4.11 TRANSPORTATION 4.11 TRANSPORTATION Environmental Setting Intersection, Roadway, and Freeway Evaluation Methodology

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1 4.11 TRANSPORTATION This section describes the road transportation system in the vicinity of the proposed Project and the potential impacts to this system from the proposed Project. The analysis in this section is based on field surveys, a review of local and regional maps, and discussions with appropriate agencies. For a list of references used in the preparation of this section, please refer to Section 9.0, References Environmental Setting The environmental setting includes both the existing roadway network and the operational characteristics of the intersections and roadways that make up the roadway network. How a roadway or intersection operates is based on roadway/intersection type and configuration as well as traffic levels, and these are discussed below in order to determine the existing operational characteristics of the roadway network (roadways and intersections). How the roadway network operates with the Project traffic added in is then used to determine significance. The roadway classifications criteria are presented below, followed by a description of the existing roadway network Intersection, Roadway, and Freeway Evaluation Methodology Roadways are classified according to their function. Almost all jurisdictions follow a specific methodology for determining how well a roadway network operates as developed by the Transportation Research Board through the Highway Capacity Manual (HCM) and software (HCS). However, jurisdictions vary in regards to defining the acceptability of how the roadway network operates. The general HCM methodologies and terminology are discussed below, followed by County methods for assessing acceptance. Roadway Network Capacity Methodologies Almost all jurisdictions utilize the HCM and HCS approach for assessing traffic impacts. This approach is discussed below. The operations of intersections are described using a lettering system called level of service (LOS). The LOS ranges from LOS A, which is the best operating conditions, to LOS F, signifying failure. Intersections which are signalized (i.e., traffic lights) are analyzed based upon average control delay per vehicle which is a measure of driver discomfort, frustration, fuel consumption, and increased travel time. Average control delay includes deceleration, queue movement, stopped time, and start up acceleration time (HCM 2000). The HCM provides an industry-standard method for calculating average control delay. The intersections which are not signalized (i.e., stop signs) are analyzed based upon average control vehicular delay. Control delay is the increased time of travel for a vehicle approaching and going through a stopped intersection (HCM 2000). LOS descriptions and average control delay as related to LOS are summarized in Table The LOS of an intersection, once delay times are calculated using the HCS approach, is then used to determine significance based on the amount of traffic that a project adds to the intersection (as per the County s criteria, discussed below) and the resulting change in LOS. 14EIR April 2016

2 Also, intersections present a number of variables that can influence LOS, including curb parking, transit buses, turn lanes, signal spacing, pedestrians, and signal timing. Many of these factors are incorporated into the HCS approach. The LOS definition for roadways is based on the number of lanes and the total traffic flow, with higher traffic flow increasingly producing higher LOS values (more congestion and traffic slowing). Operating conditions along the freeways are based on the density of the traffic and is expressed in vehicles per mile per lane (veh/mi/lane). This methodology has been adopted by Caltrans District 5 to evaluate mainline freeway operating conditions and is based on the HCM. Table shows the definitions of the LOS grades for freeways. Trucks and other large or heavy vehicles, e.g., wider-than-normal vehicles, slower moving tractors, impact LOS by occupying more roadway space and by having further reduced operating qualities than passenger cars. Because heavy vehicles accelerate more slowly than passenger cars, gaps form in traffic flows that affect the efficiency of the roadway. The fraction of heavy trucks is included in the methodologies to determine LOS along roadways and intersections. The California Department of Transportation (Caltrans 2002) has screening criteria for determining LOS on the roadways under Caltrans jurisdiction. Some factors that affect these capacities are intersections (in the case of surface roadways), degrees of access control, roadway grades, design geometries (horizontal and vertical alignment standards), sight distance, levels of truck and bus traffic, and levels of pedestrian and bicycle traffic (Caltrans 2014). Caltrans' design goal is to provide operations that do not exceed a LOS of C to D (Caltrans 2002). Table HCM Intersection Levels of Service & Delay Level of Service Signalized Intersection Delay (seconds per vehicle) Unsignalized Intersection Delay (seconds per vehicle) Description of Operating Conditions A Less than 10 Less than 10 Excellent conditions. No loaded cycles and little to no delay. B > 10 to 20 > 10 to 15 Very good conditions. A stable flow of traffic. C > 20 to 35 > 15 to 25 Good conditions. Stable operations continue. Loading is intermittent. Occasionally drivers may have to wait and backups may develop behind turning vehicles. D > 35 to 55 > 25 to 35 Fair conditions. Approaching instability. Delays may be lengthy during short times within the peak hours. E > 55 to 80 > 35 to 50 Poor conditions. At or near capacity with possible long queues for left turning vehicles. Full utilization of every signal cycle is seldom attained. F > 80 > 50 Failure conditions. Gridlock with stoppages of long duration. Source: HCM, Transportation Research Board, EIR April 2016

