reet Medical Office Development Traffic Impact Analysis Prepared for: Palo Alto Medical Foundation February 23, 2012 Hexagon Office: 7888 Wren Avenue, Suite B121 Gilroy, CA 95020 Hexagon Job Number: 11RD11 Phone: 408.846.7410 Client Name: Palo Alto Medical Foundation
Table of Contents Executive Summary... iv 1. Introduction... 1 2. Existing Conditions... 8 3. Existing Plus Project Conditions... 16 4. Cumulative Conditions... 24 5. Other Transportation Issues... 28 6. Conclusions... 35 Appendices Appendix A Appendix B Appendix C Appendix D Traffic Counts Volume Summary Level of Service Calculations Site Access Analysis List of Tables Table ES 1 Table ES 2 Table ES 3 Intersection Level of Service Summary... viii Signal Warrant Analysis Summary... ix TIRE Analysis Summary... x Table 1 Signalized Intersection Level of Service Definitions Based on Control Delay... 5 Table 2 Unsignalized Intersection Level of Service Definitions Based on Control Delay... 6 Table 3 Existing Intersection Levels of Service... 15 Table 4 Project Trip Generation Estimates... 19 Table 5 Existing Plus Project Intersection Levels of Service... 23 Table 6 Cumulative Intersection Levels of Service... 27 Table 7 Unsignalized Intersection Analysis Summary... 29 Table 8 TIRE Index Analysis... 34 Page ii
List of Figures Figure 1 Site Location and Study Intersections... 2 Figure 2 Site Plan... 3 Figure 3 Existing Bicycle Facilities... 10 Figure 4 Existing Transit Services... 11 Figure 5 Existing Lane Configurations... 13 Figure 6 Existing Traffic Volumes... 14 Figure 7 Project Trip Distribution... 20 Figure 8 Project Trip Assignment... 21 Figure 9 Existing Plus Project Traffic Volumes... 22 Figure 10 Cumulative No Project Traffic Volumes... 25 Figure 11 Cumulative Plus Project Traffic Volumes... 26 Page iii
Executive Summary This report presents the results of the traffic impact analysis conducted for the proposed Palo Alto Medical Foundation (PAMF) reet medical office development in Santa Cruz, California. The project site is located along reet between Laurent Street and Van Ness Avenue. Several retail buildings and single-family residences currently occupy the project site. The proposed project consists of replacing the existing retail and residential uses on site with new medical office buildings totaling 18,000 square feet. The existing PAMF facility and services at 1203 reet will be relocated to the proposed project site. It should be noted that the traffic analysis for the proposed project does not reflect a shift in trips that will likely occur due to the location of services to the Westside area. Currently patients from the Westside area must travel to the Eastside PAMF facility located along Soquel Avenue. The proposed project will locate some services now offered at the Eastside facility. Therefore, the trips currently made to the Eastside facility will shift to the Westside facility resulting in shorter trips. Two fullaccess entrances, one along Van Ness Avenue and one along Laurent Street, will serve the project. The results of the analysis completed as part of this traffic study indicate that the traffic associated with the proposed project will not result in a significant impact to the surrounding roadway network based on the City of Santa Cruz significance criteria. However, several potential improvements were identified that would improve intersection operational problems at intersections in the immediate vicinity of the project. Scope of Study The purpose of the study is to identify the potential traffic impacts related to the proposed project. The potential impacts related to the proposed development were evaluated following the standards and methodologies set forth by the City of Santa Cruz. The study includes an analysis of AM and PM peak-hour traffic conditions for four signalized intersections, four unsignalized intersections, and three roadway segments. The study intersections were evaluated using TRAFFIX software based on the operations methodology described in the 2000 Highway Capacity Manual. The study also includes a signal warrant analysis, an evaluation of site access, and an evaluation of the effects of project traffic on surrounding neighborhood streets. Traffic conditions at all of the study intersections were analyzed for the weekday AM and PM peak hours. The weekday AM peak hour of traffic is generally between 7:00 and 9:00 AM and the weekday PM peak hour is typically between 4:00 and 6:00 PM. It is during these periods that the most congested traffic conditions occur on a typical weekday. Project Trip Generation The magnitude of traffic produced by a new development is typically estimated by applying the size of the project to the applicable trip generation rates contained in the Institute of Transportation Engineers (ITE) Trip Generation Manual. However, there is an existing PAMF medical office located one block from the proposed project site at 1203 reet. Therefore, the trip generation of the proposed project was Page iv
estimated utilizing trip generation rates developed based on driveway counts at the existing medical office and compared with those recommended by ITE. Peak hour driveway counts were conducted at the existing clinic in June 2011. Based on the trip generation rates developed from the driveway counts, the proposed clinic is expected to generate 53 AM peak-hour trips (49 inbound trips and 4 outbound trips) and 91 PM peak-hour trips (42 inbound trips and 49 outbound trips). Based on the ITE rates, it is estimated that the proposed project will generate 41 AM peak-hour trips (32 inbound trips and 9 outbound trips) and 62 PM peak-hour trips (17 inbound trips and 45 outbound trips). The project was evaluated using the surveyed rates since they are more reflective of the expected mode of travel of patients to the proposed clinic and result in a more conservative analysis than the ITE rates. The surveyed rates also reflect the transportation demand management (TDM) program that is currently implemented by the Palo Alto Medical Foundation at all of its facilities. The TDM program provides financial incentives to encourage the use of alternative modes of transportation (public transit, carpooling, walking, bicycling) by its employees to reduce vehicular trips