Title
Recommendation to Approve the Central Avenue Safety Improvement Project Final Concept (Action Item)
Body
To: Honorable Chair and Members of the Transportation Commission
EXECUTIVE SUMMARY
The City of Alameda (City) has been working in conjunction with Caltrans since 2013 on a redesign of Central Avenue to improve safety. At this time, staff is requesting that the Transportation Commission and City Council approve the Central Avenue project final concept and California Environmental Quality Act (CEQA) determination that the project is categorically exempt from further review, consistent with the City Council’s February 2016 CEQA determination. Caltrans’ approval of the environmental documentation for CEQA as well as for the National Environmental Protection Act (NEPA) is required before proceeding to the final design and the construction drawings. Construction is expected to begin in 2022.
BACKGROUND
The City of Alameda (City) has been working in conjunction with Caltrans for several years on a redesign of Central Avenue. The project proposes to improve safety and create multimodal opportunities along Central Avenue between Main Street/Pacific Avenue and Encinal Avenue/Sherman Street, which is 1.7 miles in length and is typically 54 feet wide with some variation. The Central Avenue study area has a disproportionate number of injuries from collisions compared to other streets in the City. Although the City has designated a 25-mile an hour speed limit for Central Avenue, average speeds are over 30 miles an hour, which contributes to the severity of collisions on the street. The western section of the project ending at Webster Street is City of Alameda property with one-half mile as proposed San Francisco Bay Trail. The eastern section of this City-led project is State Route 61 between Webster Street and the Sherman Street/Encinal Avenue intersection, and is owned and maintained by Caltrans.
The Central Avenue Safety Improvement Project is part of and consistent with a citywide focus on safety, climate resiliency and transportation mode shift as shown in the following City Council actions that are related to the Central Avenue project:
• In May 2013, the City Council approved a Community-Based Transportation Planning (CBTP) grant application to Caltrans, which the City won totaling $232,000;
• In November 2014, the City Council approved the consultant planning contract to Placeworks;
• In February 2016, the City Council approved the design concept for the Central Avenue project between Main Street/Pacific Avenue and Sherman Street/Encinal Avenue except for the Webster Street area. The City Council directed staff to continue the design development process with Caltrans and to work with the neighboring community to provide safer improvements for the Webster Street area;
• In October 2016, the City Council approved a federal grant application submittal to the Alameda County Transportation Commission, which the City won so as to fully fund the construction at $10.8 million in combined grant monies;
• In June 2017, the City Council approved $557,000 of the Central Avenue local match monies for fiscal years 2017 to 2019 as shown in the Capital Improvement Program;
• In January 2018, the City Council adopted the Transportation Choices Plan, which set as primary objectives to address the climate crisis and to increase the safety and convenience of walking, bicycling, carpooling and using transit within Alameda, and included the Central Avenue Safety Improvement Project;
• In April 2018, the City Council authorized the City Manager to execute a cooperative agreement with Caltrans and a contract with CDM Smith to prepare the Caltrans required Project Initiation Document (PID);
• In March 2019, the City Council approved a revised Central Avenue concept between Paden School and McKay Avenue extending the safer two-way bikeway;
• In March 2019, the City Council declared a climate emergency calling for an immediate and emergency mobilization effort to restore a safe climate;
• In June 2019, the City Council approved $2.5 million in Central Avenue expenditures from local and federal funding sources for fiscal years 2019 to 2021 as shown in the Capital Improvement Program;
• In September 2019, the City Council passed the Climate Action and Resiliency Plan, which requires Alamedans to choose transit, walking and biking over driving alone to meet ambitious greenhouse gas reduction goals. The Climate Action and Resiliency Plan states that 70 percent of Alameda’s greenhouse gas emissions are expected to be generated by the transportation sector, primarily from private automobile use;
• In November 2019, the City Council approved a CDM Smith contract amendment for the Central Avenue project approval and environmental phase (PA&ED) and the final design - plans, specifications and estimate phase (PS&E);
• In November 2019, the City Council declared that Vision Zero, which focuses on eliminating fatal and severe injury collisions, is the citywide guiding principle for transportation planning, the design of streets and sidewalks, and the maintenance of the public rights-of-way making safety as the highest priority when balancing competing needs and demands for space within the public right-of-way; and
• In May 2020, the City Council approved the Caltrans Cooperative Agreement for the PA&ED and the final design.
