase the external accessibility and usability of these beaches, as well as enhancing their visitor-serving potential; and C-13 Supporting continued use of the existing public sea level beach and bluff-backed beach accessways and the establishment of additional accessways, as determined appropriate to maintain adequate public access to public beaches. (Coastal Act/30211/30212/30212.5/30214/30220/30223) POLICY 6.4: The City will support increased public transportation service to shoreline recreational areas designated for increased visitation, including the following: Supporting existing and increased levels of service where needed by the North County Transit District; Supporting low-cost transfers between all transit operators in the Coastal Zone; and Encouraging the provision of safe transit stops and crosswalks at all major beaches. (Coastal Act/30252) When bus transportation to beaches is deemed feasible, inset bus bays at major beach transit stops shall be considered to provide safer passenger embarkation/debarkation. POLICY 6.5: The City will seek additional funding for transit service in the Coastal Zone, including a consideration of light rail transit and other forms of public transportation. (Coastal Act/30252) POLICY 6.6: The City will consider improved pedestrian crossings of Pacific Coast Highway. (Coastal Act/30252) POLICY 6.7: Discourage and phase out private access to the beach over the bluffs. New private accessways shall be prohibited. Policy 6.8 added POLICY 6.8: To foster access to shoreline recreation areas, 11128118, Ord. No. while maintaining adequate circulation on major coastal 2018-16 access roadways, development shall target equity among all modes of travel, including, by vehicle, biking, walking, and public transportation. Major coastal access roadways include Coast Highway 101 and the portions of the following roadways that are located west of Interstate 5: Manchester Avenue, Birmingham Drive, Santa Fe Drive, Encinitas Boulevard, Leucadia Boulevard, and La Costa Avenue. Prior to modifying a major coastal access roadway that has a current or projected future Level of Service E or worse at one or more intersections or segments (with or without proposed development) , a quantitative analysis projecting the change in travel time resulting from the project along the roadway shall be conducted to determine if coastal access is impacted. Available relevant circulation information from C-13a Caltrans, SANDAL, and other Cities along the affected roadway shall be included in the analysis. The quantitative analysis shall be derived from an adequate number of travel time surveys and shall address the prime beach use and peak travel volume periods on at least two weekends between Memorial Day and Labor Day. Roadway modification projects that significantly impact coastal access shall be avoided. Modification to major coastal access roadways shall be accompanied by public access benefit enhancements promoting multi-modal access. Public access benefit enhancements may include, but are not limited to, increased public transportation services, improved pedestrian and cyclist access, and increased public parking. Funding the Improvement of the circulation system includes both Circulation the expansion of existing roadways and the addition System of new roadways to the system. Improvement costs include acquisition of right-of-way, relocation of utilities and other structures, landscaping, signalization and road construction costs. Adequate funding is necessary to insure that circulation system improvements are provided as growth occurs. GOAL 7: Every effort will be made to have new development, both in the City and in the region, provide for all costs of the incremental expansion of the circulation system necessary to accommodate that development. Costs include, but are not limited to, costs of right-of-way and construction, including costs of moving utilities and structures, and costs for landscaping and intersection improvement. Policy 7.1: The City shall seek to recover circulation system expansion costs from all available sources, without limitations, including development fees for projects both inside and outside the City limits. Related Goals Land use policy detailed in the Land Use Element will and Policies have a direct bearing on the City's circulation system and determine the nature and extent of future roadway improvements. New development permitted in areas presently undeveloped will require new streets. In addition, existing roads may need widening or other improvements to handle the increased traffic loads. The Land Use