4.3 TRAFFIC. Introduction. Approach and Methodology

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1 4.3 TRAFFIC Introduction This section summarizes a transportation study conducted for the proposed Corridor Plan and the Bay Meadows project prepared by Hexagon Transportation Consultants, Inc. 1 Copies of that study, entitled Bay Meadows Phase II and Transportation Corridor Plan Transportation Impact Analysis (February 2004), are available for public review at the City of San Mateo Planning Department. This section is organized in the following manner: Approach and Methodology lists the intersections and roadway segments analyzed and provides information on why they were chosen for analysis. A list of improvements assumed for each of the scenarios analyzed is also included. Baseline Conditions describes traffic, transit, and circulation conditions under baseline conditions, which includes all existing traffic plus projected traffic expected to be generated by unbuilt, but approved projects. Throughout the existing conditions discussion, references to the Corridor Plan Area include the Bay Meadows project site unless otherwise noted. Impacts and Mitigations lists the significance criteria used for determining impacts for the project and separately describes impacts for the Corridor Plan and the Bay Meadows project. Corridor Plan impacts are presented under two headings: Impacts Common to Both Corridor Plan Scenarios and, where appropriate, Scenario-Specific Impacts. Cumulative impacts for the Bay Meadows project were also analyzed. The Bay Meadows Cumulative discussion is broken into two subsections General Plan 2020 plus Bay Meadows (which looks at the cumulative impacts of the Bay Meadows project independent of the Corridor Plan) and Corridor Plan plus Bay Meadows (which looks at the expected impacts of all development permitted by the Corridor Plan together with the Bay Meadows project). Approach and Methodology Study Intersections and Roadway Segments Analysis The transportation study was completed with the City of San Mateo traffic model, which is a focused version of the San Mateo countywide model. The model transportation network includes all freeways and arterials in San Mateo County, as well as all collector streets in San Mateo. In addition, the model includes all transit systems, including Samtrans buses, Caltrain, and BART. This traffic analysis includes all freeway segments within San Mateo and freeway segments outside San Mateo that would experience traffic increases greater than 1 percent of the segment capacity. The analysis includes all freeway interchange ramps within the Corridor Plan Area. The City of San Mateo monitors 60 signalized intersections throughout the city. This traffic analysis includes the portion of the 60 signalized intersections that could potentially experience traffic increases of greater than 1 percent of capacity. Initial runs of the City traffic model were used to identify the 1 This section incorporates by reference all of the sources from that report. San Mateo Corridor Plan and Bay Meadows Specific Plan Amendment EIR EDAW, Inc.

2 intersections that meet this criterion. Any traffic increases of less than 1 percent would be imperceptible and, therefore, insignificant. From this preliminary analysis 29 study intersections were chosen, as shown on Figure and listed below in Table No significant change in traffic volume on any street in Burlingame or Foster City was detected and thus no intersections or segments from those cities are included in this analysis. (Additional information on traffic volumes outside the City of San Mateo is provided in the transportation study). Freeway and roadway segments selected for study are listed in Table Traffic conditions were analyzed for the two periods when the most congested traffic conditions occur on an average day, the AM and PM peak hours. With commuters trips, traffic volumes are highest during two peak hour 2 periods during the day. The AM peak hour of traffic generally occurs between 7:00 and 9:00 AM, and the PM peak hour between 4:00 and 6:00 PM. Therefore, delays at intersections and freeways during peak hours create a more serious issue than delays during midday. Generally, if a project has no transportation impacts during the peak hours, it would not have an impact during any other time periods. As such, delays and level of service during the peak hours are considered the most appropriate indicators to measure traffic impacts of developments. The analysis of impacts based on peak hour conditions is consistent with standard traffic engineering practices. Analysis Assumptions Several improvements and projects are planned or under construction in the project area, independent of the Corridor Plan and Bay Meadows project. In addition, implementation of either the Corridor Plan or the Bay Meadows project would include the construction of various intersection and roadway improvements. As part of the Citizen Advisory Committee (CAC) process, an economic consultant provided input as to the feasibility of funding various infrastructure options, given different development scenarios. Based on that input, and recognizing the independent projects, the following improvements were assumed in one or more of the analysis scenarios utilized for the assessment of traffic impacts (see descriptions below). Caltrain Improvements and Grade Separations The Peninsula Corridor Joint Powers Board (JPB), which oversees Caltrain operations, has plans to construct a new Caltrain station. The new Caltrain station, which would be built between 28th and 31st Avenues in San Mateo, would replace the existing Hillsdale and Bay Meadows stations and would be a stop for the proposed high-speed Express Service train. This relocation is part of the Phase II Caltrain Express Service improvements that include adding two tracks (for a total of four tracks) through the Corridor Plan Area and construction of a grade-separated rail crossing (also know as a grade separation) at 25th Avenue. 2 Peak hour is defined as the hour when heaviest daily traffic volume occurs and generally occurs during morning and afternoon commute times. Traffic counts are obtained during AM and PM peak periods (two- to three-hour periods) and the volume from the hour of heaviest AM and PM traffic is used to define peak hour for those time periods. San Mateo Corridor Plan and Bay Meadows Specific Plan Amendment EIR EDAW, Inc.

