Imperial Beach City Council
September 21, 2022

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LIST OF FIGURES
Figure 1. Location of City of Imperial Beach............................................................................................................................. 6 Figure 2. Imperial Beach LRSP Process ..................................................................................................................................... 9 Figure 3. Most Recent Vehicle Counts by Year in the City of Imperial Beach .................................................................... 15 Figure 4. Collisions in the City of Imperial Beach................................................................................................................... 16 Figure 5. Number of Collisions by Crash Types for Each Crash History Year in the City of Imperial Beach.................. 17 Figure 6. Percent of Total Collisions by Collision Factor in the City of Imperial Beach..................................................... 19 Figure 7. Number of Collisions in the City of Imperial Beach by Collision Impact Type for Each Crash History Year.. 20 Figure 8. City of Imperial Beach OTS Ranking for Fatal and Injury Crash Types ............................................................... 22 Figure 9. Locations of Fatal & Severe Collisions in the City of Imperial Beach .................................................................. 23 Figure 10. Number of Fatal & Severe Collisions in the City of Imperial Beach by Primary Collision Factor .................. 24 Figure 11. Bicycle- and Pedestrian-Involved Fatal & Severe Collisions in the City of Imperial Beach ............................ 25 Figure 12. City of Imperial Beach OTS Ranking for Bicycle-Involved Collisions ................................................................. 28 Figure 13. City of Imperial Beach OTS Ranking for Bicyclists-Involved (Under 15) Collisions.......................................... 28 Figure 14. City of Imperial Beach OTS Ranking for Pedestrian-Involved Collisions .......................................................... 29 Figure 15. City of Imperial Beach OTS Ranking for Pedestrian-Involved (Under 15) Collisions....................................... 29 Figure 16. Pedestrian-Involved Collision Locations in the City of Imperial Beach ............................................................ 30 Figure 17. Bicycle-Involved Collision Locations in the City of Imperial Beach ................................................................... 31 Figure 18. Locations of Collisions Involving a Hit Object in the City of Imperial Beach.................................................... 33 Figure 19. Collisions at Dark with Lighting Status in the City of Imperial Beach ............................................................... 34 Figure 20. City of Imperial Beach OTS Ranking for Crash Types Occurring at Nighttime (Between 9:00 pm and 2:59 am) ................................................................................................................................................................................................ 35 Figure 21. Locations of Collisions Involving an Impaired Driver in the City of Imperial Beach....................................... 36 Figure 22. City of Imperial Beach OTS Ranking for Alcohol Involved Crash Types............................................................ 37 Figure 23. City of Imperial Beach OTS Ranking for Driver Had Been Drinking Collisions ................................................ 37 Figure 24. City of Imperial Beach OTS Ranking for Underage Driver Had Been Drinking Collisions.............................. 38 Figure 25. City of Imperial Beach OTS Ranking for DUI Arrests........................................................................................... 38 Figure 26. Locations of Collisions Involving a Distracted Driver in the City of Imperial Beach ....................................... 39 Figure 27. Locations of Collisions Involving an Aggressive Driver in the City of Imperial Beach .................................... 40 Figure 28. Top 10 Collision Locations in the City of Imperial Beach .................................................................................. 43 Figure 29. Probability of Specific Crash Types Exceeding Threshold Proportion.............................................................. 44 Figure 30. City of Imperial Beach Roadway Network and Identified Priority Corridors ................................................... 50 Figure 31. Existing 9th Street Conditions ................................................................................................................................. 52 Figure 32. Number of Collisions along 9th Street by Crash Type for Each Crash History Year....................................... 53 Figure 33. Number of Collisions along 9th Street by Collision Factor for Each Crash History Year ............................... 54 Figure 34. Number of Collisions along 9th Street by Collision Impact ............................................................................... 54 Figure 35. Existing 13th Street Conditions.............................................................................................................................. 55 Figure 36. Number of Collisions along 13th Street by Crash Type for Each Crash History Year..................................... 56 Figure 37. Number of Collisions along 13th Street by Collision Factor for Each Crash History Year ............................. 57 Attachment 2

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Figure 38. Number of Collisions along 13th Street by Collision Impact ............................................................................. 57 Figure 39. Distracted Driving Fatality Trends ......................................................................................................................... 59

LIST OF TABLES
Table 1. Percentage of Total Collisions by Crash Types in the City of Imperial Beach ..................................................... 17 Table 2. Percent of Total Collisions by Collision Factor in the City of Imperial Beach ...................................................... 18 Table 3. Fatal & Severe Injuries by Crash Type and Collision Factor in the City of Imperial Beach and San Diego County .......................................................................................................................................................................................... 21 Table 4. Intersection Collisions by Fatal & Severe Collisions, Crash Type and Involved with Pedestrian or Bicyclist in the City of Imperial Beach.......................................................................................................................................................... 26 Table 5. Number of Collisions Involving a Pedestrian or Bicyclist in the City of Imperial Beach by Collision Severity 27 Table 6. Top 10 Intersections for Collisions in the City of Imperial Beach ......................................................................... 41 Table 7. Top Segments for Collisions in the City of Imperial Beach.................................................................................... 42 Table 8. Analysis Rankings – Intersections in the City of Imperial Beach........................................................................... 45 Table 9. Analysis Rankings - Segments in the City of Imperial Beach ................................................................................. 47 Table 10. Top 20 Locations of Interest in the City of Imperial Beach.................................................................................. 48

LIST OF APPENDICES
APPENDIX A. IMPERIAL BEACH LRSP KICK-OFF MEETING MATERIAL APPENDIX B. IMPERIAL BEACH LRSP SAFETY PARTNERS WORKSHOP MATERIAL APPENDIX C. IMPERIAL BEACH OTS RANKINGS (2013-2017)
APPENDIX D. 9TH STREET ANALYSIS & POTENTIAL SAFETY PROJECTS APPENDIX E. PROJECT SHEETS
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(Per section 148 of Title 23, United States Code [23 U.S.C. §148(h) (4)]: REPORTS DISCOVERY AND ADMISSION INTO EVIDENCE OF CERTAIN REPORTS, SURVEYS, AND INFORMATION—Notwithstanding any other provision of law, reports, surveys, schedules, lists, or data compiled or collected for any purpose relating to this section, shall not be subject to discovery or admitted into evidence in a Federal or State court proceeding or considered for other purposes in any action for damages arising from any occurrence at a location identified or addressed in the reports, surveys, schedules, lists, or other data.)
TO BE SIGNED BY MYCHAL LOOMIS______________________________ Signature line
By signing and stamping this Local Roadway Safety Plan, the engineer is attesting to this report's technical information and engineering data upon which local agency's recommendations, conclusions, and decisions are made.

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INTRODUCTION
The City of Imperial Beach is one of the nineteen jurisdictions that comprise the San Diego Region. The City is the most southwesterly community in San Diego County (see Figure 1) and covers approximately 4.5 square miles. The City is bordered by the San Ysidro community to the south, the San Diego Bay and City of Coronado to the north, the Pacific Ocean to the west, and the City of San Diego to the East. There is a population of about 27,5001 in the City. Imperial Beach serves as a key beach destination in south San Diego County, with estimates for beach attendance generally exceeding over 400,000 visitors per year and generating $2.5 million in revenue 2.

The Imperial Beach Local Roadway Safety Plan (LRSP) identifies, analyzes, and prioritizes safety needs on local roads within the City’s jurisdiction. The process for developing the City’s LRSP created a framework to systematically identify and analyze safety problems, establish emphasis areas, and recommend safety improvements that help the City be one step closer to the Vision Zero initiative. Vision Zero is a nationwide initiative and state goal to eliminate traffic fatalities and severe injuries by increasing safe, healthy, and equitable mobility.

This plan documents the process and analysis performed to develop the City’s LRSP including its vision and goals, findings from the crash history analysis, and emphasis areas that address key safety concerns from the data analysis and outreach with the City’s safety partners. The crash history analysis and emphasis areas identify site specific infrastructure and non-infrastructure recommendations as well as broader systemic city-wide recommendations to help address key safety issues within the City. The LRSP analyzes 2015-2019 crash data from the Statewide Integrated Traffic Records System (SWITRS) to identify high-collision locations, high-risk locations, and city-wide trends and patterns. The analysis of crash history throughout the City’s roadway network allows for opportunities to: 1) identify factors on local roads that inhibit safety for all roadway users, 2) improve safety at specific high-collision locations, and 3) develop safety measures using the five E’s of safety in the 2020-2024 California State Highway Safety Plan (2020-2024 SHSP): Engineering, Enforcement, Education, Emergency Response, and Emerging Technologies to encourage safer driver behavior and better severity outcomes. Emphasis areas include certain types of crashes, specific locations, and notable relationships between current efforts and crash history. The information compiled in this plan will help guide the City to enhance safe mobility for all modes. In addition, the LRSP will allow the City to apply for Highway Safety Improvement Program (HSIP) funding in the future.

Starting with HSIP Cycle 11, a LRSP or equivalent documents will be required to compete for HSIP grant funding.

The City of Imperial Beach is committed to improving transportation safety to reduce the risk of fatal and serious injuries that result from incidents on public roads. Through a data-driven approach with input from key safety partners, the LRSP tells the story of traffic safety needs and strategies for Imperial Beach. Implementation of the LRSP will help improve transportation safety for the residents and visitors of Imperial Beach. 1 US Census Bureau, ACS 5 Year 2018 Estimate
2 City of Imperial Beach General Plan/Local Coastal Program Land Use Plan (2019) Attachment 2

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Figure 1. Location of City of Imperial Beach
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SAFETY PARTNERS
The City continues to establish working partnerships within the community and with outside partners to better serve existing transportation safety needs. The LRSP is a continuation of the collaboration between the City and its safety partners that were involved in developing this report:
• City staff from Public Works Department
• City staff from Community Development Department
• City staff from GIS Department
• City staff from Strategic Communications Department
• County of San Diego Sherriff Department
• City Fire Rescue
In addition, the City continues to work collaboratively with agencies such as the San Diego Association of Governments (SANDAG) and the San Diego Metropolitan Transit System (MTS) on efforts to create safe and efficient mobility choices for the community.

VISION AND GOALS
LRSPs have been effective across the country as part of the effort to reduce injury and fatal collisions because they provide a locally developed and customized roadmap to directly address the most common safety challenges in the given jurisdiction. Based on discussions with City staff, the City’s safety partners, and a review of the City’s existing plans, policies, and safety efforts, the following vision and goals were established for the LRSP.

Goal #1: Identify areas with a high risk for collision
Objectives:

A. Identify intersections and segments in the transportation network that would most benefit from traffic safety countermeasures and mitigation.

B. Identify areas of interest with respect to traffic safety concerns covering the 5Es of traffic safety in the 2020- 2024 SHSP: Engineering, Enforcement, Education, Emergency Response, and Emerging Technologies.

C. Evaluate the crash history to identify priority corridors.

Goal #2: Develop a comprehensive safety program and supporting systemic process
Objectives:

A. Demonstrate the systemic process’ ability to identify locations with higher risk for collisions based on present characteristics closely associated with fatal and severe collisions.

VISION Provide safe, efficient, and complete streets to expand mobility choices, enhance the small beach town atmosphere, and to meet the City’s Vision Zero goal.

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B. Demonstrate the gaps and data collection activities that can be improved upon.

C. Develop prioritization processes that help achieve the City’s vision.

Goal #3: Plan future safety improvements that improve mobility choices Objectives:

A. Identify safety countermeasures that are effective for specific locations.

B. Identify effective safety countermeasures that can be applied City-wide to address a certain behavior or condition.

Goal #4: Define safety projects for future HSIP and other program funding consideration
Objectives:

A. Identify safety improvements that can be used in forth-coming Highway Safety Improvement Program (HSIP) cycles to apply for funding.

B. Demonstrate the correlation between the proposed safety countermeasures and projects with the Vision Zero Initiative and the 20202-2024 SHP.

PROCESS
Providing safe, sustainable, and efficient mobility choices for their constituents and visitors is a primary goal for the City and their safety partners. Through the development of the LRSP, the City collaborated with their safety partners to identify and discuss safety issues and potential safety improvements.

Figure 2 outlines the process for developing the City’s LRSP. The City held a kick-off meeting in the spring of 2020 to collectively discuss existing safety efforts and concerns and identify strategies to achieve the City’s safety goals and vision with their safety partners (see Appendix A). To help inform this discussion, initial safety concerns and 2015- 2019 SWITRS data were collected and organized to identify critical safety issues and preliminary emphasis areas. In preparation of developing the final LRSP, the City held a virtual workshop with their safety partners to discuss the draft LRSP (see Appendix B). The virtual workshop allowed the City to present and solicit feedback for the draft LRSP and select safety projects to develop project sheets that will help the City when funding opportunities such as safety grants arise.

This LRSP documents the vision and goals for the LRSP, existing safety efforts, findings and trends from the collision analysis, and emphasis areas with recommended safety projects and strategies to address key safety concerns. The development of the LRSP recommendations considers existing guidance for roadway design and safety are available at the national and state level. The following provides a brief summary for three of the more predominate guiding manuals in the industry.

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Figure 2. Imperial Beach LRSP Process
Final Plan
•Incorporate
feedback from
safety partners
•Complete project
sheets for
selected safety
projects to help
City prepare for
future funding
opportunities
Virtual
Workshop
with Safety
Partners
•Present draft LRSP
& solicit feedback
from safety
partners
•Present potential
safety projects to
select safety
projects to
develop project
sheets
•City & Safety
Partners Review
Draft LRSP
Draft Plan
•Incorporate peer
review feedback
•Refine emphasis
areas & potential
safety projects
•Include proven
countermeasures
& behavioral
strategies to
address safety
issues
Preliminary
Memo
•Complete collision
analysis & findings
•Develop
preliminary
emphasis areas &
potential safety
projects based on
Kick-Off Meeting
Kick-Off
with Safety
Partners
•Present findings
from preliminary
collision analysis
•Discuss existing
safety efforts
•Identify potential
emphasis areas &
strategies to
achieve City’s
safety vision and
goals
Preliminary
Collision
Analysis
•Identify safety
issues within the
City
•Summarize
findings to discuss
with Safety
Partners at KickOff
City & Peer Review
of Preliminary
Memo
Draft project sheets
for City Review
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Guiding Manuals
Local Roadway Safety Manual
The Local Roadway Safety Manual: A Manual for California’s Local Road Owners (LRSM), published in April 2020, encourages local agencies to pursue a proactive safety analysis and approach when identifying and analyzing safety issues and preparing to compete for project funding opportunities. A proactive approach is defined as analyzing the safety of the entire roadway network through either a one-time, network wide analysis, or by routine analyses of the roadway network to identify the highest safety needs. 3 According to the Local Roadway Safety Manual (LRSM), “The California Department of Transportation (Caltrans) – Division of Local Assistance is responsible for administering California’s federal safety funding intended for local safety improvements.”
To provide the most benefit and to be competitive for funding, the analysis leading to countermeasure selection should focus on both intersections and roadway segments and be considerate of roadway characteristics and traffic volumes. The result should be a list of locations that are most likely to benefit from cost-effective countermeasures, preferably prioritized by benefit/cost ratio. The manual suggests using a mixture of quantitative and qualitative measures to identify and rank locations that considers both crash frequency and crash rates. These findings should then be screened for patterns such as crash types and severity to aid in the determination of issues causing higher numbers of crashes and the potential countermeasures that could be most effective. Qualitative analysis should include field visits and a review of existing roadway characteristics and devices. The specific roadway context can then be used to assess what conditions may increase safety risk at the site and systematic level.