Element and the other elements include a number of goals and policies that address the issue areas identified in the Circulation Element. These elements containing supporting policies are identified in Table 1. C-14 TABLE 1 CIRCULATION POLICY MATRIX Resource Public Issue Area Land Use Management Safety Noise Recreation Transportation X X X X X System Roadway Function X X X X And Standards Alternate Modes X X Of Transit Scenic Highways X X Coastal Access X X CIRCULATION PLAN This section of the Circulation Element includes a classification system that applies to all roadways that serve the City and specific standards that apply to each. In addition, the Element identifies specific improvements that should be considered by the City. Finally, the impacts of future development arising from the implementation of the land use policy is described. Roadway The future roadway system in the City of Encinitas has Facility been defined using a classification system which Designations describes a hierarchy of facility types. The categories of roadways included in this classification system differentiate the size, function and capacity of the roadway links for each type of roadway. There are five basic categories in the hierarchy, ranging from "Freeway" with the highest capacity through "Prime Arterial", "Major" and "Collector, " to "Local" with the lowest capacity. Schematic cross sections of each category or roadway are provided in Figure 1. Variation in right-of-way width and specific road improvements will occur within each of the roadway classifications, based on existing conditions and other factors. The desirable goal for every classified street section is that it carry the designed volume of traffic at the desired level of service. Within this requirement, descriptions of width and facilities are offered as non-exclusive alternatives: variation in design is expected, depending on different community design characteristics, different optional facilities (e.g., on-street parking, sidewalks vs. pathways, bicycle lanes or paths, extra parkway or median landscape treatment, etc. ) Also note the circulation element policy that different standards be developed for "urban", "semi-rural" and "rural" areas. The five categories C-15 of roadways are described in greater detail in the following paragraphs: Freeway - a six- to ten-lane divided arterial roadway with full access control and a typical right-of-way width in excess of 150 feet, designed and maintained by the State Department of Transportation. Prime Arterial - A six-lane divided roadway, with a typical right-of-way width of 120-130 feet and curb to curb pavement width of 100-110 feet. C-16 Prime Arierial v1 A six-lane roadway with a typical 1 right-of-way width of 120-130 feet k and a pavement width of 100-110feet. The roadway is generally divided into three travel lanes in each direction by a median. Access µ.J to and from this roadway is restricted. Il ", -11 • Major Arterial A four-lane divided roadway with a typical right-af-way width of Prime Arterial 10' 0' 12' 12' 12' 12' 12' 12' 12' I 10' 10' 85-120 feet and a pavement width of approximately 80 feet. This 120'-130'R.O.W. roadway is also divided by a raised median with two travel lanes in ACW each direction. Collector A four-lane undivided roadway with a two travel lanes in each direction. The typical right-of-way width of this category of roadway is 70-84 Major Arterial 10. in' 12' 12' 12' 12' 12' 10' 10' feet while the pavement width is approximately 64 feet. The 85' 120'1i.0.W, primary function of this category of roadway is to distribute traffic "• between local streets and major and prime arterials. Local This category of roadway is designed to provide access to individual parcels and to' direct traffic to the nearest collector Collector 10' 8' i2' 12' 12' t2' a' 10' road. Local streets consist of two lanes with a typical right-of-way 70'8a'ii.O.w. width of 50-70 feet and a pave- ment width of approximately 40 �• feet. ' F?gtir� i Roadway Classification Local 10' a' 17 ,z' a' ra �ndnitas ' SCf-70'Fi.Q.W, Nd! YlHIP.n.ylid.a wb�aN apeoM1[m�dv�y AYMMM�Bffi MII MF/wtlri e.ri d rie awdwwY M•IM1cr.we.La[m m 9so spook Nwv tag Fwayen�ataxe�ums. Amended 4/18/18 C-17 Major Arterial - A four-lane divided roadway, with a typical right-of-way width of 85-120 feet and a curb to curb pavement width of around 80 feet. Collector Road - A four-lane undivided (no median) roadway, with a typical right-of-way width of 70-84 feet and a curb to curb pavement width of around 64 feet. Its function is to distribute traffic between local streets and major and prime