3 San Mateo Belmont Ralston N City Boundary Study Intersections Corridor Plan Area Bay Meadows Project Site Source: Hexagon Transportation Consultants, Inc., 2003 San Mateo Corridor Plan and Bay Meadows Specific Plan Amendment EIR FIGURE Transportation Analysis Study Intersections February 2004

4 Table Study Intersections and Freeway/Roadway Segments STUDY INTERSECTIONS Delaware Street El Camino Real Grant Street Route 101 Saratoga Drive SR 92 Norfolk Street FREEWAY AND ROADWAY SEGMENTS SR 92 CROSS STREETS at Saratoga Drive at 19 th Avenue at 25 th Avenue at 28 th Avenue (planned intersection) at 31 st Avenue (planned intersection) at Concar Drive at 9 th Avenue at 17 th Avenue/Bovet Road at 20 th Avenue at 25 th Avenue at 28 th Avenue at 31 st Avenue at 41 st Avenue at 3 rd Avenue at 4 th Avenue at Barneson Avenue at Crystal Springs Road at Hillsdale Boulevard at Ralston Avenue (in Belmont) at 19 th Avenue at Concar Drive Northbound Ramp at Hillsdale Boulevard Southbound Ramp at Hillsdale Boulevard Southbound Ramp at Fashion Island Boulevard at Franklin Parkway at Hillsdale Boulevard Westbound Ramps at Concar Drive at Hillsdale Boulevard at Fashion Island Boulevard CROSS STREETS East of El Camino Real West of El Camino Real East of US 101 (in Foster City) US 101 North of SR 92 South of SR 92 I-280 North of SR 92 Delaware Street from 9 th to 25 th Avenue El Camino Real from 9 th to 25 th Avenue Franklin Parkway entire segment Hillsdale Boulevard from SR 92 to Norfolk Avenue 28 th Avenue from Alameda de las Pulgas to El Camino Real 31 st Avenue from Alameda de las Pulgas to El Camino Real Palm Avenue from SR 92 to 25 th Avenue Pacific Boulevard from downtown to 41 st Avenue The 25 th Avenue grade separation is a partially funded project that is expected to occur and its implementation is not related to approval of the Corridor Plan or the Bay Meadows project. Construction of the new station and grade separation are planned JPB projects to be funded partially by the Measure A Sales San Mateo Corridor Plan and Bay Meadows Specific Plan Amendment EIR EDAW, Inc.

5 Tax Expenditure Plan and partially by other sources as yet unidentified. The project is currently in the planning design phase. The planned JPB improvements are included in the Corridor Plan and the Bay Meadows project. However, their design and implementation are not under City control. Caltrans State Route 92 Interchange Improvements In addition to the improvements planned by the JPB, Caltrans has prepared a Project Study Report (PSR) for four possible designs for improvements to the interchanges of SR 92 with El Camino Real and SR 92 with Delaware Street. Although the PSR improvements are planned, they are not fully funded and their implementation is uncertain. The PSR design improvements are considered in this analysis for their potential to affect project impacts. Recently Completed Roadway Improvements The following improvements were under construction at the time of EIR scoping, and are now complete: Grant Street and 19th Avenue: Addition of a second southbound left-turn lane. Delaware Street and Concar Drive: Addition of an eastbound right-turn lane and a second northbound left-turn lane. Southbound US 101 and Fashion Island: Addition of a second southbound left-turn lane and second eastbound through lane. El Camino Real and Hillsdale Boulevard: Addition of a northbound right-turn lane to eastbound Hillsdale Boulevard. Corridor Plan and Bay Meadows Project Improvements In addition to the planned improvements described above, several different roadway improvements are proposed by each of the proposed projects. These improvements include: Delaware Street Extension: A connection of Delaware Street to Pacific Boulevard is a part of the General Plan Circulation Element. Currently, this connection is not possible because it would pass through the parking lot of the Bay Meadows racetrack. The connection is included in the General Plan as a 4-lane arterial and is intended to provide an alternative to El Camino Real for City of San Mateo trips (not regional traffic), but also not strictly local neighborhood trips. However, for the Bay Meadows project and the Corridor Plan, the Delaware Street connection is proposed as two lanes with on-street diagonal parking that would provide only local property access and access to the Hillsdale Caltrain station. Additional Grade Separations: In addition to the grade separation at 25 th Avenue that would be constructed by the JPB, grade separations are proposed within the Corridor Plan Area for 28 th Avenue and/or 31 st Avenue. A grade separation of 28 th Avenue at the Caltrain tracks and connection of 28 th Avenue between Saratoga Drive and El Camino Real is included in the Bay Meadows project and Corridor Plan Z. The connection would carry traffic that would ordinarily use 25 th Avenue or Hillsdale Boulevard to cross the railroad tracks. Corridor Plan Z also includes a grade separation at 31 st Avenue. Corridor Plan A does not include an additional grade San Mateo Corridor Plan and Bay Meadows Specific Plan Amendment EIR EDAW, Inc.