Countermeasure selection should be supported using Crash Modification Factors (CMFs). These factors are the peer reviewed product of before and after research that quantifies the expected rate of collision reduction that can be expected from a given countermeasure. If more than one countermeasure is under consideration, the LRSM provides guidance on how to apply CMFs appropriately.

Highway Safety Manual
The AASHTO Highway Safety Manual (HSM), published in 2010, presents a variety of methods for quantitively estimating crash frequency or severity at a variety of locations.4 This four-part manual is divided into Parts: A) Introduction, Human Factors, and Fundamentals, B) Roadway Safety Management Process, C) Predictive Method, D) Crash Modification Factors.
3 Local Roadway Safety Manual (Version 1.5) 2020. Page 5. 4 AASHTO, Highway Safety Manual, 2010, Washington D.C., http://www.highwaysafetymanual.org/Pages/About.aspx Attachment 2

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Chapter 4 of Part B of the HSM discusses the Network Screening process. The Network Screening Process is a tool for an agency to analyze their entire network and identify/rank locations that (based on the implementation of a countermeasure) are most likely to least likely to realize a reduction in the frequency of collisions.

The HSM identifies five steps in this process:5

1. Establish Focus: Identify the purpose or intended outcome of the network screening analysis. This decision will influence data needs, the selection of performance measures and the screening method that can be applied.

2. Identify Network and Establish Reference Populations: Specify the types of sites or facilities being screened (i.e., segments, intersections, geometrics) and identify groupings of similar sites or facilities.

3. Select Performance Measures: There are a variety of performance measures available to evaluate the potential to reduce crash frequency at a site. In this step, the performance measure is selected as a function of the screening focus and the data and analytical tools available.

4. Select Screening Method: There are three principle screening methods described in this chapter (i.e., ranking, sliding window, peak searching). Each method has advantages and disadvantages; the most appropriate method for a given situation should be selected.

5. Screen and Evaluate Results: The final step in the process is to conduct the screening and analysis and evaluate the results.

The HSM provides several statistical methods for screening roadway networks to identify high risk locations based on overall collision histories. In addition to flat crash quantities, the method used in this study is referred to as Critical Crash Rate.

California’s Strategic Highway Safety Plan (SHSP)
The 2020-2024 California Strategic Highway Safety Plan (2020-2024 SHSP) is a comprehensive statewide data-driven traffic safety plan that provides a decision-making framework for reducing traffic fatalities and serious injuries on all public roads in California. Developed through a collaborative, data-driven process, the 2020-2024 SHSP identifies key safety needs and effective strategies to help guide investment decisions and the development of local safety plans. Through an extensive analysis of crash data systems in California, the 2020-2024 SHSP identified current trends around traffic safety including trends seen in fatalities and serious injuries, primary causes for collisions, economic costs of collisions, the rate of fatalities and serious injuries, and the location of collisions. Using these existing trends, stakeholder outreach, and the 5Es of traffic safety (Engineering, Enforcement, Education, Emergency Services, and Emerging Technologies), the 2020-2024 SHSP outlines 16 challenge areas to optimize progress toward zero fatalities and serious injuries. The 2020-2024 SHSP identified challenge areas can be found on the next page. 5 AASHTO. Highway Safety Manual. 2010. Washington, DC. Page 4-2.

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• Aggressive Driving
• Aging Drivers (≥65)
• Bicyclists
• Commercial Vehicles
• Distracted Driving
• Driver Licensing
• Emergency Response
• Emerging Technologies
• Impaired Driving
• Intersections
• Lane Departures
• Motorcyclists
• Occupant Protection
• Pedestrians
• Work Zones
• Young Drivers (15-20)
While the SHSP is used as a statewide approach for improving traffic safety, the LRSP is a means for providing local and rural road owners an opportunity to address safety needs and issues in their jurisdictions while contributing to the success of the SHSP. The LRSP offers a proactive approach to addressing safety needs and demonstrates responsiveness to safety challenges seen locally.

Highway Safety Improvement Program (HSIP)
The Highway Safety Improvement Program (HSIP) is a federal-aid program to States for the purpose of reducing fatal and severe collisions on all public roads. Caltrans Local Assistance manages California’s local agency share of HSIP funds. HSIP funds are eligible for work on any public road or publicly owned bicycle/pedestrian pathway or trail that improves safety for its users. To obtain HSIP funds, local agency must submit an application during the HSIP cycle’s call-for-projects period. For a project to be eligible, a specific safety problem must be identified and proposed countermeasure(s) must address the condition. In addition, the project must be consistent with the most recent version of the SHSP. Details and restrictions for project applications are included in the HSIP Guidelines and HSIP cycle’s call-for-projects materials.

HSIP Cycle 10 call-for-projects in April 2020 recommended but not required applicants to have a LRSP or equivalent document. However, agencies with a LRSP or equivalent document would be given priority should there be more applications than funding. Starting with HSIP Cycle 11, a LRSP or equivalent document will be required to compete for HSIP grant funding. The HSIP Cycle 11 call-for-projects is anticipated to be released in April 2021. The completion of the Imperial Beach LRSP will allow the City to be eligible to apply for HSIP funding

EXISTING EFFORTS
The City is committed to improving transportation safety and to reduce the risk of death and serious injuries that result from incidents on the transportation system. The City actively engages with multiple decision and policymaking bodies as well as performed various studies and safety initiatives to improve safety for all its roadway users.

The City is involved with the following efforts to promote transportation safety:
• Palm Avenue Master Plan – Ongoing project for infrastructure changes along Palm Avenue that includes pedestrian and bicyclist safety improvements. The project includes alignment studies, public outreach, and traffic studies associated with potential changes now that Palm Avenue is a City roadway instead of a Caltrans facility.
• 13th Street Lane Reallocation – A recently completed project (2016) that reallocated existing lanes with a goal to reduce the number of crashes.

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• Imperial Beach Boulevard Enhancement Project – Recently completed improvements along Imperial Beach Boulevard including bulb outs, wider sidewalks, enhanced crosswalks, and the reallocation of driving lanes.
• Office of Traffic Safety (OTS) Grants – California Highway Patrol has been successful in obtaining OTS grant funding to set up impaired driving checkpoints that have been effective each year. • Neighborhood Traffic Management Program – Imperial Beach residents can request speed bumps and other traffic calming measures for City review and implementation. • Bayshore to Border Bikeway Project – In collaboration with SANDAG, this project includes street calming and intersection improvements along the Bayshore Bikeway alignment in Imperial Beach. • Vision Zero Initiative – City is taking necessary steps to have zero deaths or serious injuries from traffic crashes. These steps include implementing projects such as the Palm Avenue Master Plan and the Imperial Beach Boulevard Enhancement Project.

COLLISION DATA ANALYSIS SUMMARY
The following section describes the analysis process undertaken to evaluate safety within Imperial Beach at a systemic level. Using a network screening process, locations within the City that will most likely benefit from safety enhancements are identified. Using historic collision data, collision risk factors for the entire network are derived.

The resulting data trends inform the identification and prioritization of engineering and non-infrastructure safety measures that address roadway characteristics and related behaviors that contribute to motor vehicle collisions with active transportation users.

Analysis Techniques
Collision Analysis
A component of the LRSP is to identify locations with elevated risk of collisions either through their collision histories, or their similarities to other locations that do have more active collision patterns. The initial step in analyzing this information is to spatially reference injury-related and property damage only (PDO) collisions that occurred within the study area from January 1st. 2015 through December 31st, 2019. The charts and figures below display all collision activity for this period using SWITRS data processed through Crossroads Collision Software. In addition, Crossroads has access to the latest police reports, allowing validation of the City’s data with Transportation Injury Mapping System (TIMS), which provides access to California injury and fatal crash data from the SWITRS data.

This helps to confirm that all relevant data is included.

Network Screening Analysis
To help complete the initial crash history analysis, the network screening analysis was performed on the 2015-2019 crash data including both injury-related and PDO collisions. The network screening analysis is a Geographic Information System (GIS) tool that helps identify the following: 1) collision hot spots (intersection and segment locations with a high-number of collisions), 2) locations for fatal collisions, and 3) pedestrian-involved and bicycleinvolved collision locations.

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OTS Crash Rankings
The Office of Traffic Safety (OTS) Crash Rankings were also utilized to identify emerging and on-going safety issues within Imperial Beach. The OTS rankings help see what areas the City may have problems in and what areas the City is doing well or improving in by comparing safety statistics of Imperial Beach to cities with similar-sized populations.

Based on the Empirical Bayesian Ranking Method, OTS rankings utilize crash counts that reflect the aggregated impacts of all influential factors by adding weights to different statistical categories such as observed crash counts, population, and vehicle miles traveled.

Imperial Beach is grouped with about 90 other cities with a population of 25,001 - 50,000. For each OTS ranking category, Imperial Beach receives a ranking where ranking 1 is being the highest or “worst” city in the group for a given category. Imperial Beach’s OTS rankings for all the available categories between 2013 to 2017 can be seen in Appendix C. At the time the LRSP was developed, the most recent year available for OTS rankings was 2017. A 5- year period from 2017 was used to see how Imperial Beach historically did for its grouping. OTS rankings for safety issues in the City such as impaired driving, pedestrians, and bicyclists are also included in the “Key Findings” of this section. Imperial Beach’s OTS rankings for the categories of motorcycles and pedestrians 65 and over are not included in the “Key Findings” as these are not prominent safety issues for Imperial Beach based on the collision analysis.

Key Findings
In this section, the collision findings are broken into the following: crash type, collision factor, collision impacts, fatal and severe injury collisions, pedestrian-involved collisions, and bicycle-involved collisions. In addition, 9th Street and 13th Street were identified as priority corridors. Both these corridors received a corridor-level collision analysis to understand the collision trends along them. The corridor-level collision analysis can be found in the next section under “Emphasis Area 1: Safety On Priority Corridors”.

Vehicle Volumes
Recent vehicle counts along major arterials in Imperial Beach from 2015 and 2016 are shown in Figure 3. Higher vehicle counts are seen on the following roads: Imperial Beach Boulevard, Palm Avenue, 9th Street, and 13th Street.

Total Collisions
A total of 502 collisions occurred within the City of Imperial Beach between January 2015 and December 2019 (the crash history period). The locations of these collisions are shown in Figure 4. The collisions are spread throughout the City’s roadway network with a majority occurring on Palm Avenue, Imperial Beach Boulevard/Coronado Avenue, 9th Street, and 13th Street.

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Figure 3. Most Recent Vehicle Counts by Year in the City of Imperial Beach Attachment 2

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Figure 4. Collisions in the City of Imperial Beach

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Crash Types
The crash types that occurred between 2015-2019 are shown in Table 1. The crash types broken down by year and percentage can be seen in Figure 5. These visuals indicate that broadside collisions (26%) are consistently the most common crash type within the City. Rear-end (22%) and sideswipe (19%) collisions are the next leading crash types.

Head-on, hit object, and pedestrian collisions are significant, equally constituting almost 30% of collisions within the City. Only a handful of collisions involved overturned vehicles (1%).

Table 1. Percentage of Total Collisions by Crash Types in the City of Imperial Beach Crash Type Percent of Total Collisions
Broadside 26%
Rear-End 22%
Sideswipe 19%
Head-On 9%
Vehicle – Pedestrian 9%
Hit Object 8%
Other 3%
Not Stated 2%
Overturned 1%
Number of Total Collisions 502
Source: Statewide Integrated Traffic Records System (SWITRS) 2015-2019 Figure 5. Number of Collisions by Crash Types for Each Crash History Year in the City of Imperial Beach Source: Statewide Integrated Traffic Records System (SWITRS) 2015-2019 0 20
40 60
80 100
120
140
Broadside Rear-End Sideswipe Head-On Vehicle -
Pedestrian
Hit Object Other Not Stated Overturned
2019
2018
2017
2016
2015
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Collision Factors
Knowing the recorded causes of collisions can help identify safety factors systemwide that may contribute to collisions. Table 2 and Figure 6 show the percent of total collisions by collision factor between 2015 and 2019. The top leading collision factors are driving under influence (21%), automobile right of way violation (19%), and improper turning (11%). The remaining collision factors for the crash history analyzed fall under 10% of all collisions.

Table 2. Percent of Total Collisions by Collision Factor in the City of Imperial Beach Collision Factor Percent of Total Collisions
Driving Under Influence 21%
Auto R/W Violation 19%
Improper Turning 11%
Unsafe Speed 8%
Unknown 7%
Other Improper Driving 6%
Traffic Signals and Signs 6%
Ped R/W Violation 4%
Following Too Closely 3%
Other 3%
Unsafe Starting or Backing 3%
Wrong Side of Road 3%
Other Hazardous Movement 2%
Pedestrian Violation 2%
Improper Passing 1%
Unsafe Lane Change 1%
Impeding Traffic 0%
Other Than Driver or Ped 0%
Number of Total Collisions 502
Source: Statewide Integrated Traffic Records System (SWITRS) 2015-2019 Attachment 2

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Figure 6. Percent of Total Collisions by Collision Factor in the City of Imperial Beach Source: Statewide Integrated Traffic Records System (SWITRS) 2015-2019 Collision Impacts
Knowing the collision impacts (the injuries or type of damage which occurred) is a key part of assessing the environment and safety factors around the site of a collision. Figure 7 displays the count of each collision impact by crash history year. While the vast majority of collisions are property damage only (PDO) over the crash history period observed, there was a total of 3 fatal collisions and 17 severe injury collisions within the five-year timeframe. 0 20
40 60
80 100
120
Driving Under InfluenceAuto R/W ViolationImproper TurningUnsafe SpeedUnknownTraffic Signals and SignsOther Improper DrivingPed R/W ViolationUnsafe Starting or BackingFollowing Too CloselyWrong Side of RoadOtherPedestrian ViolationOther Hazardous MovementUnsafe Lane ChangeImproper PassingOther Than Driver or PedImpeding Traffic 2019
2018
2017
2016
2015
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Figure 7. Number of Collisions in the City of Imperial Beach by Collision Impact Type for Each Crash History Year Data Source: Statewide Integrated Traffic Records System (SWITRS) 2015-2019 Figure 8 shows the OTS ranking of Imperial Beach for the total number of fatal and injury collisions between 2013- 2017. While the OTS rankings do not provide ranking exclusively for the fatal and severe collisions, the fatal and injury ranking helps identify emerging or on-going safety issues as well as see how Imperial Beach is doing in this area in comparison to cities with similar-sized populations. Compared to other cities in its population group, Imperial Beach saw an increase in fatal and injury-related collisions since 2015. With an OTS ranking of 58th in 2015 and 34th in 2017, Imperial Beach has been rising more rapidly in fatal and injury-related collisions compared to its peer cities.

Fatal and Severe Collision Impacts
Dissecting the crash type and collision factors for fatal and severe collisions is a key step in detecting patterns in the City that result in fatal and severe injury collisions. Table 3 shows the crash types and collision factors for both fatal and severe injury collisions within the City and a comparison to San Diego County.

