\ AECOM 2101 Webster Street Suite 1900 Oakland, CA 94612

Transcription

1 \ AECOM 101 Webster Street Suite 1900 Oakland, CA 9461 Memorandum tel fax To Peter Chun, TE Pages 6 CC Subject From Geoffrey Rubendall, PE/TE Amanda Leahy, AICP Date August, 014 Executive Summary The purpose of this technical memorandum is to evaluate the installation of a Class bicycle facility (bicycle lane) on, between Martin Luther King Junior (Jr) Way and Telegraph Avenue, as shown in the conceptual plans developed by the City of Oakland (hereafter referred to as the City ). This memorandum includes the following analyses: Existing Conditions Conceptual Design (Project) Multimodal Traffic Operations Traffic Safety / Collisions Traffic Growth Capacity (Project) Based on the analyses, the proposed Project would not result in any substantial negative adverse effects on transportation or circulation for auto and transit modes and would have a beneficial effect on transportation and circulation for bicycles and pedestrians. Introduction The Project proposes to install a new Class bicycle facility on between Martin Luther King Jr Way and Telegraph Avenue. 1 This technical memorandum incorporates a detailed analysis of the implementation of the proposed road diet and bicycle lane and includes proposals for maximizing bicyclist safety and access while minimizing adverse effects on other roadway users. In addition to analyzing the project s impacts on vehicular, bicycle, and pedestrian traffic, this study also evaluates transit service, traffic safety and collision history, and related projects and plans. The Bicycle Lane Project (hereafter referred to as the Project ) would complete 0.30 miles in the City s bikeway network. The Project proposes to remove one travel lane and provide a six to seven foot wide bicycle lane with a three foot wide striped buffer adjacent the rightmost travel lane on eastbound, between Martin Luther King Jr Way and Telegraph Avenue. The new Class eastbound bicycle lane on 17th Street would intersect with existing Class 3A (proposed Class ) northbound/southbound arterial bicycle routes on Martin Luther King Jr Way and San Pablo Avenue. Additionally, as shown in Figure 1, the new Class eastbound bicycle lane on would connect with the proposed Class northbound/southbound bicycle lane on Clay Street as well as proposed bicycle improvements on Telegraph Avenue that will be implemented as part of the Telegraph Avenue Complete Streets Implementation Plan. 1 Improvements along a portion of this segment (, between Clay Street and Telegraph Avenue [0.1 miles]) were included in the City of Oakland s Bicycle Master Plan Citywide Feasibility Analysis (007) (Project Identification #35).

2 Project Area Map.ai Bicycle Lane Project THOMAS L. BERKLEY WY (0TH ST) WILLIAM ST 19TH ST 18TH ST BROADWAY TELEGRAPH AV Roadway reduced from 3 to lanes o Project Changes Remains 3 lanes 17TH ST FRAKLI ST WEBSTER ST 16TH ST Figure 1 Project Location and Study Area SA PABLO AV 18TH ST 17TH ST JEFFERSO ST CLAY ST 19TH ST 16TH ST 18TH ST CASTRO ST MARTI LUTHER KIG JR way 15TH ST 14T 14TH ST 980 Project Location LEGED Project Location Roadway reduced from 4 to 3 lanes Roadway remains 3 lanes Roadway reduced from 3 to lanes Existing Class /3 facility Proposed Class /3 facility Study Intersection Roadway reduced from 4 to 3 lanes o Project Changes Remains 4 lanes

3 August, 014 As shown in Figure, between Martin Luther King Jr Way and San Pablo Avenue / Clay Street, would be reduced from four lanes to three lanes and between San Pablo Avenue and Broadway, would be reduced from three lanes to two lanes to accommodate the Class bicycle facility. Existing Traffic Conditions The existing transportation-related context in which the Project would be constructed is described below, beginning with a description of the study area and the surrounding street network. The study area is illustrated in Figure 1. Existing transit service, bicycle and pedestrian facilities, and on-street parking are also described. Intersection and roadway levels of service (LOS) are then defined and current conditions for roadways and intersections in the project vicinity are summarized. This subsection also discusses planned transportation improvements in the project vicinity as well as the applicable planning policies. Existing Roadway etwork A brief description of the existing roadway network is provided below. is a one-way eastbound arterial running from 18th Street, west of I-980, to Lakeside Drive at Lake Merritt. Within the Project area, provides three or four travel lanes and parking on both sides of the street, with the exception of the segment between San Pablo Avenue and Broadway where parking is only provided on the north side of the street. Castro Street is a one-way northbound arterial running adjacent to I-980, extending from nd Street to San Pablo Avenue, where it merges with Martin Luther King Jr Way. In the Project area, Castro Street consists of three northbound travel lanes and parking on the east side of the street. Martin Luther King Jr Way, formerly known as Grove Street, is a major north/south collector, extending from Berkeley (where the name changes to The Alameda as it crosses Codornices Creek), to the Embarcadero in Oakland. In the Project area, Martin Luther King Jr Way consists of two travel lanes in each direction and parking on both sides of the street. Jefferson Street is a north/south collector, running from 19th Street / San Pablo Avenue to Fifth Street. In the Project area, Jefferson Street consists of two travel lanes in each direction and parking on both sides of the street. San Pablo Avenue is a major north/south arterial roadway, extending from Frank Ogawa Plaza / Oakland City Center, running through Emeryville, Berkeley, Albany, El Cerrito, Richmond, San Pablo, Pinole, Hercules, and Rodeo, before ending just south of the Carquinez Bridge in Crockett. The portion of San Pablo Avenue north of I-580 in Oakland up to I-80 in Richmond is State Route 13. In the Project area, San Pablo Avenue consists of two travel lanes in each direction and parking on both sides of the street. Telegraph Avenue is a north/south arterial, extending from 16th Street / Broadway in Downtown Oakland to Bancroft Avenue on the southern perimeter of the University of California, Berkeley campus. Telegraph Avenue is an important travel corridor in Oakland, providing a crucial link between downtown Oakland and downtown Berkeley for all modes. In the Project area, Telegraph Avenue consists of two travel lanes in each direction and parking on both sides of the street. Broadway is a major north/south arterial extending from Jack London Square in the south to SR 4 in the north. In the Project area, Broadway provides two travel lanes in each direction and parking on both sides of the street. Intersection Analysis Intersection operating conditions were analyzed at four key intersections along for the weekday AM and PM peak hours (defined as the peak four consecutive 15-minute periods, between the hours of 7:00-9:00 AM and 4:00-6:00 PM), hereafter referred to as the AM peak hour and PM peak hour. These four intersections were selected in coordination with City staff and are inclusive of all locations which could be significantly affected by the Project. The following study intersections were selected for analysis and are shown on Figure 1: Page 3