arterials. Although some collectors serve as through routes, their primary function is to provide access from surrounding land uses. Local Street - This category of roadway is designed to provide access to individual parcels in the City. Local streets consist of two lanes with a typical right-of-way width of 50-70 feet and a pavement width of 40 feet. The Circulation Plan described in Figure 2 designates only those local roadways that provide an additional function beyond that normally expected for a local roadway. For example, a "designated local" may function as a collector in certain areas of the City. An undesignated local roadway refers to those facilities that are not indicated on the Circulation Plan described in Figure 2. For planning purposes, the closing of a designated local roadway will require a General Plan Amendment while the closing of an undesignated local roadway will not. Each of the last four classifications above may be further described based upon improvement refinements necessary where physical constraints exist and to insure the preservation of community character. Augmented Roadway - Any of the last four roadway categories (not Freeways) can have an augmented designation. The intent is to provide a means of increasing the capacity of a given type of arterial by maximizing the utilization of the basic lane configuration. Such augmentation can range from simply adding lanes at intersections to adding or expanding a median and/or other midblock measures to improve traffic flow and reduce side friction. The augmented local may in its simplest form be just a two-lane local street with special C-18 &t_RM y . Prime Arterial(6 Lanes] Major(4 Lanes) 114— ,. �q. y ` 'Fog.", _ 1 ••• Collector (a Lanes] Y- (ra q� - Local Street C2 Lanes] Augmented Fao Blty v ••• 5 e • .ca^ ��,� �'iii ® Limited Facility • @ zg o ® Interchange Reconstruction MOTE:Leucadle Blvd.between Interstate 5 EIC V5 and El Camfne Feat ceslgnated as 'Scenic Roadway'wllth B$toot 9 3a< s''` i $,y, �€%'•n, a �s o:; right-of-way CROW] Y 4+r 9 k f 4 3 K. kF G vY lBI p �. 4000 NORTHF�.nanitas SOURCE:Austin-Foust Associates,Inc. ,, - ,% < -`5° �'ac"` "--"�"'"" - scale w leer General Plan 3/29/80 C-19 Amended 9/21/94 61 .'11 P 1� .p t•\ �s 0-00 ADT Volumes (000's) } SOURCE: Austin/Foust Associates, Inc. Figure 3 Future Traffic Volumes: 2010 r,.-ndn1tas General Plan C-20 intersection treatments such as signalization and/or added lanes as shown in Figure 5. A more highly augmented form would have a central median for turn movements and would restrict access to the extent possible. Augmentation of a prime arterial may vary from added lanes at intersections to access control strategies such as provision of local frontage roads. An augmented form of a local street is more important as far as the circulation system is concerned, for example, since this roadway may function as a collector roadway while it is developed to local roadway standards. Limited Roadway - Any of the last four roadway categories above (not Freeways) can have a limited designation. This limited designation is intended to allow the reduction of right-of-way width, while maintaining the same number of lanes and capacity for the respective roadway category. This reduction of right-of-way will most typically involve reductions to the parkway width, median width or excluding parking lanes. Scenic Roadway - Any of the last four roadway categories may also be designated as "scenic" roadways. The scenic roadway designation will be used to aesthetically enhance such roadways through future improvements which provide amenities such as abundant landscaping, decorative street furniture, recreational trails, earthen berms for noise attenuation, and additional right-of-way to accommodate such features, in addition to the normal improvements related to vehicular accommodation and circulation convenience. Level of A roadway's ability to handle current traffic loads Service can be described in terms of Level of Service, or LOS. The LOS is the ratio of a road's design capacity to the existing traffic volumes. Ratio ranges can be used to describe actual traffic operating conditions as outlined in Table 2. For the purposes of this element, the traffic volumes on all system roadways which correspond to an LOS of D (unstable traffic flows) are assigned an LOS ratio of 1.00. Any roadway which carries a traffic volume in excess of the 1.00 LOS ratio exceeds the capacity standard defined as being acceptable for streets within the City capacities for the various types of roadways considered in the General Plan. C-21 A number of