TO: HONORABLE MAYOR AND MEMBERS OF THE CITY COUNCIL
FROM: Bob Moehling, Public Works Director
PREPARED BY: Jeff Hitch, City Engineer
SUBJECT:
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All-Way Stop at Jackson Avenue and Magellan Street Intersection
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RECOMMENDATION
recommendation
Approve the installation of an all-way stop traffic control at the intersection of Jackson Avenue and Magellan Street.
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PRIOR ACTION/VOTE
None.
CITY COUNCIL GOAL
Provide a high level of innovative public safety.
BACKGROUND
The connection of Jackson Avenue to Ynez Road in the City of Temecula opened to traffic in early 2014. Shortly thereafter, residents from the Jackson Crossing neighborhood, located along the east side of Jackson Avenue at the Magellan Street intersection, approached the City and expressed concerns regarding traffic and sight distance at the intersection due to the expected increase in traffic volumes. The residents requested an all-way stop or a traffic signal be installed at the intersection to mitigate those concerns.
At that time, City staff began monitoring and evaluating the potential need to convert the Jackson Avenue and Magellan Street intersection from a two-way stop to either an all-way stop or a traffic signal control. The installation of an all-way stop is based on federal and state guidelines set forth in the California Manual on Uniform Traffic Control Devices (MUTCD). In general, an all-way stop is installed where the volume of traffic on the intersecting roads is approximately equal and is not installed for the purpose of speed control. An all-way stop warrant is based on several variables, including the amount of traffic passing through the intersection, accident history, and sight distance constraints. Similarly, to justify the installation of a traffic signal, a warrant must be met that is based on requirements contained within the MUTCD. If an all-way stop or a traffic signal is installed without an appropriate warrant, the City could be exposed to potential legal and financial obligations in the case of an accident.
Warrant analyses have been performed several times since 2015 and warrants for either type of traffic control were found not to be met. The results of the warrant analyses were presented at several Traffic Commission meetings with a recommendation of no further action. The Traffic Commission voted to maintain existing two-way stop traffic controls at the intersection. In addition, City staff met with the Homeowner’s Association (HOA) of Jackson Crossing to discuss sight distance concerns caused by the overgrown landscaping along their frontage and near the southeasterly corner of Jackson Avenue and Magellan Street. In 2015, the HOA removed shrubs and low vegetation in the area and raised the skirts of the trees to further increase sight distance visibility.
In February 2024, the City received additional requests to reevaluate the need for an all-way stop or traffic signal at this location. New traffic counts were collected and an all-way stop and a traffic signal warrant analyses were performed. Staff also conducted a sight distance analysis and confirmed that vegetation within the sightline was limiting sight distance. The staggered tree trunks have continued to grow in size over the years which negatively impacts the sightlines for drivers leaving out of Magellan Street. The results of the traffic signal analysis showed that a signal is still not warranted based on MUTCD requirements. However, due to the overgrowth of vegetation that is not being consistently maintained by the HOA within the sightline as well as the continued tree trunk growth, an all-way stop is now found to be warranted. Restoration of the sight distance would require removal of the trees, significant vegetation removal, development of a new landscape plan compatible with the sight distance corridor, and continued monitoring by City Code Enforcement to ensure adequate maintenance.
Staff presented this item again at the August 21, 2024, Traffic Commission meeting with a recommendation to convert the intersection of Jackson Avenue and Magellan Street from a two-way stop to an all-way stop, with advance warning signs, flashing beacons, and associated striping improvements. The Traffic Commission approved the staff’s recommendation (Vote: 4-0-1). Murrieta Municipal Code section 10.12.030 authorizes the City Traffic Engineer to approve the installation of stop sign controls. However, due to public input both in favor and against, staff thought to exercise caution and is seeking City Council approval.
Staff sees four options for City Council consideration:
1. Install all-way stop control: Installation of an all-way stop will mitigate the limited sight distance and improve safety at the intersection by forcing vehicles to make a stop at the intersection. The downsides to this option to consider:
a. Added Congestion: Stopping traffic on Jackson Avenue will add congestion. There are other four-lane roadway segments with all-way stop control in the City with similar traffic volumes; one location being the intersection of Jefferson Avenue and Magnolia Street. Staff has prepared a traffic model of the intersection which shows the new traffic control will cause disruption to free-flowing traffic on Jackson Avenue but not more significant than what would be expected at similar intersections such as on Jefferson Avenue.
b. Cost: The cost for installing an all-way stop is approximately $10,000.
2. Remove all vegetation from the sight distance corridor: Removal of all existing vegetation will restore the sight distance necessary to improve safety at the intersection. There are several downsides to this option to consider:
a. Property Ownership: The sight distance corridor lies within property owned by the Jackson Crossing HOA. The City would need to enforce the vegetation removal upon the HOA. Should the HOA choose not to comply, Code Enforcement would need to intervene which could lead to fines, abatement, and potential legal action.
b. Aesthetics: Removal of the vegetation fronting the neighborhood block wall will diminish the aesthetics of the neighborhood and surrounding community. Decorative rock-scape or other very low-growing landscape techniques could be employed to remedy the diminished aesthetics.
c. Cost: Removal of the vegetation and restoration with alternate rock-scape or landscape could be significant and a financial burden for the community. This removal and restoration could exceed $100,000.
d. Future Maintenance: This option will require future maintenance by the Jackson Crossing HOA and review of compliance by the City to ensure vegetation does not re-stablish.
e. Other Community Concerns: The residents of Jackson Crossing have expressed concerns about the curvature of Jackson Avenue as well as the perceived speeding vehicles that may exceed the posted speed limit. Removal of the vegetation will not alleviate those concerns.
3. Install traffic signal control: Installation of a traffic signal will mitigate the limited sight distance and improve safety at the intersection assuming a no-right turn on red is implemented at the Magellan Street exit. There are several downsides to this option to consider:
a. Warrants: There are currently insufficient warrants to install this traffic control. Proceeding with this option could expose the City to financial liability.
b. Cost: Installation of traffic signals on major classification roadways cost approximately $750,000.
c. Added Congesting: Adding a traffic signal on Jackson Avenue will add congesting similar to what is experienced at other traffic signals in the City. This signal might function in a similar capacity to the adjacent traffic signal at Jackson Avenue and Allison Street. While it will add more congestion than the existing controls, it will result in less delay than an all-way stop.
4. Leave existing two-way stop controls as is: The “do nothing” alternative has the following downside to consider:
a. Accident Risk: Leaving vegetation in the sight distance corridor leaves the Jackson Crossing HOA and the City exposed to potential legal and financial risk should an accident occur that could be attributed to inadequate sight distance.
Staff recommends Option 1, the installation of an all-way stop control at the intersection of Jackson Avenue and Magellan Street, based on the warrant analysis, the recommendation provided by the Traffic Commission, and the analysis presented above. However, it should be noted that Option 2 is also a viable option that staff supports. Staff does not support Options 3 or 4 at this time.
If Option 1 is selected, the Public Works Department will install and maintain the signs, beacons, and striping.
FISCAL IMPACT
The proposed installation of the all-way stop will cost approximately $10,000, including labor and materials. Funding is available in the City’s CIP budget as part of the Neighborhood Traffic Management Program (NTMP) and will utilize Measure A and Gas Tax funds.
ATTACHMENTS
1. Vicinity Map
2. Sight Distance Exhibit