and parking demands. Existing retail and residential uses currently occupy the project site. Based upon peak-hour driveway counts completed on June 7, 2011, the existing uses on site generate 16 AM and 20 PM peak-hour trips. Credits for the existing uses on the project site are subtracted from the estimated trips to be generated by the proposed project, as described above. The trips associated with the existing site uses were added to the roadway network under project conditions as negative trips. Based on the surveyed trip rates and existing trip credits, the proposed project was estimated to generate a net additional 37 AM peak-hour trips (43 inbound and -6 outbound) and 71 PM peak-hour trips (32 inbound and 39 outbound). Intersection Level of Service Analysis The intersection level of service for each of the study scenarios is summarized in Table ES 1. The results of the intersection level of service analysis under project conditions show that no study intersections would be impacted by the project according to City of Santa Cruz level of service standards. However, the minor street northbound approaches at the unsignalized intersections of Van Ness Avenue and Mission Street and Laurent Street and reet would operate at a poor LOS during the peak hours under each of the scenarios studied. The poor LOS is due to the continuous flow of traffic on reet, which does not allow adequate gaps for left turning traffic from the minor streets. A detailed analysis and discussion of unsignalized intersections is provided in Chapter 5. The results of the study intersection level of service analysis under cumulative conditions indicate that all study intersections with the exception of Bay Street and reet would operate within the City s level of service standards during each of the peak hours both without and with the project under cumulative conditions. The intersection levels of service analysis for cumulative conditions without the proposed project indicate that the Bay Street and reet intersection would operate at LOS E and F during the AM and PM peak hours, respectively. The proposed project will account for only 3% of total projected traffic volume growth at the intersection. The addition of project traffic to the study intersections would not result in a degradation of levels of service when compared to cumulative no project conditions. Therefore, the project would not have a cumulatively significant impact at the study intersections. To address long-range impacts the City of Santa Cruz has established a Traffic Impact Fee (TIF) program. This program enables the City to levy a traffic impact fee on all projects in a TIF area. This program insures that all traffic impacts, including those from this project, are addressed. Other Transportation Issues Other issues related to transportation were evaluated to determine if any deficiencies would exist under project conditions that may not be specifically linked to environmental impact reporting. These may not be Page v
considered environmental issues, and may not be evaluated in the environmental assessment, but have been included in the traffic study to meet the requirements of the local jurisdiction. The other transportation issues considered are signal warrants, vehicle queuing requirements, impacts to adjacent neighborhoods, bicycle, pedestrian, transit issues, and site access and on-site circulation issues. For deficiencies identified, improvements are formulated that could improve or remedy the particular deficiency. Unsignalized Intersection Analysis Signal warrant analysis indicates that neither of the unsignalized study intersections would warrant a traffic signal. In addition, the delays at all intersection movements would be acceptable, except for the minor street northbound approaches at Van Ness Avenue and Laurent Street with reet. The addition of a separate right-turn lanes from Van Ness Avenue and Laurent Street to northbound Mission Street would reduce delays experienced on Van Ness Avenue and Laurent Street. Parking along the north side of Van Ness Avenue, at its intersection with reet, will need to be prohibited approximately 75-90 feet (4 to 5 vehicles) to accommodate the right-turn lane on Van Ness Avenue. The proposed project could provide the necessary four feet of right-of way to implement the separate rightturn lane along Laurent Street. Site Access A review of the project site plan was performed to determine if adequate site access is provided and to identify any access or circulation issues that should be improved. One driveway along Van Ness Avenue and one driveway along Laurent Street are proposed to serve the project site. The Van Ness Avenue driveway will be located approximately 60 feet south of reet. The site plan indicates approximately a 24-foot wide driveway. The driveways throat length, or the distance from the driveway to the first point of access to parking aisles or parking stalls, appears to be a minimum of approximately 30 feet long. This is enough to provide storage for one vehicle prior to spilling back onto Van Ness Avenue. The Laurent Street driveway will be located approximately 160 feet south of reet. The site plan indicates approximately a 24-foot wide driveway serving a 24-foot drive aisle through the surface parking lot. The driveways throat length, or the distance from the driveway to the first point of access to parking aisles or parking stalls, appears to be a minimum of approximately 25 feet long. This is enough to provide storage for one vehicle prior to spilling back onto Laurent Street. A vehicular queuing analysis also was completed at the project driveway along Laurent Street to evaluate potential conflicts due to its close spacing to the Laurent Street and reet intersection. The southbound left-turn movement into the project site at the driveway and the northbound movements at the Laurent Street and reet intersection were evaluated during each of the peak hours. The 95 th percentile queue for the left-turn movement into the project driveway is estimated to be no more than one vehicle (25 feet) during all peak hours analyzed. The 95 th percentile northbound queue at the Laurent Street and reet intersection is estimated to be a maximum of two vehicles (50 feet). The total distance between the project driveway along Laurent Street and the Laurent Street and reet intersection is approximately 160 feet. Therefore, the analysis indicates that the left-turn movement into the project driveway will not be inhibited by the northbound queue from the Laurent Street and Mission Street intersection and the inbound left-turn queue will not back up to the Laurent Street and Mission Street intersection. Transit, Pedestrian and Bicycle Analysis Bicycle and Pedestrian Circulation The volume of bicycle trips generated by the project would not exceed the bicycle-carrying capacity of streets surrounding the site, and the increase in bicycle trips would not require new off-site bicycle facilities. Page vi