4 August, / Martin Luther King Jr Way;. / Jefferson Street; 3. / San Pablo Avenue / Clay Street; and 4. / Telegraph Avenue. At signalized study intersections, traffic conditions were evaluated using the 010 Highway Capacity Manual (HCM 010) operations methodology which qualitatively characterizes traffic conditions associated with varying levels of vehicular traffic, ranging from level of service (LOS) A to LOS F. The HCM 010 methodology defines level of service based on operational delay to motorists. LOS A indicates free flow traffic conditions with little or no delay experienced by motorists and LOS F indicates congested conditions where traffic flows exceed design capacity and may result in long queues and delays. The operations analysis uses various intersection characteristics (e.g., traffic volumes, lane geometry, and signal phasing / timing) to estimate the average control delay experienced by motorists as well as the critical movement volume to capacity ratios at an intersection. The HCM 010 does not include updates to the delay-based level of service thresholds, however, lane group volume to capacity ratios are now used with delay to determine lane group level of service. For approach-based and intersection-wide assessments, level of service is defined solely by control delay. The delay- and capacity-based criteria for intersection level of service are summarized in Table 1. Table 1: Intersection Level of Service Criteria LOS Delay (seconds) Capacity (v/c ratio) Description A Insignificant delays: o approach phase is fully utilized and no vehicle waits longer than one red indication. B > 10.0 and 0.0 > 0.60 and 0.70 Minimal delays: An occasional approach phase is fully utilized. Drivers begin to feel restricted. C > 0.0 and 35.0 > 0.70 and 0.80 Acceptable delays: Major approach phase may become fully utilized. Most drivers feel somewhat restricted. D > 35.0 and 55.0 > 0.80 and 0.90 Tolerable delays: Drivers may wait through more than one red indication. Queues may develop but dissipate rapidly, without excessive delays. E > 55.0 and 80.0 > 0.90 and 1.00 Significant delays: Volumes approaching capacity. Vehicles may wait through several signal cycles and long vehicle queues form upstream. Excessive delays: Represents conditions at capacity, with extremely long delays. F > 80.0 > 1.00 Queues may block upstream intersections. Source: Transportation Research Board, Highway Capacity Manual, 010. Roadway Segment Analysis Roadway segment operating conditions were analyzed along, between Martin Luther King Jr Way and Jefferson Street. The roadway segment analysis addresses Project impacts to roadway facilities with LOS determinations based on volume-to-capacity (v/c) ratios from the HCM 1985 (for non-california Department of Transportation [Caltrans]) facilities, and from the HCM 000 for Caltrans facilities. It should be noted that 17th Street is a non-caltrans facility. Therefore, LOS determinations are based on v/c ratios from the HCM Generally, LOS E (v/c ratio less than 1.00) is considered acceptable, and LOS F (v/c ratio greater than 1.00) is considered unacceptable. The HCM 010 does not include updates to the v/c ratio level of service thresholds. The HCM 1985 and HCM 000 level of service criteria and descriptions for roadways are summarized in Table. Page 4

5 August, 014 LOS HCM 1985 (v/c ratio) HCM 000 (v/c ratio) Table : Roadway Segment Level of Service Criteria Description A B C D E > 0.30 and 0.50 > 0.50 and 0.70 > 0.70 and 0.84 > 0.84 and 1.00 > 0.30 and 0.50 > 0.50 and 0.71 > 0.71 and 0.89 > 0.89 and 1.00 Vehicles travel at free-flow speeds and can maneuver almost freely within the traffic stream. Vehicles travel at free-flow speeds and movement within the traffic stream is only slightly restricted. Vehicles travel at or near free-flow speed and movement is somewhat restricted. Incidents can cause local queuing. Vehicle speed declines as density increases, and maneuverability within the traffic stream is noticeably limited. Roadway is operating at or near capacity, with vehicles closely spaced. Any incident can cause backups that propagate upstream. F > 1.00 > 1.00 Roadway operates beyond capacity, with significant queuing at bottlenecks such as key intersections or lane drops. Vehicles are closely spaced and maneuverability is extremely restricted. Source: Transportation Research Board, Highway Capacity Manual, 1985, 000. Multimodal Level of Service Analysis The HCM 010 methodology for multimodal level of service (MMLOS) and Synchro/SimTraffic 8.0 software was used to evaluate bicycle and pedestrian conditions in the study area. The MMLOS methodology estimates the roadway user s perception of the quality of service and roadway environment. The MMLOS methodology provides a quality of service comparison among modes that facilitates an evaluation of the tradeoffs (i.e., how changes in the quality of service of one mode can positively or negatively influence the quality of service of the other modes). The MMLOS computes a single average level of service for each of the modes, and does not provide a single, combined score for the facility. Multimodal level of service criteria are summarized in Table 3. Table 3: Multimodal Level of Service Criteria LOS Score Description A.00 B C D E >.00 and.75 >.75 and 3.50 > 3.50 and 4.5 > 4.5 and 5.00 F > 5.00 Excellent: Provides optimum conditions for individual bicyclists and pedestrians can accommodate more users while providing a high quality user experience. Good: Provides good bicycling and pedestrian conditions and retains significant capacity to accommodate more users while maintaining an ability to provide a high quality user experience. Fair: Provides at least minimum width to meet current demand and to provide basic service to bicyclists and pedestrians. A moderate level of capacity is available; however additional users or other slower moving users will begin to diminish quality and LOS for bicyclists and pedestrians. Poor: Facility is approaching its functional capacity based on its width, volume, and mode split. Crowding during peak periods reduces travel speeds. The addition of users will degrade LOS. Some bicyclists and pedestrians are likely to avoid peak period use. Very Poor: Facility has reached its functional capacity. Crowding during peak periods likely reduces travel speeds. The popularity of the facility may cause some bicyclists and pedestrians to avoid peak period use. Failing: Facility significantly diminishes the experience for one or all user groups. The facility does not effectively serve most bicyclists or pedestrians and significant user conflicts should be expected. Source: Transportation Research Board, Highway Capacity Manual, 010. The Bicycle LOS Score takes into account the availability of parallel bicycle paths, the number of unsignalized intersections and driveways (to account for potential conflicts between cyclists and other vehicles), width of the outside through lane or bicycle lane (to account for the degree of separation between bicyclists and motor vehicle traffic), motor vehicle traffic volumes and speeds, portion of heavy vehicles (large trucks and buses), the Page 5