At this time, staff is requesting that the Transportation Commission and City Council approve the Central Avenue project final concept and CEQA determination that the project is categorically exempt from further review, consistent with the City Council’s February 2016 CEQA determination. Caltrans approval of the environmental documentation for CEQA as well as for the National Environmental Protection Act (NEPA) is required before proceeding to the final design and the construction drawings. Construction is expected to begin in 2022.
DISCUSSION
The following section focuses on the Central Avenue project goals and objectives, project components, options considered and the traffic operations analysis.
Project Goals and Objectives
The City staff/consultant team developed the final concept by considering the below project goals and objectives with safety as the highest priority:
1. Ensure maximum safety of all travel modes, especially for school access since the adjacent neighborhood is heavily concentrated with schools that have students coming from both the west end and throughout the city;
2. Improve bicycle and pedestrian access along the San Francisco Bay Trail between Pacific Avenue/Main Street and east of Fifth Street by Crown Drive at the Bay Trail trailhead;
3. Improve traffic operations and minimize travel delay with signal timing modifications, roundabouts and traffic calming;
4. Improve the streetscape with best practice stormwater management treatments such as rain gardens, more street trees and improved gateway features;
5. Revitalize West Alameda and encourage transit use;
6. Ensure Americans with Disabilities Act (ADA) compliance and truck access; and
7. Minimize parking loss.
Project Description
The project includes Class II bicycle lanes along the eastern portion of the corridor between Eighth Street and Sherman Street/Encinal Avenue, a Class IV two-way bikeway on the south side of the street along the western portion of the corridor between Main Street/Pacific Avenue and Eighth Street, a “road diet” with a center two-way left-turn lane, shorter and higher visibility pedestrian crossings, raised crosswalks at Burbank Street, Page Street and Ninth Street, flashing beacons at Lincoln Avenue, Page Street, Ninth Street and St. Charles Street, new proposed roundabouts at Main Street/Pacific Avenue, Third Street/Taylor Avenue and Encinal Avenue/Sherman Street and potentially at Fourth Street/Ballena Blvd. as an alternate if adequate project funding exists, accessible on-street parking and curb ramp modifications, bike racks, signage, drainage improvements, green stormwater infrastructure, flexible public space at Webster Street and bus stop improvements including bus stop boarding islands, where needed. Exhibit 1 provides a more detailed project description, and Exhibit 2 provides design drawings for the final concept.
Major Project Updates Requesting Approval
City staff is requesting approval of the final concept for the Central Avenue Safety Improvement Project, and the major project updates from previous approvals include the following components:
1. Safer Webster Area: An extension of the safer two-way bikeway from McKay Avenue to Eighth Street is recommended, which requires additional parking loss using standard lane widths. Consolidating bus stops at Central Avenue/Page Street is recommended to improve safety and reduce traffic delay by removing the bus stops at the Webster Street and Eighth Street intersections;
2. Roundabouts: Since the Federal Highway Administration (FHWA) is showing an 80 percent reduction in fatal and severe injury collisions from roundabouts compared to traffic signals, the City staff/consultant team are recommending roundabouts at three and possibly four intersections as follows:
o Main Street/Pacific Avenue (with minor refinements to maximize safety benefits)
o Third Street/Taylor Avenue (with option to close Taylor Avenue east of the roundabout pending further intersection control evaluations based on industry practice as the next phase in design)
o Encinal Avenue/Sherman Street (with option to close Sherman Street south of the roundabout pending intersection control evaluations as the next phase in design)
o Fourth Street/Ballena Blvd. (as an alternate if adequate project funding exists)
3. Safer Paden School and Bay Trail Area: Additional parking loss adjacent to Paden Elementary School and the San Francisco Bay Trail to McKay Avenue is recommended to create standard widths for travel lanes, on-street parking and the two-way bikeway. Travel movements also will be simplified adjacent to the school and the Bay Trail in an effort to improve safety.