The volume of pedestrian trips generated by the project would not exceed the carrying capacity of the existing sidewalks on streets surrounding the site or necessitate improvements to pedestrian facilities. However, the project is proposing to improve the sidewalk along its frontage with the addition of street trees that will create a buffer between street traffic and pedestrians. Transit Service The estimated new transit riders generated by the proposed project could be accommodated by the available capacity of the eight local bus routes, which have stops located within walking distance of the site. Thus, no improvements to the existing transit facilities would be needed in conjunction with the proposed project. However, the project is proposing to construct a new covered bus stop location along its reet frontage. Parking Based on the City of Santa Cruz s parking code requirements for medical offices (Municipal Code 24.12.240) the development should provide 1 space per 200 s.f. of floor area. Therefore, the project as proposed would require 90 total parking spaces. However, the City allows for a 10% reduction in provided parking for development that provides transportation demand management (TDM) program. The Palo Alto Medical Foundation intends to implement a TDM program at the proposed site as is currently implemented at all of its facilities. The TDM program provides financial incentives to encourage the use of alternative modes of transportation (public transit, carpooling, walking, bicycling) by its employees to reduce vehicular trips and parking demands. The project proposes to provide a total of 88 parking spaces on site, including three handicapped parking spaces. Therefore, the proposed parking will meet the City of Santa Cruz parking requirements. In addition, the project also is proposing to provide a total of 20 onsite bicycle parking facilities, which exceeds the City s requirements of 15 bicycle spaces. Neighborhood Traffic Issues Residential areas are especially sensitive to traffic increases because traffic can impact the livability of the street. To that end, the addition of project trips to surrounding residential streets may affect the neighborhood. One method for evaluating the effect on residential neighborhoods of traffic added by development projects is the Traffic Infusion on Residential Environment (TIRE) method. The TIRE method provides a means for qualitatively measuring impacts on the character of residential streets caused by increased traffic levels. The TIRE methodology assigns an index value based on the daily traffic volumes on the subject street segments. The index values range from 0.0 to 5.0, with 3.0 or higher representing a street that operates as an auto-dominated street. According to the TIRE methodology, a traffic volume increase that causes at least a 0.1 increase in the TIRE index would be noticeable to street residents. Each TIRE index value has a specific minimum average daily traffic volume increase threshold that must be met in order to trigger a change of 0.1 or more in the index value (i.e., a noticeable change). When the volume thresholds are exceeded, the traffic volume change would be noticeable to street residents. The TIRE analysis was conducted for each of the three study roadway segments. The TIRE analysis is summarized in Table ES 3. Project traffic is expected to be added to each of the studied roadways. However, the addition of project traffic on each of the studied roadway segments would not exceed the volume threshold that would trigger a noticeable change in traffic volumes (i.e., a full increase of 0.1 in the TIRE index). However, the TIRE index methodology is only one analytical tool by which to measure the effects of traffic increases and the perceived effects of increased traffic may vary from resident to resident. Nonetheless, the existing traffic calming measures (speed humps and bulb-outs) already in place along each of the surrounding residential streets as well as the proposed right-turn lanes at the Van Ness Avenue and Laurent Street intersections with reet will serve to minimize the effects of the additional project traffic. Page vii
Table ES 1 Intersection Level of Service Summary Existing Plus Project Cumulative No Project Existing Study Existing Peak Count Avg. Avg. Avg. Avg. Cumulative Plus Project Number Intersection Control Hour Date Delay 1 LOS Delay 1 LOS Delay 1 LOS Delay 1 LOS 1 Laurent Street and California Street Unsignalized AM 06/07/11 0.8 A 0.8 A 0.7 A 0.7 A PM 06/07/11 1.3 A 1.4 A 1.2 A 1.4 A 2 Van Ness Avenue and California Street Unsignalized AM 06/07/11 0.5 A 0.5 A 0.5 A 0.5 A PM 06/07/11 0.7 A 0.9 A 0.7 A 0.8 A 3 Walnut Avenue and reet Signal AM 06/07/11 13.1 B 13.1 B 15.6 B 15.7 B PM 06/07/11 13.9 B 13.9 B 17.2 B 17.3 B 4 Laurel Street and reet Signal AM 06/07/11 19.0 B 19.1 B 19.7 B 19.7 B PM 06/07/11 23.1 C 23.3 C 27.6 C 28.1 C 5 Van Ness Avenue and reet Unsignalized AM 06/07/11 0.5 A 0.6 A 1.2 A 1.3 A PM 06/07/11 0.8 A 1.5 A 2.7 A 12.0 B 6 Laurent Street and reet Unsignalized AM 06/07/11 0.4 A 0.4 A 0.4 A 0.4 A PM 06/07/11 0.4 A 1.4 A 0.8 A 14.4 B 7 Bay Street and reet Signal AM 06/07/11 38.0 D 38.2 D 55.9 E 56.3 E PM 06/07/11 43.8 D 44.1 D 80.1 F 81.4 F 8 Almar Avenue/Younglove Avenue and reet Signal AM 06/07/11 15.9 B 15.9 B 17.8 B 17.8 B PM 06/07/11 21.7 C 21.8 C 32.1 C 32.4 C Notes: 1 Whole intersection weighted average control delay expressed in seconds per vehicle. Page viii