6 separation because the reduced level of development could not support the additional developer contribution towards the cost of such an improvement and other funding sources are unlikely. The Corridor Plan also acknowledges the potential need for a grade separation at 17 th Avenue if the future SR 92 improvements would restrict local access between El Camino Real and Delaware Street. Franklin Parkway Extension: The existing four-lane Franklin Parkway would be extended from its current terminus west of Saratoga Drive. At some point before connecting to Delaware Street/Pacific Boulevard, Franklin Parkway would transition to a two-lane roadway. Analysis Scenarios Corridor Plan A and Corridor Plan Z are the potential range of development scenarios that could occur by 2020 or later, depending on if the Corridor Plan is adopted. Each of these scenarios is compared to the existing San Mateo General Plan to determine transportation impacts. The Bay Meadows project is analyzed in a near term context, in which it is compared to existing and approved development (Baseline Conditions), as well as in a cumulative context. The development assumptions and major roadway improvements associated with each of the traffic analysis scenarios discussed in this section are described below and are compared in Table Baseline Conditions: Baseline conditions are defined as existing conditions plus development projects previously approved by the City of San Mateo. Baseline conditions also include the proposed (by the JPB) 25th Avenue grade separation and continuation of racing at the Bay Meadows Racetrack. This is a near-term scenario that is used as a basis of comparison for isolating the impacts of the Bay Meadows project from other development expected by Traffic volumes for Baseline conditions were developed using the San Mateo Transportation Model, which includes approved land uses for the City of San Mateo and Year 2000 land uses elsewhere in San Mateo County. The Baseline scenario includes the recently-completed roadway improvements listed above. Baseline + Bay Meadows: This scenario adds the Bay Meadows project to Baseline conditions. The Bay Meadows project (as described in the Bay Meadows Specific Plan Amendment submitted to the City) comprises 2.1 million square feet of office space, 1,500 residential dwelling units, and 100,000 square feet of retail space on the site of the existing racetrack. In addition to the 25 th Avenue grade separation, this scenario includes a grade separation at 28 th Avenue and a 2-lane extension of Delaware Street to Pacific Boulevard, both of which would be constructed as part of the Bay Meadows project. Corridor Plan A: Corridor Plan A assumes more development within the Corridor Plan Area than if development were to continue until 2020 under the provisions of the existing General Plan. This scenario comprises a total of 1,642 new housing units, a net increase of 1,173,387 square feet of office space, a net increase of 172,992 square feet of retail space, and a loss of 738,327 square feet of other development (industrial, warehouse/distribution, etc.) within the Corridor Plan Area compared to existing conditions. 3 Included in these totals are 900,000 square feet of office space, 50,000 square feet of retail space, and 600 dwelling units for the Bay Meadows site. 3 Although net figures are given, they are only estimates of square footage. Traffic volumes were determined using the city-wide model, and estimated net development was utilized to cross-check and verify model accuracy. San Mateo Corridor Plan and Bay Meadows Specific Plan Amendment EIR EDAW, Inc.

7 Table Development Scenarios Considered for Transportation Analysis ANALYSIS SCENARIO GRADE SEPARATIONS DELAWARE EXTENSION 25TH 28TH 31ST 4 LANE 2 LANE RACETRACK REMAINS RETAIL (SF) LAND USE TOTALS IN CORRIDOR PLAN AREA OFFICE (SF) HOUSING (UNITS) OTHER* (SF) Near-term Scenarios Baseline 9, , ,000 Baseline+Bay Meadows 100,000 2,100,000 1, ,600 Long-Term/Cumulative Scenarios General Plan , , ,630 General Plan 2020+BM 102,790 2,838,831 1, ,970 Corridor Plan A 172,992 1,173,387 1, ,327 Corridor Plan Z 422,992 3,400,387 4, ,327 Corridor Plan A+BM 222,992 2,373,387 2, ,327 Corridor Plan Z+BM 322,992 2,723,387 3, ,327 a Industrial, Warehouse/Distribution, Racetrack (Except for Baseline and General Plan 2020 Conditions, where Other = industrial and commercial uses only. b The land use totals provided here represent net figures, and are only estimates of square footage. Traffic volumes were determined using the city-wide model, and estimated net development was utilized to cross-check and verify model accuracy San Mateo Corridor Plan and Bay Meadows Specific Plan Amendment EIR EDAW, Inc.

8 Corridor Plan A includes only the 25 th Avenue grade separation (not 28 th Avenue) and a 2-lane extension of Delaware Street. Outside of the Corridor Plan Area, the land use assumptions are the same as the General Plan 2020 scenario. Corridor Plan Z: Corridor Plan Z assumes more development within the Corridor Plan Area than does Corridor Plan A. Corridor Plan Z comprises a total of 4,031 new housing units, a net increase of 3,400,387 square feet of office space, a net increase of 422,992 square feet of retail space, and demolition of 958,327 square feet of other development (industrial, warehouse/distribution, etc.) compared to existing conditions. 4 For the Bay Meadows site, Corridor Plan Z includes 2,777,000 square feet of office space, 200,000 square feet of retail space, and 1,900 dwelling units. This scenario includes a 2-lane extension of Delaware and grade separations at 28 th Avenue and 31 st Avenue in addition to 25 th Avenue. Outside of the Corridor Plan Area, the land use assumptions are the same as the General Plan 2020 scenario. Cumulative Scenarios General Plan + Bay Meadows: This scenario comprises the land use and transportation provisions included in the existing City of San Mateo General Plan. In place of the racetrack it includes the Bay Meadows project, comprising 1,500 new housing units, 2.1 million square feet of office space, and 100,000 square feet of retail space. Total new development in the Corridor Plan Area for this scenario compared to existing is as follows: an increase of 2,838,831 square feet of office space, an increase of 102,790 square feet of retail space, an increase of 1,571 dwelling units, and a decrease of 213,970 square feet of other development that would be replaced. This scenario includes the 25th Avenue and 28th Avenue grade separations, and a 2-lane extension of Delaware Street to Pacific Boulevard. Corridor Plan A + Bay Meadows: On the Bay Meadows site, this scenario substitutes the Bay Meadows project for what is included in Corridor Plan A. Since the Bay Meadows project is more intense than the development assumed in Corridor Plan A for the Bay Meadow site, this scenario has more total development than Corridor Plan A. Thus, this scenario has more intense development than Corridor Plan A. This scenario includes a 2-lane extension of Delaware Street and grade separations at 25 th and 28 th Avenues. Corridor Plan Z + Bay Meadows: On the Bay Meadows site, this scenario substitutes the Bay Meadows project for what is included in Corridor Plan Z. Since the Bay Meadows project is less intense than the development assumed in Corridor Plan Z, this scenario has less total development than Corridor Plan Z for the Bay Meadows site. This scenario includes a 2-lane extension of Delaware Street and grade separations at 25 th Avenue, 28 th Avenue and 31 st Avenue. For all of the cumulative scenarios, the assumed land use outside the Corridor Plan Area is consistent with ABAG 2020 projections. 4 Although net figures are given, they are only estimates of square footage. Traffic volumes were determined using the city-wide model, and estimated net development was utilized to cross-check and verify model accuracy. San Mateo Corridor Plan and Bay Meadows Specific Plan Amendment EIR EDAW, Inc.