6 August, 014 presence of parallel parked cars, grades (hills), and other potential conflicts such as freeway off-ramps and channelized right turns. The Pedestrian LOS Score takes into account pedestrian facility crowding, the presence of sidewalks and paths, vehicle traffic speeds and volumes, perceived separation between pedestrians and motor vehicle traffic (including barriers such as parked cars and trees), street crossing distance, extra walking required to reach crosswalks, average pedestrian crossing delay (time needed to wait for a gap in traffic or a crosswalk signal), and other conflicts, such as multiple free right-turn lanes that tend to be difficult for pedestrians to cross. Existing Intersection Operations Multimodal intersection turning movement volumes were collected on Wednesday, July 9, 014. Figure illustrates existing lane geometry for each of the four signalized study intersections, and Figure 3 illustrates existing traffic volumes during the AM and PM peak hours. Existing intersection LOS results and critical movement volume to capacity ratios for automobiles are summarized in Table 4. Existing multimodal (pedestrian and bicycle) intersection LOS results are summarized in Table 5. Table 4: Automobile Intersection Levels of Service Analysis Existing Conditions Intersection Unit / Movement AM Peak Hour PM Peak Hour v/c ratio LOS v/c ratio LOS 1 Delay (sec.) 11.8 B 11. B 17th St / Martin Luther EBL 0.46 A 0.0 A King Jr Wy SBT 0.14 A 0.16 A Delay (sec.) 17.6 B 14.6 B 17th St / Jefferson St EBL 0.45 A 0.18 A BR 0.16 A 0.4 A 3 Delay (sec.) 15.6 B 19.5 B 17th St / San Pablo Ave / EBT 0.55 A 0.6 A Clay St (1) EBR 0.66 B 0.17 A SBL 0.3 A 0.51 A 4 Delay (sec.) 19.5 B 16.8 B 17th St / Telegraph Ave EBL 0.5 A 0.34 A SBT 0.30 A 0.39 A SBL 0.15 A 0.4 A Source: AECOM, 014. otes: v/c ratio = volume to capacity ratio. Wy = Way. St = Street. Ave = Avenue. Sec. = Seconds. EBL = eastbound left-turn movement. EBT = eastbound through movement. SBT = southbound through movement. BR = northbound right-turn movement. EBR = eastbound right-turn movement. SBL = southbound left-turn movement. Auto delay is measured in seconds per vehicle (average intersection delay for signalized intersections). Auto capacity is measured by the volume to capacity ratio (v/c ratio). (1) HCM 010 signalized intersection analysis methodology does not support this five-legged intersection configuration. Therefore, this intersection is evaluated using HCM 000 signalized intersection methodology. Page 6

7 Bicycle Lane Project San Pablo Avenue 1 Martin Luther King, Jr. Way Jefferson Street 3 4 THOMAS L. BERKLEY WY (0TH ST) 19TH ST 980 Telegraph Avenue WILLIAM ST 18TH ST CASTRO ST 19TH ST SA PABLO AV 18TH ST 1 Clay Street San Pablo Avenue BROADWAY FRAKLI ST WEBSTER ST TELEGRAPH AV 18TH ST 17TH ST 16TH ST 17TH ST 3 MARTI LUTHER KIG JR way 4 JEFFERSO ST CLAY ST 16TH ST 15TH ST 14TH ST Study Intersection Existing Geometry.ai Source: BAYMETRICS Figure Intersection Lane Geometry - Existing Conditions

8 Existing Volumes.ai Bicycle Lane Project THOMAS L. BERKLEY WY (0TH ST) WILLIAM ST 19TH ST 18TH ST BROADWAY TELEGRAPH AV 17TH ST FRAKLI ST WEBSTER ST 16TH ST Figure 3 AM (PM) Peak Hour Intersection Traffic Volumes - Existing Conditions 19TH ST SA PABLO AV 18TH ST 17TH ST 16TH ST JEFFERSO ST CLAY ST 980 One Way Street Study Intersection 18TH ST CASTRO ST San Pablo Avenue MARTI LUTHER KIG JR way 15TH ST 43(45) 67(311) 19(8) 6(66) San Pablo Avenue 14TH ST Clay Street (10) 3(38) 9(10) 9(6) 13(10) 7(6) 5(1) 3(0) 1(0) 9(17) 0(0) Martin Luther King, Jr. Way 0(1) 7(5) 3(35) 111(400) 15(44) 1(1) 6(8) 3(1) 59(11) 6(0) 101(10) 10(8) 13(5) (0) 1(3) 3(6) 3(15) 1(7) 1(13) 36(7) 5(15) 1(0) 3(8) Jefferson Street 1(0) 11(5) 3(6) 1005(397) 110(37) (6) 0(3) 38(93) 41(39) 37(67) 7(1) 6() 17(6) 1(8) 4(17) 11() 8(0) 8(11) 9(5) 3(4) 0(6) 18(8) 3(0) 40(75) 606(381) 77(84) Telegraph Avenue 0(13) 1(168) 1(3) 163(15) 6(87) 41(18) 6(1) LEGED 43(45) Vehicle volume 11(3) 3(5) (3) 0(18) (59) 17(71) 5(39) 34(47) 5(1) 7(6) 43(45) Bicycle volume Pedestrian volume Illegal Movement volume 9(5) 31(64) 0(0) (10) 5(35) 0 (0) 1(3) 44(6) 3(7) 61(101) 8(15) 8(98) 15(0) 54(109) 6(54) 6(3) 8(11) 3(7) 0(0)