policies included in this Element apply these levels of service standards to roadways in the City. One policy indicates the City will attempt to maintain a Level of Service C (LOS C) as a basic design guideline for roadways in the City. Another policy states that the City will prohibit development which results in a Level of Service E or F at any intersection unless no alternatives exist and an overriding public need can be demonstrated. Other policies included in the Circulation Element call for the development of standards that make a distinction between those roads serving rural areas as opposed to those located in urbanized areas. Specific standards for each category will be developed and implemented in the future. C-22 TABLE 2 STANDARDS FOR ROADWAY LEVELS OF SERVICE* Level of Service Traffic Conditions A Primarily free flow operations at average travel speeds usually about 90 percent of free flow speed. Vehicles can maneuver unimpeded within the traffic stream. Delay at signalized intersections is minimal. B Reasonably unimpeded operations at average travel speeds usually about 70 percent of free flow speed. Ability to maneuver is only slightly restricted and stopped delays are not bothersome. Drivers are not subjected to appreciable tension. C Represents stable operations, however, ability to maneuver and change lanes in midblock locations may be more restricted. Longer queues and/or adverse signal coordination may contribute to lower average travel speeds of about 50 percent of free-flow speed. Drivers will experience some appreciable tension. D Borders on a range in which small increases in flow may cause substantial increases in approach delay, and hence, decreases in arterial speed. Causes from adverse signal progression, inappropriate signal timing, high volumes, or any combination. For planning purposes, this Level of Service is the lowest that is considered acceptable. Average travel speeds are about 40 percent of free-flow speed. E Characterized by significant approach delays and average travel speeds of one-third of free-flow speed or lower, caused by adverse progression, high signal density, extensive queuing at critical intersections, inappropriate signal timing, or some combination. F Characterized by arterial flow at extremely low speeds below one-third to one-quarter of free flow speed. Congestion is likely at critical signalized intersections, resulting in high approach delays. Adverse progression is frequently a contributor to this condition. * From arterial highway section of 1985 Capacity Manual C-23 TABLE 3 ROADWAY CAPACITY STANDARDS Fac. Type # of ADT Capacity Lanes LOS C LOS D LOS E Freeway 6 108,000 120,000 135,000 8 145,000 160,000 175,000 10 175,000 195,000 215,000 Prime Arterial 6 46,000 51,200 57,000 Prime Arterial - Augmented 6 53,000 60,000 66,000 Major Roadway 4 28,200 31,600 35,200 Major Roadway - Augmented 4+ 36,300 41,000 45,400 Collector Roadway 4 26,000 29,200 32,400 Local Roadway 2 11,200 12,600 14,000 Local roadway - Augmented 2+ 16,000 18,000 20,000 * Capacity means the maximum volume for the stated level of service. C-24 Circulation The goals and policies included in this Element System Plan emphasize the importance of developing a circulation system that is capable of serving both existing and future residents while preserving community values and character. Other policies emphasize the following in the development of future roadways: • Minimize access onto prime arterials, major arterials, and collector roadways to encourage their use as throughways rather than as access to adjacent properties. • Avoid siting prime arterials and major arterials through residential neighborhoods. • Future roads should follow natural contours to minimize amount of grading, cut and fill required in new road construction. • Discourage through traffic in residential neighborhoods. The highway network provided for in the Circulation Element is identified in Figure 2. The map included in this figure indicates all of the designated freeways, prime arterials, major arterials, and collector streets. In addition, a selected number of local roadways are indicated on the map and these are referred to as "designated local roadways". Any permanent closure to through traffic or vacation of the designated local roadways will require a General Plan Amendment. The roadway network described in Figure 2 focuses on a number of major improvements with regard to the roadway system in the City. The following improvements are provided for in the Circulation Element: • Improve east-west movement in the northern portion of the Planning Area by