CITY COUNCIL STAFF REPORT
October 1, 2024 {{section.number}}c
REVIEW AND ACCEPT THE TRAFFIC SIGNAL ASSESSMENT REPORTS; AND AUTHORIZE
THE CITY MANAGER TO EXECUTE AN AGREEMENT TO REPLACE/INSTALL
DETERIORATED AND/OR NEW EQUIPMENT ON CITY AND CALTRANS MAINTAINED TRAFFIC SIGNALS IN AN AMOUNT UP TO $250,000
RECOMMENDATION:
Find that the project is categorically exempt from environmental review under Class 1 of the state CEQA Guidelines section 15301, Existing Facilities (14 CCR 15301); review and accept the Traffic Signal Assessment Reports; provide direction to staff as appropriate; and authorize the City Manager to execute an agreement in a form approved by the City Attorney with the State of California Department of Transportation (Caltrans) to replace/install deteriorated and/or new equipment on City and Caltrans maintained traffic signals in an amount up $250,000.
BACKGROUND:
Prior to 2017 the State of California Department of Transportation (Caltrans) owned and operated fourteen traffic signals within the City of Coronado’s jurisdiction while the City owned and operated one traffic signal (Orange Avenue at First Street).
More specifically, the traffic signals owned and operated by Caltrans were located at the following intersections:
• Orange Avenue / State Route 75 at:
- Third St.
- Fourth St.
- Sixth St.
- Eighth St.
- Tenth St.
- R.H. Dana Pl./Adella Ave.
• Silver Strand / State Route 75 at:
- Pomona Ave.
- Avenida de
las Arenas
- Rendova
Road
- Tarawa Road
- Tulagi Road
- Leyte Road
- Coronado Bay Road
- Coronado Cays Blvd.
Since that time additional traffic signals have been constructed, and/or operational responsibility including maintenance was transferred to either Caltrans or the City. The following is a history of those changes:
• On March 17, 2017, the City Council authorized the City Manager to:
o Negotiate a contract with Siemens Industry, Inc. (Yunex) for the design, installation, operations, and maintenance service for the State Route (SR) 75 Adaptive Signals/”Smart Stoplights” in the vicinity of Naval Amphibious Base Project; and
o Execute an agreement (Attachment 1) with Caltrans transferring operations and maintenance responsibility to the City for the traffic signals along SR 75 at Avenida de las Arenas, Rendova Road, Tawara Road and Tulagi Road intersections. o On August 31, 2017, Caltrans transferred operation and maintenance responsibility to the four traffic signals to the City. • In early 2019, Caltrans constructed the traffic signal at SR 75 and Hooper Blvd. • In late 2019, the City constructed the traffic signal at Fourth St. and Alameda Blvd. but turned over ownership and operational responsibility to Caltrans. • In the summer of 2021, under the City‘s purview, a traffic signal at SR 75 and Avenida del Sol was constructed.
o On August 26, 2021, Caltrans sent a letter to the City amending the existing agreement (Attachment 2) transferring operations and maintenance responsibility to the City for the traffic signals along SR 75 at Pomona Avenue and Avenida del Sol intersections.
Following the changes above the City’s responsibilities became and currently are as follows:
• Own, operate and maintain:
o Orange Avenue at:
▪ First Street
• Operate and maintain:
o SR 75 at:
▪ Pomona Avenue
▪ Avenida del Sol
▪ Avenida de las Arenas
▪ Rendova Road
▪ Tawara Road
▪ Tulagi Road
ANALYSIS:
On July 22, 2022, City staff advertised a Request for Qualifications for Traffic Engineering Services. One of the main purposes of the advertisement was to conduct an analysis of the City operated traffic signals including inventory, assessment and operation, and assessment of what improvements could be made to improve traffic flow.
On September 29, 2022, Mayor Bailey submitted a Policy 2 Request (Attachment 3) requesting an agenda item to review the level of service at signalized intersections along State Route 75 and to provide recommendations for improving traffic flow with attention prioritized to the intersections at Avenida del Sol, Third Street and Fourth Street.
On October 18, 2022, the City Council awarded a professional services agreement with STC Engineering, Inc. (STC) for On-call Traffic Engineering Services. City staff and STC finalized two Task Orders for services which covered the following:
• Inventory, assessment and operation of City operated traffic signals • Operation of Caltrans operated traffic signals on Orange Avenue STC along with support from City staff, would perform field reviews from June to August of 2023, along with office review of plans and timing sheets for both City and Caltrans traffic signals. As STC performed their reviews, it became apparent that they were identifying issues with traffic signal operations and performance that needed to be resolved. The most significant was the inoperable detections for the traffic signals located at and in between Avenida de Las Arenas and Tulagi Road. STC and City staff would work to resolve these and other minor items as the reports were being finalized. It also became apparent that the traffic signals acquired by the City were in fair to poor condition.
Due to the volume and technical nature of the reports, along with attempting to make improvements as the reports were being drafted, City staff concluded the reports needed to be finalized with key findings and recommendations summarized into a separate report (Executive Summary - Attachment 4).
Below are key findings from the Executive Summary separated into two-time frames along with a recommended sequencing that includes City staff comments. Recommendations to the Policy 2 Request are also included.
Findings / Short-Term Recommended Actions
• Traffic signal controllers located on Orange Avenue are outdated o Caltrans updated controllers this past June; replacement controllers had been on hold due to the Relinquishment discussions with the City. • Caltrans coordination timing for the traffic signals along Orange Avenue are outdated
o Caltrans updated timing with replacement of controllers in June and is currently evaluating.
o City staff provided the Traffic Signal Assessment – Caltrans Signals to Caltrans for review.
o The report specifically identified a recommendation to remove the yellow yield operation for the traffic signals on Third St. and Fourth St. Caltrans is still evaluating the recommendation.