3 Table Freeway Segment Level of Service Thresholds Level of Service Description Density,, vehicles per mile per lane A Free flow speeds prevail. 11 B Free flow speeds continue. Maneuverability is only slightly > 11 to 18 restricted. C Speeds at or near free flow speeds. Maneuverability within the traffic > 18 to 26 stream is noticeably restricted. Lane changes require more care. D Speeds decline slightly with increasing flows. Maneuverability > 26 to 35 within the traffic stream is more limited with reduced driver comfort. E Operation at capacity. No usable gaps with little room to maneuver. > 35 to 45 Disruptions create queuing. F Breakdown in traffic flow. Failure. > 45 Source: HCM, Transportation Research Board, The Intersection Capacity Utilization (ICU) method is also a tool used for measuring a roadway intersection's capacity. It is generally used for transportation planning applications such as congestion management programs and traffic impact studies. It is not used to establish design specifics, such as signal timing design. ICU is used to describe the volume to capacity ratio, which is a means of telling how much reserve capacity is available or how much the intersection is overcapacity. The ICU does not predict delay, but it can be used to predict how often an intersection will experience congestion County Methodology The County uses Primary and Secondary roadway classifications based on roadway design characteristics and the types of land uses served. Arterial type facilities are designated as Primary roads, and collector type facilities are designated as Secondary roads. Roadway classifications are shown in Table along with the roadway traffic volumes that would produce unacceptable roadway traffic (LOS of a C or below). Table Classification Primary 1 (P-1) Primary 2 (P-2) Roadway Classifications Purpose and Design Factors Roadways designed to serve primarily non- residential development. Roadways would have a minimum of 12-foot wide lanes with shoulders and few curb cuts. Signals would be spaced at 1 mile or more intervals. Roadways which serve a high proportion of non-residential development with some residential lots and few or no driveway curb cuts. Lane widths are a minimum of 12 feet with well spaced curb cuts. Design Capacity LOS C Threshold1 2 Lane 4 Lane 2 Lane 4 Lane 19,990 47,760 15,900 38,200 17,900 42,480 14,300 34,000 14EIR April 2016

4 Table Roadway Classifications Classification Purpose and Design Factors Design Capacity LOS C Threshold1 2 Lane 4 Lane 2 Lane 4 Lane Signals intervals at a minimum of 1/2 mile. Primary 3 (P-3) Roadways designed to serve 15,700 37,680 12,500 30,100 non-residential development and residential development. More frequent driveways are acceptable. Potential signal intervals of 1/2-1/4 mile. Secondary 1 (S-1) Roadways designed to serve 11,600 N/A 9,300 N/A primarily non- residential development. Roadways would have a minimum of 12-foot wide lanes with shoulders and few curb cuts. Signals would be spaced at 1 mile or more intervals. Secondary 2 (S-2) Roadways which serve a high 9,100 N/A 7,300 N/A proportion of non-residential development with some residential lots and few or no driveway curb cuts. Lane widths are a minimum of 12 feet with well spaced curb cuts. Signals intervals at a minimum of 1/2 mile. Secondary 3 (S-3) Roadways designed to serve non-residential development and residential development. More frequent driveways are acceptable. Potential signal intervals of 1/2-1/4 mile. 7,900 N/A 6,300 N/A 1. The level of service classification for roadways (stretches of roadways without intersections) is based on the average travel speed along the roadway. The values for the County were adopted by the County for screening traffic impacts (see Table ) and are based on daily traffic volumes (County 1996). Table provides the level of service classification based on the roadway class and the traffic volumes. The County's standard is to provide LOS C or better. Source: Orcutt Community Plan EIR April 2016