Table ES 2 Signal Warrant Analysis Summary Warrant Met? Study Existing Existing Plus Project Cumulative No Project Cumulative with Project Number Intersection AM PM AM PM AM PM AM PM Existing Unsignalized Intersections 1 Laurent Street and California Street No No No No No No No No 2 Van Ness Avenue and California Street No No No No No No No No 5 Van Ness Avenue and reet No No No No No No No No 6 Laurent Street and reet No No No No No No No No Notes: Signal warrant analysis based on the Peak Hour Signal Warrant #3, Figure 4C Caltrans MUTCD 2010 Edition. Page ix
Table ES 3 TIRE Analysis Summary Existing Conditions Existing Plus Project Conditions Existing TIRE Δ ADT Traffic Vol. ADT % TIRE ADT Threshold Roadway Segment ADT /a/ Index Threshold /b/ Change /c/ Increase Index Exceeded? 1. Laurent Street between Seaside Street and California Street 844 2.9 +170 160 1,004 19% 3.0 No 2. Van Ness Avenue between reet and California Street 727 2.9 +170 150 877 21% 2.9 No 3. California Street between Laurent Street and Van Ness Avenue 7,132 3.9 +1,800 110 7,242 2% 3.9 No Notes: "ADT" = Average Daily Traffic Volume. /a/ Source of existing daily traffic volumes: 24-hour mechanical (tube) counts conducted on June 6, 2011. /b/ The change in ADT threshold is the minimum daily volume increase from this scenario to the next that is needed to cause a full 0.1 increase in the TIRE index. /c/ The daily traffic volume change under project conditions is that which is due to new vehicular trips added by the project. Page x
1. Introduction This report presents the results of the traffic impact analysis conducted for the proposed Palo Alto Medical Foundation (PAMF) reet medical office development in Santa Cruz, California. The project site is located along reet between Laurent Street and Van Ness Avenue. Several retail buildings and single-family residences currently occupy the project site. The proposed project consists of replacing the existing retail and residential uses on site with new medical office buildings totaling 18,000 square feet. Two full-access entrances, one along Van Ness Avenue and one other along Laurent Street, will serve the project. The project site location and the surrounding study area are shown on Figure 1. The project site plan is shown on Figure 2. Scope of Study The potential impacts related to the proposed development were evaluated following the standards and methodologies set forth by the City of Santa Cruz. The study included an analysis of AM and PM peakhour traffic conditions for four signalized intersections, four unsignalized intersections, and three roadway segments. The study also includes a signal warrant analysis, an evaluation of site access, and an evaluation of the effects of project traffic on surrounding neighborhood streets. The study intersections are identified below and shown in Figure 1. Study Intersections Roadway Segments 1. California Street and Laurent Street 2. California Street and Van Ness Avenue 3. reet and Walnut Avenue 4. reet and Laurel Street 5. reet and Van Ness Avenue 6. reet and Laurent Street 7. reet and Bay Street 8. reet and Almar Avenue/Younglove Avenue 1. Laurent Street between reet and California Street 2. Van Ness Avenue between reet and California Street 3. California Street between Van Ness Avenue and Laurent Street Traffic conditions at all of the study intersections were analyzed for the weekday AM and PM peak hours. The weekday AM peak hour of traffic is generally between 7:00 and 9:00 AM and the weekday PM peak hour is typically between 4:00 and 6:00 PM. It is during these periods that the most congested traffic conditions occur on a typical weekday. Traffic conditions were evaluated for the following scenarios: Page 1
Figure 1 Site Location and Study Intersections Page 2
Figure 2 Site Plan Page 3
Scenario 1: Scenario 2: Scenario 3: Scenario 4: Existing Conditions. Existing conditions were represented by existing peak-hour traffic volumes on the existing roadway network. Existing traffic volumes were obtained from recent traffic counts. Existing Plus Project Conditions. Project-generated traffic volumes were added to existing traffic volumes to estimate existing plus project conditions. Existing plus project conditions were evaluated relative to existing conditions in order to determine potential project impacts. Cumulative Conditions. Cumulative conditions include traffic growth projected to occur due to approved development projects and other proposed but not yet approved (pending) development projects. Cumulative traffic volumes were estimated by adding to existing peak-hour volumes the projected volumes from approved and pending developments. Approved and pending projects were obtained from the City of Santa Cruz TRAFFIX database. Cumulative Plus Project Conditions. Project-generated traffic was added to the cumulative volumes from Scenario 3 to obtain traffic volumes for cumulative plus project conditions. These volumes were used to determine the intersection operations under cumulative plus project conditions. Cumulative plus project conditions were evaluated relative to cumulative conditions in order to determine potential cumulative plus project impacts. Methodology This section presents the methods used to determine the traffic conditions for each scenario described above. It includes descriptions of the data requirements, the analysis methodologies, and the applicable level of service standards. Data Requirements The data required for the analysis were obtained from previous traffic studies, new counts, the City of Santa Cruz, and field observations. The following data were collected from these sources: existing traffic volumes lane configurations signal timing and phasing Approved and pending projects Analysis Methodologies and Level of Service Standards Traffic conditions at the study intersections were evaluated using level of service (LOS). Level of Service is a qualitative description of operating conditions ranging from LOS A, or free-flow conditions with little or no delay, to LOS F, or jammed conditions with excessive delays. The analysis methods are described below. Signalized Intersections Signalized study intersections are subject to the City of Santa Cruz level of service standards. The City of Santa Cruz level of service methodology is TRAFFIX, which is based on the 2000 Highway Capacity Manual (HCM) method for signalized intersections. TRAFFIX evaluates signalized intersections operations based on average delay time for all vehicles at the intersection. All intersections within the City of Santa Cruz are required to meet the City s LOS standard of LOS D. The correlation between average delay and level of service for signalized intersections is shown in Table 1. Page 4