designating La Costa Avenue as a major roadway (usually 4 travel lanes) . Paragraph Amended • Improve east-west circulation in the northern 9121194 portion of the planning area by extending Leucadia Boulevard eastward as a scenic major augmented roadway to provide a connection between I-5 and El Camino Real. • Improve east-west circulation in the center portion the Planning Area by expanding Encinitas Boulevard to a prime arterial (usually 6 travel C-25 lanes) . • Improve east-west circulation in the southern portion of the Planning Area by expanding the portion of Manchester Avenue between El Camino Real and I-5 to a limited prime arterial (usually 6 travel lanes) . • Santa Fe Drive east of the freeway will be improved to a local augmented street (2 travel lanes) . • North-south capacity will be expanded with the extension of Via Cantebria to the north. • Additional north-south capacity will be provided with the augmentation of El Camino Real, a prime arterial (usually 6 travel lanes) , particularly in the section of roadway between Olivenhain Road and Encinitas Boulevard. • The La Costa, Encinitas, Leucadia, and Manchester freeway interchanges will be upgraded. Land Use Over time, new development will result in incremental Policy and the increases in traffic within the Planning Area. The Circulation land use policy described in the Land Use Element System indicated the location and extent of development within the City. Future traffic conditions can be estimated by estimating traffic generation resulting from the implementation of the land use policy which is then compared with proposed roadway improvements. Figure 3 indicates the projected traffic volumes after build-out in accord with when the land use policy has been achieved. In Figure 4, the resulting Levels of Services for the prime arterials, major arterials, collectors, and designated locals are indicated. Finally, the future Levels of Service for major intersections are identified in Table 4 and their locations are also indicated in Figure 4. The analysis assumes all of the roadway improvements described in Figure 2 will be implemented. Alternate Goals and policies included in the Circulation Element Modes of assume that the private automobile will continue to be Transit the dominant form of transportation in the Planning Area for the time frame covered under this General Plan. C-26 TABLE 4 INTERSECTION CAPACITY UTILIZATION SUMMARY INTERSECTION AM PEAK HOUR PM PEAK HOUR 1. I-5 SB Ramps & La Costa .46 .56 2. I-5 NB Ramps & La Costa .30 .73 3. El Camino Real & La Costa .61 .75 4. El Camino Real & Olivenhain .81 .89 5. I-5 SB Ramps & Encinitas .36 .53 6. I-5 NB Ramps & Encinitas .47 .55 7. Saxony & Encinitas .35 .42 8. El Camino Real & Encinitas .82 .84 9. Rancho Santa Fe & Encinitas .65 .82 10. El Camino Real & Manchester .85 .65 11. I-5 SB Ramps & Manchester .31 .43 12. I-5 NB Ramps & Manchester .90 . 93 13. Saxony & La Costa .29 .45 14. El Camino Real & M. Estancia .87 .81 15. Via Cantebria & Leucadia .88 .85 16. Via Cantebria & Garden View .17 .24 17. El Camino Real & Garden View .77 .77 18. Quail Gardens & Encinitas .45 .61 19. Balour & Encinitas .49 .65 20. Via Cantebria & Encinitas .42 .51 21. Via Cantebria & Mission Est. .25 .37 22. Via Cantebria & La Costa .28 .59 NOTE: These are standard condition calculations. Actual intersection capacity ratios may be affected by special conditions and circumstances; e.g. , adjacent intersections being located very close to one another. C-27 1 / 1 7 qa 13 1 2 .62 y` �c F ° 1 .25 ESi cF [n 1 4 w54a� u/aA r� 0j b a � ssg o 15 72� .87 V.7G F 1.00 LEGCA A 41 J u � o � � r N J 1 82 O g s o fp N F' Y[IIIN IAIN a•S MSTA O.3 'dl � a 1.0 A u n a C, .66 78 °o 5fib 69 r'T a w = a"Opp 46 .83 .t t 18 19 F]+a+urA p •9 �� r o LP 79 i.ot g AXTA fE 05 V. u .76 C O a p S s .75 m' 10 12 q, O Ej pp ADT Volume/Capacity Rados for LOS D 1 1 Intersecton Location SOURCE: Austin-Foust Associates. Inc. Figure 4 Future Levels of Service: 2010 .ndnitas Genera! Plan C-28 Ln >, a� cu a� cli \l 1 1-* r' c a) 3 � { I .99 .9z I O 1 i 9 CD N .EL .OL. L.DL.LE E La I I j i w .oz .01 ,5L L.LL OL'bj a OL SL .