Webster Street Area Design Options
For the Webster Street area, the City staff/consultant team considered the following four design options, and is recommending option #4 since it is shown in the below section as being the safest approach:
1. Sharrows and Traffic Calming Option (Four Lanes Remain)
This option would include “sharrow” markings, which are bicycle stencils in the motor vehicle travel lane to alert drivers of bicyclists, and includes:
• Continue the existing conditions with two motor vehicle travel lanes in each direction.
• Bicyclists continue to ride in the travel lanes with vehicular traffic.
• Pedestrian crossings along Central Avenue remain as currently configured.
• Left turns continue to be made from a general travel lane as opposed to a center turn lane.
• Parking remains on both sides of the street.
2. Sharrows and Bike Lane Option (Four Lanes East/Three Lanes West)
This option includes:
• The four vehicular lanes would remain that are east of Webster Street by Croll’s and O’Reilly’s where the vehicular traffic is the heaviest.
• Class II bicycle lanes that transition to bicyclists sharing the travel lane with vehicular traffic to the east of Webster Street. Instead of bike lanes, this section would include “sharrow” markings to alert drivers of bicyclists in the travel lane.
• Change to three vehicular lanes and bike lanes west of Webster Street by the liquor store and the Neptune Plaza shopping center.
• Modify the traffic signal at the intersection of Central Avenue and Webster Street.
• Add curb extensions, crosswalk enhancements and bus stop improvements.
• Parking remains on both sides of the street.
• Add accessible parking spaces to ensure ADA compliance.
3. Continuous Bike Lane Option (Three Lanes)
This option includes:
• Class II bicycle lanes constructed in both directions on Central Avenue between McKay Avenue and Eighth Street, which would remove one travel lane, resulting in one travel lane in each direction and a center turn lane.
• Modify the traffic signal at the intersection of Central Avenue and Webster Street.
• Add curb extensions, crosswalk enhancements and bus stop improvements.
• Parking remains on both sides of the street. There is potential to restrict parking during peak travel times adjacent to Croll’s to allow for a dedicated right turn lane from Central Avenue to Webster Street.
• Add accessible parking spaces to ensure ADA compliance.
4. Two-way Bikeway Option (Three Lanes)
This recommended option includes:
• A separated, protected Class IV two-way bikeway on the south side of Central Avenue from McKay Avenue to Eighth Street, which would be out of the way of the heavy turning movements adjacent to Croll’s.
• Modify the traffic signal at the intersection of Central Avenue and Webster Street.
• Add curb extensions, crosswalk enhancements and bus stop improvements.
• Parking removal on one side of the street to allow for more standard travel lane, bikeway and parking widths in this bustling commercial area.
• Add accessible parking spaces to ensure ADA compliance.
Traffic Operations Analysis
The traffic operations analysis of the Central Avenue concept is shown in Exhibit 3, and is summarized below. For the purposes of the traffic analysis, roundabouts were considered to be constructed at three intersections.
Safety Benefits
The crash data analysis revealed that 63 crashes were reported within the project corridor between 2014 and 2018, which is a five-year period. Out of this total, 29 crashes involved at least one injured person, but no fatalities occurred. Six pedestrian-related crashes occurred, while five bicycle-related crashes occurred. The crash reductions expected from all the safety improvements within a five-year period would be approximately 22 crashes in 2020 and 24 crashes in 2045 (Figures 1 and 2). The total societal benefits within a five-year period would be approximately $517,951 in 2020 and $566,206 in 2045 when considering all the cost savings from avoided collisions including lost productivity, medical costs, legal and court costs, emergency service costs, insurance administration costs, congestion costs, property damage, and workplace losses.
The proposed project includes several elements expected to improve safety conditions: road diet, bike lane/cycle track, rapid rectangular flashing beacons, high-visibility crosswalks and roundabouts. Among these elements, a road diet is expected to have the highest impact on expected crash occurrence, a 29 percent reduction in crashes of all types. Converting a signalized or minor-road stop-controlled intersection to a roundabout would effectively reduce crash frequencies at the intersection, especially injury crashes. Roundabouts are proposed at three intersections within the study corridor - Pacific Avenue/Main Street, Third Street/Taylor Avenue, and Encinal Avenue/Sherman Street. It is expected that roundabouts at these three locations would result in approximately five fewer injury crashes within a five-year period in 2045. If a fourth roundabout were approved at Fourth Street/Ballena Blvd, more crash reductions are expected than shown in this analysis.