Table 1 Signalized Intersection Level of Service Definitions Based on Control Delay Level of Service Description Average Control Delay Per Vehicle (Sec.) A Operations with very low delay occurring with favorable progression and/or short cycle lengths. Up to 10.0 B Operations with low delay occurring with good progression and/or short cycle lengths. 10.1 to 20.0 C D E F Operation with average delays resulting from fair progression and/or longer cycle lengths. Individual cycle failures begin to appear. Operations with longer delays due to a combination of unfavorable progression, long cycle lengths or high V/C rations. Many vehicles stop and individual cycle failures are noticeable. Operations with high delay values indicating poor progression, long cycle lengths, and high V/C ratios. Individual cycle failures are frequent occurrences. This is considered to be the limit of acceptable delay. Operations with delays unacceptable to most drivers occurring due to over saturation, poor progression, or very long cycle lengths. 20.1 to 35.0 35.1 to 55.0 55.1 to 80.0 Greater than 80.0 Source: Transportation Research Board, 2000 Highway Capacity Manual, (Washington, D.C., 2000) Unsignalized Intersections The methodology used to determine the level of service for unsignalized intersections is also TRAFFIX and the 2000 Highway Capacity Manual methodology for unsignalized intersection analysis. This method is applicable for both two-way and all-way stop-controlled intersections. For the analysis of stop-controlled intersections, the 2000 HCM methodology evaluates intersection operations on the basis of average control delay time for all vehicles on the stop-controlled approaches. For the purpose of reporting level of service for one- and two-way stop-controlled intersections, the delay and corresponding level of service for the stop-controlled minor street approach with the highest delay is reported. For all-way stopcontrolled intersections, the reported average delay and corresponding level of service is the average for all approaches at the intersection. The correlation between average delay and level of service for unsignalized intersections is shown in Table 2. The level of service analysis at unsignalized intersections is supplemented with an assessment of the need for signalization of the intersection. The need for signalization of unsignalized intersections is assessed based on the Peak Hour Volume Warrant (Warrant 3) described in the California Manual on Uniform Traffic Control Devices for Streets and Highways (CA MUTCD), Part 4, Highway Traffic Signals, 2010. This method makes no evaluation of intersection level of service, but simply provides an indication whether vehicular peak hour traffic volumes are, or would be, sufficient to justify installation of a traffic signal. Intersections that meet the peak hour warrant are subject to further analysis before determining that a traffic signal is necessary. Additional analysis may include unsignalized level of service analysis and/or operational analysis such as evaluating vehicle queuing and delay. Other options such as traffic control devices, signage, or geometric changes may be preferable based on existing field conditions. Page 5
Table 2 Unsignalized Intersection Level of Service Definitions Based on Control Delay Level of Service Description Average Control Delay Per Vehicle (Sec.) A Operations with very low delays occurring with favorable progression. Up to 10.0 B Operations with low delays occurring with good progression. 10.1 to 15.0 C Operations with average delays resulting from fair progression. 15.1 to 25.0 D Operation with longer delays due to a combination of unfavorable progression of high V/C ratios. 25.1 to 35.0 E F Operation with high delay values indicating poor progression and high V/C ratios. This is considered to be the limited of acceptable delay. Operation with delays unacceptable to most drivers occurring due to oversaturation and poor progression. 35.1 to 50.0 Greater than 50.0 Source: Transportation Research Board, 2000 Highway Capacity Manual. (Washington, D.C., 2000) Significant Impact Criteria The City of Santa Cruz has established several significance criteria to determine whether a project would cause a significant transportation impact. A project impact is considered significant if: It would conflict with an applicable plan, ordinance or policy establishing measures of effectiveness for the performance of the circulation system, taking into account all modes of transportation including mass transit and non-motorized travel and relevant components of the circulation system, including but not limited to intersections, streets, highways and freeways, pedestrian and bicycle paths, and mass transit. It would cause an intersection operations to exceed the City s current level of service standard of LOS D. It would change the peak hour level of service of a State Highway roadway segment from acceptable operation to deficient operation with the addition of project-generated traffic. It would conflict with adopted policies, plans or programs regarding public transit, bicycle, or pedestrian facilities, or otherwise decrease the performance or safety of such facilities). It would substantially increases hazards due to a design feature (e.g., sharp curves or dangerous intersections) or incompatible uses (e.g., farm equipment); or It would result in inadequate emergency access. The following criteria are not subject to CEQA significance criteria but must be addressed as appropriate in the findings of the traffic study. If the project site design does not have adequate parking or circulation capacity to accommodate the anticipated demand. Parking demand shall be measured first using the City Parking Page 6