9 Baseline Conditions 5 Intersection Levels of Service All signalized study intersections would operate at acceptable 6 levels of service under Baseline conditions. Improvements to the intersection of El Camino Real and Hillsdale Boulevard would change the level of service (LOS) from an unacceptable LOS D under existing conditions, to an acceptable LOS C under Baseline conditions, due to an added northbound right-turn lane on El Camino Real to eastbound Hillsdale Boulevard. This improvement was recently completed as a mitigation measure for the Bay Meadows Phase I project. Freeway Segment and Ramp Operations The westbound SR 92 off-ramp to northbound El Camino Real would exceed capacity under Baseline conditions during the PM peak hour, resulting in a volume to capacity (V/C) ratio of All other freeway ramps would operate within their capacity levels. All freeway ramps would operate within their capacity levels during the AM peak hour. Under Baseline conditions, the following four study freeway segments would operate at an unacceptable level of service: US 101, north of SR 92 in the southbound direction (PM). This freeway segment would operate at LOS F with a V/C ratio of SR 92, west of El Camino Real in the westbound direction (PM). This freeway segment would operate at LOS F. SR 92, east of El Camino Real in the westbound direction (PM). This freeway segment would operate at LOS E. SR 92, east of US 101 in the eastbound direction (PM). This segment would operate at LOS F. All freeway segments would operate at acceptable levels of service during the AM peak hour. Traffic demand for the freeway segments operating at LOS F would exceed the capacity (operating with a V/C ratio of 1.0 or greater) and these freeway segments would operate at capacity for more than one hour during the afternoon commute period. 5 Because Baseline conditions serve as the basis for analysis of near-term conditions, a description of Baseline conditions is provided here in lieu of a description of Existing conditions (the condition of things as they are today). 6 Refer to the significance criteria described below under Impacts and Mitigation for an explanation of acceptable and unacceptable conditions for intersection level of service and freeway operations. 7 V/C ratio is calculated for each travel direction by dividing the peak hour volume by the segment capacity. The V/C ratio on a segment is correlated to LOS classifications. San Mateo Corridor Plan and Bay Meadows Specific Plan Amendment EIR EDAW, Inc.

10 Neighborhood Streets Traffic conditions on streets in the Beresford Park neighborhood were analyzed for existing conditions with travel time runs and license plate surveys. The data collection showed that Hillsdale Boulevard, 31 st Avenue, and 28 th Avenue were all being used as through routes for travel between El Camino Real and I-280. In a two-hour count, the through traffic totaled about 240 vehicles on Hillsdale Boulevard, 150 vehicles on 31 st Avenue, and 55 vehicles on 28 th Avenue. However, total volumes on all three streets are within their design capacities, as expressed in the San Mateo General Plan, Circulation Element. Transit Existing transit services in the City include the following: SamTrans local, intercity, and express bus service; shuttle service; and Caltrain rail service. Local routes serve smaller areas, intercity routes connect to Caltrain and/or BART access points, and express routes make limited stops. In addition, AC Transit Line M provides regional express bus service between the Hillsdale Mall and Castro Valley. A park and ride lot is located at 19 th Avenue/Fashion Island Boulevard near the US 101/SR 92 interchange. Local SamTrans bus routes 53, 54, and 58 serve the Corridor Plan Area. Shuttles provide service between the Hillsdale and Hayward Park Caltrain station and local employment centers during commute hours. Aside from the new Caltrain Hillsdale station planned by the JPB, transit services under Baseline conditions would remain unchanged from existing conditions. The three Caltrain stations located within the project area account for nearly 6 percent of the total daily boardings of all 34 Caltrain stations. Because there are no assumed service changes under Baseline Conditions, SamTrans bus ridership and Caltrain rail ridership is expected to remain relatively unchanged from existing conditions. Ridership forecasts include the BART extension to Millbrae. In San Mateo County, approximately 52,000 passengers per day are forecasted to ride BART, approximately 11,000 are forecasted to ride Caltrain, and approximately 32,000 passengers are forecasted as passengers on the bus system. Transit riders account for 3 percent of the total daily trips in the Corridor Plan Area. Pedestrians and Bicycles Pedestrian facilities are found on many, but not all streets throughout the project area. A grade-separated pedestrian walkway located on Hillsdale Boulevard passes under the Caltrain tracks. Several streets in the project area have very narrow sidewalks or lack sidewalks. One potential project to improve pedestrian access in the area is the widening and reconstruction of the sidewalk on the north side of Concar Drive, which would be a condition of approval for the proposed Kenmark office project. Bicycle lanes are located on: Saratoga Drive; Hillsdale Boulevard, west of Hillsdale Mall; 19 th Avenue, between Delaware Street and US 101; and Palm Avenue, north of 17 th Avenue. Bicycle lockers are available at the Hillsdale and Hayward Park Caltrain stations. The City has completed improvements for bicycles San Mateo Corridor Plan and Bay Meadows Specific Plan Amendment EIR EDAW, Inc.