The top leading crash types for fatal and severe collisions in Imperial Beach is vehicle/pedestrian (40%), broadside (35%), and head on (10%). The top collision factors for fatal and severe collisions in Imperial Beach is automobile right of way (40%), driving or bicycling under the influence (25%), and pedestrian right of way (15%). The top leading crash type and primary collision factors of the fatal and severe collisions are a higher percentage when compared to San Diego County.
0 50
100
150
200
250
300
350
Fatal Severe Injury Other Visible Injury Complaint of Pain Property Damage Only 2019
2018
2017
2016
2015
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Table 3. Fatal & Severe Injuries by Crash Type and Collision Factor in the City of Imperial Beach and San Diego County City of Imperial Beach San Diego County
Number of Fatal & Severe Injuries 20 5,332
CRASH TYPE Number of
Collisions
Percent of Fatal &
Severe Collisions
Number of
Collisions
Percent of Fatal &
Severe Collisions
Vehicle/Pedestrian 8 40% 866 16%
Broadside 7 35% 990 19%
Head On 2 10% 436 8%
Rear-End 1 5% 790 15%
Hit Object 1 5% 1,109 21%
Other 1 5% 138 3%
Not Stated 0 0% 19 0%
Sideswipe 0 0% 419 8%
Overturned 0 0% 565 11%
PRIMARY COLLISION FACTOR Number of
Collisions
Percent of Fatal &
Severe Collisions
Number of
Collisions
Percent of Fatal &
Severe Collisions
Automobile Right of Way 8 40% 498 9%
Driving or Bicycling Under the Influence 5 25% 911 17%
Pedestrian Right of Way 3 15% 172 3%
Pedestrian Violation 2 10% 602 11%
Wrong Side of Road 1 5% 187 4%
Improper Turning 1 5% 992 19%
Unknown 0 0% 111 2%
Impeding Traffic 0 0% 8 0%
Unsafe Speed 0 0% 1,131 21%
Following Too Closely 0 0% 19 0%
Improper Passing 0 0% 48 1%
Unsafe Lane Change 0 0% 176 3%
Traffic Signals and Signs 0 0% 238 4%
Hazardous Parking 0 0% 7 0%
Brakes 0 0% 1 0%
Other Equipment 0 0% 4 0%
Other Hazardous Violation 0 0% 52 1%
Other Than Driver (or Pedestrian) 0 0% 108 2%
Unsafe Starting or Backing 0 0% 30 1%
Other Improper Driving 0 0% 26 0%
Not Stated 0 0% 11 0%
Data Source: Statewide Integrated Traffic Records System (SWITRS) 2015-2019 Attachment 2

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Figure 8. City of Imperial Beach OTS Ranking for Fatal and Injury Crash Types Data Source: OTS Crash Rankings 2013-2017
Figure 9 shows the locations of the three fatal collisions and 17 severe collisions during the 5-year crash history.

Locating the fatal and severe collisions allow the opportunity to look at the site conditions to help determine the potential safety factors and roadway geometry/design that may have led to the fatal and severe collision impact. 92 89
93 94 94
31 56 58
51 34
0 10
20 30
40 50
60 70
80 90
100
2013 2014 2015 2016 2017
Number of Cities
Year
Number of Cities in OTS Ranking Group
Imperial Beach Ranking
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Figure 9. Locations of Fatal & Severe Collisions in the City of Imperial Beach Attachment 2

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Figure 10 displays more details on the annual number of fatal and severe collisions by their primary collision factor.

As shown in the figure, the leading collision factor for the collisions is auto right-of-way violation but had no associated fatalities. The collision factors for the three fatal collisions in the City were driving under the influence, improper turning, and pedestrian violation.

Figure 10. Number of Fatal & Severe Collisions in the City of Imperial Beach by Primary Collision Factor Data Source: Statewide Integrated Traffic Records System (SWITRS) 2015-2019 0 1
2 3
4 5
6 7
8 9
Auto R/W Violation Driving Under
Influence
Ped R/W Violation Pedestrian
Violation
Wrong Side of
Road
Improper Turning
Severe Collision
Fatal Collision
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There was a total of nine fatal and severe collisions between 2015-2019 involving a bicyclist or pedestrian. This represents about 45% of the total fatal and severe collisions that occurred in the City, showing that pedestrians and bicyclists are some of the more vulnerable roadway users in the City. Figure 11 shows the number of fatal and severe collisions that involved a pedestrian or bicyclist.

Figure 11. Bicycle- and Pedestrian-Involved Fatal & Severe Collisions in the City of Imperial Beach Data Source: Statewide Integrated Traffic Records System (SWITRS) 2015-2019 0 1
2 3
4 5
6 7
Bicycle-Involved Pedestrian-Involved
Fatal Collision Severe Collisions
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Table 4 displays the location of intersection collisions between 2015-2019 for both signalized and unsignalized intersections. Table 4 also includes the number of collisions at each intersection by fatal and severe, crash type, and involved with a pedestrian or bicyclist. The three fatal collisions occurred at unsignalized intersections. The 17 severe injury collisions occurred at both signalized and unsignalized intersections.

Table 4. Intersection Collisions by Fatal & Severe Collisions, Crash Type and Involved with Pedestrian or Bicyclist in the City of Imperial Beach
Intersection
Total Collisions
Fatal Collisions
Severe Injury
Collisions
PDO Collisions
Broadside
Sideswipe
Rear End
Head On
Other
Pedestrian
Bicycle
Signalized Intersections
09TH ST & PALM AV 10 0 2 5 2 3 1 0 2 1 0
09TH ST & IMPERIAL BEACH BL 5 0 1 1 1 0 0 4 0 0 0
Unsignalized Intersections
RAINBOW DR & PALM AV 12 0 1 6 3 0 4 3 1 0 0
09TH ST & ELM AV 7 0 2 0 4 0 1 0 0 0 0
12TH ST & PALM AV 6 0 1 4 2 1 1 0 0 1 0
10TH ST & PALM (SB) AV 5 1 0 2 2 1 0 0 0 1 0
DELAWARE ST & PALM AV 4 0 1 3 0 0 1 3 0 0 0
04TH ST & PALM AV 4 1 0 1 0 0 1 0 0 1 0
12TH ST & IMPERIAL BEACH BL 3 1 0 1 0 1 0 1 0 1 0
13TH ST & ELM AV 3 0 1 1 2 0 0 1 0 0 0
09TH ST & HOLLY AV 2 0 1 1 0 0 1 1 0 0 0
ALLEY & PALM AV 2 0 2 0 0 0 0 0 1 1 0
11TH ST & PALM (SB) AV 2 0 1 0 2 0 0 0 0 0 0
09TH ST & ELDER AV 1 0 1 0 1 0 0 0 0 0 0
FLORENCE ST & CALLA AV 1 0 1 0 0 0 0 0 0 1 0
08TH ST & CALLA AV 1 0 1 0 1 0 0 0 0 0 0
03RD ST & CALLA AV 1 0 1 0 1 0 0 0 0 0 0
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Collision by Involvement With
Collisions occur for a variety of reasons ranging from combinations of driver behavior, inclement weather, traffic control features, and a myriad of other causes. The following sections discuss the collisions from 2015-2019 within Imperial Beach based on the types of vessels involved. This includes:
• Cars and trucks
o Single Vehicle Crashes/Off-Road Collisions
o Vehicular Night-Time Collisions (with and without streetlights) o Driver Negligence
• Bicycles
• Pedestrians
Pedestrian and Bicycle Collisions
Table 5 shows the number of collisions by severity level within the City that involved a pedestrian or bicyclist.

Between 2015-2019, there were a total of 72 collisions that involved a pedestrian or bicyclist, which is about 14% of the total collisions within the City. Of the 72 collisions, about 12% of the collisions involved a fatality, injury, or complaint of pain.

Table 5. Number of Collisions Involving a Pedestrian or Bicyclist in the City of Imperial Beach by Collision Severity Collision Severity Number of PedestrianInvolved Collisions Number of BicycleInvolved Collisions Total Collisions
Fatal 2 1 3
Severe 4 2 6
Other Visible Injury 19 9 28
Complaint of Pain 16 12 28
Property Damage Only 3 4 7
Total Collisions 44 28 72
Data Source: Statewide Integrated Traffic Records System (SWITRS) 2015-2019 From 2015 to 2017, Imperial Beach has gone from 8th to 53rd in the OTS rankings of collisions involving a bicyclist (see Figure 12). From 2013 to 2016, Imperial Beach saw an improvement in collisions involving bicyclist under the age of 15; however, the City’s ranking slightly climbed back up in 2017 (see Figure 13). This shows that Imperial Beach has improved the safety of its bicycle users. Imperial Beach is ranked 12th as of 2017 in the OTS rankings group for number of collisions involving a pedestrian and ranked 4th in 2017 for collisions involving a pedestrian under the age of 15 (see Figure 14 and Figure 15). Compared to other cities in the state with a similar population size, Imperial Beach should prioritize improving its safety for pedestrians.

Figure 16 displays the locations of pedestrian-involved collisions while Figure 17 displays the locations of bicycleinvolved collisions overlaid on existing bike routes. All pedestrian- and bicycle-involved collisions occurred either at an intersection or within 250 feet of an intersection. A majority of the pedestrian- and bicycle-involved collisions occur on Palm Avenue and Coronado Avenue/Imperial Beach Boulevard where there are gaps in the bicycle network and limited low-stress bicycle facilities given the vehicle volumes on these corridors.

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Figure 12. City of Imperial Beach OTS Ranking for Bicycle-Involved Collisions Data Source: OTS Crash Rankings 2013-2017
Figure 13. City of Imperial Beach OTS Ranking for Bicyclists-Involved (Under 15) Collisions Data Source: OTS Crash Rankings 2013-2017
92 89
93 94 94
10 9 8
53 53
0 10
20 30
40 50
60 70
80 90
100
2013 2014 2015 2016 2017
Number of Cities
Year
Number of Cities in OTS Ranking Group
Imperial Beach Ranking
92 89
93 94 94
1 8
37 47
31 0
10 20
30 40
50 60
70 80
90 100
2013 2014 2015 2016 2017
Number of Cities
Year
Number of Cities in OTS Ranking Group
Imperial Beach Ranking
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Figure 14. City of Imperial Beach OTS Ranking for Pedestrian-Involved Collisions Data Source: OTS Crash Rankings 2013-2017
Figure 15. City of Imperial Beach OTS Ranking for Pedestrian-Involved (Under 15) Collisions Data Source: OTS Crash Rankings 2013-2017
92 89
93 94 94
24 25
21 52
12 0
10 20
30 40
50 60
70 80
90 100
2013 2014 2015 2016 2017
Number of Cities
Year
Number of Cities in OTS Ranking Group
Imperial Beach Ranking
92 89
93 94 94
12 6 18
37 4
0 10
20 30
40 50
60 70
80 90
100
2013 2014 2015 2016 2017
Number of Cities
Year
Number of Cities in OTS Ranking Group
Imperial Beach Ranking
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Figure 16. Pedestrian-Involved Collision Locations in the City of Imperial Beach Attachment 2

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Figure 17. Bicycle-Involved Collision Locations in the City of Imperial Beach

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Cars and Trucks
Vehicular collisions are reported by their involvement with other modes. Understanding the types and locations of these collisions is an important part of analyzing the safety conditions of the transportation network.

A reported vehicular collision with fixed objects typically indicates that the vehicle collided with an immobile object outside of the travel lanes. These are often collisions with light poles, signage, personal property, etc. The type of collision with a fixed object may include head-on, sideswipe, broadside, and overturned vehicles. Figure 18 represents the locations of collisions involving an object from 2015-2019.

Collisions occurring during periods of darkness are often associated with locations without streetlights present.

Figure 19 shows the lighting situation (i.e., streetlight, no streetlight, streetlight not functioning) at the locations where collisions at dark occurred between 2015-2019. Many of the collisions that occurred at dark where there were no streetlights present occurred on the City’s local roads. However, 7th, 9th, and Florida Streets are three northsouth corridors in the City that experienced 2-3 collisions at dark Compared to similar cities, Imperial Beach has been in the top third of the OTS rankings since 2013. In the most recent documented OTS ranking for collisions occurring at Nighttime (between 9:00 PM and 2:59 AM), Imperial Beach was 32nd out of 94 cities total (see Figure 20).

Driver Negligence
Identifying collision locations is important in understanding if there are areas of the roadway network where collisions related to impaired driving occur. Collisions where a driver is impaired are represented in Figure 21.

Often when drivers are impaired, they are known to have been drinking alcohol. As mentioned previously, the top leading collision factor for collisions is driving under influence, which makes up about 21% of the collisions. Driving under the influence has been a steadily increasing problem for Imperial Beach.

In OTS rankings, Imperial Beach is shown to vary over the years for the following impaired driver categories: alcohol involved, driver had been drinking, underage driver had been drinking, and DUI arrests (see Figure 22 to Figure 25).

For its group, Imperial Beach ranked 1 in 2016 and 4 in 2017 for alcohol involved collisions, meaning Imperial Beach has a higher number of collisions involving alcohol than other cities with similar population size. For driver had been drinking collisions, Imperial Beach’s ranking dropped from 2 in 2016 to 49 in 2017. However, underage driver who had been drinking ranking spiked from 60 in 2016 to 11 in 2017. The City’s OTS ranking for DUI arrests have been increasing throughout the years, landing the City a ranking of 49 in 2017.

Distracted driving is a growing challenge and reflects situations where the driver responsible for the collision was engaging in another activity that took their attention away from driving, thus increasing the chance of a crash. In recent years, distracted driving has most attributed to cell phone usage while driving. These collisions are shown in Figure 26. Data related to distracted driving is limited, as it is often hard to identify the behavior of the driver prior to the crash.

Aggressive driving identifies collisions where the responsible driver engaged in unsafe speeding, following too closely, or improper passing. Figure 27 is a visual representation of where these collisions occurred. The speed of a vehicle has a direct correlation with the severity of crashes.

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Figure 18. Locations of Collisions Involving a Hit Object in the City of Imperial Beach Attachment 2

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Figure 19. Collisions at Dark with Lighting Status in the City of Imperial Beach Attachment 2

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Figure 20. City of Imperial Beach OTS Ranking for Crash Types Occurring at Nighttime (Between 9:00 pm and 2:59 am) Data Source: OTS Crash Rankings 2013-2017
92 89
93 94 94
20 18
34 7
32 0
10 20
30 40
50 60
70 80
90 100
2013 2014 2015 2016 2017
Number of Cities
Year
Number of Cities in OTS Ranking Group
Imperial Beach Ranking
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Figure 21. Locations of Collisions Involving an Impaired Driver in the City of Imperial Beach Attachment 2

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Figure 22. City of Imperial Beach OTS Ranking for Alcohol Involved Crash Types Data Source: OTS Crash Rankings 2013-2017
Figure 23. City of Imperial Beach OTS Ranking for Driver Had Been Drinking Collisions Data Source: OTS Crash Rankings 2013-2017
92 89
93 94 94
57 1
46 1 4
0 10
20 30
40 50
60 70
80 90
100
2013 2014 2015 2016 2017
Number of Cities
Year
Number of Cities in OTS Ranking Group
Imperial Beach Ranking
92 89
93 94 94
46 3
24 2
49 0
10 20
30 40
50 60
70 80
90 100
2013 2014 2015 2016 2017
Number of Cities
Year
Number of Cities in OTS Ranking Group
Imperial Beach Ranking
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Figure 24. City of Imperial Beach OTS Ranking for Underage Driver Had Been Drinking Collisions Data Source: OTS Crash Rankings 2013-2017
Figure 25. City of Imperial Beach OTS Ranking for DUI Arrests Data Source: OTS Crash Rankings 2013-2017
92 89
93 94 94
23 45
58 60
11 0
10 20
30 40
50 60
70 80
90 100
2013 2014 2015 2016 2017
Number of Cities
Year
Number of Cities in OTS Ranking Group
Imperial Beach Ranking
92 87
91 92 92
83 71 71 69
49 0
10 20
30 40
50 60
70 80
90 100
2013 2014 2015 2016 2017
Number of Cities
Year
Number of Cities in OTS Ranking Group
Imperial Beach Ranking
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Figure 26. Locations of Collisions Involving a Distracted Driver in the City of Imperial Beach Attachment 2

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Figure 27. Locations of Collisions Involving an Aggressive Driver in the City of Imperial Beach Attachment 2

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Top Collision Locations
Table 6 and Table 7 show the top intersections and segments where collisions occurred. These top intersections and segments are visually shown in the City’s roadway network in Figure 28. A majority of the collisions during the crash history occurred at intersections along Palm Avenue and Imperial Beach Boulevard/Coronado Avenue.