5 Table Roadway Levels of Service Screening Classifications Roadway Number of LOS Classes Class Lanes A B C D E County Freeway 6 44,000 74,400 88,800 99, ,000 Freeway 4 29,600 49,600 59,200 66,600 74,000 Arterial 4 23,900 27,900 31,900 35,900 39,900 Arterial 2 12,000 14,000 16,000 18,000 20,000 Major 4 19,200 22,300 25,500 28,700 31,900 Major 2 9,600 11,200 12,800 14,400 16,000 Collector 2 7,100 8,200 9,400 10,600 11,800 Caltrans Freeway per lane per hour Source: County 1996; TRB ,170 1,680 2,090 2, Existing Roadway Network Roadways The following roadways are utilized under baseline traffic conditions and would also be utilized under the proposed Project (under certain conditions): Access Roadway to U.S. Highway 101 on the east side of the Lease Rice Ranch Road South Bradley Road Clark Avenue Orcutt Road Roadways and intersections are shown in Figure Intersections The following intersections are the primary intersections that are utilized under baseline traffic conditions and would potentially be utilized by traffic generated by the proposed Project. 1. U.S. Highway 101 and Site Access Road East 2. Rice Ranch Road and Site Access Road (two-way stop controlled) 3. Rice Ranch Road and Orcutt Road (four-way stop controlled) 4. Rice Ranch Road and Bradley Road (Signalized 4 lanes) 5. Bradley Road and Clark Road (Signalized 4 lanes) 14EIR April 2016

6 Figure Project Area Roadways and Intersections Existing Pedestrian & Bicycle and Transit Facilities There are currently no established bicycle facilities (e.g., bike paths) in the Project area; however, area roads may be used by bicyclists on a recreational basis. Santa Maria Area Transit runs bus routes 5 and 6 along Rice Ranch Road Existing Intersection, Roadway and Freeway Operations LOS Current traffic levels associated with the site operations under baseline conditions average 8.8 vehicles vehicle round-trips per day (as per Applicant information) with a peak day totaling 37 vehicle round-trips per day. Of these, Ttrucks currently average about 1.2 per day with a peak day totaling up to 16 trucks. The Applicant indicates (in the Application Air Quality Study) that vehicle trips from non-diatomite operations would total 7 trips per day on a peak day and would annually average 4 trips per day. Vehicle trips from diatomite operations would total 30 trips per day on a peak day and would annually average 4.8 trips per day. The effect of the existing 37 trips per day for roadway LOS would be nominal, as with the current traffic levels, current site traffic would total only volume to capacity ratio (V/C) change of roadway design capacity on the smaller, classified as "collector" roadways. Traffic volumes on the larger, "major 4 lane" roadways, such as Clark Avenue and Bradley Road, would have minimal impacts from this relatively small existing number of traffic trips with even lower V/C ratio levels. Therefore, the LOS values of these larger roadways and intersections have not been examined. The smaller intersections might be affected by this low level of traffic as the smaller intersections do not have as much capacity as the larger roadways and intersections. Modeling using HCS software at the 14EIR April 2016

7 smaller area intersections (where impacts could be greatest) showed that existing traffic levels operate at an acceptable LOS (see Table ). The Access Road that connects to U.S. Highway 101 on the east side of the lease is used primarily by the lease activities and agricultural activities on the east side of U.S. Highway 101. Traffic levels are minimal along this "non-freeway" section of U.S. Highway 101, where roadways meet with and cross the freeway without ramps. Crossing over the highway is not required for access to U.S. Highway 101, as there is an underpass at this location. As traffic levels are nominal, and the design is according to CalTrans specifications for this section of the highway, current conditions are an acceptable LOS. Table Baseline Roadway and Intersection LOS Location Type ADT Delay LOS Minor Intersections Rice Ranch Road and Site Access Road 2-way stop A Rice Ranch Road and Orcutt Road 4-way stop A Roadways Clark Avenue at Bradley Road Major 21, B Bradley Avenue at Rice Ranch Rd Major 5, A Bradley Avenue at Clark Avenue Major 8,943 2 A Rice Ranch Road Collector 2, A U.S. Highway 101 Freeway 33, C Notes: Major intersections at Clark Avenue and Bradley Road are assumed to be minimally affected by the low current traffic levels associated with the Project Site traffic and are therefore not analyzed. 1) Based on County Public Works data, year ) Based on County Public Works data, year ) ADT estimated based on roadway size and residential area. 4) Caltrans at Clark Ave, peak hour of 3,300, year Intersections assume 2500 ADT. Rice Ranch/Site Access Road LOS based on Rice Ranch Road as access Road delays do not impact public traffic 14EIR April 2016