Figure 1: Expected Crash Reductions - Build Scenario - 2014-2018 Collision Data
Source: Central Avenue Traffic Operations Analysis Report, 2020
Figure 2: Expected Crash Reductions - Build Scenario - Five Year Period in 2045
Source: Central Avenue Traffic Operations Analysis Report, 2020
According to FHWA, road diets have multiple safety benefits for people driving, walking and riding bikes as follows:
• Decreases vehicle travel lanes for pedestrians to cross;
• Allows for better visibility of pedestrians waiting or attempting to cross the street;
• Improves circulation for bicyclists when a bikeway is added;
• Reduces rear-end, sideswipe and left turn collisions by at least 19 percent and up to 47 percent through the use of a center two-way left turn lane;
• Improves speed limit compliance by three to five miles per hour, which reduces the severity of collisions; and
• Improves travel flow since through vehicles are separated from left turning vehicles.
According to FHWA, roundabouts:
• Reduce fatal and serious injury crashes by 78-82 percent compared to conventional stop-controlled and signalized intersections;
• Results in lower vehicle speeds: 15-25 miles per hour around the roundabout;
• Crashes that occur will be less severe because of this reduced speed and the more “sideswipe” nature of crashes;
• Pedestrians are generally safer at roundabouts, and are faced with simpler decisions at a time; and
• Are more efficient, less costly and more aesthetically appealing.
When considering bike lanes, additional safety benefits are anticipated and even more are expected from the safer two-way bikeway that protects people bicycling from motor vehicles with parked cars, bollards or concrete median treatments. According to the FHWA’s Separated Bike Lane Planning and Design Guide, bikeways that are physically separated from motor vehicle travel provide more protection for bicyclists. The Rider Type Classification, which categorizes people bicycling into four categories, including “Interested but Concerned” is a methodology that is increasingly used to assess the types of bicycle infrastructure improvements needed to encourage the most people to bicycle for transportation purposes. In Alameda, the “Interested but Concerned” group is almost half of all residents according to a statistically significant survey conducted as part of Alameda’s Active Transportation Plan. These people are interested in bicycling more, but would need more comfortable facilities to do so. The Central Avenue recommendations for more separated bike lanes best addresses the people who bicycle in Alameda.
Traffic Operations
As shown in the traffic operations analysis, the proposed project will improve traffic operations and will reduce travel times along the corridor.
No-Build (No-Project) Conditions: The operations analysis shows that 4 out of the 13 study intersections operate at LOS E or F during the AM or PM peak hour in the existing conditions and several more intersections are anticipated to operate at this LOS in the future year (2045) No Build scenario. Most notably, the Central Avenue & Pacific Avenue/Main Street and Central Avenue & Third Street/Taylor Avenue intersections will operate at LOS F during both AM and PM peak hours.
Due to an increase in through traffic and lack of stop control along Central Avenue, the modeling predicts delays of over fifteen minutes for traffic on the southbound side street approach to the Third Street/Taylor Avenue intersection during the AM peak hour and more than six minutes during the PM peak hour. The Central Avenue & Eighth Street intersection will operate at LOS F with an overall delay of over 3 minutes during the PM peak hour.
Project/Build Scenario: If the City pursues the project “the Build scenario”, delay decreases at most locations and travel times improve. The travel time along the entire Central Avenue corridor decreases by over four minutes in each direction.
Converting to roundabouts significantly reduces delays at the three intersections, especially at the Central Avenue and Pacific Avenue/Main Street intersection and at the Central Avenue and Third Street/Taylor Avenue intersection. The only intersection that operates at level of service (LOS) F is the Central Avenue and Fifth Street intersection during the AM peak hour. It is recommended that this intersection be signalized as part of the Alameda Point development project.