�ll .GL LOL{ oz ,o'z -si C-29 Nevertheless, the Circulation Element contains a number of policies that will encourage people to utilize other forms of transit while accommodating those households that depend on public transit. These alternate forms of transit include buses, light rail, and bicycles. In addition, the transportation needs of the handicapped are considered in a number of policies included in the General Plan. The City of Encinitas is currently served by the North County Transit District (NCTD) . The NCTD provides bus service along designated bus routes, connecting the City and north San Diego County with areas in the region, including connections to other transit service providers such as San Diego Transit. In addition to the bus service presently provided by the NCTD, the San Diego Association of Governments has adopted a four-year work program for implementation of the Los Angeles to San Diego (LOSSAN) rail project. As part of this project, commuter rail service will be provided in San Diego County between Oceanside and San Diego using the existing AT & SF rail corridor. The commuter trains would stop at intermediate stations, as well as the terminal stations in San Diego and Oceanside. Total trip times would average about 70 minutes for this 41-mile service. The probable operating schedule for the commuter trains would call for two San Diego-bound morning trains leaving Oceanside approximately 45 minutes apart during the early morning hours. In the early evening, two Oceanside-bound trains would depart San Diego 45 minutes apart. The commuter rail service could begin as early as December, 1992, and would require the construction of as many as eight new intermediate stations between the terminal stations in Oceanside and San Diego. A maximum of two of the intermediate stations are proposed to be located in the City of Encinitas subject to City approval, along the existing rail right-of-way paralleling Highway 101. Existing use of the rail corridor includes both passenger (AMTRAK) and freight service consisting of approximately 20-25 train passages on a single track. Future studies associated with the LOSSAN project will examine the feasible levels of rail operation within the corridor, the level of operations requiring dual tracks, coordination with other forms of transportation, and the types of improvements and facilities necessary to accommodate commuter rail C-30 service. The development of a comprehensive network of bikeways is proposed in this plan. This system will serve a dual purpose in that its function is to provide residents a safe and efficient alternative to the private automobile for travel within the city as well as providing for recreation. The bikeway system will consist of three types of facilities which are shown in cross sections included in Figure 6 and their locations are indicated in Figure 7. The three types of roadways include: Bike Path (Class I) : This is a special type of facility that is designed for exclusive use by bicyclists. A bike path may be located adjacent to a roadway though it is physically separated from vehicular traffic by a barrier, grade separation, or open space. Cross flows by vehicles and pedestrians are allowed but minimized. Bike Lane (Class II) : A bike lane consists of a paved area for preferential use of bicycles and is located between the travel lane closest to the curb and the curb. Pavement markings and signage indicate the presence of a bike lane on the roadway. Shared Route (Class III) : This type of bicycle facility refers to a conventional street where bike routes are indicated by sign only. There are no special pavement walkways and bicycle traffic shares the roadway with motorized traffic. In addition to the bikeway system, a planned pedestrian Paragraph Amended circulation system consisting of connecting sidewalks along 1122103 Reso. No. circulation system streets and a planned Citywide system of 03-07 recreational trails, will be linked together. The recreational trail system may also accommodate bicycles and equestrians. The installation of significant lengths of sidewalk along Circulation Element roads, as well as the improvement of substantial reaches of trail is planned. This system will promote pedestrian safety throughout the City by providing greater separation from vehicular traffic. The design of improvements for the pedestrian system will be flexible in recognition of its presence in urban and rural areas. The recreational trails, in particular, will vary in their design to allow the use of C-31 Class I Bikeway Class 11 91keway Class (Bikeways - Bicycle Paths Class I: A completely separated right-of-way designated for the exclusive use of bicycles. Cross- flows by pedestrians and motorists V. w are minimized. l�lr Class II Bikeways -Bicycle Lanes 1 Class II: A restricted right-of- f way designated for the exclusive or semi-exclusive use of bic;cies. Through travel by motor vehicles or pedestrians is not allowed; 5' 3' T 0' i however, vehicle parking may be allowed. Crossflows by motorists, Path Planter Lane Parkway Path