requirements but may be adjusted using ITE 85 percentile parking generation rates and shared parking analysis factors at the discretion of the City Engineer and Senior Planner. The City Parking Ordinance allows reductions for shared parking and transportation management strategies but these must be substantiated and quantified in the analysis. If the project would result in inadequate internal circulation to accommodate project traffic. To address long-range impacts the City of Santa Cruz has established a Traffic Impact Fee (TIF) program. This program enables the City to levy a traffic impact fee on all projects in a TIF area. This program insures that all traffic impacts, including this study, are addressed. Report Organization The remainder of this report is divided into five chapters. Chapter 2 describes existing conditions in terms of the existing roadway network, transit service, and existing bicycle and pedestrian facilities. Chapter 3 presents the project impact on the transportation system and describes the recommended mitigation measures under existing plus project conditions. Chapter 4 presents the traffic conditions in the study area under cumulative conditions without and with the addition of project traffic. Chapter 6 presents the conclusions of the traffic impact analysis. Chapter 5 presents the analysis of other transportation related issues, including site access and parking. Page 7
2. Existing Conditions This chapter describes the existing conditions for all of the major transportation facilities in the vicinity of the site, including the roadway network, transit service, and bicycle and pedestrian facilities. Existing Roadway Network Regional access to the project site is provided via Highway 1 and SR 17. These facilities are described below. Highway 1 is a four-lane roadway in the vicinity of the site and is referred to as reet between its interchange with SR 17 and Swift Street. Highway 1 extends north and south along the coast of the State of California. It links the City of Santa Cruz with Capitola and the Monterey Peninsula to the south and the Cities of Half Moon Bay, Pacifica, and San Francisco to the north. Access to and from the project site is provided via its intersections with Van Ness Avenue and Laurent Street. SR 17 is a four-lane roadway in the vicinity of the project site that extends northerly from the City of Santa Cruz to Santa Clara County, where it becomes I-880. SR 17 provides access to the project study area via its interchange at Highway 1. Local access to the site is provided by reet, Walnut Avenue, Laurel Street, Bay Street, California Street, Laurent Street and Van Ness Avenue. It should be noted that reet is considered to run in an east-west direction within this study. These roadways are described below. reet (SR 1) is an east-west roadway that runs from Front Street to Swift Street at which point it transitions to Cabrillo Highway. reet is a two-lane road between Front Street and SR 1. West of SR 1, reet widens to a four-lane roadway to Swift Street with a posted speed limit of 25-mph. West of Swift Street, the roadway narrows to two lanes and changes designation to Cabrillo Highway. Access to the project site is provided via its intersections with Van Ness Avenue and Laurent Street. Walnut Avenue is a two-lane north-south roadway located east of the project site. Walnut Avenue begins at its intersection with Pacific Avenue and extends northward to its intersection with Escalona Drive. Walnut Avenue provides access to the project site via reet and California Street. Laurel Street is a two-lane north-south roadway located just east of the project site. Laurel Street begins at its intersection with Escalona Drive and extends southward to the San Lorenzo River at which point it transitions to Broadway. Laurel Street provides access to the project site via reet and California Street. Bay Street is a two-lane north-south roadway located west of the project site. Bay Street begins at its intersection with West Cliff Drive and extends northward to High Street at which point it transitions to Glenn Coolidge Drive. Bay Street provides access to the project site via reet and California Street. Page 8
California Street is an east-west roadway that runs from Bay Street to Walnut Avenue. California Street is a two-lane road with bike lanes and a posted speed limit of 25-mph. Access to the project site is provided via its intersections with Van Ness Avenue and Laurent Street. Laurent Street is a two-lane north-south roadway that forms the western boundary of the project site. Laurent Street begins at its intersection with California Street and extends northward to Ross Street. There is street parking and sidewalks on both sides of the roadway. One driveway located along Laurent Street will provide direct access to the project site. Van Ness Avenue is a two-lane north-south roadway that forms the eastern boundary of project site. Van Ness Avenue begins at its intersection with California Street and extends northward to Escalona Drive. There is street parking and sidewalks on both sides of the roadway. A driveway located along Van Ness Avenue will provide direct access to the project site. Existing Bicycle and Pedestrian Facilities Bicycle and pedestrian facilities are currently provided in the vicinity of the proposed site. Class II bike lanes are provided on California Street between Laurel Street and Bay Street and along some segments of Laurel Street and Bay Street. A low traffic alternative route, with appropriate signage, is provided on Walnut Avenue. The existing bicycle facilities within the study area are shown on Figure 3. Pedestrian facilities are provided in the vicinity of the project. Existing pedestrian facilities in the immediate project area include sidewalks on the both sides of all roadways. Crosswalks are present for crossing in all-directions at every major intersection in the vicinity of the project. Existing Transit Service Existing public transit service to the study area is provided by the Santa Cruz Metropolitan Transit District (SCMTD). A total of eight local bus routes provide service near the project site, however three of the eight bus lines operate during the UCSC school term only. A walking distance of approximately ¼ of a mile to a transit stop is considered acceptable for most transit