During the AM peak hour compared to No Build, the delays for the Central Avenue and Webster Street intersection and the Central Avenue and Eighth Street intersection increase and LOS change from D to E, which is primarily attributable to geometry changes and corresponding signal phases, including the need to provide a protected bicycle signal phase for the two-way cycle track. Table 1 shows the AM peak hour delay and LOS for No Build and Project/Build scenarios.
Table 1: Intersection Delay and LOS - 2045 AM Peak Hour Comparison
|
|
No Build |
Build |
|
Location |
Control Type |
Delay (sec) |
LOS |
Control Type |
Delay (sec) |
LOS |
|
Central Ave & Main St/Pacific Ave |
Signalized |
195.6 |
F |
Roundabout |
7.2 |
A |
|
Central Ave & Third St/Taylor Ave |
Side-Street Stop |
946.2 |
F |
Roundabout |
8.1 |
A |
|
Central Ave & Fourth St |
Signalized |
10.6 |
B |
Signalized |
17.1 |
B |
|
Central Ave & Fifth St |
All-Way Stop |
42.5 |
E |
All-Way Stop |
50.9 |
F |
|
Central Ave & Webster St |
Signalized |
35.7 |
D |
Signalized |
76.5 |
E |
|
Central Ave & Eighth St |
Signalized |
45.5 |
D |
Signalized |
71.9 |
E |
|
Central Ave & Encinal Ave/Sherman St |
Signalized |
24.1 |
C |
Roundabout |
9.1 |
A |
|
Santa Clara Ave & Webster St |
Signalized |
10.0 |
A |
Signalized |
8.5 |
A |
|
Santa Clara Ave & Eighth St |
Signalized |
16.1 |
B |
Signalized |
16.3 |
B |
|
Santa Clara Ave & Sherman St |
All-Way Stop |
23.0 |
C |
All-Way Stop |
22.8 |
C |
|
Lincoln Ave & Webster St |
Signalized |
14.6 |
B |
Signalized |
46.1 |
D |
|
Lincoln Ave & Eighth St |
Signalized |
25.8 |
C |
Signalized |
34.3 |
C |
|
Lincoln Ave & Sherman St |
Signalized |
14.5 |
B |
Signalized |
14.6 |
B |
During the PM peak hour, both the Central Avenue and Webster Street intersection and the Central Avenue and Eighth Street intersection operate at LOS E. At the Central Avenue and Eighth Street intersection, delays are reduced significantly compared to No Build due to signal timing improvements. All other study intersections along Central Avenue operate at LOS C or better. Table 2 shows the PM peak hour delay and LOS for No Build and Project/Build scenarios.
Table 2: Intersection Delay and LOS - 2045 PM Peak Hour Comparison
|
|
No Build |
Build |
|
|
Control Type |
Delay (sec) |
LOS |
Control Type |
Delay (sec) |
LOS |
|
Central Ave at Main St/Pacific Ave |
Signalized |
241.5 |
F |
Roundabout |
6.1 |
A |
|
Central Ave at Third St/Taylor Ave |
Side-Street Stop |
405.1 |
F |
Roundabout |
6.2 |
A |
|
Central Ave at Fourth St |
Signalized |
9.8 |
A |
Signalized |
13.4 |
B |
|
Central Ave at Fifth St |
All-Way Stop |
22.4 |
C |
All-Way Stop |
19.7 |
C |
|
Central Ave at Webster St |
Signalized |
41.9 |
D |
Signalized |
72.7 |
E |
|
Central Ave at Eighth St |
Signalized |
191.5 |
F |
Signalized |
69.4 |
E |
|
Central Ave at Encinal Ave/Sherman St |
Signalized |
22.8 |
C |
Roundabout |
11.6 |
B |
|
Santa Clara Ave at Webster St |
Signalized |
7.6 |
A |
Signalized |
6.2 |
A |
|
Santa Clara Ave at Eighth St |
Signalized |
16.2 |
B |
Signalized |
16.6 |
B |
|
Santa Clara Ave at Sherman St |
All-Way Stop |
19.9 |
C |
All-Way Stop |
20.2 |
C |
|
Lincoln Ave at Webster St |
Signalized |
16.6 |
B |
Signalized |
44.1 |
D |
|
Lincoln Ave at Eighth St |
Signalized |
28.4 |
C |
Signalized |
45.2 |
D |
|
Lincoln Ave at Sherman St |
Signalized |
19.1 |
B |
Signalized |
18.6 |
B |
Due to the road diet implemented on Central Avenue between Third Street/Taylor Avenue and Encinal Avenue/Sherman Street, it is projected that some traffic would be diverted from Central Avenue to Lincoln Avenue, via Webster Street and Eighth Street. The diversion has little impact on Santa Clara Avenue and Taylor Avenue. Due to diversion, delay at the Lincoln Ave and Webster Street intersection and the Lincoln Avenue and Eighth Street intersection increases during both AM and PM peak hours but LOS does not exceed D. Therefore, even with diversion, there is no significant LOS impact found on key intersections on streets parallel to Central Avenue.