11 including Class II Bicycle Lanes on 19 th Avenue. Bicycle actuators at various El Camino Real intersections are planned but not yet constructed. Parking Parking facilities in the Corridor Plan Area include on-street parking and off-street lots. On-street parking is generally present on the collectors and local streets in the area, but not on the arterials, such as El Camino Real, Saratoga Drive and Hillsdale Boulevard. Most of the businesses and residences in the area have offstreet parking available on site. Exceptions occur along 25th Avenue, where there are zero setback buildings that rely on street parking, and along Palm Avenue, where there are apartment buildings that rely heavily on street parking. Public parking lots are available to serve both the Hillsdale and Hayward Park Caltrain stations. Generally, these do not fill up to capacity, and there is no spillover parking to surrounding streets and businesses. The San Mateo Expo Center also includes extensive surface parking lots. These are generally sufficient to serve Expo Center events, and there are no off-site impacts. During the 10 days of the annual County Fair, parking at the Bay Meadows site is used by the Expo Center. All new development projects are required to comply with the City s Zoning Code, which specifies the required number of on-site parking spaces to be provided. If the Corridor Plan is approved, the Zoning Code would need to be amended to incorporate the Travel Demand Management (TDM) requirements of the Corridor Plan, which could lead to a modification of the existing parking requirements. Regulatory Environment City of San Mateo General Plan The City of San Mateo General Plan (General Plan) is a comprehensive, long-term plan for the physical development within the City. The Circulation Element of the General Plan contains the following goals and policies related to traffic that are directly pertinent to the proposed Corridor Plan and Bay Meadows project: GOAL 1: Design and regulate use of city streets according to their classification and intended function. C1.1: Minimize Traffic Diversions. Discourage non-local and commercial traffic from using local and collector residential streets through land use restrictions and traffic controlling devices, where appropriate. Design existing arterial roadways to minimize the diversion of traffic onto local residential streets. C1.2: Protect Local Streets. Do not permit new medium and high density residential and commercial projects to have primary access on local streets in single-family districts, except where there are no feasible alternative routes. When warranted, construct traffic calming devices on local streets to minimize the negative effects of motor vehicle traffic. San Mateo Corridor Plan and Bay Meadows Specific Plan Amendment EIR EDAW, Inc.

12 C1.3: Restrict Truck Traffic. Restrict truck through traffic on all city streets as designated by City ordinance. GOAL 2: Maintain a street and highway system which accommodates future growth while maintaining acceptable levels of service. C2.1: Acceptable Levels of Service. Adopt a Level of Service no worse than mid LOS D, average delay of 45.0 seconds, as the acceptable Level of Service for all intersections within the City, except for the following: High Level of Service D (delay of 55.0 seconds) a. 17th Avenue-Bovet Road/El Camino Real C2.4: Transportation Fee Ordinance. Require new developments to pay their proportionate share of the costs for planned on and off site roadway improvements. Utilize a Transportation Fee Ordinance to finance necessary improvements equitably. C2.5: Traffic Studies. Require site-specific traffic studies for development projects where there may be a substantial impact on the local street system. Traffic impacts caused by a development project are considered to be unacceptable and warrant mitigation if the addition of project traffic results in a cumulative intersection level of service exceeding the acceptable level established in Policy C-2.1; where there may be safety hazards created; or where there may be other substantial impacts on the circulation system. C2.6: Prioritization and Timing of Roadway Improvements. Roadway improvements shall be periodically prioritized to be correlated with the distribution and pace of development, and to reflect the degree of need for mitigation. C2.7: Exceeding the Acceptable Level of Service. In addition to paying the transportation impact fee, a development project may be required to fund off-site circulation improvements which are needed as a result of project generated traffic, if: a. The level of service at the intersection drops below mid-level LOS D (average delay of more than 45 seconds) when the project traffic is added; or b. An intersection that operates below its level of service standard under the base year conditions experiences an increase in delay of four or more seconds; and c. The needed improvement of the intersection(s) is not funded in the applicable five-year City Capital Improvement Program from the date of application approval. C2.8: Traffic Signal Installation. A development project may be required to fund signalization of off-site unsignalized intersections if warranted as a result of project generated traffic. In addition, existing conditions may warrant signalization of unsignalized intersections. A warrant analysis to determine the need for signalization shall include consideration of both existing and projected traffic and pedestrian volumes, traffic delays and interruptions, accident history, and proximity to sensitive land uses, such as schools. C2.9: Dedication of Needed Right-of-Way For Roadway Improvements. Require dedication of needed rights-of-way for roadway improvements shown in Appendix D, which are deficient in land area. Dedication shall be required where the development project contributes to the need for the roadway improvement and where the cost of dedication is not so disproportionate to the size of the project or traffic generated to make it unreasonable. San Mateo Corridor Plan and Bay Meadows Specific Plan Amendment EIR EDAW, Inc.