8 Figure U.S. Highway 101 and Site Access Road East Source: Google Earth 14EIR April 2016

9 Figure Rice Ranch Road and Site Access Road Source: Google Earth 14EIR April 2016

10 Figure Rice Ranch Road and Orcutt Road Source: Google Earth Regulatory Setting The regulatory setting is relevant for Federal, State and local regulations Federal The U.S. Department of Transportation was established by an act of Congress on October 15, The mission of the Department is to serve the United States by ensuring a fast, safe, efficient, accessible and convenient transportation system that meets our vital national interests and enhances the quality of life of 14EIR April 2016

11 the American people, today and into the future. Local roadway regulations, however, have been delegated to the states and local municipalities to implement State Maximum load limits for trucks and safety requirements for oversized vehicles are generally regulated by the California Department of Transportation (Caltrans) for operation on highways, such as U.S. Highway 101. Cities and Counties retain authority on their roads. The California Vehicle Code, administered by CalTrans, addresses vehicle size and weight limitations, encroachment, special events that could affect roadways, and the designation of truck routes. CalTrans has the authority to issue special permits for the movement of vehicles/loads exceeding statutory limitations on the size, weight, and loading of vehicles contained in Division 15 of the California Vehicle Code Local Santa Barbara County Association of Governments (SBCAG) 2008 Regional Transportation (RTP) The SBCAG is the regional planning agency comprised of the County and all eight incorporated cities within the County (Buellton, Carpinteria, Goleta, Guadalupe, Lompoc, Santa Barbara, Santa Maria and Solvang). SBCAG addresses regional issues relating to transportation, housing, air quality and growth. SBCAG is a federally designated metropolitan planning organization (MPO). As the designated MPO for the county, SBCAG is mandated by the Federal government to develop and implement regional plans that address transportation, growth management, hazardous waste management and air quality issues. SBCAG has prepared the Regional Transportation Plan (RTP) for the SBCAG region, which includes activity forecasts. SBCAG adopted the 2040 Regional Transportation Plan and Sustainable Community Strategies in August 2013 County Congestion Management Program The Congestion Management Plan (CMP) is required by law (California State Government Code Section 65089), for all urban counties in the State. The CMP for the County is administered by the SBCAG. The goal of the CMP is to reduce or maintain current congestion levels through supply side measures, such as capital improvements, and demand side measures, such as travel demand management (TDM) programs and coordinated local jurisdiction land use planning. To measure the effectiveness of the CMP, certain key roadways are selected for regular monitoring. This designated roadway system includes all State highways and principal arterials within the incorporated Cities and unincorporated area of the County. The County must maintain a certain level of service, or congestion level, on streets designated in the CMP in order to receive funding from various Federal and State transportation and air quality funding programs (Government Code Section ). In general, LOS D or better is the CMP standard for roadways and intersections, but the CMP recognizes that some facilities are currently operating at LOS E or below. Where facility traffic levels exceed this standard, the CMP requires that agencies adopt a Deficiency Plan to improve operation of the facility. Agencies that fail to do so are out of conformity. As of the most recent CMP (SBCAG 2009), the County of was in conformity because all of its facilities which exceed CMP standards had adopted Deficiency Plans. The only deficiency plan is for the southern County U.S. Highway 101 area. At the project level, if a proposed development is located adjacent to or near one of the CMP designated highways and arterials, then the proposed development must also meet the CMP specified thresholds of significance. In addition, the CMP provides its own classification system used when determining eligibility for funding rather than the classification system contained within the County s Circulation Element. 14EIR April 2016