9 August, 014 Intersection Table 5: Multimodal Intersection Levels of Service Existing Conditions Mode Approach Direction AM Peak Hour PM Peak Hour Score LOS Score LOS 1 Eastbound 3.19 C.86 C Bike orthbound.6 B.67 B 17th St / Southbound.65 B.67 B Martin Luther Eastbound.48 B.7 B King Jr Wy Westbound.45 B.8 B Ped orthbound.39 B.1 B Southbound.17 B.19 B Eastbound.97 C.66 C Bike orthbound.61 B.69 B Southbound.56 B.58 B 17th St / Eastbound.48 B.9 B Jefferson St Westbound.44 B.7 B Ped orthbound.33 B.3 B Southbound.14 B.16 B 3 Eastbound 3.40 C.99 C Bike orthbound.45 B.54 B 17th St / San Southbound.91 C 3.00 C Pablo Ave / Eastbound.4 B.4 B Clay St Westbound.8 B.0 B Ped orthbound.3 B.30 B Southbound.38 B.40 B 4 Eastbound.96 C.78 C Bike orthbound.37 B.43 B 17th St / Southbound.46 B.53 B Telegraph Ave Eastbound. B.1 B Ped Westbound.3 B.1 B orthbound.3 B.37 B Southbound.5 B.9 B Source: AECOM, 014. otes: Bike = Bicycle. Ped. = Pedestrian. St = Street. Wy = Way. Ave = Avenue. Bicycle and pedestrian level of service is calculated using HCM 010 MMLOS methodology. Bicycle and pedestrian multimodal level of service scores are provided for each intersection approach. The LOS results presented in Table 4 and Table 5 are confirmed through field observations of intersection operations during peak periods. Where traffic was observed to operate in a manner different than as initially programmed into the Synchro/SimTraffic modeling software, appropriate adjustments are made in order to better reflect actual operating conditions. An example where an adjustment may be warranted would include an intersection approach striped to include one all-movement lane that is wide enough to accommodate two vehicle widths, allowing for right-turning vehicles to bypass queued vehicles and complete a right turn. Were the Synchro traffic modeling software to represent such an approach as one all-movement lane only, delay for right-turning vehicles would be misrepresented. Adjustments made to the traffic analysis in order to accurately depict existing traffic operations include: / Telegraph Avenue The eastbound approach to this intersection is striped with one through-left turn lane, one through lane, and one shared through-right lane. The eastbound approach to the / Broadway intersection is striped with one left-turn turn only lane, one through lane, and one shared through-right lane. A lower utilization of the leftmost travel lane (through-left lane at Telegraph Avenue to left-turn only lane at Broadway) was identified during field observations. As such, lane utilization adjustments are assumed in the analysis to account for the higher usage of the rightmost through travel lanes. Additionally, during field observations, queue lengths of two to three vehicles were observed to accrue at the closely spaced / Broadway intersection during the peak 15- minutes of the peak period. To ensure that the effects of the residual delay and oversaturation queues are accounted for, and represented in the Synchro results, a SimTraffic microsimulation model was used to simulate conditions of these closely spaced intersections. Page 9

10 August, 014 / San Pablo Avenue / Clay Street HCM 010 analysis methodology for signalized intersections does not support this five-legged intersection configuration. Therefore, this intersection is evaluated using HCM 000 signalized intersection methodology. As shown in Table 4 and Table 5, all study intersections currently operate at acceptable levels (LOS E or better for intersections within the Downtown Oakland area). The LOS calculation sheets are provided in Appendix A. Existing Roadway Operations Daily (4-hour) traffic counts were collected on three consecutive non-holiday weekdays (Tuesday, July 16 through Thursday, July 18, 014). Existing daily (4-hour) weekday traffic volumes on between Martin Luther King Jr Way and Jefferson Street are illustrated in Figure 4 and summarized in Table 6. Table 6: Arterial Roadway Segment Level of Service Existing Conditions Hour (beginning) Existing Conditions Volume v/c ratio LOS 1:00 AM A 01:00 AM A 0:00 AM A 03:00 AM A 04:00 AM A 05:00 AM A 06:00 AM A 07:00 AM A 08:00 AM 1, B 09:00 AM B 10:00 AM A 11:00 AM A 1:00 PM A 01:00 PM A 0:00 PM A 03:00 PM A 04:00 PM A 05:00 PM A 06:00 PM A 07:00 PM A 08:00 PM A 09:00 PM A 10:00 PM A 11:00 PM A 1:00 PM A Daily 7, A Source: Baymetrics, 014; AECOM, 014. otes: Volume = vehicles per hour. v/c ratio = volume to capacity ratio. LOS = Level of Service. Existing Conditions assumes a four lane one-way eastbound arterial roadway with a capacity of 600 vehicles per hour per lane (total capacity =,400 vehicles per hour). Counts conducted on Tuesday, July 15, 014. The capacity of an arterial depends on a number of factors, including its geometry (e.g., number and width of travel lanes) and characteristics of traffic control (e.g., signal cycle time, green time, and control delay) at intersections along the segment. As intersections and access are accommodated on arterials, conflicts are introduced in the travel stream and the facility s carrying capacity is reduced. Based on the existing roadway configuration, intersection spacing and signal control, the assumed capacity for is 600 vehicles per hour per lane (vphpl). Therefore, the study roadway segment,, between Martin Luther King Jr Way and Jefferson Street has a total capacity of,400 vehicles per hour. Page 10