13 C2.10: Transportation Systems Management. Participate in the TDM Program as outlined by the San Mateo City/County Association of Governments (C/CAG). Encourage TDM measures as a condition of approval for development projects, which are anticipated to cause substantial traffic impacts. C/CAG requires the preparation of a TDM program for all new development that would add 100 peak hour trips or more to the regional road network. GOAL 3: Support the provision of public transit services adequate to provide a viable alternative to automobile travel for all citizens and to provide a convenient means of transportation to the "transit dependent" population. C3.1: Increase Bus Ridership. Strongly promote increased bus ridership and improved accessibility to bus transit by encouraging SamTrans to implement the following bus service improvements: a. Evaluate the need to provide service in areas exceeding 1/4 mile from local routes and designated bus stops. b. Evaluate the need for improved bus service in high concentration employment centers, including: Downtown, Mariner's Island, Peninsula Office Park, and Crossroads, among others as shown in the Land Use Element. Evaluate the need to improve bus service to the College of San Mateo, between schools and recreation facilities, and to special events. c. Promote increased usage of the Park-N-Ride lot at the US 101 and SR 92 Interchange. d. Promote increased bus ridership through an expanded Public Information Program such as at train stations, public institutions, and through TDM. C3.2: CalTrain. Continue the City s strong support of CalTrain as an essential element of the overall circulation system on the Peninsula and in the City. Support the following rail service improvements: a. A Joint Powers Board to locally manage and oversee improvement plans for Caltrain. b. Increased service during non-commute periods and increase system capacity. c. Development of a Downtown San Francisco terminal within the vicinity of the Transbay Terminal or Financial District to improve commute service and linkage to other regional transit systems. d. Expenditure of Measure A (1/2-cent sales tax) funds and other available funds for grade crossing improvements, particularly at the Tilton, Monte Diablo, Poplar, Santa Inez, and 25th Avenue crossings. e. Caltrain Shuttle Bus Program. C3.3: Hayward Park Station. Improve pedestrian and vehicular access to the station. Redevelop the surrounding area with mixed-use and transit-oriented development. C3.4: Hillsdale Station. In conjunction with the transit agency, attempt to relocate the Hillsdale station northward to 31 st Avenue to combine the Bay Meadows Racetrack stop, allow parking lot expansion, improve circulation and access, and facilitate direct on-site bus/train transfer. If infeasible, improve the existing facility to include parking lot upgrade, aesthetic improvements, bus pullout areas on El Camino Real (SR 82) and Delaware Street (when extended to Pacific), and possible air rights development of a parking garage on the northern abutting parcel (privately owned). San Mateo Corridor Plan and Bay Meadows Specific Plan Amendment EIR EDAW, Inc.

14 C3.5: New Track Crossing. Study the need and feasibility of a new grade crossing between Ninth Avenue and 25th Avenue. C3.6: Grade Separation of the Rail Line. Promote study of future grade separation of the rail line to improve local surface circulation at track crossings. Discourage elevating the rail line unless there is no feasible alternative. C3.7: Below Grade Rail Line. Consider the need and feasibility of grade-separating the rail line in the downtown as substantial service expansion occurs. GOAL 4: Develop and maintain a comprehensive bicycle and pedestrian circulation network which provides safe recreation opportunities and an alternative to automobile travel. C4.1: Bikeways System. Continue to develop and maintain a safe and logical bikeways system which is coordinated with the countywide system. Priority shall be given to the following system improvements: a. To improve east/west access, develop bike lanes at critical links along US 101 as interchange improvements are made. Critical links include the Peninsula Avenue, Third Avenue, Fashion Island Boulevard, and Hillsdale Boulevard crossings. Ensure that adequate connection is made from these links to the Shoreline Park and Marina Lagoon bike paths. b. Include bicycle paths or lanes in the design of the Delaware Street roadway extension to improve north/south access. c. In cooperation with San Mateo County and the Town of Hillsborough, continue to develop a bike lane along Crystal Springs Road to provide safe access to the Sawyer Camp Trail at Crystal Springs Reservoir. d. Evaluate general linkage improvements needed to major office parks, the train stations, schools, and Sugarloaf Mountain. Where feasible, provide bike lanes to these destinations. C4.3: Dedication of Needed Right-of-Way For Bikeways. Require dedication of necessary rights-of-way for bike lanes and paths which are deficient in land area. Dedication shall be required where the development project contributes to the need for the bikeways improvement and where the cost of dedication is not so disproportionate to the size of the project to make it unreasonable. C4.4: Pedestrian Circulation. Continue to require as a condition of development project approval the provision of sidewalks and wheelchair ramps where lacking and the repair or replacement of damaged sidewalks. Require that utility poles, signs, street lights, and street landscaping on sidewalks be placed and maintained to permit wheelchair access and pedestrian use. C4.5: Wheelchair Access. Establish a program to assess the need to improve wheelchair access throughout the City. Install wheelchair ramps or take other corrective measure where most needed. C4.6: Pedestrian Safety. Pedestrian safety shall be made a priority in the design of intersection and other roadway improvements. GOAL 5: Provide an adequate parking supply for new development. San Mateo Corridor Plan and Bay Meadows Specific Plan Amendment EIR EDAW, Inc.