Furthermore, the Central Avenue study area is well under the 20,000 vehicle per day threshold that the Federal Highway Administration uses as an upper limit for feasible motor vehicle travel lane reduction projects in that the Central Avenue corridor is currently under 10,000 vehicles per day. Even when considering build-out of the City and Alameda Point, Central Avenue is forecasted at a maximum of 16,000 vehicles per day in its busiest segment between Webster St. and Eighth St. Plus, the travel demand model assumes the current mode split without reductions to motor vehicle travel after implementation of improved bikeways and transportation demand management strategies by the developments. Also, the model assumes a growth rate higher than the City is currently experiencing after the coronavirus impacts.
Parking Impacts
The recommended Central Avenue design concept is estimated to eliminate over 120 on-street parking spaces along Central Avenue and side streets, which represents approximately 23 percent of the on-street parking supply, so as to increase the visibility and safety at intersections and driveways, and to provide standard travel lane, parking and bikeway widths and bus stop zones (Table 3). The project includes measures to mitigate the loss of parking by promoting non-motorized modes of transportation to reduce parking demand such as with new crosswalks, curb bulb-outs, rapid flashing beacons, a protected two-way cycle track, Class II bike lanes, improved bus stops, landscaping, bike racks and a new segment of the San Francisco Bay Trail.
Table 3: On-street Parking Space Comparison - Existing and Build Scenarios
|
|
Eastbound |
Westbound |
|
Roadway |
Location |
Existing/ No Build |
Build |
Existing/ No Build |
Build |
|
Pacific Ave |
SW Side |
0 |
4 |
- |
- |
|
|
SE Side |
- |
- |
6 |
4 |
|
|
NE Side |
- |
- |
8 |
4 |
|
Main St |
NE Side |
- |
- |
1 |
0 |
|
Central Ave |
Pacific Ave - Lincoln Ave |
0 |
0 |
31 |
28 |
|
Lincoln Ave |
NW Side |
- |
- |
4 |
3 |
|
|
NE Side |
- |
- |
4 |
2 |
|
Central Ave |
Lincoln Ave - Third St |
7 |
4 |
20 |
19 |
|
Third St |
SW Side |
4 |
1 |
- |
- |
|
|
SE Side |
4 |
2 |
- |
- |
|
|
NW Side |
- |
- |
2 |
1 |
|
|
NE Side |
- |
- |
3 |
1 |
|
Taylor Ave |
S Side |
- |
- |
1 |
1 |
|
|
N Side |
- |
- |
3 |
1 |
|
Central Ave |
Third St - Fourth St |
27 |
19 |
14 |
19 |
|
Fourth St |
SW Side |
2 |
1 |
- |
- |
|
|
SE Side |
2 |
2 |
- |
- |
|
|
NW Side |
- |
- |
1 |
0 |
|
Central Ave |
Fourth St - Fifth St |
21 |
5 |
24 |
30 |
|
Fifth St |
NW Side |
- |
- |
1 |
0 |
|
|
NE Side |
- |
- |
1 |
0 |
|
Hoover Ct |
- |
Proposed conditions same as existing conditions |
|
Fifth St - Sixth St |
20 |
15 |
22 |
22 |
|
Sixth St |
- |
Proposed conditions same as existing conditions |
|
McKay Ave |
- |
0 |
0 |
- |
- |
|
Sixth St - Webster St |
21 |
9 |
22 |
22 |
|
Webster St |
SW Side |
1 |
1 |
- |
- |
|
|
SE Side |
1 |
1 |
- |
- |
|
|
NW Side |
- |
- |
2 |
2 |
|
Webster St - Page St |
9 |
3 |
13 |
0 |
|
Page St |
- |