11 Bicycle Lane Project 3,000,500 4-lane Capacity =,400 vph, between Marn Luther King Jr Way and Jefferson Street Hourly (4-Hour) Traffic Volumes Tuesday Wednesday Thursday 4-lane Capacity 3-lane Capacity,000 1,500 1, :00 AM 1:00 AM :00 AM 3:00 AM 4:00 AM 5:00 AM 6:00 AM 7:00 AM 8:00 AM 9:00 AM 10:00 AM 11:00 AM 1:00 PM 1:00 PM :00 PM 3:00 PM 4:00 PM 5:00 PM 6:00 PM 7:00 PM 8:00 PM 9:00 PM 10:00 PM 11:00 PM Hourly Traffic Volume 3-lane Capacity = 1,800 vph Peak Hour (8-9am) Volume: 1,150 vehicles Daily 4 hrs Traffic Volumes.ai Hour (beginning) Figure 4 Daily (4-hour) Traffic Volumes

12 August, 014 As shown in Table 6, carries approximately 8,000 vehicles per day with a peak hour (between 8:00 AM and 9:00 AM) volume of 1,150 vehicles traveling eastbound between Martin Luther King Jr Way and Jefferson Street. This study arterial roadway segment currently operates at acceptable LOS B between 8:00 AM and 10:00 AM and at acceptable LOS A during all other hours of the day. Detailed calculations for the roadway segment analysis are included in Appendix B. Existing Transit Service Public transportation in the study area includes Alameda-Contra Costa Transit District (AC Transit) and Bay Area Rapid Transit (BART). AC Transit is the primary bus service provider for 13 cities and adjacent unincorporated areas in Alameda County and Contra Costa County with Transbay service to destinations in San Francisco, San Mateo and Santa Clara counties. Several local routes (including the Broadway Shuttle which provides free service through Downtown Oakland along Broadway) and night-service routes operate in the vicinity of the Project. There are no existing bus routes along. AC Transit bus routes operate along Broadway in the vicinity of the Project. BART is the regional rapid transit provider and connects the project study area and its surroundings to other parts of Alameda County, Contra Costa County, San Francisco, and northern San Mateo County. The BART system operates trains along five routes: (1) Richmond Fremont; () Richmond Millbrae/Daly City; (3) Dublin/Pleasanton Daly City; (4) San Francisco International Airport/Millbrae Pittsburg/Bay Point; and (5) Fremont Daly City. The closest BART Station to the project site is the 19th Street Oakland BART Station located within 0.5 mile. The BART lines that serve the 19th Street Oakland BART Station include the Richmond- Fremont, Richmond-Daly City, and Daly City-Pittsburg / Bay Point lines. Existing Bicycle etwork Existing and planned bicycle facilities in the study area are shown in Figure 1. Bicycle facilities are classified into the following types: Class 1 Path Also known as a bicycle path, this is a dedicated path for bicyclists and pedestrians that does not permit motorized travel. Bicycle paths create a relaxed environment for non-motorized travel and reduce the risk of potential conflict between vehicles and bicyclists. These facilities are typically located in parks or greenway areas, areas connecting dead-end streets, or atop railroad right-of-way that is no longer in use. There are no existing Class 1 bicycle paths in the study area. Class Bicycle Lane Also known as a bicycle lane, this is a portion of the roadway network that has been striped and signed for bicycle use. Implementation of Class facilities requires sufficient right-ofway between the vehicle stream and the curb or curbside parking. Bicycle lanes are typically used along collector or major streets with medium to high traffic volumes, providing additional travel space for bicyclists along busy roadway segments. Franklin Street (northbound) and Webster Street (southbound) provide Class bicycle lanes in the study area. Class 3 Bicycle Route Also known as a bicycle route, this is a bikeway that primarily serves to connect other facilities and destinations in the bikeway network but provides a lower level of service than Class 1 or Class bikeway facilities. These routes often include signage and/or roadway markings such as shared lane bicycle stencils (commonly referred to as sharrows) but do not have striping to indicate reserved space for the bicyclist. o o Class 3A Arterial Bicycle Route These facilities are found along some arterial streets where bicycle lanes are not feasible and parallel streets do not provide adequate connectivity. Speed limits as low as 5 mph, shared lane bicycle stencils, wide curb lanes, and signage are used to encourage shared use. Existing Class 3A arterial bicycle routes in the study area include: Martin Luther King Jr Way, from San Pablo Avenue to nd Street; San Pablo Avenue, from 0th Street to 16th Street; Clay Street, south of 14th Street; and 0th Street, from San Pablo Avenue to Harrison Street. Class 3B Bicycle Boulevards These facilities are found along residential streets with low traffic volumes. Assignment of right-of-way to the route, traffic calming measures and bicycle traffic signal actuation are used to prioritize through-trips for bicycles. There are no existing Class 3B bicycle boulevards in the study area. Page 1