patrons. There are several bus stops within generally accepted walking distances from the project site. The transit services are described below and shown on Figure 4. Local Route 12 provides service between the Capitola Mall Transit Center and the University of California Santa Cruz campus. Route 12 operates one bus on weekdays, during the UCSC school term only, that departs from the Capitola Transit Center at 7:10 am. In the project vicinity, Route 12 operates on reet and Laurel Street. Local Route 13 provides service between the Santa Cruz Metro Center in downtown Santa Cruz and the University of California Santa Cruz campus. Route 13 operates on 60-minute headways, during the UCSC school term only, from 7:20 am to 6:20 pm on weekdays. In the project vicinity, Route 13 operates on reet and Walnut Avenue. Local Route 15 provides service between the Santa Cruz Metro Center in downtown Santa Cruz and the University of California Santa Cruz campus. Route 15 operates on headways varying from 8-30-minutes, during the UCSC school term only, from 7:38 am to 7:50 pm on weekdays. In the project vicinity, Route 15 operates on reet and Laurel Street. Local Route 16 provides service between the Santa Cruz Metro Center in downtown Santa Cruz and the University of California Santa Cruz campus. Route 16 operates on 30-minute headways from 6:25 am to 11:45 pm on weekdays and 60-minute headways from 7:00 am to 11:20 pm on weekends, with additional busses during the school term. In the project vicinity, Route 16 operates on reet and Laurel Street. Page 9
Figure 3 Existing Bicycle Facilities Page 10
Figure 4 Existing Transit Services Page 11
Local Route 16N provides service between the Santa Cruz Metro Center in downtown Santa Cruz and the University of California Santa Cruz campus. Route 16N operates eight busses on weekdays and four busses on weekends. The busses depart from the UCSC campus at 12:00 am, 12:40 am, 1:25 am, and 2:05 am. In the project vicinity, Route 16N operates on reet and Laurel Street. Local Route 40 provides service between the Santa Cruz Metro Center in downtown Santa Cruz and Highway 1 and Waddell Creek. Route 40 operates four busses on weekdays that depart from Highway 1 and Waddell Creek at 6:15 am, 8:10 am, 12:30 pm, and 3:25 pm. On weekends, two buses depart from Highway 1 and Waddell Creek at 8:30 am and 4:30 pm. In the project vicinity, Route 40 operates on reet and Laurel Street. Local Route 41 provides service between the Santa Cruz Metro Center in downtown Santa Cruz and Bonny Doon. Route 41 operates four busses. On weekdays, the busses depart from Bonny Doon at 6:05 am, 8:00 am, 3:30 pm, and 5:30 pm. On weekends, one buss departs from Bonny Doon at 9:30 am. In the project vicinity, Route 41 operates on reet and Laurel Street. Local Route 42 provides service between the Santa Cruz Metro Center in downtown Santa Cruz and Davenport. Route 42 operates one bus on weekdays that departs from Davenport at 8:30 pm. On weekends, two buses depart from Davenport at 12:30 pm and 5:30 pm. In the project vicinity, Route 42 operates on reet and Laurel Street. Existing Intersection Lane Configurations The existing lane configurations at the study intersections were obtained from field observations and the City of Santa Cruz. The existing intersection lane configurations are shown on Figure 5. Existing Traffic Volumes Existing peak-hour traffic volumes were obtained from new peak-hour counts collected at each of the study intersections in June 2011. The existing peak-hour intersection volumes are shown on Figure 6. Intersection turning-movement counts conducted for this analysis are presented in Appendix A. Existing Intersection Levels of Service The results of the level of service analysis under existing conditions are summarized in Table 3. The results show that, measured against the City of Santa Cruz level of service standards, all the study intersections currently operate at an acceptable level of service under existing conditions during each of the peak hours analyzed. However, the minor street northbound approach at the unsignalized intersection of Van Ness Avenue and reet currently operates at a poor LOS during the PM peak hour. The poor LOS is due to the continuous flow of traffic on reet, which does not allow adequate gaps for left turning traffic from the minor streets. A detailed analysis and discussion of unsignalized intersections is provided in Chapter 5. The level of service calculation sheets are included in Appendix C. Page 12
Almar Ave Walnut Ave reet Medical Office Development February 23, 2012 1 STOP California St Laurent St 2 3 4 STOP California St Van Ness Ave 5 6 7 8 Walnut Ave Laurel St STOP STOP Van Ness Ave STOP Laurent St STOP Bay St Almar Ave Younglove Ave NORTH Not to Scale 3 King St Van Ness Ave 4 Laurel St Bay St 7 6 5 * Laurent St 1 2 California St LEGEND X* = Site Location = Study Intersection STOP = Signalized Intersection =Unsignalized Intersection = No-Left Turn (4-6PM) 8 Younglove Ave California Ave Figure 5 Existing Lane Configurations Page 13
Figure 6 Existing Traffic Volumes Page 14
Table 3 Existing Intersection Levels of Service Study Existing Peak Count Avg. Number Intersection Control Hour Date Delay 1 LOS 1 Laurent Street and California Street Unsignalized AM 06/07/11 0.8 A PM 06/07/11 1.3 A 2 Van Ness Avenue and California Street Unsignalized AM 06/07/11 0.5 A PM 06/07/11 0.7 A 3 Walnut Avenue and reet Signal AM 06/07/11 13.1 B PM 06/07/11 13.9 B 4 Laurel Street and reet Signal AM 06/07/11 19.0 B PM 06/07/11 23.1 C 5 Van Ness Avenue and reet Unsignalized AM 06/07/11 0.5 A PM 06/07/11 0.8 A 6 Laurent Street and reet Unsignalized AM 06/07/11 0.4 A PM 06/07/11 0.4 A 7 Bay Street and reet Signal AM 06/07/11 38.0 D PM 06/07/11 43.8 D 8 Almar Avenue/Younglove Avenue and reet Signal AM 06/07/11 15.9 B PM 06/07/11 21.7 C Notes: 1 Whole intersection weighted average control delay expressed in seconds per vehicle. Page 15