12 County of Santa Barbara Public Works Department, Transportation Division The Public Works Department regulates roadway encroachment through permits. Short term impacts during construction and temporary activities are regulated through review and approval of Traffic Control Plans. Long term impacts associated with private activities and improvements on and adjacent to public roads are regulated through Encroachment Permits. Comprehensive Plan, Circulation Element The Circulation Element of the County Comprehensive Plan (adopted in 1980, reprinted in 2010) provides specific policies related to the traffic and transportation implications of proposed development. The Element applies to all roadways and intersections within the unincorporated area of the County, with the exception of those roadways and intersections located within an area included in an adopted community or area plan (such as the Orcutt Community Plan, see below). The following policies of the Circulation Element are relevant to the proposed Project: Policy B-a, Roadway Standards: A project that would contribute ADTs to a roadway where the Estimated Future Volume does not exceed the policy capacity would be considered consistent with this section of the Circulation Element. Policy D-1, Intersection Standards: Projects contributing PHTs (peak hour trips) to intersections that operate at an Estimated Future Level of Service that is better than LOS C shall be found consistent with this section of this Element unless the project results in a change in V/C (volume/capacity) ratio greater than 0.20 for an intersection operating at LOS A or 0.15 for an intersection operating at LOS B. Policy V-A, Circulation Element Policies: The roadway classifications, intersection levels of service, and capacity levels adopted in this Element shall apply to all roadways and intersections within the unincorporated area of the County, with the exception of those roadways and intersections located within an area included in an adopted community or area plan. Roadway classifications, intersection levels of service, and capacity levels adopted as part of any community or area plan subsequent to the adoption of this Element shall supersede any standards included as part of this Element. Policy V-E, Circulation Element Policies: A determination of project consistency with the standards and policies of this Element shall constitute a determination of project consistency with the Land Use Element's Land Use Development Policy #4 with regard to roadway and intersection capacity. Orcutt Community Plan The Orcutt Community Plan (OCP) updates the 1980 County Comprehensive Plan for the unincorporated community of Orcutt, located south of the City of Santa Maria in the northern region of the County. The Plan identifies growth projections and provides for orderly development to meet the full spectrum of housing, commercial and industrial space, roads, public facilities, and amenities for the community. The Plan's Goals, Policies, Programs, Actions and Development Standards provide the framework for all future development in Orcutt over the next years. The OCP section II.H discusses transportation. Generally LOS C is considered the minimal level desired. Most of the 20 major intersections in the OPA operate at LOS C or better during the P.M. peak hour. OCP Amendments adopted in 2012 allowed for an LOS D on the Foster Road and Highway 135 intersection; the Lakeview Road and Skyway Drive intersection; Stillwell Road; Lakeview Road; and all the Clark Avenue roadway segments and intersections between Blosser Road and Foxenwood Lane. The OCP indicates that, for Primary and Secondary roadway segments, a project is considered consistent with the OCP where the Estimated Future Volume does not exceed the Acceptable Capacity (corresponding to an LOS C). 14EIR April 2016

13 Projects contributing peak hour trips to un-signalized intersections that operate at an Estimated Future Level of Service A shall be found consistent with the OCP unless the project results in a change of two levels of service or an equivalent amount of delay. Projects contributing peak hour trips to intersections that operate better than Level of Service C shall be found consistent with this section of the Community Plan Significance Criteria According to the County s Environmental Thresholds and Guidelines Manual (County 2008), a significant traffic impact would occur when: a. The addition of project traffic to an intersection increases the volume to capacity (V/C) ratio by the value provided below, or sends at least 15, 10 or 5 trips to an intersection operating at LOS D, E or F. LEVEL OF SERVICE (including Project) INCREASE IN VOLUME/CAPACITY GREATER THAN A 0.20 B 0.15 C 0.10 D E F Or the addition of: 15 trips 10 trips 5 trips b. Project access to a major road or arterial road would require a driveway that would create an unsafe situation, or would require a new traffic signal or major revisions to an existing traffic signal. c. Project adds traffic to a roadway that has design features (e.g., narrow width, road side ditches, sharp curves, poor sight distance, inadequate pavement structure) or receives use which would be incompatible with substantial increases in traffic (e.g., rural roads with use by farm equipment, livestock, horseback riding, or residential roads with heavy pedestrian or recreational use, etc.) that would become potential safety problems with the addition of project or cumulative traffic. Exceeding the roadway capacity designated in the Circulation Element may indicate the potential for the occurrence of the above impacts. d. Project traffic would use a substantial portion of an intersection(s) capacity where the intersection is currently operating at acceptable levels of service (A-C) but with cumulative traffic would degrade to or approach LOS D (V/C 0.81) or lower. Substantial is defined as a minimum change of 0.03 for intersections which would operate from 0.80 to 0.85, a change of 0.02 for intersections which would operate from 0.86 to 0.90, and a change of 0.01 for intersections operating at anything lower. 14EIR April 2016