13 August, 014 Bicycle counts were conducted at all study intersections. Additionally, observations of bicycle activity within the study area indicate a moderate level of bicycle activity within the Project area, primarily concentrated along the designated bicycle routes and along Telegraph Avenue. Bicycle traffic is highest during the morning and evening peak periods. There is generally a somewhat steady stream of bicycle traffic along and cross-streets within the Project area during these times as workers commute to/from their place of employment by bicycle. Field observations indicated that there is potential for bicycle conflicts between vehicles and bicycles along 17th Street due to moderate bicycle traffic and right-turning vehicles. Due to heavy pedestrian volumes along San Pablo Avenue and Telegraph Avenue, there is also the potential for conflicts between bicycles and pedestrians at crosswalks. Although the potential for conflicts exists on other streets within the Project area, the lower volume of bicyclist activity reduces the magnitude and effect of these conflicts. Existing Pedestrian etwork The Project is located in Downtown Oakland. The City of Oakland s Pedestrian Master Plan (PMP) (00) designates Downtown Oakland as a Pedestrian District based on a pedestrian-friendly street grid, high levels of pedestrian activity, and a high density of pedestrian trip generators, including commercial, residential, cultural, and recreational uses within walking distance (PMP, 00). The study area includes the following PMP designated pedestrian routes: Primary Pedestrian Route Primary pedestrian routes are those streets with the highest pedestrian use and the best connectivity. Existing primary pedestrian routes in the study area include: Martin Luther King Jr Way; San Pablo Avenue; Clay Street, from to 14th Street; Telegraph Avenue; and Broadway. Secondary Pedestrian Route Secondary pedestrian routes are those streets with significant pedestrian use and excellent connectivity. Existing secondary pedestrian routes in the study area include 0th Street, east of San Pablo Avenue and, east of San Pablo Avenue. Within the study area, pedestrian facilities, including sidewalks, crosswalks, and pedestrian signals are provided at most locations. Sidewalks varying in width from five to eight feet are provided on both sides of within the Project area. However, the effective width of each sidewalk is often less due to obstructions such as street trees, lamp posts, and other objects. Striped crosswalks measuring at least ten feet in width with pedestrian curb ramps are provided at all crossing locations, although some are not Americans with Disabilities Act (ADA)-compliant and lack tactile warning systems such as truncated domes. Pedestrian counts were conducted at all study intersections. Additionally, field observations of pedestrian activity within the study area indicate that the highest concentration of pedestrian activity occurred along San Pablo Avenue, Telegraph Avenue, and Broadway during both the AM and PM periods. Collision History Collision history was examined for the most recent six years of available data (January 1, 007 to December 31, 01) on, from Castro Street to Broadway within Downtown Oakland. All collisions involving vehicles, bicycles, and/or pedestrians were noted, and collision rates (collisions per one million entering vehicles) were determined. Average daily traffic volumes are assumed to be ten times the AM peak hour intersection volume at each location. The six-year (007-01) intersection collision data is summarized in Table 7. Primary causal factors (e.g., right-of-way violation, unsafe speed, improper turning) of each incident were examined to determine the cause of the collisions. The primary causal factors are summarized in Table 8. Collision history data can be found in Appendix C. As shown in Table 7 and Table 8, 137 collisions (75 injuries and one fatality) occurred during the six-year period between January 1, 007 and December 31, 01 on the 0.39 mile segment of, from Castro Street to Broadway. Over this time period, one collision (less than one percent) involved a bicyclist and seven collisions (approximately five percent) involved a pedestrian. Pedestrians were at fault in one of these seven collisions. Page 13

14 August, 014 Table 7: Intersection Collision History Six-Year (007-01) Summary Intersection Involved with Veh. Bike (1) Ped. () Other (3) Total AM Peak Hour Vol. Injuries Collision Rate (4) 1 17th St / Castro St , th St / Martin Luther King Jr Wy , th St / Jefferson St (5) , th St / Clay St / San Pablo Ave , th St / Telegraph Ave ,070. (6) 6 17th St / Broadway , Total / Average Rate: , Source: City of Oakland, 014; AECOM, 014. otes: Ped. = pedestrian. Vol. = volume, Veh. = vehicle. St = Street. Wy = Way. Ave = Avenue. (1) Detection (usually video detection) for bicycles is typically a consideration for intersections with collisions involving bicycles. () Pedestrian countdown signals are typically a consideration for intersections with collisions involving pedestrians. (3) Includes collisions with objects and collisions marked as ot Stated, Fixed Object, or Unknown. (4) Collision rate measured as collisions per million vehicles entering the intersection. (5) One fatality occurred at this location. (6) Collision rate exceeds average rate of 1.33 for a similar facility (urban signalized intersection). Table 8: Intersection Collision Primary Causal Factors Six-Year (007-01) Summary Factors Intersection Auto ROW Violation Traffic Signals and Signs Unsafe Speed Other Haz. Mvmt. Improper Turning Unknown / Other / ot Stated 1 17th St / Castro St (1) 17th St / Martin Luther King Jr Wy th St / Jefferson St th St / Clay St / San Pablo Ave th St / Telegraph Ave th St / Broadway (,3) Total: Source: City of Oakland, 014; AECOM, 014. otes: ROW = right-of-way. Haz. = Hazardous. Mvmt = Movement. St = Street. Wy = Way. Ave = Avenue. (1) Pedestrian-vehicle collision. Primary collision factor was a pedestrian violation. () Vehicle-pedestrian collision. Primary collision factor was a pedestrian ROW violation. (3) Primary collision factors were as follows: 1. driving under the influence; and. driving on the wrong side of the road. The collision rates shown in Table 7 represent collisions per million vehicles entering the intersection. With the exception of the / Telegraph Avenue intersection, collision rates are lower than the reported average collision rate of 1.33 for urban signalized intersections. However, it should be noted that collision rates are not the best measure of an intersection s safety performance as the collision rate does not take into account the type or severity of a collision, among other factors. Federal Highway Administration. Assessment of Statewide Intersection Safety Performance Final Report SPR 667. Prepared by Oregon Department of Transportation. June 011. Page 14