Parkway Bane ike for example to gain access to driveways or parking facilities, is allowed; pedestrian crossflows, for example to gain access to parking facilities or associated land use, is allowed. Class III Bikeways-Bicycle Routes Class Il[Bikeway Class III: A shared right-of-way designated as such by signs placed on vertical posts or stenciled or the pavement. Any bikeway which shares its through-traffic right- of-way with either or both roving (not parking) motor vehicles and pedestrians is considered a Class III bikeway. •v Q. n =a o Fi u 5 B�Cceuir�i�, lass��fic�t�d�5 �� Sherd �' � �� ■ Path Parkway Lane `ncin'tas N 0'.E: Examples 5nown are not a.closive design all variations in design. General Plan consistant with stanpards Idr safety and osim intent of class of facility, 3/291e9 anc oepenging on ❑verell slreetRl design, are allowed. C-32 f � titi,l M J r ......� 1 our ''� � � �i+ '�..� ...a rre� oleo rbe► S,1 1 �� .ITF Yifl■ �� ■ Y e 3 _ N I � NCC PWPITREP Planned Improvement$ ■ MM w Me 1 P■darlrar 14wl6 EOWCA ment 'r NOTE.FCOO-nq Cow"Conti'rruro^2PP-'-di• ayngAdogy of planned NCC PWPrifkEa rlxfvVenNnls wY tr■ w nlilerJ v+e Clty of � ,.�c.x-Tr�a� Enorvfaa CvcWybon ew-enl nup cla"AnA an sd'rr+n-as shown ri w Q rr Map 4 q�..... GIN 6nlini4■cwWatM„EN~t(Fllure r)Map Ghenger DUDE e�oo-a•aaarrer■na�r:�ruw�+..v -.�....w.paw.arwo��.o.wr.n+M�+++��•'�'.•••rw�w.w•. C-33 existing corridors, such as the SDG&E easement and the rail corridor. As noted in this Element for street design, standards for the design and improvement of pedestrian sidewalks and parks may vary to accommodate and reflect local community character. Paragraph Within the coastal zone, design standards for Amended 1122103 recreational trails shall, at a minimum, comply with Reso. No 03-07 the requirements of the Resource Management Element of the certified LUP and any applicable implementing ordinances. Proposed trail alignments within or adjacent to environmentally sensitive habitat areas shall avoid significant disruption to and be compatible with the continuance of those habitat areas. In order to avoid impacts to sensitive areas, placement of recreational trails shall be located within the outer 15 feet of any required buffer area for wetlands, riparian areas and/or other environmentally sensitive habitat, unless it is not feasible to do so. Existing trails are not required to be relocated in order to meet this standard. Any trail development or activities, including clearing, grading, construction, recreational uses or maintenance inconsistent with these requirements shall require an LCP amendment. Utilities and State law requires that other types of facilities used Transmission for the transport or transmission of goods also be Facilities identified. The major facilities in this category includes utilities transmission systems. San Diego Gas and Electric Company maintains a 150-foot wide powerline easement which traverses the Planning Area from north to south in the communities of New Encinitas and Olivenhain. This transmission corridor carries 138 KV and 230 KV electric lines and a 30-inch gas main. A second major powerline easement, traversing the Olivenhain area from northwest to southwest, is 100 feet in width and carries 138 KV and 230 KV electric lines. All of the easement has been designated as Ecological Resource/Open Space/Park. A 30-inch pipeline is located within the 150-foot SDG&E easement and is used for the transmission of liquefied petroleum products. A second major pipeline (12-75-inch) is located within the AT&SF railway line and is used for transporting natural gas. A 10-inch high pressure line connects with the larger pipeline and extends eastward along Encinitas Boulevard. The locations of these facilities are identified in Figure 8. C-34 {4 a`4� ;ar t Gas FacllilY Facility am �`�'.Yk'�ya4�isi•" _ �4i 230KV g �b'� -. �•• a 3 `, �Sa,.. //� i 138KV& t So. Cal. Gas off ` % ►r 12.75 inches 150 foot widis Utility Easements High Pressure Transmission Mair' o s 30 inches Distribution, ,ca.,+� 10 inches c u< Encinitas Y�Monroe `.pe £ CG ubstation:�, a 69KV Ulu 110hlj 11111 Ulu 1 20'Easement aii N[gh Pressure�Dlsmbutlon :,-69KV a E. a '4 �� .�; _ c2 fj 7•c '� `5g y,Auk .� � _ o'& � _ •�: 4* °y es•y $ ��`m �K ww cr"�S x z$. fis Figure 8 59KV p m 7rar'smisslon Main; 4 u Electric/Natural Gas/ 3o niche : ta 4" 5° 4s"R' Liquefied Petroiuem So.Cal- Gas �� E � �` � � x .� �, a 4 x � ,� ,�� Q ' v Transmission Facilities 12.76 Inches 1�� ¢ � � cH �£ � r � �� LO K Es x x yy aaac NofrrH/ � n'1� General Plan SOUFM San Otegc Gas and El- a.. '> '• 3/2Bl99 pz.K�dcd 6fi 6193 C-35