Table 6. Top 10 Intersections for Collisions in the City of Imperial Beach Signalized Intersections
Intersection Total # of
Collisions
Fatal & Severe
Collisions
Leading Collision
Type
BicycleInvolved
Collisions
PedestrianInvolved
Collisions
1 13TH ST & PALM
AV 15 0 Rear End 0 1
2 07TH ST & PALM
AV 14 0 Broadside 0 2
3 FLORIDA ST &
PALM AV 14 0 Broadside/Rear End 0 2
4 RAINBOW DR &
SR-75 13 0 Rear End 0 0
5 09TH ST & PALM
AV 10 2 Sideswipe 0 1
Unsignalized Intersections
Intersection Total # of
Collisions
Fatal & Severe
Collisions
Leading Collision
Type
BicycleInvolved
Collisions
PedestrianInvolved
Collisions
1 RAINBOW DR &
PALM AV 12 1 Rear End 0 0
2 CONNECTICUT ST
& IMPERIAL BEACH
BL
11 0 Broadside 0 3
3 GEORGIA ST &

IMPERIAL BEACH
BL
11 0 Broadside 0 0
4 09TH ST & ELM AV 7 2 Broadside 0 0
5 FLORIDA ST & ELM
AV 6 0 Sideswipe 0 0

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Table 7. Top Segments for Collisions in the City of Imperial Beach Arterial Segments
Corridor End Segment Streets Total # of
Collisions
Fatal &
Severe
Collisions
BicycleInvolved
Collisions
PedestrianInvolved
Collisions
1 Belshire Ave FROM 03RD ST TO 04TH ST 2 0 0 0
Collector Segments
Corridor End Segment Streets Total # of
Collisions
Fatal &
Severe
Collisions
BicycleInvolved
Collisions
PedestrianInvolved
Collisions
1 No collisions on Collector Streets
Local Segments
Corridor End Segment Streets Total # of
Collisions
Fatal &
Severe
Collisions
BicycleInvolved
Collisions
PedestrianInvolved
Collisions
1 Norwalk
Blvd
FROM 03RD ST TO END OF
STREET 1 0 0 0
2 Norwalk
Blvd

FROM ENCANTO AV TO END OF
STREET 1 0 0 0
3 188th St FROM 05TH ST TO CAROLINA
ST 1 0 0 0
4 Gridley Rd FROM CORVINA ST TO 05TH ST 1 0 0 0
5 Baber Ave FROM CHERRY AV TO CYPRESS
AV 1 0 0 0
6 8th St

FROM BASSWOOD AV TO
CHERRY AV 1 0 0 0
7 7th St FROM DONAX AV TO ELM AV 1 0 0 0
8 Thorn St FROM END OF STREET TO
CAROLINA ST 1 0 0 0
9 Evergreen
Ave FROM 03RD ST TO 04TH ST 1 0 0 0
10 Holly Ave FROM 11TH ST TO 12TH ST 1 0 0 0
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Figure 28. Top 10 Collision Locations in the City of Imperial Beach Attachment 2

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Probability of Specific Crash Types Exceeding Threshold Proportion The Highway Safety Manual (HSM) describes the methodology for determining the probability that crash type is greater than an identified threshold proportion. This helps to identify locations where a crash type is likely to occur.

Data Needs
The probability of a specific crash type can be determined using collisions records with location data, and classifications of the locations (intersections or segments) studied.

Strengths
• Can be used as a diagnostic tool
• Considers variance in data
• Not affected by selection bias
The HSM methodology first determines the frequency of a specific collision type at an individual location, then determines the observed proportion of that collision type relative to all collision types at that location. A threshold proportion is then determined for the specific collision type; HSM suggests utilizing the proportion of the collision type observed in the entire reference population (e.g. throughout the entire City of Sunnyvale). These proportions are then utilized to determine the probability that the proportion of a specific crash type is greater than the longterm expected proportion of that crash type. The calculation is shown below in Figure 29.

Figure 29. Probability of Specific Crash Types Exceeding Threshold Proportion Source: Highway Safety Manual
Table 8 and Table 9 outline intersection and segment locations where more than two collisions occurred between 2015-2019 in Imperial Beach. They are organized by number of crashes at each location and highlights locations in which the probability of those crash types exceeding the threshold proportion is greater than 33%. The rankings include a breakdown of crash type as well as severity of crash and causes of driver negligence.

Table 10 is a list of 20 priority locations comprised of high collision locations and all locations where a fatality occurred. In addition, locations along 9th Street and 13th with more than 5 collisions or severe injury.

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Table 8. Analysis Rankings – Intersections in the City of Imperial Beach Legend:

Intersection
Crashes
Fatal Collisions
Serious Injury Collisions
Other Visible Injury
Collisions
Complaint of Pain
Collisions
PDO Collisions
Broadside
Sideswipe
Rear End
Head On
Other
Pedestrian
Bicycle
Aggressive
Distracted
Impaired
Dark
Wet
Signalized Intersections
13TH ST & PALM AV 15 0 0 3 2 10 2 1 9 0 0 1 0 8 1 5 4 0 07TH ST & PALM AV 14 0 0 2 6 6 8 1 1 1 1 2 0 3 0 3 4 0
FLORIDA ST & PALM AV 14 0 0 4 6 4 3 2 3 1 1 2 0 7 1 6 3 0 RAINBOW DR & SR-75 13 0 0 1 2 10 1 2 5 0 4 0 0 6 0 6 5 2 09TH ST & PALM AV 10 0 2 2 1 5 2 3 1 0 2 1 0 3 0 4 3 0
13TH ST & IMPERIAL BEACH BL 9 0 0 0 3 6 2 1 3 0 1 2 0 4 1 3 5 0 09TH ST & IMPERIAL BEACH BL 5 0 1 0 3 1 1 0 0 4 0 0 0 0 1 2 2 0 07TH ST & SR-75 5 0 0 1 1 3 1 0 2 1 1 0 0 1 0 3 2 0
Unsignalized Intersections
RAINBOW DR & PALM AV 12 0 1 1 4 6 3 0 4 3 1 0 0 0 0 5 2 1 CONNECTICUT ST & IMPERIAL BEACH BL 11 0 0 2 5 4 2 1 1 1 0 3 0 1 0 2 1 0 GEORGIA ST & IMPERIAL BEACH BL 11 0 0 1 2 8 5 1 2 1 1 0 0 3 0 4 6 0 09TH ST & ELM AV 7 0 2 1 4 0 4 0 1 0 0 0 0 1 0 3 2 0
FLORIDA ST & ELM AV 6 0 0 2 1 3 2 2 1 1 0 0 0 0 1 4 4 0 09TH ST & DONAX AV 6 0 0 2 1 3 2 0 2 0 0 2 0 2 1 2 1 0
12TH ST & PALM AV 6 0 1 0 1 4 2 1 1 0 0 1 0 1 1 1 3 1
PRIVATE RD & PALM AV 6 0 0 2 3 1 2 1 0 0 1 2 0 0 0 4 4 0 13TH ST & HOLLY AV 5 0 0 0 2 3 2 1 2 0 0 0 0 1 0 0 1 0
PRIVATE RD & IMPERIAL BEACH BL 5 0 0 2 1 2 1 0 3 0 0 1 0 2 0 3 1 0 LOUDEN LN & IMPERIAL BEACH BL 5 0 0 2 2 1 0 0 0 0 1 3 0 0 0 2 2 0 10TH ST & PALM (SB) AV 5 1 0 0 2 2 2 1 0 0 0 1 0 0 0 2 2 0 14TH ST & IRIS AV 4 0 0 0 0 4 2 2 0 0 0 0 0 0 0 2 0 1
12TH ST & ELM AV 4 0 0 1 2 1 2 1 0 0 1 0 0 1 0 2 1 0
13TH ST & DONAX AV 4 0 0 1 2 1 3 0 0 0 0 0 0 0 0 1 1 0
DELAWARE ST & PALM AV 4 0 1 0 0 3 0 0 1 3 0 0 0 2 0 1 3 0 02ND ST & PALM AV 4 0 0 1 0 3 0 2 1 0 0 0 0 0 0 3 2 0
SEACOAST DR & PALM AV 4 0 0 1 0 3 0 0 2 1 0 1 0 0 0 2 3 0 04TH ST & PALM AV 4 1 0 1 1 1 0 0 1 0 0 1 0 1 1 2 0 0
13TH (SB) ST & IRIS AV 3 0 0 0 0 3 2 1 0 0 0 0 0 0 0 1 1 0 Attachment 2

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Legend:

Intersection
Crashes
Fatal Collisions
Serious Injury Collisions
Other Visible Injury
Collisions
Complaint of Pain
Collisions
PDO Collisions
Broadside
Sideswipe
Rear End
Head On
Other
Pedestrian
Bicycle
Aggressive
Distracted
Impaired
Dark
Wet
14TH ST & GROVE AV 3 0 0 1 2 0 3 0 0 0 0 0 0 1 0 0 0 0
12TH ST & IMPERIAL BEACH BL 3 1 0 0 1 1 0 1 0 1 0 1 0 0 0 0 1 0 SEACOAST DR & IMPERIAL BEACH BL 3 0 0 0 1 2 1 1 0 0 0 0 0 1 0 1 1 0 EMORY ST & IMPERIAL BEACH BL 3 0 0 0 1 2 1 0 0 0 1 1 0 1 0 2 2 0 05TH ST & IMPERIAL BEACH BL 3 0 0 1 1 1 0 1 0 0 1 1 0 0 0 0 1 0 OCEAN LN & ELDER AV 3 0 0 0 0 3 0 1 0 0 1 1 0 1 0 2 1 0 02ND ST & EVERGREEN AV 3 0 0 0 1 2 1 2 0 0 0 0 0 0 0 2 1 0 07TH ST & ELM AV 3 0 0 1 0 2 0 2 0 0 1 0 0 0 1 2 2 1
CONNECTICUT ST & ELM AV 3 0 0 1 0 2 0 2 0 0 0 0 0 0 0 0 1 0 13TH ST & ELM AV 3 0 1 0 1 1 2 0 0 1 0 0 0 0 0 0 2 0
02ND ST & DATE AV 3 0 0 0 1 2 2 1 0 0 0 0 0 1 0 1 1 0
SEACOAST DR & DAHLIA AV 3 0 0 0 1 2 0 2 0 0 1 0 0 0 0 1 0 0 SEACOAST DR & DONAX AV 3 0 0 0 2 1 1 0 0 0 1 1 0 0 0 0 1 0 07TH ST & DONAX AV 3 0 0 1 0 2 1 1 0 0 0 1 0 0 0 0 1 0
EMORY ST & DONAX AV 3 0 0 0 1 2 1 0 2 0 0 0 0 0 0 2 1 0 ALABAMA ST & PALM AV 3 0 0 0 1 2 0 1 2 0 0 0 0 3 0 1 0 0 03RD ST & PALM AV 3 0 0 0 1 2 2 1 0 0 0 0 0 0 0 2 2 0
SILVER STRAND BL & PALM AV 3 0 0 0 1 2 1 2 0 0 0 0 0 0 0 0 0 0 EMORY ST & PALM AV 3 0 0 1 0 2 0 1 1 0 0 0 0 1 0 1 0 0
09TH ST & CALLA AV 3 0 0 0 1 2 2 1 0 0 0 0 0 1 0 1 1 0
DELAWARE ST & CALLA AV 3 0 0 1 1 1 0 0 1 1 0 1 0 0 0 2 3 1 Attachment 2

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Table 9. Analysis Rankings - Segments in the City of Imperial Beach Facility Cross Street 1 Cross Street 2
Crashes
Fatal Collisions
Serious Injury Collisions
Other Visible Injury
Collisions
Complaint of Pain
Collisions
PDO Collisions
Broadside
Sideswipe
Rear End
Head On
Other
Pedestrian
Bicycle
Aggressive
Distracted
Impaired
Dark
Wet
Arterial
Belshire Ave 03RD ST 04TH ST 2 0 0 0 1 1 0 1 1 0 0 0 0 0 0 2 0 0 Collector
No collisions on Collector Streets
Local
Norwalk Blvd 03RD ST End of Street 1 0 0 0 1 0 1 0 0 0 0 0 0 0 0 0 0 0 Norwalk Blvd ENCANTO AV End of Street 1 0 0 0 0 1 0 0 1 0 0 0 0 0 0 0 0 0 188th St 05TH ST CAROLINA ST 1 0 0 0 0 1 0 1 0 0 0 0 0 0 0 1 1 0 Gridley Rd CORVINA ST 05TH ST 1 0 0 0 0 1 0 0 1 0 0 0 0 0 1 1 1 0 Baber Ave CHERRY AV CYPRESS AV 1 0 0 0 0 1 0 0 0 1 0 0 0 0 0 0 1 0 8th St BASSWOOD AV CHERRY AV 1 0 0 0 0 1 0 0 0 0 0 0 0 0 1 0 1 0 7th St DONAX AV ELM AV 1 0 0 1 0 0 0 0 1 0 0 0 0 0 0 0 1 0 Thorn St End of Street CAROLINA ST 1 0 0 0 0 1 0 1 0 0 0 0 0 0 0 0 1 0 Evergreen Ave 03RD ST 04TH ST 1 0 0 0 0 1 0 1 0 0 0 0 0 0 0 1 1 0 Holly Ave 11TH ST 12TH ST 1 0 0 0 0 1 0 0 1 0 0 0 0 0 0 1 1 0 **Changes to Segment occurred during analysis process; may be omitted. Recent construction has changed roadway geometry; omitted from countermeasure analysis Attachment 2

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Table 10. Top 20 Locations of Interest in the City of Imperial Beach Rank Signalized / Unsignalized Intersection
Crashes
Fatal Collisions
Serious Injury Collisions
Other Visible Injury
Collisions
Complaint of Pain
Collisions
PDO Collisions
Broadside
Sideswipe
Rear End
Head On
Other
Pedestrian
Bicycle
Aggressive
Distracted
Impaired
Dark
Wet
1 S 13TH ST & PALM AV 15 0 0 3 2 10 2 1 9 0 0 1 0 8 1 5 4 0 2 S 07TH ST & PALM AV 14 0 0 2 6 6 8 1 1 1 1 2 0 3 0 3 4 0 3 S FLORIDA ST & PALM AV 14 0 0 4 6 4 3 2 3 1 1 2 0 7 1 6 3 0 4 S RAINBOW DR & SR-75 13 0 0 1 2 10 1 2 5 0 4 0 0 6 0 6 5 2 5 U RAINBOW DR & PALM AV 12 0 1 1 4 6 3 0 4 3 1 0 0 0 0 5 2 1 6 U GEORGIA ST & IMPERIAL BEACH BL 11 0 0 1 2 8 5 1 2 1 1 0 0 3 0 4 6 0 7 U CONNECTICUT ST & IMPERIAL BEACH BL 11 0 0 2 5 4 2 1 1 1 0 3 0 1 0 2 1 0 8 S 09TH ST & PALM AV 10 0 2 2 1 5 2 3 1 0 2 1 0 3 0 4 3 0 9 S 13TH ST & IMPERIAL BEACH BL 9 0 0 0 3 6 2 1 3 0 1 2 0 4 1 3 5 0 10 U 09TH ST & ELM AV 7 0 2 1 4 0 4 0 1 0 0 0 0 1 0 3 2 0 11 U 12TH ST & PALM AV 6 0 1 0 1 4 2 1 1 0 0 1 0 1 1 1 3 1 12 U PRIVATE RD & PALM AV 6 0 0 2 3 1 2 1 0 0 1 2 0 0 0 4 4 0 13 U FLORIDA ST & ELM AV 6 0 0 2 1 3 2 2 1 1 0 0 0 0 1 4 4 0 14 U 09TH ST & DONAX AV 6 0 0 2 1 3 2 0 2 0 0 2 0 2 1 2 1 0 15 U 10TH ST & PALM (SB) AV 5 1 0 0 2 2 2 1 0 0 0 1 0 0 0 2 2 0 16 S 09TH ST & IMPERIAL BEACH BL 5 0 1 0 3 1 1 0 0 4 0 0 0 0 1 2 2 0 17 U 13TH ST & HOLLY AV 5 0 0 0 2 3 2 1 2 0 0 0 0 1 0 0 1 0 18 U 04TH ST & PALM AV 4 1 0 1 1 1 0 0 1 0 0 1 0 1 1 2 0 0 19 U 12TH ST & IMPERIAL BEACH BL 3 1 0 0 1 1 0 1 0 1 0 1 0 0 0 0 1 0 20 U 13TH ST & ELM AV 3 0 1 0 1 1 2 0 0 1 0 0 0 0 0 0 2 0 Attachment 2

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Key Findings Summary
The majority of collisions within the City occur within 500 feet of an intersection. This aligns with the street network of Imperial Beach which has tightly spaced intersections throughout the community that dictate traffic operations and safety.