15 C5.1: Parking Standards. a. Adopt parking requirements to provide adequate parking supply as a condition of development approval. b. Adopt parking requirements to provide adequate parking supply for change and/or expansion of land use resulting in increased parking demand. Parking Code The City of San Mateo s parking requirements are established in its Parking Code, as provided for in the San Mateo Zoning Code, Section Parking requirements are established in the Parking Code by distinct land use as follows: Residential (multi-family) Studio: 1.3 spaces per unit visitor space = 1.5 total spaces per unit. One-bedroom: 1.6 spaces per unit visitor space = 1.8 total spaces per unit. Two-bedroom: 1.8 spaces per unit visitor space = 2.0 total spaces per unit. Three or more bedroom (or any dwelling unit over 1,400 square feet in floor area): 2.0 spaces per unit visitor space = 2.2 total spaces per unit. Community Shopping Center 1 space per 225 square feet of gross leasable area (GLA). Retail Stores Stores 0-20,000 square feet of GLA: one space per 300 square feet. Stores over 20,000 square feet of GLA: one space per 225 square feet. Offices Buildings less than 100,000 square feet: one space per 335 square feet. Buildings over 100,000 square feet: one space per 315 square feet. Impacts and Mitigation Measures Significance Criteria Impacts to traffic were based on criteria set by the City of San Mateo, the City/County Association of Governments (C/CAG) of San Mateo County, and Appendix G of the CEQA Guidelines. The Bay Meadows project, as a near-term project, was evaluated against Baseline conditions. Changes from Baseline conditions in excess of the significance criteria are deemed significant. The Corridor Plan is considered a long-term plan and was evaluated relative to the City of San Mateo General Plan 2020 Conditions, which forecast traffic San Mateo Corridor Plan and Bay Meadows Specific Plan Amendment EIR EDAW, Inc.

16 conditions within the City in 2020 by using Association of Bay Area Government (ABAG) 2020 land use, population, and employment forecasts for the City. Changes from General Plan 2020 conditions in excess of the significance criteria are deemed significant. Local Intersection Levels of Service Criteria Intersection impacts were based on the City of San Mateo traffic standards. According to the standards, a significant impact would occur if project traffic would result in an increase in average delay of four or more seconds and where the resultant delay would be greater than 45 seconds (LOS mid-d). For intersections already operating with a delay of 45 seconds or more, a significant impact would occur if the project would result in an additional delay of four or more seconds. These standards apply to all signalized intersections in the city except for the intersection of El Camino Real and 17th Avenue/Bovet. For that intersection, the standard is 55.8 seconds (LOS E), instead of 45 seconds. The average delay time is calculated as the weighted average time it takes for vehicles to go through an intersection. The study intersection of El Camino Real and Ralston Avenue is located in Belmont. The City of Belmont uses the San Mateo County Congestion Management Program (CMP) definition of acceptable levels of service. Therefore, an acceptable level of service is LOS E or better. Belmont does not have a standard for what constitutes a significant traffic impact. To be conservative, this study applies the San Mateo standards to the intersection of El Camino Real and Ralston Avenue. An impact can be mitigated to a less than significant level if an improvement to the intersection that would improve the level of service to an acceptable level is funded in the applicable five-year City Capital Improvement Program from the date of application approval. Intersection and roadway segment Level of Service standards are shown in Table LEVEL OF SERVICE Table Intersection and Roadway Segment Level of Service Criteria DESCRIPTION INTERSECTIONS AVERAGE CONTROL DELAY PER VEHICLE (SECONDS) ROADWAY VOLUME-TO-CAPACITY (V/C) RATIO A Little or no delay Less than 10.0 below 0.6 B Short traffic delay 10.1 to to 0.69 C Average traffic delay 20.1 to to 0.79 D Long traffic delay 35.1 to to 0.89 E Very long traffic delay 55.1 to to 1.00 F Extreme traffic delay Greater than 80.0 above 1.00 Freeway Segment Levels of Service Criteria Neither Caltrans nor C/CAG has standards for what constitutes a significant traffic impact on freeways and freeway ramps. Based on standard traffic engineering practice and the significance threshold officially adopted and used in Santa Clara County, the analysis here uses a 1 percent standard. A significant impact on San Mateo Corridor Plan and Bay Meadows Specific Plan Amendment EIR EDAW, Inc.

17 freeway segments occurs when project traffic causes the level of service on the freeway segment to fall below its standard. For a freeway segment already operating worse than its standard, a significant impact would occur if project traffic would result in an increase of more than 1 percent of capacity. This significance standard is based on the fact that traffic increases above 1 percent are perceived as a worsening of congestion, but increases below 1 percent are imperceptible to drivers. The CMP defines the following LOS standards for the study freeway segments: I-280: LOS D SR 92, west of US 101: LOS D SR 92, east of US 101: LOS E SR 92, east of US 101 (east of Foster City Bouelevard): LOS E US 101, north of SR 92: LOS F US 101, south of SR 92: LOS E Freeway Ramps A proposed project results in a significant freeway ramp impact if its implementation: Causes the V/C ratio of the freeway ramp to exceed 1.0, or Results in an increase of more than 1 percent of the capacity of a freeway ramp with a baseline V/C greater than 1.0. Neighborhood Traffic Impacts are considered significant if implementation of the proposed project would cause daily traffic to exceed 1,000 vehicles per day on any local residential street and would result in greater than 25 percent cutthrough traffic. Cut-through traffic is defined as vehicles using neighborhood (local and collector) streets instead of arterials for destinations not within the neighborhood, (cutting through neighborhoods to avoid using arterial streets). These criteria come from the City s adopted Traffic Calming Policy. Transit Transit service was evaluated based on goals set forth in the General Plan. A project is considered to create a significant impact on transit service if it would: Induce substantial growth or concentration of population beyond the capacity of existing or planned public transit facilities; or Reduce availability of public transit to users or interfere with existing or potential future transit users. San Mateo Corridor Plan and Bay Meadows Specific Plan Amendment EIR EDAW, Inc.