15 August, 014 Regulatory Setting The Oakland General Plan comprises numerous elements, and those containing policies relevant to transportation resources primarily are contained in the Land Use and Transportation Element (LUTE). The goals and policies contained in the various General Plan Elements are often competing. In reviewing a project for conformity with the General Plan, the City is required to balance the competing goals and policies. This project is reviewed for compliance with the following local plans and policies: City of Oakland General Plan LUTE; City of Oakland Pedestrian Master Plan; City of Oakland Bicycle Master Plan; City of Oakland Complete Streets Policy; Alameda County Transportation Commission Congestion Management Plan; Metropolitan Transportation Commission and Association of Bay Area Governments Plan Bay Area; AC Transit Short-Range Transit Plan; BART Strategic Plan; and City of Oakland Standard Conditions of Approval. The Downtown area is defined in the Land Use and Transportation Element of the General Plan as the area generally bounded by West Grand Avenue to the north; Lake Merritt and Channel Park to the east; the Oakland Estuary to the south; and I-980/Brush Street to the west. All of the four study intersections are located within the Downtown area, and are thus subject to the Downtown area evaluation criteria. Evaluation Criteria As specified in the scope of work, the project was evaluated using the following evaluation criteria: Traffic Load and Capacity Criteria 1. At a study, signalized intersection which is located outside the Downtown area and that does not provide direct access to Downtown, the project would cause the motor vehicle level of service (LOS) to degrade to worse than LOS D (i.e., LOS E or F) and cause the total intersection average vehicle delay to increase by four (4) or more seconds;. At a study, signalized intersection which is located within the Downtown area or that provides direct access to Downtown, the project would cause the motor vehicle LOS to degrade to worse than LOS E (i.e., LOS F) and cause the total intersection average vehicle delay to increase by four (4) or more seconds; 3. At a study, signalized intersection outside the Downtown area and that does not provide direct access to Downtown where the motor vehicle level of service is LOS E, the project would cause the total intersection average vehicle delay to increase by four (4) or more seconds; 4. At a study, signalized intersection outside the Downtown area and that does not provide direct access to Downtown where the motor vehicle level of service is LOS E, the project would cause an increase in the average delay for any of the critical movements of six (6) seconds or more; 5. At a study, signalized intersection for all areas where the level of service is LOS F, the project would cause (a) the overall volume-to-capacity ( v/c ) ratio to increase 0.03 or more or (b) the critical movement v/c ratio to increase 0.05 or more; 6. At a study, unsignalized intersection the project would add ten (10) or more vehicles to the critical movement and after project completion satisfy the California Manual on Uniform Traffic Control Devices (MUTCD) peak hour volume traffic signal warrant; 7. For a roadway segment of the CMP etwork, the project would cause (a) the LOS to degrade from LOS E or better to LOS F or (b) the v/c ratio to increase 0.03 or more for a roadway segment that Page 15

16 August, 014 would operate at LOS F without the project; 8. Cause congestion of regional significance on a roadway segment on the Metropolitan Transportation System evaluated per the requirements of the Land Use Analysis Program of the CMP; or 9. Result in substantially increased travel times for AC Transit buses; Traffic Safety Criteria 10. Directly or indirectly cause or expose roadway users (e.g., motorists, pedestrians, bus riders, bicyclists) to a permanent and substantial transportation hazard due to a new or existing physical design feature or incompatible uses; 11. Directly or indirectly result in a permanent substantial decrease in pedestrian safety; 1. Directly or indirectly result in a permanent substantial decrease in bicyclist safety; 13. Directly or indirectly result in a permanent substantial decrease in bus rider safety; or 14. Generate substantial multi-modal traffic traveling across at-grade railroad crossings that cause or expose roadway users (e.g., motorists, pedestrians, bus riders, bicyclists) to a permanent and substantial transportation hazard. Other Criteria 15. Fundamentally conflict with adopted City policies, plans, or programs regarding public transit, bicycle, or pedestrian facilities adopted for the purpose of avoiding or mitigating an environmental effect and actually result in a physical change in the environment; 16. Result in a substantial, though temporary, adverse effect on the circulation system during construction of the project; or 17. Result in a change in air traffic patterns, including either an increase in traffic levels or a change in location that results in substantial safety risks. Additional Criteria The City of Oakland assesses all modes of travel in the consideration of proposed projects. However, the City of Oakland does not currently have an accepted methodology or evaluation criteria for multimodal (pedestrian and bicycle) level of service. It should be noted that the City is accepting the HCM 010 methodology in this case to generally acknowledge the Project s benefit to bicyclists and pedestrians. As such, pedestrian and bicycle scores and level of service are presented in this study for informational purposes only. It should be noted that the City of Pasadena is updating the impact analysis guidelines to reflect the addition of MMLOS components in line with the city s Complete Street vision. Pasadena continues to use intersection capacity utilization and MMLOS methodologies to assess impacts of specific projects and plans. However, the MMLOS approach has only been used in comparison with the currently adopted vehicular-based significant impact thresholds. 3 On-Street Parking The City s Bicycle Master Plan requires City Council approval of bikeway projects that remove 10 percent or more of the on-street parking within a project area. Collision History This document evaluates six years (007-01) of vehicle, pedestrian, and bicycle collision data for, from Castro Street to Broadway, to identify collision characteristics of the study area. Determination of whether 3 Mike Bagheri, PE. City of Pasadena Complete Streets Transportation Review Guidelines. Institute of Transportation Engineers Technical Conference. 01. Page 16