The highest occurring crash type in the City is broadside collisions (26%), followed by rear-end (22%) and sideswipe (19%) collisions. Collisions are primarily caused by driving under the influence (21%), automobile right of way violations (19%), and improper turning (11%).

Several intersections along Palm Avenue and Imperial Beach Boulevard are in the top 10 highest collision intersections but a reduction of future collisions is expected after planned improvements occur.

Priority Corridors
As detailed in Figure 30 on the following page, the City identified 9th Street and 13th Street as a priority corridor for the LRSP. These roadways provide access to the City’s commercial core, coastal areas, senior living centers, and several schools. 9th Street is identified as a Multimodal Boulevard and thus, it is to be designed to serve different modes and provide multiple mobility options for its users.

Emphasis Areas
From the key findings in the crash history analysis, discussions with City staff, and review of the 2020-2024 SHSP, the following five key emphasis areas have been identified:

1. Safety on Priority Corridors

2. Distracted Driving

3. Impaired Driving

4. Vulnerable Roadway Users

5. Small-Scale Infrastructure
The five developed emphasis areas are described in the next section. Each emphasis area includes preliminary supporting data findings, goals, strategies and improvement locations.

Attachment 2

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Figure 30. City of Imperial Beach Roadway Network and Identified Priority Corridors Attachment 2

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EMPHASIS AREAS
The five emphasis areas in the LRSP are areas of opportunity to improve safety in the City through the incorporation of a comprehensive 5 Es of traffic safety approach (Engineering, Enforcement, Education, Emergency Response, and Emerging Technologies), where appropriate. The five emphasis areas included are based off the trends and findings identified during the LRSP process, which includes the data analysis and interactions with the City’s safety partners.

Each emphasis area includes the following three parts:
• a description of the safety issue and where there is opportunity to improve, • a goal to strive for to help reduce the safety concern; • and strategies that include activities, potential safety projects, and countermeasures to address the safety issue identified.

Below are the five emphasis areas identified for the LRSP including the challenge area from the 2020-2024 SHSP it aligns with:

Emphasis Area 2020-2024 SHSP Challenge Area
Safety On Priority Corridors Aging Drivers, Bicyclists, Motorcyclists, Pedestrians, & Young Drivers
Distracted Driving Distracted Driving
Impaired Driving Impaired Driving
Vulnerable Roadway Users Bicyclists & Pedestrians
Small-Scale Infrastructure Intersections & Lane Departures Attachment 2

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Emphasis Area 1: Safety On Priority Corridors
Description:

The City identified 9th Street and 13th Street as priority corridors for the LRSP. These roadways are utilized by local residents and visitors alike and are both prioritized for the safe mobility of all transportation modes. Description and the collision history for these corridors are described below. Collision analyses of these priority corridors help in the identification of other systemic improvements.

Priority Corridor: 9th Street
9th Street is a north-south roadway, and it is classified as a 4-Lane undivided collector in the City of Imperial Beach General Plan Circulation Element. This roadway provides access to the City’s commercial core, coastal areas, senior living centers, and schools. Currently, this roadway is described as a “Multimodal Boulevard6.” 9th Street poses safety concerns due to the number of schools in the area, frequent bus stops, senior living, and pedestrian activity. The senior living facilities along 9th Street pose great safety concerns not only for the pedestrian environment, but also for emergency response. Enhancements to both the pedestrian environment and emergency response would greatly benefit the elderly community along this roadway.

As shown in Figure 31, there are no dedicated bike facilities along 9th Street. There are only two signalized intersections along this corridor and high visibility crosswalks are provided on four (4) intersections. The speed limit along this roadway ranges between 30 to 35 miles per hour.

Figure 31. Existing 9th Street Conditions
Source: Google Maps (2019)
6 City of Imperial Beach General Plan (2018).

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For the crash history analysis between 2015-2019, a total of 46 collisions occurred either along 9th Street or within 250 feet of the intersection. Figure 32 shows the number of collisions for 9th Street by crash type for each year in the crash history period analyzed. The leading crash type for collisions along 9th Street is broadside collisions with 16 collisions followed by sideswipe at eight collisions and rear-end crash type at seven collisions. Broadside collisions have occurred consistently along 9th Street between 2015-2019. Figure 33 shows the number of collisions along 9th Street by collision factor. The collision factor with the highest number of collisions is automobile right of way violation (12 collisions). The next leading collision factors are driving under the influence (8 collisions) and traffic signals and signs (5 collisions). Figure 34 provides a breakdown of the collision impact along 9th Street. Of the 46 collisions, there were six collisions resulting in severe injuries.

Figure 32. Number of Collisions along 9th Street by Crash Type for Each Crash History Year Data Source: Statewide Integrated Traffic Records System (SWITRS) 2015-2019 0 2
4 6
8 10
12 14
16 18
Broadside Sideswipe Rear-End Hit Object Head-On Vehicle - Pedestrian 2019
2018
2017
2016
2015
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Figure 33. Number of Collisions along 9th Street by Collision Factor for Each Crash History Year Data Source: Statewide Integrated Traffic Records System (SWITRS) 2015-2019 Figure 34. Number of Collisions along 9th Street by Collision Impact Data Source: Statewide Integrated Traffic Records System (SWITRS) 2015-2019 0 2
4 6
8 10
12 14
Auto R/W Violation
Driving Under Influence
Traffic Signals and Signs
Improper Turning
Unknown
Improper Passing
Unsafe Speed
Following Too Closely
Ped R/W Violation
Pedestrian Violation
Other Improper Driving
Unsafe Lane Change
Other
Wrong Side of Road
2019
2018
2017
2016
2015
22 11
7 6
Property Damage Only
Complaint of Pain
Other Visible Injury
Severe Injury
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DATA

FINDING
A total of 46 collisions occurred along 9th Street corridor between 2015-2019. This represents about 6% of the total collisions that occurred in the City. Six collisions involved a pedestrian or bicyclists, which is about 8% of all pedestrian- and bicycle-involved collisions in the City. Of the six pedestrian/bicyclist-involved collisions, three resulted in a severe injury and three resulted in another visible injury.

A more detailed collision analysis breakdown by intersection along 9th Street and potential safety projects is included in Appendix D.

Priority Corridor: 13th Street
13th Street is also a north-south roadway in the City. This corridor functions as a 4-Lane Class I collector south of SR75/Palm Avenue and as a 3-lane Class II collector north of SR-75/Palm Avenue. This corridor poses safety concerns due to its proximity to schools in the area, the Naval Outlying Landing Field entrance points, commercial centers, and bike/pedestrian activity. Enhancements to the active transportation environment would greatly benefit the community along this roadway.

Figure 35 shows the existing conditions for a majority of 13th Street after the completion of the Street Lane Reallocation in 2016. A majority of 13th Street have buffered bike lines with a few intersection approaches switching to bike lane facilities. In addition, this corridor provides local bike facilities that connect to the regional bike network via Bayshore Bikeway at the northern end of 13th Street. There are three signalized intersections along this corridor and high visibility crosswalks are provided on a few legs for nine (9) intersections. There are also multiple school crossings along the corridor south of Palm Avenue. The speed limit along this roadway ranges between 30 to 35 miles per hour with a drop in the speed limit with the school zone between Elm Avenue and Imperial Beach Boulevard.

Figure 35. Existing 13th Street Conditions

Source: Google Maps (2019)
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For the crash history analysis between 2015-2019, a total of 59 collisions occurred along 13th Street. The 13th Street Lane Reallocation was completed in 2016. The crash history data presented includes collisions after the completion of the project. Figure 36 shows the number of collisions along 13th Street by crash type for each year in the crash history period analyzed. The leading crash type for collisions along 13th Street is rear-end collisions with 17 collisions followed by broadside crash type at 16 collisions. Figure 37 shows the number of collisions along 13th Street by collision factor. The collision factor with the highest number of collisions is automobile right of way violation with 13 collisions. The next leading collision factors are unsafe speed (10 collisions) and driving under the influence (8 collisions). Figure 38 provides a breakdown of the collision impact along 13th Street. Of the 59 collisions, there was one collision resulting in severe injuries.

Figure 36. Number of Collisions along 13th Street by Crash Type for Each Crash History Year Data Source: Statewide Integrated Traffic Records System (SWITRS) 2015-2019 Note: The 13th Street Lane Reallocation project was completed in 2016. 0 2
4 6
8 10
12 14
16 18
Rear-End Broadside Sideswipe Head-On Hit Object Vehicle - Pedestrian
Other Overturned Not Stated
2019
2018
2017
2016
2015
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Figure 37. Number of Collisions along 13th Street by Collision Factor for Each Crash History Year Data Source: Statewide Integrated Traffic Records System (SWITRS) 2015-2019 Note: The 13th Street Lane Reallocation project was completed in 2016.

Figure 38. Number of Collisions along 13th Street by Collision Impact Data Source: Statewide Integrated Traffic Records System (SWITRS) 2015-2019 Note: The 13th Street Lane Reallocation project was completed in 2016. 0 2
4 6
8 10
12 14
Auto R/W Violation
Unsafe Speed
Driving Under Influence
Traffic Signals and Signs
Improper Turning
Following Too Closely
Other Improper Driving
Unsafe Lane Change
Unsafe Starting or Backing
Wrong Side of Road
Other
Unknown
Ped R/W Violation
Pedestrian Violation
Other Hazardous Movement
2019
2018
2017
2016
2015
41 12
5 1
Property Damage Only
Complaint of Pain
Other Visible Injury
Severe Injury
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DATA FINDING
A total of 59 collisions occurred along 13th Street corridor between 2015-2019. This represents about 12% of the total collisions that occurred in the City. Eight collisions involved a pedestrian or bicyclists, which is about 11% of all pedestrian- and bicycle-involved collisions in the City. Of the eight pedestrian/bicyclist-involved collisions, two resulted in other visible injury and three resulted in a complaint of pain.

Goals:
• Reduce the frequency and severity of crashes at signalized and unsignalized intersections • Incorporate Complete Streets principles where applicable • Enhance emergency response times prior to implementing in-road features • Facilitate enhanced pedestrian crossings
Strategies:

The following engineering-related countermeasures are recommended for achieve the goals above.

Countermeasure HSIP
CM #2
Crash
Types CRF SystemicOpportunity
CMF
Clearinghouse
Crash Types
CMF
Clearinghouse
CRF
High-visibility crosswalk1 -- -- -- -- P&B 40%
Install advance stop bar before
crosswalk (bike box) S20PB P&B 15% Very High P&B 35%
Install pedestrian countdown
signal heads S17PB P&B 25% Very High P&B 25%
Modify signal phasing to
implement an LPI S21PB P&B 60% Very High P&B 59%
Install raised medians / refuge
islands NS19PB P&B 45% Medium P&B 30-56%
Curb extensions (Roadway) R35PB P&B 35% Medium P&B 8-56% Curb extensions (NonSignalized Intersection) NS21PB P&B 35% Medium P&B 37% Source: Local Roadway Safety Manual, 2020.
1 FHWA Crash Modification Factor Clearinghouse
2 S = Signalized Intersection, NS = Non-Signalized Intersection

POTENTIAL

IMPROVEMENT

LOCATION
The entirety of 9th Street should be addressed as a corridor to counter several identified issues related to traffic safety. The intersections of 9th Street/Palm avenue and 9th Street/Elm Avenue were in the top 10 intersections with collisions in the City.

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Emphasis Area 2: Distracted Driving
Description:

The California Office of Traffic Safety (OTS) describes distracted driving as anything that takes your eyes or mind off the road or hands off the steering wheel – especially when texting or using a phone. California has put in place distracted driving laws in an effort to eliminate distracted driving. The California’s Cell Phone Law requires drivers to use hands-free devices or cellphone mounts attached on the dashboards or center console, as long as it is not hindering the drivers view. The risks associated with distracted driving are relatively high. Figure 39 illustrates California and national fatality numbers. Data related to distracted driving is known to be less available as it is difficult to identify the behavior of the driver prior to a crash. According to input from the City of Imperial Beach stakeholders, distracted driving is a high priority.

Figure 39. Distracted Driving Fatality Trends
Source: Fatality Analysis Reporting System (FARS) 2013 - 2017

DATA FINDING
The City and its safety partners identified distract driving as a safety concern. Even though there were 20 distracted driving collisions, it is generally believed that these types of collisions are significantly underreported in the SWITRS data due to the difficulty of an officer being able to determine if a driver was distracted when the officer arrives on the scene after a collision.

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Goals:
• Reduce annual distracted driving crashes
Strategies:

Countermeasure / Strategy Why it Works
Public outreach campaign
coordinated with other
jurisdictions and major employers
Public information campaigns by themselves are unlikely to change behavior. No studies have documented the effects of public information campaigns on driver behavior. However, communication campaigns remain a means to alert the population about the problem.
1 High-visibility enforcement
campaigns
High-visibility law enforcement programs increase a driver’s perception of risk of being ticketed. This strategy increases effectiveness with extensive publicity. 1
1 National Highway Traffic Safety Administration (NHTSA) Understanding the Effects of Distracted Driving and Developing Strategies to Reduce Resulting Deaths and Injuries, 2013
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Emphasis Area 3: Impaired Driving
Description:

The second leading collision factor for fatal and severe injuries between 2015 and 2019 is driving or biking under the influence of alcohol and/or drugs, which is ten percent higher than the next highest collision factor (pedestrian rightof-way). The percentage of fatal and severe injuries with the collision factor of driving or biking under the influence of alcohol and/or drugs (25%) is slightly higher than that of San Diego County (17%). By law, drivers are alcoholimpaired when they have a blood alcohol concentration (BAC) of 0.08% or higher. Driving under the influence of drugs include prescribed medication, illicit drugs, over-the-counter medications or marijuana - medical or recreational is also considered impaired driving.