18 Bicycles and Pedestrians Bicycle and pedestrian facilities were evaluated based on goals set forth in the General Plan. Impacts on bicycle and pedestrian facilities are considered significant if the project would: Cause substantial inconvenience, interference, or delay to users of existing or planned bicycle or pedestrian travel ways; Inhibit the provision of planned bicycle or pedestrian facilities; or Substantially reduce bicycle or pedestrian access to an activity center. Parking Parking was reviewed relative to the City s parking standards and also to the known effects of mixed-use, shared parking, and TOD. Impacts on parking are considered significant if the project would cause a demand for parking that would be substantially greater than the planned on-site parking supply or result in a reduction in the availability of on-street parking. Methodology Travel Demand Model Traffic volumes for all future scenarios on the roadways and intersections were determined by the City of San Mateo travel demand model. This model is a mathematical tool developed to simulate observed travel patterns and to estimate future travel demand. A travel demand model requires many inputs, primarily the transportation network and the land use characteristics of an area. The model estimates how many trips people make, where the trips are coming from and going to, which mode of transportation (auto, transit, pedestrian, etc.) people use, and which roads or transit lines people would use to get from their origin to their destination. The transportation system is represented by a computerized network of lines, links, and nodes. The land use data (retail, housing, office, etc.) describe the activities for a specific area, which attract and produce traffic. Traffic is assigned to the transportation network based on many factors including: auto availability, travel time, travel cost, and transit accessibility. Turning movements at intersections are the least accurate of the model outputs. Nevertheless, this study requires the evaluation of future LOS at key intersections. In order to increase the reliability of future turning movement estimates, adjustments are made based on the actual turning movement data and the model estimates of total approach volumes in the base year. Trip Generation and Distribution Trip generation estimates were derived using the City of San Mateo Travel Demand Model, which was created to analyze large developments in a long-range context. It incorporates a mathematical model of tripmaking behavior under existing and future conditions, and accounts for the phenomenon of a revised trip distribution pattern and reduced trip lengths. The model takes into account the use of alternative modes and San Mateo Corridor Plan and Bay Meadows Specific Plan Amendment EIR EDAW, Inc.

19 the internalization of trips due to mixed-use development. In addition, the model trip generation equations have been calibrated to match actual traffic counts in San Mateo. Thus, the model trip generation estimates are more accurate than what would be derived from Institute of Transportation Engineers (ITE) trip generation factors (generally used as the standard for trip generation estimates). Nevertheless, a comparison was made to ITE factors as a reasonableness check and it was found that the model-derived trip generation estimates are consistent with, but slightly higher than the ITE factors. The use of the higher trip generation rates for this analysis presents a more conservative estimate of project impacts than would be obtained using ITE factors alone. Table shows the citywide vehicle trip generation and percentage increase in total trips for the various scenarios analyzed. Growth in citywide trip-making through 2020 for the Corridor Plan (relative to General Plan 2020 conditions) would be 3.8 percent for Corridor Plan A and 12.2 percent for Corridor Plan Z. The Bay Meadows project would result in a 5.5 percent increase in citywide trips over Baseline conditions. Table Citywide Vehicle Trip Generation and Percentage Increase in Vehicle Trips SCENARIO PEAK HOUR TOTAL AM PM CITYWIDE PM PEAK HOUR TRIPS PERCENT OVER BASELINE PERCENT OVER GENERAL PLAN 2020 Baseline 49,200 56,800 Baseline + Bay Meadows 52,600 59, Corridor Plan A 51,600 59, Corridor Plan Z 55,700 64, General Plan ,100 57, General Plan 2020+Bay Meadows 53,500 60, Corridor Plan A + Bay Meadows 53,300 61, Corridor Plan Z + Bay Meadows 54,300 62, Trip distribution is an important factor to consider as well. Implementation of the proposed Corridor Plan or the Bay Meadows project would not simply add trips on top of existing trips, but would cause a redistribution of trips throughout the city and county. For example, with implementation of the Corridor Plan or Bay Meadows project someone now living in Burlingame and working in San Francisco might instead work at one of the new office buildings in San Mateo. Their commute to work would represent a new trip to the City of San Mateo, but not to the county. In fact, it would probably take one trip off the freeways. Another example would be a worker in San Mateo living in Hayward. If that person were able to find a new home in San Mateo, one trip would be taken off the San Mateo Bridge and would reorient, but not add, one trip on city streets. The redistribution of trips is even more logical when viewed over a long time horizon, for example 20 years, as the housing stock turns over. Thus, the natural outcome of increasing employment and residential density is not just added trips but also shortened trip lengths. Trip distribution for the Corridor Plan and the Bay Meadows project is listed in Table and shown in Figure San Mateo Corridor Plan and Bay Meadows Specific Plan Amendment EIR EDAW, Inc.