Section 4 – Non-CEQA Local Circulation and Site Access Studies
The California Environmental Quality Act (CEQA) guidelines do not limit the ability of lead agencies to create their own methodologies or guidelines for evaluating impacts on the local transportation system, such as for walking, bicycling, transit, and safety. SB 743, the legislation which changed how transportation impacts are assessed under CEQA, does not prohibit the use of traditional metrics such as vehicle delay for applications outside of CEQA or for non-transportation impacts under CEQA. These types of studies can be important when addressing local issues like intersection configurations, traffic control measures, signal timing, and for evaluating air quality, noise, safety, and energy impacts related to a project. This interpretation is grounded in Public Resources Code Section 21099.
The City of Manhattan Beach’s Mobility Plan outlines additional goals to ensure the efficient movement of commuter traffic while minimizing neighborhood impacts. The local circulation and site access studies discussed in this section are in support of Goal 1-2 of the Mobility Plan, which focuses on protecting neighborhoods from cut-through traffic. Relevant policies in the Mobility Plan include:
- Goal I-2: Prioritize the movement of commuter traffic on arterial and collector streets to safeguard neighborhood streets from cut-through traffic.
- Policy I-2.1: Utilize the Neighborhood Traffic Management Program (NTMP) to address cut-through traffic and improve conditions for pedestrians and cyclists.
- Policy I-2.2: Monitor major intersections and arterial streets and implement capital projects as needed to reduce traffic diversion into local streets while improving pedestrian and bicycle conditions.
- Policy I-2.3: Limit vehicular access for new developments on residential streets and in areas with high pedestrian and bicycle activity, ensuring that design and access minimize traffic intrusion on local streets.
- Policy I-2.4: Require property owners proposing new developments to improve adjacent public right-of-way to its full required width or pay in-lieu fees for improvements.
- Policy I-2.5: Promote the use of Intelligent Transportation Systems (ITS) for efficient and safe traffic movement, including advanced signalization, motorist information systems, and intelligent parking systems.
- Policy I-2.6: Review on-street parking near commercial areas when requested by neighbors, and develop parking and traffic solutions for neighborhoods affected by spillover parking and traffic.
- Policy I-2.7: Monitor and address traffic, parking, and truck loading issues linked to construction activities.
- Policy I-2.8: Carefully review commercial development proposals for parking, loading, and ingress/egress plans, enforcing approved restrictions.
- Policy I-2.11: Develop a multi-modal level of service (LOS) methodology that emphasizes pedestrian and bicycle access, supports reduced vehicle miles traveled (VMT), and maintains emergency vehicle access and response times.
Section 4.1 – Local Circulation Analysis
A project’s site access and local circulation challenges, particularly those involving vehicles, bicycles, and pedestrians, may be evaluated as part of the environmental review process. If the City Traffic Engineer deems it necessary, a local circulation analysis should assess the operational performance of the project’s primary access points, nearby unsignalized intersections, and signalized intersections near the project site.
Section 4.1.1 – Screening Criteria
A more detailed analysis may be needed to determine if a project could negatively impact local access and circulation if any of the following conditions apply:
- The project is required to submit a Transportation Impact Analysis (TIA) under Section 3.
- The project involves a discretionary action subject to Planning Commission review.
- The project is located on a minor, major, or regional arterial street, and intersections near the project site are expected to operate at Level of Service (LOS) E or F during peak hours.
Section 4.1.2 – Evaluation Criteria
The TIA should include a quantitative evaluation of how the project will affect access and circulation. If a project’s traffic contributes to unacceptable queuing or delays at nearby signalized intersections or other key roadway points, project access may be considered constrained. Unacceptable queuing or delays include:
- Vehicle stacking or delays that spill over into through lanes.
- Vehicle stacking or delays that extend into intersections.
- Oversaturation of LOS for approach lanes at study intersections.
Section 4.1.3 – Methodology
The analysis methodology for local circulation includes the following components:
Section 4.1.3.1 – Level of Service (LOS) and Queueing Methodology
Intersection LOS and queuing analysis should follow methodologies outlined in the latest edition of the Highway Capacity Manual (HCM). Software such as Synchro, Vistro, or HCS is acceptable for analyzing isolated intersections. In cases of oversaturation, where congestion affects downstream traffic flow, Synchro/SimTraffic or VISSIM simulation models should be used. VISSIM is particularly suitable for locations with transit lanes or heavy pedestrian-vehicle conflicts.
Section 4.1.3.2 – Study Area
The study area for the circulation analysis should be defined in consultation with the City Traffic Engineer and should include:
- Primary project driveways.
- Unsignalized and/or signalized intersections adjacent to or integral to the project’s access and circulation.
- Additional intersections as deemed necessary by the City Traffic Engineer.
- Both AM and PM peak hours should typically be analyzed, though some projects may also require analysis during midday or weekend periods if those times are anticipated to generate the highest traffic volumes.
Section 4.1.3.3 – Traffic Counts
Traffic counts should adhere to the following guidelines, unless otherwise directed by the City Traffic Engineer:
- Turning movement data should be collected at study intersections in 15-minute intervals.
- Vehicle classifications, pedestrian volume counts, and bicycle counts must be included.
- A minimum of two hours of data must be collected for each peak period.
- Traffic counts should be conducted on Tuesdays, Wednesdays, or Thursdays, excluding holidays and the first weekday before and after a holiday.
- Counts should take place on days of good weather and avoid days with atypical conditions (e.g., road construction or major traffic incidents).
- Traffic counts from studies conducted within the previous year may be used, subject to the City Traffic Engineer’s approval.
- For simulation analyses, speed and/or travel time data should be collected during peak periods for calibration.
Section 4.1.3.4 – Project Trip Generation
Trip generation for a project should be calculated using the latest edition of the Institute of Transportation Engineers (ITE) Trip Generation Manual. This analysis should cover daily trips as well as AM and PM peak hour trips. In some cases, site-specific driveway volume counts may be used at the City Traffic Engineer’s discretion. A table showing the project’s existing and proposed trip generation should be included in the TIA. Any trip reduction credits should also be noted and approved.
Section 4.1.3.5 – Project Trip Distribution
Trip distribution patterns for the project should be based on factors such as:
- The street system characteristics serving the project site.
- Accessibility of routes to and from the site.
- Proximity to employment centers, commercial hubs, and residential areas. A map showing project trip distribution percentages at study intersections and project driveways should be included in the TIA, subject to approval.
Section 4.1.3.6 – Traffic Forecasts
Traffic forecasts should estimate conditions for the project’s horizon year, factoring in annual ambient growth rates, related project trips, and planned transportation system improvements. These forecasts should include traffic generated by other developments within a half-mile radius of the farthest study intersection. Programmed improvements affecting lane configurations or intersection operations must be identified and incorporated into the LOS calculations for future scenarios.
Section 4.1.4 – Recommended Actions
If the analysis identifies access and circulation constraints, recommended actions may include:
- Installing traffic signals, stop signs, or electronic warning devices at access points.
- Redesigning or relocating project access points.
By adhering to these guidelines, local circulation studies can ensure safe and efficient access for all modes of transportation, while aligning with the goals of the City’s Mobility Plan. These analyses support the City’s ongoing efforts to balance traffic efficiency with community livability, ensuring that transportation infrastructure improvements are made in a manner that promotes safety, sustainability, and minimal neighborhood disruption.
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