Between 2015 and 2019, the City had about 147 collisions that involved impaired driving. Of the 147 collisions, about 143 of them were fatal and injury-related collisions. Of the 143 fatal and injury-related collisions, 22% involved a driver who was reported as being under the influence. Of the 143 fatal and injury-related collisions, six were fatal and severe collisions.

DATA FINDING About 29% of the total collisions in the City is due impaired driving, and one of the three fatal collisions was due to impaired driving.

Goals:
• Reduce the number of fatal and severe injury collisions attributed to driving under the influence Strategies:

Countermeasure / Strategy Why it Works
Authorize, publicize, and
conduct sobriety checkpoints
programs
The purpose of checkpoints is to deter driving after drinking by increasing the perceived risk of arrest. To do this, checkpoints should be highly visible, publicized extensively, and conducted regularly, as part of an ongoing sobriety checkpoint program. The CDC’s systematic review of 15 high-quality studies found that checkpoints reduce alcohol-related fatal crashes by 9%. 1 Implement an impaired
driving education campaign
targeting specific audiences
based on age group
In 2018, the highest percentage of drunk drivers were 21- to 24-year-olds (27%), followed by 25- to34-year-olds (26%). 2
High-Visibility Saturation
Patrols
Large number of law enforcement officers patrolling specific areas at times and locations where impaired-driving crashes commonly occur. The primary reason for effectiveness is the perceived risk of arrest. Similar to publicized sobriety checkpoints, this strategy increases effectiveness with extensive publicity. 1 Attachment 2

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Countermeasure / Strategy Why it Works
Create effective media
campaigns in both visual and
print media
Media campaigns that are research-based, and carefully planned in coordination with law enforcement are believed to be effective in impacting decisions out of fear of arrest and fear of injury to self or others. 3 4 1 Countermeasures That Work: A Highway Safety Countermeasure Guide for State Highway Safety Offices, Ninth Edition, 2017, National Highway Traffic Safety Administration (NHTSA)
2 NHTSA Drunk Driving Risk Factors
3 Absolute Advocacy Drunk Driving Prevention Media Campaigns, 2013 4 Community Preventive Services Task Force Motor Vehicle Injury - Alcohol-Impaired Driving: Mass Media Campaigns, 2013

POTENTIAL

IMPROVEMENT

LOCATION
The top locations for collisions with the primary collision factor of driving under the influence of drugs were Palm Avenue and Imperial Beach Boulevard. The City can consider doing an impaired driving education campaign (e.g., community awareness events) along these streets.

In addition, the City can consider having additional enforcement presence at these top location streets.

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Emphasis Area 4: Vulnerable Roadway Users
Description:

There are many pedestrians, especially elderly and young adults, throughout the City that need appropriate infrastructure to commute to key destinations such as schools, beaches, and core commercial areas. The City of Imperial Beach has outlined policies for complete streets and multi-modal street designs and access in the City’s General Plan Mobility Element. These policies will ensure that all street and highway designs further the goal of providing safe and efficient mobility for all users. Currently, many of the roads lack active transportation infrastructures such as sidewalks, crosswalks, bike paths, intersection control, and speed controls that help provide a safe and comfortable environment for people walking and biking. Of the 72 collisions in which at least one pedestrian or bicyclist was involved, 6 resulted in severe injuries and 3 resulted in a fatality.

DATA FINDING
A total of 72 collisions that involved a pedestrian or bicyclist, which is about 14% of the total collisions within the City. There was a total of nine fatal and severe collisions between 2015- 2019 involving a bicyclist or pedestrian. This represents about 45% of the total fatal and severe collisions that occurred in the City, showing that pedestrians and bicyclists are some of the more vulnerable roadway users in the City.

Goals:
• Improve active transportation infrastructure by adding pedestrian facilities, bike lanes, and other amenities to make it safer for employees and community members to get to key destinations such as school, commercial centers, transit centers, and recreation areas • Encourage healthier lifestyles through active transportation infrastructure Strategies:

The following engineering-related countermeasures are recommended for achieve the goals above:

Countermeasure HSIP
CM #
Crash
Types CRF SystemicOpportunity
CMF
Clearinghouse
Crash Types
CMF
Clearinghouse
CRF
Install pedestrian crossing S18PB P&B 25% High P&B 25%
High-visibility crosswalk P&B 40%
Add segment lighting R01 Night 35% Medium Night, All 18-69% Widen shoulder R15 al 30% Medium
Fixed object,
Run-off road,
sideswipe
15-75%
Install flashing beacons as
advance warning S10 All 30% Medium All 38%-64%
Install bike lanes R32PB P&B 35% High P&B 0-53%
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Countermeasure HSIP
CM #
Crash
Types CRF SystemicOpportunity
CMF
Clearinghouse
Crash Types
CMF
Clearinghouse
CRF
Install separated bike lanes R33PB P&B 45% High P&B 3.7-100% Source: Local Roadway Safety Manual, 2020.

In addition to the above engineering countermeasures, it is recommended that the City consider the provision of bicycle storage facilities as a condition of approval on new development applications for proposed commercial, hotel or major residential projects and/or provided at public transit and bus system facilities, or designated public transit stops.

POTENTIAL

IMPROVEMENT

LOCATION
A majority of the pedestrian- and bicycle-involved collisions occurred on Palm Avenue and Coronado Avenue/Imperial Beach Boulevard. In addition, Multimodal Boulevards such as 9th Street should be prioritized for active transportation enhancements such as traffic calming, road diets, and wider sidewalks.

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Emphasis Area 5: Small-Scale Infrastructure
Description:

According to the FHWA, roadway factors that may impact the safety of a particular roadway include facility pavement condition, access control, speed, roadway cross-section and traffic volumes. This emphasis area notes the importance of these factors, categorized as roadway geometry, in the City of Imperial Beach to maintain safe facilities. From 2015- 2019, 18 collisions occurred with roadway surface condition of wet or slippery while 482 collisions occurred on dry roadways. Similarly, 477 collisions occurred on roadways where no unusual roadway condition was present signifying that pavement conditions are not a significant contributing factor for roadway collisions. It was determined that 248 collisions occur at intersections and 125 of those intersection collisions occur where no right-of-way controls are present. At intersections with no right-of-way control, the number of potential conflict points between roadway users increases. The data shows that broadside collisions are the most common collision type at intersections with no rightof-way control , which includes 38 total collisions, 24 of which are auto right-of-way violations and 10 of which involved a bicyclist.

At a high level, broadside collisions typically include two motor vehicles where at least one party is making a turn and the other is proceeding straight. At intersections with no right-of-way control, roadway users rely more heavily on their own judgement and the limitations of the roadway geometry to execute a move safely. In general, sight distance, roadway geometry, unsignalized intersections and outdated striping should be evaluated throughout the City of Imperial Beach to improve the geometric safety of the roads for their users.

DATA FINDING Broadside collisions (26%) are consistently the most common crash type within the City.

Goals:
• Increase roadway safety by improving roadway geometry Strategies:

The following engineering-related countermeasures are recommended for achieve the goals above:

Countermeasure HSIP
CM #
Crash
Types CRF SystemicOpportunity
CMF
Clearinghouse
Crash Types
CMF
Clearinghouse
CRF
Install raised median R08 All 25% Medium Head-on 20-75% Install median (flush) R09 All 15% Medium All 15-78%
Improve signal hardware:
lenses, back-plates, mounting,
size, number
S02 All 15% Medium Rear-end,
Angle 0-46%
Install Flashing Yellow Arrow for
left-turns
N/A N/A N/A N/A Left-turn 14.3%
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Countermeasure HSIP
CM #
Crash
Types CRF SystemicOpportunity
CMF
Clearinghouse
Crash Types
CMF
Clearinghouse
CRF
Upgrade intersection pavement
markings NS07 All 25% Very High All 13-60%
Convert to AWSC from TWSC or
Yield NS02 All 50% High Left-turn, angle 6-80%
Improve sight distance to
intersection NS11 All 20% High All 11-56%
Source: Local Roadway Safety Manual, 2020.

AWSC = All-Way Stop Control; TWSC = Two-Way Stop Control In addition to the above engineering strategies, the following behavioral strategies are also recommended:

Countermeasure / Strategy Why it Works
Organize targeted education campaign on safety
problems at “high risk” intersections
Provides public awareness of vulnerable roadway users

POTENTIAL

IMPROVEMENT

LOCATION
Evaluate intersections with high number of collisions such as 13th Street at Palm Avenue, 7th Street at Palm Avenue, and Florida Street at Palm Avenue. Evaluate segments with high number of collisions such as Imperial Beach Boulevard between 3rd Street and 4th Street, Seacoast Drive between Encanto Ave and End of Road, and Holly Avenue between 11th Street and 12th Street.

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EVALUATION & IMPLEMENTATION
For the LRSP to be successful, it must be implemented and monitored. The success of the LRSP will be evaluated using the preliminary process outlined below. This process will be useful to ensure proper implementation of objectives and to determine when updates are needed.
• Quarterly progress meetings will be conducted to track the implementation of the plan. In addition, the success of the plan will be evaluated on an annual basis. • An update to the plan should be considered after no more than five years. • Continued monitoring and recording of traffic incidents on local roadways by law enforcement. • Maintain a list of focus areas where there are transportation safety concerns. • Perform before & after collision analysis for safety projects to determine effectiveness. • Continue collecting an inventory of assets in the City such as existing conditions (E.g., sidewalk conditions), safe route to school activities, pedestrian crossing types, and other project improvements to understand the infrastructure provided for roadway users.

Applying improvements that can have the most substantial impact on reducing collisions is the most effective way to show commitment to traffic safety. Using statistics to analyze the network for the most challenging locations in the City from a safety perspective, locations that may not yet see these challenges but are composed of similar characteristics to those locations should be identified and included for investments as part of the ongoing safety program.

The strategies discussed in the emphasis area section of this report include some of the systemic countermeasures that can be applied. The emphasis areas highlighted some of the most frequent influences contributing to collisions and/or issues expressed by the community. The recommended countermeasures for both systemic and projectspecific improvements can be used as a basis for developing projects at locations where addressing these focus areas would be of the most benefit. Projects that address these emphasis areas can be developed with a high benefit to cost ratio allowing competitive projects to be developed even at sites with little to no direct collision history, but with conditions that might contribute to future collisions.

Through the LRSP process, the following two potential projects were identified and developed into project sheets:
• Seacoast Drive & 2nd Street Corridor Improvements
• Western Palm Avenue Corridor Improvements
The project sheets further evaluated the potential projects for collisions findings and recommended improvements and countermeasures to help the City with project implementation and funding opportunities. The project sheets can be found in Appendix E.

Countermeasure Selection Process
Part D of the HSM provides information on Crash Modification Factors (CMF) for roadway segments, intersections, interchanges, special facilities, and road networks.

Attachment 2

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IMPERIAL BEACH LOCAL ROADWAY SAFETY PLAN
CMF’s are used to estimate the safety effects of highway improvements and apply CMFs to compare and select highway safety improvements. A CMF less than 1.0 indicates that a treatment has the potential to reduce collisions.

A CMF greater than 1.0 indicates that a treatment has the potential to increase collisions. The application of an appropriate CMF can influence the decision to implement a particular project, and the misapplication of CMFs can lead to misinformed decisions. Key factors to consider when applying CMFs include:

1. Selection of an appropriate CMF,

2. Estimation of collisions without treatment,

3. Application of CMFs by type and severity, and

4. Estimation of the combined effect for multiple treatments Examples of Safety Countermeasure can be found through several sources. This report utilizes the countermeasures found in the California LRSM and the CMF Clearinghouse website.

Countermeasures for the developed project sheets are based on collision data analysis and the workshop held with the City’s safety partners. Additional countermeasures were identified for the high-level issues on a city-wide level for the 5 Emphasis Areas.

Benefit to Cost Ratio Process
Benefit to Cost Ratio (B/C Ratio) is a way to compare the overall benefits against the overall cost of a project over a specified period of time. The process of calculating the B/C Ratio begins with the identification of a horizon year (typically a 20-year project life span). The Benefit (B) of a project is the monetized value of collisions that would be prevented by the improvement over the project life-span. No build collisions are computed assuming a consistent crash rate as traffic grows in the future. The crash modification factor is then used to reduce future year collisions over the 20-year period. The Cost (C) is the initial construction cost of the project and the cost per year to maintain the project over the same 20-year span.

The B/C Ratio calculations will illustrate the expected benefits of the Crash Modification Factors (CMFs) using four steps from the Local Roadway Safety Manual:

1. Estimation of the number of expected collisions without treatment

2. Application of CMFs by type and severity

3. Application of multiple CMFs at same location/facility

4. Application of benefit of value by crash severity
For step 4, the benefit discussed is evaluated in dollars. Caltrans maintains an evaluation for the cost of collisions (injury, incapacitating, and fatal). This number is applied to the amount of collisions “avoided” and is considered the benefit value. The final step of the evaluation is to determine if the benefit equals or exceeds the costs.

B/C ratio are the most typical prioritization metric used by grant programs to determine funding awards. The overall list of projects should then be listed by their cost/benefit ratio and bundled into funding groups. This will assist the County in prioritizing the implementation of projects that will have the highest benefit first, while still planning for other recommended projects. Cost/benefit calculations will ensure that the highest ranked projects are most Attachment 2

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IMPERIAL BEACH LOCAL ROADWAY SAFETY PLAN
competitive for external funding and will lead to the greatest amount of safety improvement for the lowest possible investment.

Funding Opportunities
Funding is a major component to implementing safety projects. Typically, local funding is supplemented by grants and other funding sources from the region, state, and federal level. By being aware and preparing for funding opportunities that support safety initiatives, the City can leverage other funding sources to help address safety issues and concerns. Potential funding opportunities include the following:

Program Name Agency Description
Smart Growth
Incentive Program
and Active
Transportation Grant
Program
SANDAG
The Smart Growth and Active Transportation Grant Programs fund local capital and planning projects that increase opportunities for biking, walking, and transit usage throughout the region. Eligible projects may include, but are not limited to:
• Pedestrian street crossings
• Traffic calming features
• Pedestrian & bicycle facilities
• Comprehensive planning efforts (e.g., Community Plans) • Smaller-scale neighborhood planning activities (e.g., Traffic calming or mobility plans)
Active Transportation
Program (ATP) Caltrans
The ATP funds capital and planning projects that encourage increased use of active modes of transportation through increasing proportion of trips accomplished by biking and walking, increasing safety and mobility for non-motorized users, and advancing active transportation efforts to achieve Greenhouse Gas (GHG) reduction goals. Eligible projects may include, but are not limited to:
• Infrastructure Projects: Capital improvements that will further the goals of ATP.
• Non-Infrastructure (NI) Projects: Education, encouragement, and enforcement activities that further the goals of the ATP. • Combination Projects: A project that combines Infrastructure and Non-Infrastructure components.
• Plans: The development of a community wide bicycle,
pedestrian, safe routes to school, or active transportation plan that is located in a disadvantaged community.