14 Impact Analysis and Mitigation Measures Impact Number TR.1 Impact Description The proposed Project would not significantly impact existing traffic circulation or increase existing traffic hazards. Impact Class Class III The Project would introduce additional traffic into and out of the field. Based on information supplied by the Applicant as part of their Application, operational peak day traffic trips would increase by 12 round trips per day, with an annual average increase of 6.2 round trips per day. Of these, operational truck trips only would peak at 4 round trips per day with an annual average of 1 trip per day. Construction trips would require a maximum of 40 round trips per day for all vehicles, with 4 of these being trucks. Impacts could result from increased traffic congestion due to the increased traffic levels or from increased traffic hazards due to the increased traffic levels. Each is discussed below. Traffic Circulation and Congestion Increases in vehicular traffic into and out of the field would travel through area intersections and along roadways. Major intersections would be nominally impacted as the level of traffic would total less than 9 RT in the peak hour. However, minor intersections could experience some impact as their capacity is lower. The HCS model was run as a worst case, assuming that all Project traffic would pass through each intersection. In reality, some traffic would turn right out of the field, some would turn left, some would utilize the U.S. Highway 101 access, so this would be a conservative estimate of traffic impacts. Delays would increase slightly along Rice Road by 0.1 and 0.2 seconds. The Project traffic, on the peak day, would total less than 5 percent of the ADT on the collector roadways that are currently operating at an LOS of A. Daily traffic on U.S. Highway 101 is approximately 3,300 peak hour, well below the CalTrans thresholds of LOS C for this 4 lane highway segment. Therefore, impacts would be less than significant. As traffic levels associated with the Project would not cause delays or introduce traffic to roadways that cause exceedances of acceptable LOS, impacts would be less than significant (Class III). Traffic Hazards Access to the proposed Project Site would occur at the existing oil field entrances located at Highway 101 and at Rice Road. The Rice Road intersection is an at-grade intersection consists of stop sign controlled side streets; U.S. Highway 101 contains a northbound turn-off and underpass and accessing U.S. Highway 101 south-bound involves turning onto the highway (it is not classified as a freeway along this section). The following issues are related to traffic safety. Inadequate sight distance: There is sufficient sight distance at all intersections. No above ground structures are proposed for the Project; therefore, there would be no long term impact on line of sight. Ingress/egress: The proposed Project would not affect ingress/egress to and from area roadways. Existing roadways and site access would be utilized. Access to all land uses would be maintained during the construction period. General road capacity: Construction of the proposed Project would not result in congestion related to the loss of a lane of traffic. No construction is proposed for area roadways. Operation of the proposed Project would not affect roadway capacity. 14EIR April 2016

15 Emergency access: Emergency access to residences served by area roadways would not change. Neither construction nor modification within area roadways are proposed as part of the Project. Vehicle Miles Traveled Total vehicle miles traveled as part of the project would be due to drilling, construction and increased vehicles during operations. Construction total miles traveled would be about 198,000 miles during the peak year of construction and drilling. Operations increased annual vehicle miles traveled would total about 45,000 annual total vehicle miles. Mitigation Measures The proposed Project would not significantly impact existing traffic circulation or increase existing traffic hazards. No mitigation is required. As traffic levels associated with the Project would not introduce hazards to area roadways, impacts would be less than significant (Class III) Cumulative Impacts The County Environmental Thresholds and Guidelines Manual (County 2008) was developed, in part, to define the point at which a project s contribution to a regionally significant impact constitutes a significant effect at the project level. In this instance, the Project has been found not to exceed the threshold of significance for traffic. Therefore, the Project s contribution to the regionally significant traffic congestion is not considerable, and is less than significant (Class III). The list of planned, pending, and recently approved projects would not result in an increase in ADTs along area roadways, although increases in area traffic might be expected with area growth. However, traffic volume on area roadways would remain well below capacity and levels of service would remain within acceptable levels of LOS C or better. Therefore, cumulative traffic impacts would not be significant, and the Project s contribution to cumulative traffic impacts would not be cumulatively considerable. 14EIR April 2016