17 August, 014 the project would contribute to an existing problem, or if any improvements are recommended in order to alleviate potential effects of the project, are addressed by the Traffic Safety Criteria enumerated above. Project Conditions Analysis This section describes and analyzes the potential impacts of the Project on the transportation network. This transportation impact assessment conforms to the requirements and methodologies of the City of Oakland, and the Alameda County Transportation Commission (ACTC) guidelines. The analysis evaluates the traffic-related impacts of the Project during both the weekday morning and evening peak hours (defined as the peak four consecutive 15-minute periods, between the hours of 7:00-9:00 AM and 4:00-6:00 PM), for the following scenarios: Existing Conditions Represents existing conditions with volumes obtained from recent traffic counts; Existing Plus Project Conditions Existing conditions plus roadway network changes implemented by the Project; and, Growth Scenario Evaluates the potential traffic growth that could be accommodated along the corridor while continuing to operate at acceptable levels of service. As currently proposed, the Project would reconfigure to provide a Class bicycle facility (bicycle lane) in the rightmost lane. The new configuration would remove one (1) vehicular travel lane and add a six (6) to seven (7) foot wide striped bicycle lane with a two () to three (3) foot striped buffer. o parking spaces would be removed as part of this Project. A conceptual striping plan is illustrated in Figure 5 and the proposed intersection lane geometry for each of the four signalized study intersections in shown in Figure 6. Existing plus Project Conditions Intersection Evaluation Existing Conditions and Existing plus Project Conditions automobile intersection LOS and critical movement volume to capacity ratio analysis results are summarized in Table 9. Existing Conditions and Existing plus Project Conditions multimodal intersection level of service results are summarized in Table 10. As currently proposed, the eastbound () approaches to Jefferson Street, Clay Street, and Telegraph Avenue are striped according to California Department of Transportation pavement marking standards to accommodate the merging of right-turning vehicles into the bicycle lane 100 feet prior to the intersection to complete a right-turn maneuver as close as practicable to the right hand curb or right edge of the roadway (CVC 100). The merging and weaving of bicycles and vehicles would likely reduce the capacity of the eastbound through and right-turn movements. However, it should be noted that the existing conflicting bicycle volumes are low and bicyclists would not be expected to cause motorists substantial delays. As recommended by the City, theses intersections were modeled assuming a 100 foot right-turn pocket (see Figure 6). The right-turn pocket could be lengthened if required based on the queue lengths at these locations. However, some existing on-street metered parking spaces would likely need to be removed to accommodate a longer turn lane. Auto Level of Service As shown in Table 9, all four study intersections would operate acceptably under Existing Conditions and would continue to operate at acceptable levels of service during the AM and PM peak hours with the Project. The Project would result in a material degradation in level of service (LOS B to LOS C) for autos at / Jefferson Street and / Telegraph Avenue during the AM peak hour. Additionally, the Project would result in a slight increase in average intersection delay (maximum increase of five seconds per vehicle) at all study intersection locations during both the AM and PM peak hours. The Project would increase the volume to capacity ratios on the critical eastbound through movement at all study intersections by between 0.07 and 0.4 during the weekday AM peak hour and between 0.0 and 0.16 during the weekday PM peak hour. As shown in Table 9, the Project would result in a material degradation in levels of service on the critical eastbound through movement at / San Pablo Avenue / Clay Street (LOS A to LOS B) and / Telegraph Avenue intersection ( LOS A to LOS C) during the weekday AM peak hour. Page 17

18 Bicycle Lane Project MATCH LIE A MATCH LIE A LEGED STRIPIG COSTRUCTIO OTE UMBER DETAIL UMBER PER CALTRAS STD PLAS Traffic lines as cardinal number Arrows as roman numeral TRAFFIC SIGAL CROSSWALK/LIMIT LIE (SOLID OE FOOT WHITE LIE) CROSSWALK/LIMIT LIE (SOLID OE FOOT YELLOW LIE) ETR LF SF CR FC FIRE HYDRAT BLUE FIRE HYDRAT MARKER EXISTIG TO REMAI LIEAR FEET SQUARE FEET CURB RETUR FACE OF CURB COSTRUCTIO OTES BIKE LAE SYMBOL & ARROW Install bike lane symbol and bike lane arrow markings 0 feet after curb return (as measured from base of symbol) and/or as noted. Space symbol and arrow 6 feet apart. See Detail. SHARROW Install first sharrow marking 0 feet after curb return or as noted. Install other sharrow markings as noted. See Detail. PARKIG TEE Install short stem toward curb, distance measured from center of cross. Spacing between tees to be determined by engineer. See Detail. BIKE DETECTOR SYMBOL Install bike detector pavement marking 6 feet from lane line and 1 foot from limit line or as noted. See Detail. SPEED HUMP STRIPIG Install 1 foot white stripes on speed humps, 5 feet apart, on center. See Detail. LADDER CROSSWALK Install foot stripes spaced feet apart, bounded by standard 1 foot crosswalk stripes, white unless otherwise noted. See Detail. WHITE BUFFER STRIPIG Install 6 inch white striping every 8 feet at 45 degree angle. YELLOW BUFFER STRIPIG Install 6 inch yellow striping every 8 feet at 45 degree angle. REMOVE COFLICTIG STRIPIG REMOVE COFLICTIG MARKIGS GRAPHIC SCALE (I FEET) 0' 40' 80' 160' CITY OF OAKLAD BUREAU OF EGIEERIG AD COSTRUCTIO 50 FRAK H. OGAWA PLAZA, SUITE 4344 * OAKLAD CA, 9461 (510) * FAX (510) TH ST CASTRO ST TO BROADWAY REVIEWED BY DESIGED BY DRAW BY PETER CHU JASO PATTO RH o. DATE BY REFERECE STRIPIG PLA (DRAFT) SCALE: 1"=80' DATE: PROJECT O. C SHEET O. Aug OF Striping Plan.ai Figure 5 Conceptual Striping Plan

19 Bicycle Lane Project CASTRO ST Martin Luther King, Jr. Way 18TH ST 19TH ST Jefferson Street EB SB B 17th San San ST Pablo Pablo 3 Clay St Cycle = 60", 60", 60" 4' PARKIG 1' 11' 1' 8' 11' 11' 1' 6' 11' 7' 10' 7' 10' PARKIG 100' 100' EB SB WB 3' buffer B lane 3' buffer lane EB SB WB B ' buffer zone 3' buffer lane ' buffer zone 1 1 Cycle = 60", 60", 60" Cycle = 60", 60", 60" THOMAS L. BERKLEY WY (0TH ST) WILLIAM ST San Pablo Avenue ' Telegraph Avenue 11' 11' 18' EB SB WB B 1 Cycle = 60", 60", 60" SA PABLO AV 19TH ST Clay Street San Pablo Avenue 18TH ST 1 MARTI LUTHER KIG JR way 16TH ST 17TH ST 3 18TH ST TELEGRAPH AV BROADWAY 15TH ST JEFFERSO ST CLAY ST 17TH ST 16TH ST 4 FRAKLI ST WEBSTER ST 14TH ST Study Intersection Existing + Project Geometry.ai Source: City of Oakland Figure 6 Intersection Lane Geometry - Existing with Project Conditions