Highway Safety
Improvement
Program (HSIP)
FHWA/Caltrans
The HSIP is a core federal-aid program with the purpose of achieving a significant reduction in fatalities and serious injuries on all public roads. Eligible projects may include, but are not limited to:
• Intersection improvements
• Construction of shoulders
• Traffic calming
• Improvements for bicyclists, pedestrians, and individuals with disabilities
• Minimum standards of retro-reflectivity of traffic signs and pavement markings
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Program Name Agency Description
Surface
Transportation Block
Grant Program
(STBGP)
FHWA
The STBGP provides flexible funding that may be used by states and localities for projects to preserve and improve the conditions and performance on any federal aid highway, bridge and tunnel projects on any public road, pedestrian and bicycle infrastructure, and transit capital projects, including intercity bus terminals. Eligible projects may include, but are not limited to:
• Construction, reconstruction, rehabilitation, resurfacing, restoration, preservation, or operational improvements for highways, bridges, and tunnels on any public roadway
• Construction of new bridges and tunnels on a federal-aid highway
• Inspection and evaluation of bridges, tunnels, and other highway assets as well as training for bridge and tunnel inspectors
• Transit capital projects
• Bicycle, pedestrian, and recreational trails
• Environmental mitigation efforts
Caltrans Sustainable
Transportation
Planning Grant
Program
Caltrans
The Sustainable Transportation Planning Grant Program include the Sustainable Communities Grants and Strategic Partnership Grants. Eligible projects may include, but are not limited to:
• Active transportation plans
• Studies that advance a community’s effort to reduce
transportation related greenhouse gases
• Complete Streets Plans
• First Mile / Last Mile project development planning
• Community to school studies or safe routes to school plans • Traffic calming and safety enhancement plans
• Data collection/data sharing initiatives

CONCLUSION
The City of Imperial Beach has completed this LRSP to guide the process of future transportation safety improvements for years to come. The data-driven analysis process identified collision types, related primary collision factors, and locations of many collisions. Based on this process, five emphasis areas were developed. These emphasis areas will guide corridor improvements, education programs, and capital improvements for the City and help the City reduce collisions, especially fatal and severe collisions. The City will actively seek funding opportunities, collaborate with established safety partners, and iteratively evaluate existing and proposed transportation safety programs and capital improvements to design a safer transportation network in Imperial Beach and help the City achieve their Vision Zero initiative.

Attachment 2

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September 21, 2022
ITEM TITLE: CONSIDERATION OF RESOLUTION NO. 2022-72 APPROVING POLICY NO. 618 A CITY COUNCIL POLICY- MURALS ON PUBLIC PROPERTY. (0410-95) ORIGINATING DEPARTMENT:

City Manager
EXECUTIVE SUMMARY:

The City of Imperial Beach supports artistic and cultural activities within the City and recognizes the aesthetic enhancement to the quality of daily life by placing murals in public areas, on buildings, and in parks owned by the City. Murals can become a recognized asset to the City’s growth and image. In recent years, murals in the community have created a great deal of interest and excitement. The City wishes to approve a policy for murals on public property to be displayed as an expression of the City’s sentiment.

RECOMMENDATION:

Staff recommends the City Council consider approving Resolution No. 2022-72 approving City Council Policy number 618 for murals on public property.

OPTIONS:
 Approve Resolution No. 2022-72 approving City Council Policy number 618 for murals on public property.
 Deny Resolution No. 2022-72.
 Provide specific direction to the City Manager to take another specific action.

BACKGROUND/ANALYSIS:

Murals are an integral part of the City of Imperial Beach community and have been even more impactful in recent years. The City of Imperial Beach is filled with a variety of artworks thanks to the Port of San Diego - Arts, Culture & Design Committee, and local non-profit Cultural and Arts organizations.

The City continues to receive requests to add murals in public areas, on buildings, and in parks owned by the City. Art is a fundamental element and defining characteristic of the City of Imperial Beach. The City promotes public art to facilitate and encourage attractive public spaces and to reduce graffiti and vandalism. The City also recognizes that murals can become a recognized asset to the City’s growth and image. In recent years, murals in the community have created a great deal of interest and excitement.

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Staff recommends that these requests be reviewed and considered by the City Council during a regular meeting. A City Council policy and guidelines have been developed along with an application process to facilitate the process. The public spaces and buildings where any public art will be placed are not intended to be forums for the free expression of ideas by the public.

Rather any mural will be carefully selected by the City as a form of government speech.

The policy provides an opportunity for the City to prioritize mural designs that embody important City values and messages, or reflect a City goal or value. There are a wide range of possible design ideas. Those interested in collaborating with the City on a mural design simply need to explain how the design speaks to a value, goal or objective important to the City. Occasionally, the City may solicit designs with specific messages or values.

The policy includes the guidelines to be used. Proposed murals shall stimulate the vitality and economy of the City while enhancing public spaces, buildings, and parks. The mural should be accessible to the public, durable to the outdoor elements, safe to the public and compatible with the City’s mission statement: “To maintain and enhance Imperial Beach as “Classic Southern California”: a beach-oriented community with a safe, small town, family atmosphere, rich in natural and cultural resources.” In addition to the City’s mission statement, the murals must:
 Stimulate the vitality and economy of the City.
 Enhance the City of Imperial Beach as a leading cultural destination.  Advance public understanding of the visual art.
 Improve the aesthetic character of daily life and provide a sense of place.

As the final product will represent the City’s viewpoint, through the process outlined in this policy, the City Council will make the final determination on all aspects of the final design and production.

Therefore, prior to including any mural on public property, the artist must obtain approval by the City Council via a resolution.

ENVIRONMENTAL DETERMINATION:

Not a project as defined by CEQA.

FISCAL IMPACT: No fiscal impact.

ATTACHMENTS:

ATT 1 – Resolution No. 2022-72
ATT 2 – Murals on Public Property Policy
ATT 3 – Mural Application

ATTACHMENT 1
RESOLUTION NO. 2022-72

A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF IMPERIAL BEACH, CALIFORNIA, APPROVING CITY COUNCIL POLICY NO. 618- MURALS ON PUBLIC PROPERTY WHEREAS, the City supports artistic and cultural activities within the City and recognizes the importance of aesthetic qualities in the daily life of residents of placing murals in public areas; and
WHEREAS, murals can become a recognized asset to the City’s growth and image; and WHEREAS, the City has several artworks and murals throughout the City in public spaces created in partnership with other public organizations and local non-profit organizations; and WHEREAS, in recent years, murals in the community have created a great deal of interest and excitement; and
WHEREAS, any mural on public property is a controlled message of the City and thus requests should be reviewed and considered by the majority of the City Council during a regular meeting; and
WHEREAS, murals should be accessible to the public, durable to the outdoor elements, safe to the public and compatible with the City’s mission statement: “To maintain and enhance Imperial Beach as “Classic Southern California”: a beach-oriented community with a safe, small town, family atmosphere, rich in natural and cultural resources;” and WHEREAS, the City will be responsible for selecting any murals and in general, the mural must:
 Stimulate the vitality and economy of the City.
 Enhance the City of Imperial Beach as a leading cultural and environmental destination.
 Advance public understanding of visual arts.
 Enhance the aesthetic value of resident’s daily lives and provide a sense of place.

NOW, THEREFORE, BE IT RESOLVED by the City Council of the City of Imperial Beach as follows:

1. The City’s public spaces, buildings, and property where murals currently are installed or will be installed in the future are not intended to be forums for free expression by the public. All murals are carefully selected and controlled by the City as government speech.

2. Approve City Council Policy 618 – Murals on Public Property (attached hereto as Exhibit “A.”

3. Approve the application form in substantially the form attached hereto as Exhibit “B” and authorize the City Manager, or designee, to make changes as needed to the application form to the extent that they are done to implement Policy 618.

4. City Council Policy 618 supersedes any prior informal or formal understandings related to murals in City-owned public areas.

PASSED, APPROVED, AND ADOPTED by the City Council of the City of Imperial Beach at its meeting held on the 21st day of September 2022, by the following vote:

Resolution No. 2022-72

AYES: COUNCILMEMBERS:

NOES: COUNCILMEMBERS:

ABSENT: COUNCILMEMBERS:

SERGE DEDINA, MAYOR
ATTEST:

JACQUELINE M. KELLY, MMC

CITY CLERK

Attachment 2

CITY OF IMPERIAL BEACH

COUNCIL POLICY
SUBJECT: Murals on Public Property POLICY
NUMBER:
618
PAGE
1 OF 3
ADOPTED BY: Resolution No. 2022-72 DATED: September 21, 2022

BACKGROUND
The City of Imperial Beach supports artistic and cultural activities within the City and recognizes the aesthetic quality of daily life by placing murals in public areas, on buildings, and in parks owned by the City. Art is a fundamental element and defining characteristic of the City of Imperial Beach. The City promotes facilitates and encourages public art. The City also recognizes that murals can become a recognized asset to the City’s growth and image. In recent years, murals in the community have created a great deal of interest and excitement.

The City prioritizes mural designs that embody important City values and messages, or reflect a City goal, value or mission statement. There are a wide range of possible design ideas. Those interested in collaborating with the City on a mural design should explain how the design speaks to a value, goal or objective important to the City.

Occasionally, the City may solicit designs with specific messages or values. As the final product will represent the City’s viewpoint on public property, through the process outlined in this policy, the City Council will make the determination on all aspects of the final design and production. The locations of any current and future murals are not intended to be a forum for free expression by the public, and murals will be displayed as an expression of the City’s sentiment and authorized by a City Council resolution.

PURPOSE
Murals are an integral part of the City of Imperial Beach community and they have been more prominent recent years. The City of Imperial Beach is fortunate to have with artworks throughout the City thanks to the Port of San Diego - Arts, Culture & Design Committee, and local non-profit Cultural and Arts organizations. All murals on public property are considered as messages of the City and therefore government speech.

Proposed murals on public property should stimulate the vitality and economy of the City while enhancing public spaces, buildings, and parks. The mural should be accessible to the public, durable to the outdoor elements, safe to the public and compatible with the City’s mission statement: “To maintain and enhance Imperial Beach as “Classic Southern California”: a beach-oriented community with a safe, small town, family atmosphere, rich in natural and cultural resources.” In addition to the City’s mission statement, the murals must:

CITY OF IMPERIAL BEACH COUNCIL POLICY NO. 618

CITY MURALS POLICY AND GUIDELINES

• Stimulate the vitality and economy of the City.
• Enhance the City of Imperial Beach as a leading cultural and environmental destination.
• Advance public understanding of the visual arts.
• Improve the aesthetic of daily life and provide a sense of place.

Any group or individual that wishes to paint or create a mural on public property must obtain permission from the City by submitting an application. Painting murals on public property without permission is illegal and punishable by law. The City of Imperial Beach does not condone any type of illegal graffiti, murals or art, irrespective of artistic content.

POLICIES
All murals on public areas must be reviewed by a City staff committee comprised of one (1) staff member from each of the following departments: Community Development Department, Parks, Recreation and Community Services, Public Works, and the City Manager’s Office. The City Manager and/or designee will compile the final application proposal for completeness and ensure it meets all the mural policies and guidelines. The artist is encouraged to collaborate with City staff. Once the application is complete, the City Manager and/or designee will present to the City Council the proposal of the mural at a regular meeting. Staff members do not make a recommendation regarding the design or content of the mural and are not included in the voting process. A majority of the City Council has the final decision-making authority for the proposed mural project.

Murals must meet the following criteria, which are also outlined on the application:

Mural Criteria

1. Murals must be completed by an artist with prior experience, or the artist must work with another artist with prior experience. Murals should be signed and dated. Painting of the mural shall be completed by the artist, unless otherwise approved by the City Council.

2. Review of mural design and location must be approved by the majority of the City Council during a regular meeting. The placement of the mural shall be appropriate to the size, scale, design and character of the particular site. The work may build a relationship to the space or natural environment. The artwork's relationship to pedestrian traffic patterns, visibility and public access to the work should also be considered. As government speech on City property, the City has the sole and absolute discretion to determine if the mural proposal should be accepted. No mural can deviate from the City Council approved design.

3. Colors must be consistent with the surrounding area.

CITY OF IMPERIAL BEACH COUNCIL POLICY NO. 618

CITY MURALS POLICY AND GUIDELINES

4. The size of the mural may be restricted due to the size of building, wall or location. The mural should complement the surrounding area. The scale of the mural should be appropriate to the building, public space, part or site.

5. The materials to paint the mural must be durable, graffiti resistant and weather resistant. All materials will be subject to prior review and approval by the City.

6. The theme of the mural must be appropriate within the context of the surrounding neighborhood. The mural should be an original design, and the artist shall not copy work from another artist. The theme for the mural should uphold the City mission statement, be representative of the history, culture, or location of the community, and be respectful of the greater context of the community. No branded or copyrighted products, services, etc. should be depicted.

7. Murals shall not serve as an advertisement sign in violation of Imperial Beach Municipal Code Chapter 19.52 - Signs. Logos (with the exception of City owned logos and seals), advertising, signage, and other branding are prohibited.

8. Mural approval does not warrant or guarantee that, after installation, the mural will be preserved or remain intact for the expected life span of the mural. The mural should have a weatherproof and vandalism-resistant coating. The artist is required to enter into an agreement regarding maintenance, preservation, and removal with the City prior to painting the mural. Approval by the City Council does not constitute an indication or promise of any conservation or restoration funds from the City.

9. If vandalism/graffiti to the mural occurs, it is the responsibility of the artist to remove graffiti within 48 hours after notification. If the graffiti is not removed and the mural is not repaired by the artist, the City can either remove the mural entirely and/or remove the graffiti vandalism using the City’s standard removal techniques/materials, however there is no guarantee that the mural would appear as originally designed depending on the damage.

10.City may display the mural for up to five (5) years, with the City determining the duration for each mural. Because the lifespan of the mural is not indefinite, the mural is considered “temporary.” However, the City will work with the artist to increase the lifespan of the art when feasible and desired by the City. The City will evaluate each mural’s eligibility for replacement, removal, or repairs after five (5) years, or sooner if needed. The City Council will make the final determination on each mural’s status, and the City can remove the mural at any time as discussed further below.

11.It is the responsibility of the artist to create and maintain the mural. The City assumes that the mural will be kept in good repair with periodic maintenance to be performed by the artist as needed. By submitting the application, the artist agrees that should the mural be defaced and/or not repaired, maintained,

CITY OF IMPERIAL BEACH COUNCIL POLICY NO. 618

CITY MURALS POLICY AND GUIDELINES

preserved and/or conserved to the satisfaction of the City, the City in its sole discretion, has the authority to repair, maintain, preserve, and/or conserve the mural, or alternatively, the authority to remove or alter the mural.

12.If for any reason the mural is removed or altered by the City, the artist could submit another application within 60 days of mural removal, with a proposal for replacing the mural with the same or different mural.

13.A public City Council meeting on the proposed mural will be held, with notice of the meeting at a regular City Council meeting providing at least 72-hour notice.

Presentation of the project provides an opportunity for the City Council to ask questions and discuss the proposed mural. The artist is highly encouraged to attend the meeting.

14.The artist is responsible for the cost and material for installing and maintaining the mural. The artist shall carry any required insurance coverage.

15.If an artist would like to submit a proposal for multiple murals, then a separate application is required for each location.