3. Existing Plus Project Conditions This chapter describes existing plus project traffic conditions, significant project impacts, and measures that are recommended to mitigate project impacts. Included are descriptions of the significance criteria that define an impact, estimates of project-generated traffic, identification of the impacts, and descriptions of the mitigation measures. Existing plus project conditions are represented by existing traffic conditions with the addition of traffic generated by the proposed project. Transportation Network under Existing Plus Project Conditions It is assumed in this analysis that the roadway network and intersection configurations under existing plus project conditions would be the same as described under existing conditions. Project Trip Estimates The magnitude of traffic produced by a new development and the locations where that traffic would appear are estimated using a three-step process: (1) trip generation, (2) trip distribution, and (3) trip assignment. In determining project trip generation, the magnitude of traffic entering and exiting the site is estimated for the AM and PM peak hours. As part of the project trip distribution step, an estimate is made of the directions to and from which the project trips would travel. In the project trip assignment step, the project trips are assigned to specific streets and intersections in the study area. These procedures are described further in the following sections. Trip Generation The magnitude of traffic produced by a new development is typically estimated by applying the size of the project to the applicable trip generation rates contained in the Institute of Transportation Engineers (ITE) Trip Generation Manual. However, there is an existing PAMF medical office located one block from the proposed project site at 1203 reet. Therefore, the trip generation of the proposed project was estimated utilizing trip generation rates developed based on driveway counts at the existing medical office and compared with those recommended by ITE. Peak hour driveway counts were conducted at the existing clinic in June 2011. The driveway counts at the existing clinic did not make a distinction between trips to the pharmacy and those to the medical offices. The proposed project will not include a pharmacy. Therefore, the driveway counts at the existing clinic were reduced based on receipt information provided by the pharmacy operator. Based on the trip generation rates developed from the driveway counts, the proposed clinic is expected to generate 53 AM peak-hour trips (49 inbound trips and 4 outbound trips) and 91 PM peak-hour trips (42 inbound trips and 49 outbound trips). On the basis of the ITE rates, it is estimated that the proposed Page 16
project will generate 41 AM peak-hour trips (32 inbound trips and 9 outbound trips) and 62 PM peak-hour trips (17 inbound trips and 45 outbound trips). The project was evaluated using the surveyed rates since they are more reflective of the expected mode of travel of patients to the proposed clinic and result in a more conservative analysis than the ITE rates. The surveyed rates also reflect the transportation demand management (TDM) program that is currently implemented by the Palo Alto Medical Foundation at all of its facilities. The TDM program provides financial incentives to encourage the use of alternative modes of transportation (public transit, carpooling, walking, bicycling) by its employees to reduce vehicular trips and parking demands. Existing retail and residential uses currently occupy the project site. Based upon peak hour driveway counts completed on June 7, 2011, the existing uses on site generate 16 AM and 20 PM peak-hour trips. Credits for the existing uses on the project site are subtracted from the estimated trips to be generated by the proposed project, as described above. The trips associated with the existing site uses were added to the roadway network under project conditions as negative trips. Based on the surveyed trip rates and existing trip credits, the proposed project was estimated to generate a net additional 37 AM peak-hour trips (43 inbound and -6 outbound) and 71 PM peak-hour trips (32 inbound and 39 outbound).the project trip generation estimates are presented in Table 4. Trip Distribution Peak hour project traffic was distributed to the transportation network based on existing travel patterns on the surrounding roadway system and the locations of complementary land uses. Directions of approach and departure at the existing PAMF medical offices at 1203 reet were used to determine existing travel patterns. The project trip distribution pattern is shown graphically on Figure 7. Trip Assignment The peak-hour trips associated with the proposed project were added to the transportation network in accordance with the distribution pattern discussed above. Figure 8 shows the assignment of project traffic on the local transportation network. It should be noted that the assignment of project trips for the proposed project does not reflect a shift in trips that will likely occur due to the location of services to the Westside area. Currently patients from the Westside area must travel to the Eastside PAMF facility located along Soquel Avenue. The proposed project will locate some services now offered at the Eastside facility. Therefore, the trips currently made to the Eastside facility will shift to the Westside facility resulting in shorter trips. A tabular summary of project traffic at each study intersection is contained in Appendix B. Existing Plus Project Traffic Volumes Project trips, as represented in the above project trip assignment, were added to existing traffic volumes to obtain existing plus project traffic volumes. The existing plus project traffic volumes are shown on Figure 9. Existing Plus Project Intersection Analysis The results of the level of service analysis under existing plus project conditions are summarized in Table 5. The results show that, measured against the City of Santa Cruz level of service standards, all the study intersections are projected to operate at an acceptable level of service under existing plus project conditions during each of the peak hours analyzed. Therefore, no study intersections would be significantly impacted by the project, according to City s level of service impact criteria. However, the minor street northbound approaches at the unsignalized intersections of Van Ness Avenue and Mission Street and Laurent Street and reet would operate at a poor LOS during the peak hours under Page 17