• Review/update traffic operations timing/movements/detection o Various and ongoing.
o Leading pedestrian interval implemented in June for City/Caltrans traffic signals. o High reflective yellow border on traffic signal indicator housings (in progress).
More discussion to follow below.
• City traffic signal equipment is operational; however, mostly in poor condition and obsolete (Staff finding)
o Equipment acquired from Caltrans was old and likely in poor condition; lack of staff capacity and higher priority projects has contributed to a lack upgrades. City Council approved a new project to address this issue as part of the FY 2024-25 CIP program.
o Inoperable wireless detection system that was found during field reviews was replaced in late 2023.
o Pilot project for new battery backup system implemented in February of 2024 at Tulagi Road.
o Touchless/audible pedestrian pushbuttons were replaced in September of 2024 at First St., Pomona Ave., and Rendova Road for all pedestrian movements. o Replacement of rusted/peeling paint traffic signal indicators/housings (in progress). More discussion to follow below.
• Traffic signal controller located at First and Orange is outdated o Low priority at this time; signal is isolated from SCOOT system and does not require upgraded controller.
o Use of the existing 170 controller is not uncommon.
Findings / Long-Term Recommended Actions
• The current SCOOT adaptive system is outdated and should be replaced o Yunex is releasing an update to the user interface; however, staff recommends the City still consider reviewing other adaptive systems especially since Caltrans is evaluating and considering the use of an adaptive system. • Implement a uniform and modern traffic management system (Third St. to Tulagi Road)
o Having Caltrans and the City on two different systems that are unable to communicate is not ideal and creates opportunities for improvement between RH Dana Pl. to Pomona Ave.
▪ This addresses one of the items of the Policy 2 request. o At the July 23, 2024, City/Caltrans meeting, Caltrans staff stated they are evaluating adaptive systems for use statewide with the intent of only having one adaptive system.
o Due to SCOOT proprietary software programming, it is likely incompatible with newer adaptive systems being evaluated by Caltrans.
• Implement a modern communication system (Third St. to Tulagi Road) o Should Caltrans select an adaptive system that would be acceptable to the City, a new communications system would likely be needed. This would not be known until Caltrans selects an adaptive system.
o City staff has contacted Caltrans to determine if the traffic signals from Third St. to RH Dana Pl./Adella Dr. are connected and what condition the system is in. o Significant funding of at least $1 million for a new system would likely be required.
HIGH REFLECTIVE YELLOW BORDER/TRAFFIC SIGNAL INDICATIONS/HOUSINGS Noted above for discussion is the installation of high reflective yellow border (border) on traffic signal housings along with the replacement of rusted/peeling paint on traffic signal indications/housings. While installing a border on traffic signal housings is not required it is recommended and is becoming more common. During the April 10, 2024, City/Caltrans meeting, Caltrans staff indicated they would be installing the border later in 2024. An information bulletin of the benefits of the use of the border is included as Attachment 7.
In addition, over the past few years staff has noticed and received concerns from residents about the condition of the traffic signal indications/housings (and framework) at City and Caltrans traffic signals. While the condition of many of the indications/housings is poor the indications are still functioning and considered a low priority for Caltrans. Since Caltrans indicated their intent to install borders on the traffic signal housings for Caltrans traffic signals, there is an opportunity to include replacing the rusted/peeling traffic signal indications/housings at this time versus at a later date. A breakdown of the estimated charges for City and Caltrans traffic signals is included as Attachment 8. At the time of the submittal of this staff report for inclusion into the City Council meeting agenda, staff had not received an estimate for the materials cost from Caltrans. Caltrans has indicated once they receive the estimate they will need to know if the City is interested in participating immediately.
Staff conducted an inspection of the remaining Caltrans traffic signal indications/housings and determined they were in good condition or had not received any concerns from residents.
Separate from this request the City will need to replace/install new indications/housings/borders at First Street and Orange Avenue since it is owned by the City and located in City right-of-way.
FISCAL IMPACT:
There is no impact to accept the Traffic Signal Assessment Reports.
It is estimated that the replacement and installation of traffic signal indications/housings/borders for City traffic signals is approximately $124,000 (materials and labor) and replacement of traffic signal indications/housings for Caltrans traffic signals is $85,000 (materials only).
The FY 2024-25 Traffic Signal and Control Device Upgrades capital improvement project has a budget of $500,000. Staff intends to use this account to fund the improvements.
In addition to the CIP project, a total of $300,000 is programmed in budget account 2033200 80030 and 80055 for eligible Road Maintenance and Rehabilitation Act (RMRA) projects including the Traffic Signal Systems Assessment and Traffic Signal Systems Maintenance projects; and a total of $300,600 is programmed in the Highway User Tax Act (HUTA) operations budget account 2013200 80030 for FY 2024-25.
ALTERNATIVE:
Council may direct staff to re-analyze data or otherwise edits reports or provide other direction to staff.
CALIFORNIA ENVIRONMENTAL QUALITY ACT:
Categorically exempt from the requirements of CEQA pursuant to State CEQA Guidelines Section 15301 - Existing Facilities.
PUBLIC NOTICE:
No notice required.
ATTACHMENTS:
1. Maintenance Agreement TR11-7-003
2. Amended Maintenance Agreement TR11-7-003
3. Policy 2 Request
4. Traffic Signal Assessment – Executive Summary
5. Traffic Signal Assessment – City Signals
6. Traffic Signal Assessment – Caltrans Signals
7. FHWA Information Bulletin – Backplates with Retroreflective Border
8. City/Caltrans Traffic Signal Equipment Replacement Estimate Submitted By: Public Services and Engineering Department / Leon Firsht