16.General Liability insurance must be procured and maintained while the project is active. Insurance of the types and to the limits and confirming to requirements are as follows:
• General Liability Coverage. The artist, organization, or sponsor shall maintain commercial general liability insurance of not less than one million dollars ($1,000,000) per occurrence for bodily injury, personal injury, and property damage. If a commercial general liability insurance form or other form with a general aggregate limit is used, either the general aggregate limit shall apply separately to the work to be performed or the general aggregate limit shall be at least twice the required occurrence limit.
• Workers’ Compensation and Automobile Liability Coverage may also be required.

17.Incomplete applications will not be reviewed or considered.

18.Artists approved by the City Council will be required to obtain an encroachment permit prior to installation of the mural which will require indemnification, stormwater requirements, construction plan, proposed materials, and traffic control (if needed).

Mural Goals and Objectives

1. Create a cohesive public art program that is embraced by the City of Imperial Beach community selecting projects, excellent in both conception and execution, which enhance, celebrate, reflect and inspire the community's identity, environment, culture and history for the enjoyment of its citizens and

CITY OF IMPERIAL BEACH COUNCIL POLICY NO. 618

CITY MURALS POLICY AND GUIDELINES

visitors.

2. Select sites for murals which are significant to the community, the collection as a whole and will maximize interaction with the work.

3. Maintain the mural with proper identification and care of the art. This includes ensuring that public art is safe, accessible, and durable.

4. Educate the community by providing up to date educational materials and information about the mural. Murals may be used as a way to engage the community and as an element of outreach. Include a plaque no larger than 3x3 that includes the artist name, mural name, and brief description of the art.

City Requests for Murals

1. The City may request and propose a mural at a public building, space, or park while partnering with local non-profit art and cultural organizations or local artist.

2. The City reserves the right to have priority in adding a mural in such public areas that are owned by the City.

3. City staff is required to follow the mural criteria, goals and objectives, stated above, and present the proposal to the City Council at a regular meeting.

4. The City proposal must include the following information:
a) Department proposing the mural (name and title of coordinated staff member of the project)
b) Description of the mural
c) A description of how the proposed mural aligns with the City’s mission statement and criteria
d) A description of interest/reason for installing a mural e) Location of the mural, with supporting renderings/drawings f) Date of anticipated fabrication date and project timeline g) Name of the artist or local non-profit organization
h) Include at least 3 sample works from the artist
i) Budget and Funding
j) Include any additional information that support this policy and are included in the mural criteria, goals and objectives
Removal Guidelines

CITY OF IMPERIAL BEACH COUNCIL POLICY NO. 618

CITY MURALS POLICY AND GUIDELINES

Any mural shall be eligible for removal or may be considered for review toward removal, if one or more of the following conditions apply:

1. The condition or security of the mural cannot be reasonably guaranteed.

2. The mural requires excessive maintenance or has faults of design, material or workmanship, and repair or remedy is impractical or unfeasible.

3. The mural has been damaged or has deteriorated, and repair or remedy is impractical or unfeasible.

4. The mural condition poses a threat to public safety.

5. The mural is proved to be inauthentic or in violation of existing copyright laws. Murals should not contain material that is protected under copyright law unless written permission is obtained. This includes permission to use photos of people, all copyrighted material and text, and images of artwork.

Allow ample time to acquire these permissions.

6. The mural has exceeded its expected lifespan.

7. No suitable site is available for relocation or exhibition, or significant changes in the use, character, or design of the site have occurred which affect the integrity of the mural.

8. Changes to the site have significantly limited or prevented the public’s access to the mural.

9. The site where the mural is located is undergoing privatization or reconstruction.

10. A majority of the City Council votes to approve its removal at any time for any reason.

Murals may be reviewed for removal at any time at the initiative of City staff members or a member of the City Council. Review also may be initiated by the artist. The artist may also request removal.

Notwithstanding anything in this policy or guidelines, the City may act at any time to protect the health and safety of the public in the event of an emergency and such action may result in the damage, destruction, or removal of a mural.

Other Considerations
This policy applies to any existing and future murals on public property and supersedes any written or verbal agreements or understandings.

City of Imperial Beach
Murals and Policy Guidelines
Application Process
Thank you for your interest in adding a mural on City’s public spaces, buildings, and areas. In an effort to properly review your request and proposed project, please respond to the questions below as detailed as possible:
• Attach any supplemental or support materials to this form. • If you do not have enough space in the form below to answer questions, please attach a separate page with application question number and your additional text. • A separate application is needed for each mural per location proposed. • Incomplete applications will not be reviewed.
• Please be sure to provide answers to all questions below. No fields may be left blank or application will be considered incomplete.
• Artists are required to submit at least 3 photos or videos of their past work. • After submission of the application, the City will notify you within 30 working days that your submission is complete and is under review or that it is incomplete and must be modified before it will be reviewed. The review process may exceed 60 working days, depending on City Council meeting availability. City staff will conduct a preliminary review before the proposal is presented to the City Council for a final decision.
• No funds will be made available for travel, lodging, storage, or materials. An artist may request in-kind City contribution of City staff time (e.g., visit an area, install signage, move minor equipment), and use of equipment that the City already owns (e.g., a lift). The City will not rent or purchase equipment in support of the mural.

Depending on the site, artist may need to rent a lift or scaffolding. • The project must be completed within 6 months of the City Council approving the proposal. Depending on the mural and location, the City may encourage a community engagement event. The engagement event is an opportunity for the artist to collaborate and partner with the community to ensure public input is part of the mural design process.

Attachment 3

City of Imperial Beach Mural Application
Before completing the application, please review City Council Policy number 618 entirely.

Name of Applicant:
_______________________________________________________ Telephone Number: ____________________ Email: __________________________ Mailing Address:
______________________________________________________________________ _____________________________________________________________________

1. Full Name of Artist (or Artist team):
________________________________________________________________ ________________________________________________________________

2. Title of Mural Artwork:
________________________________________________________________ ________________________________________________________________

3. A description of how the proposed mural aligns with the City’s mission statement and criteria:
________________________________________________________________ ________________________________________________________________ ________________________________________________________________ ________________________________________________________________

4. Provide a description of interest/reason in installing a mural in the City of Imperial Beach:
________________________________________________________________ ________________________________________________________________

5. Date of anticipated fabrication date and project timeline:
________________________________________________________________ ________________________________________________________________

6. Project Manager – person who will manage all aspects of project installation and will be main contact for the City of Imperial Beach through the installation process (name, address, email, phone):
________________________________________________________________ ________________________________________________________________ ________________________________________________________________

7. Proposed Location(s) of Work (be as specific as possible, including address if available):
________________________________________________________________ ________________________________________________________________ ________________________________________________________________

8. Type of Mural (Check all that apply) or provide additional information:
□ Mural painted on exterior building or wall
□ Mural consisting of tile or other material affixed to exterior building or wall □ Mural painted on interior building or wall
□ Mural consisting of tile or other material affixed to interior building or wall ________________________________________________________________ ________________________________________________________________

9. Proposed mural dimensions:

Width Height Total Area Dept of mural from
plane of wall
Overall mural heigh
above grade
Ft. Ft. Sq. Ft. In. Ft.

10.Color rendering of proposed mural:
________________________________________________________________ ________________________________________________________________ ________________________________________________________________

11.Provide a site plan of the location (may attach photos, maps or renderings):
________________________________________________________________ ________________________________________________________________ ________________________________________________________________ ________________________________________________________________

12.Budget and Funding (please attach your own form for budget information.

Budget must be attached for application to be considered complete):
________________________________________________________________ ________________________________________________________________ ________________________________________________________________ ________________________________________________________________

13.Information on wall preparation, material, and process, protective coating, and maintenance plan:
________________________________________________________________ ________________________________________________________________ ________________________________________________________________ ________________________________________________________________

14.Include and describe at least 3 images/video in a USB file of Artist past work. ________________________________________________________________ ________________________________________________________________

15.Provide 3 references (name, phone, address, email):
________________________________________________________________ ________________________________________________________________ ________________________________________________________________

RESPONSIBILITY STATEMENT & WAIVER
I, _____________________ (Name) (hereinafter “Artist”) have prepared designs of the artwork entitled________________________________________ (Title of the mural) and more particularly described as (description of mural):
______________________________________________________________________ ______________________________________________________________________ ______________________________________________________________________ hereinafter referred to as “Artwork” and located at (location/address) ____________________________________________ in the City of Imperial Beach, State of California, and agree that I’ve read and understand all the mural criteria, goals and objectives. I understand that submitting an application for consideration does not guarantee a final approval, and that the City has the right to accept or reject this application in its sole and absolute discretion.

The above-described Artwork may be considered to be a “work of visual art” and subject to the provisions of the artist’s rights of attribution and integrity as set out in the Visual Artists Rights Act, 17 U.S.C §§106A and 113(d) (“VARA”), and a “work of fine art” subject to the provisions of the California Art Preservation Act, Cal. Civil Code §§987 and 989 (“CAPA”). I am an author of the Artwork described herein, and am authorized to waive the

rights conferred by VARA and CAPA, and any rights arising under United States federal or state law, or under laws of another country, that convey rights of the same nature as those conveyed under VARA and CAPA that are herein waived, as against the City of Imperial Beach (City) and its agents, and grant the City a license to reproduce the Artwork as specified below.

1.0 Alterations, Modification or Removal of Artwork. The Artist acknowledges and understands that the City has the right to remove or otherwise alter or modify the Artwork in its sole discretion. The Artist acknowledges and understands that the installation of the Artwork may subject the Artwork to destruction, distortion, mutilation, or other modification due to the acts of third parties.

1.0.1 Limited VARA Waiver. In consideration of the covenants and conditions in this waiver, and except as otherwise provided for in this waiver, the Artist agrees to waive any right that the Artist may have under VARA to prevent the removal of the Artwork, or the destruction, distortion, mutilation, or other modification of the Artwork which arises from, is connected with, or is caused or claimed to be caused by the removal, repair, conservation, maintenance of the Artwork by the City or its elected officials, officers, employees, agents, or representatives, or by the presence of the Artwork at the site. The Artist’s VARA rights under this waiver shall cease with the Artist’s death and do not extend to the Artist’s heirs, successors or assigns.

1.0.2 California Civil Code Section 987 Waiver. In consideration of the covenants and conditions in this waiver, the Artist waives any rights which the Artist or the Artist’s heirs, beneficiaries, devisees, or personal representatives may have under CAPA to prevent the removal, defacement, mutilation, alteration, or destruction of the Artwork.

1.1 Conflict. This clause is intended to replace and substitute for the rights of the Artist under VARA and CAPA to the extent that any portion of this waiver is in direct conflict with those rights. The parties acknowledge that this waiver supersedes those laws to the extent that this waiver is in direct conflict therewith.

1.2 City’s License to Reproduce. In consideration of the placement of the Artwork on City property, the Artist does hereby grant a non-exclusive, irrevocable, royalty-free copyright license to the City, and to other parties duly authorized by the City, to reproduce the Artwork in any dimension for all standard City educational, public relations, tourism and arts promotional purposes or digital reproductions of the Artwork, and displaying, images to the general public. Such reproductions and transmissions may be magazines, books, newspapers, journals, brochures and pamphlets, exhibition catalogues, films, television, video, websites, slides, negatives, prints and electronic media, DVD, CD, computerized retrieval systems, and by all means or methods now known or hereafter invented in connection with standard City activities.

1.3 Artist’s Representations and Warranties. The Artist warrants and represents to the City as follows: that the Artist has good and complete rights, title and interest in and to the copyright in the Artwork or is otherwise entitled to license the copyright or holds a copyright license which would allow for the grant of a sub-license for the copyright pursuant to the terms of this waiver and that the ownership of this copyright is not subject to any undisclosed liens, charges, licenses or other encumbrances; and that the mural and/or the granting of this waiver does not and will not infringe any third party’s copyrights or other intellectual property rights.

HEREBY CERTIFY I am the record Artist of the Artwork and that I have read all the license and waiver, this
(Day) ________________ day of ____________________ (month), ________________ (year).

By: _______________________________________ (Print full name) Signature: ____________________________________________________________

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September 21, 2022
ITEM TITLE: UPDATE ON ACTIONS TAKEN TO ADDRESS THE CONCERNS RAISED BY THE RESIDENTS OF THE MIRAMAR MOBILE HOME PARK IN IMPERIAL BEACH. (0660-30) ORIGINATING DEPARTMENT:

City Manager
EXECUTIVE SUMMARY:

The residents of the Miramar Mobile Home Park have raised several concerns with the City Council about living conditions, the relationship with park management, onerous park regulations and practices, rent stabilization and other similar issues. The City Council directed staff to initiate solutions to these concerns and return to the City Council with answers.

RECOMMENDATION:

Staff recommends the City Council receive the report and provide direction to the City Manager to proceed with the current effort or to explore other options.

OPTIONS:
 Receive and file the report with direction given to the City Manager BACKGROUND/ANALYSIS:

For many months, the residents of Miramar Mobile Home Park, formerly Siesta Mobile Home Park (Park), have expressed concerns about several issues in relation to the operation and management of the Park. Residents are rightfully frustrated because it can be very challenging to navigate the complex communication process.

Mobile Home Parks are under the governmental jurisdiction of the State of California, but public safety services, sewer service, and other operational items are within the City of Imperial Beach purview. Adding complexity to the process is the landlord and management aspect of the Park ownership and management company. However, one thing is not in question, the residents of Miramar Mobile Home Park are residents of Imperial Beach and therefore it is the responsibility of the City to care for the health, safety and general welfare of the residents.

After exploring several options for addressing the concerns with Park ownership and the State of California it was determined that the fastest method to address the issues would be the creation of a Management and Operation Agreement between the Park and City of Imperial Beach. A draft

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of the agreement has been created and circulated between the parties. In particular, the agreement addresses the following items that have been raised by Park residents:
 Anti-Harassment and Retaliation Policies and Practices – Residents should be provided a safe process to raise valid concerns without fear of harassment or retaliation.  Mediation and Appeals Process – There should be a clear and predictable process for mediation and appeals that includes an unbiased party to ensure a fair process.  Temporary and Permanent Eviction Policies – There should be clearly established eviction policies in place. However, the practice of requiring residents to temporarily leave the Park is an inordinate burden for some of the residents. Park Management has indicated that most residents with short term contracts do not find the temporary eviction problematic.

However, some of the residents that have lived in the Park for an extended period of time find the practice emotionally and financially impracticable. There must be a process to address this issue to realize a successful outcome of the agreement process.  Rent Stabilization – The agreement calls for Park Ownership and Management to implement rent stabilization policies that are consistent with other rental properties in the community in accordance with State law.
 Sewer Spills and Connection Regulations – Because the City provides sewer service to the Park, the agreement includes provision to ensure sewer connections are adequate to avoid any spills or other sewage contamination issues.
 Resident Notification of Maintenance and Construction Activities – The Park residents need to be informed of any construction, pest management, improvements, and other activities that will impact daily life in the Park.
 Park Beautification and Improvements and City Participation – The agreement provides opportunities for the Park and the City to work together to implement improvements that will enhance the quality of life for the residents of the Park.  Regular Review of the Agreement – Over time, it is important that the agreement be reviewed to ensure the needs of the residents are being addressed and the agreement will need to be updated from time to time.

Negotiations are proceeding fairly well. However, if the Park and the City of Imperial Beach are not able to reach an agreement by the November 2, 2022, meeting of the City Council, staff will prepare a series of legislative actions that will address the concerns through the regulatory process. This is not the preferred option of either party. Both the Park and the City believe an agreement to address these issues is a more expedient and effective process.

ENVIRONMENTAL DETERMINATION:

Not a project as defined by CEQA.

FISCAL IMPACT: None
ATTACHMENTS: None