Proposed conditions same as existing conditions |
|
Page St - Eighth St |
19 |
12 |
16 |
16 |
|
Eighth St |
NW Side |
- |
- |
8 |
2 |
|
|
NE Side |
- |
- |
6 |
1 |
|
Eighth St - Burbank St |
6 |
4 |
7 |
4 |
|
Burbank St |
SW Side |
1 |
1 |
- |
- |
|
|
SE Side |
2 |
1 |
- |
- |
|
Burbank St - Ninth St |
8 |
8 |
8 |
8 |
|
Ninth St |
SW Side |
2 |
1 |
- |
- |
|
|
SE Side |
2 |
1 |
- |
- |
|
|
NE Side |
- |
- |
1 |
0 |
|
Ninth St - Weber St |
11 |
11 |
9 |
9 |
|
Weber St |
SW Side |
2 |
2 |
- |
- |
|
|
SE Side |
2 |
0 |
- |
- |
|
Weber St - Caroline St |
6 |
6 |
8 |
7 |
|
Caroline St |
SW Side |
1 |
0 |
- |
- |
|
|
SE Side |
1 |
0 |
- |
- |
|
|
NW Side |
- |
- |
1 |
0 |
|
|
NE Side |
- |
- |
1 |
0 |
|
Caroline St - St. Charles St |
15 |
14 |
17 |
17 |
|
St. Charles St |
- |
Proposed conditions same as existing conditions |
|
St. Charles St - Bay St |
6 |
6 |
7 |
7 |
|
Bay St |
- |
Proposed conditions same as existing conditions |
|
Bay St - Sherman St |
3 |
0 |
4 |
5 |
|
Sherman St |
SW Side |
3 |
2 |
- |
- |
|
|
SE Side |
3 |
3 |
- |
- |
|
|
NW Side |
- |
- |
3 |
1 |
|
|
NE Side |
- |
- |
5 |
3 |
|
Encinal Ave |
SE Side |
13 |
13 |
- |
- |
|
|
NE Side |
- |
- |
9 |
9 |
|
Central Ave E of Roundabout |
SE Side |
- |
- |
4 |
2 |
|
|
NE Side |
- |
- |
4 |
2 |
|
Total - Central Ave |
179 |
116 |
222 |
213 |
|
Total - Side Streets |
46 |
36 |
79 |
39 |
|
Grand Total |
225 |
152 |
301 |
252 |
In the eastbound direction along Central Avenue, the number of parking spaces decreases from 179 to 116. From Pacific Avenue/Main Street to Lincoln Avenue, there is currently no parking observed and parking is not assumed in the proposed design. From Lincoln Avenue to Fourth Street, about one third of the available parking spaces would be removed due to placement of a center turn lane, the roundabout at the Central Avenue and Third Street intersection, and a dedicated right-turn lane approaching Fourth Street. From Fourth Street to Webster Street, most of the available parking spaces would be removed in the proposed design due to the lane reconfiguration. The most significant reduction in available parking spaces occurs on the block from Fourth Street to Fifth Street - changing from 21 to 5. The apartments and Paden Elementary School south of Central Avenue provide off-street parking. Within one block of Webster Street from McKay Ave to Webster Street, all of the available parking spaces would be removed. The commercial stores on this block provide underutilized off-street parking that still can be accessed via Central Avenue in the proposed design. From Webster Street to Page Street, one third of the available parking spaces would be preserved in the proposed design. In other sections, the number of available parking spaces generally remains the same or is slightly reduced due to lane reconfiguration, pedestrian bulb-outs, visibility improvements or additional space taken by roundabouts.
For side streets on the south side of Central Avenue, the number of parking spaces decreases from 46 to 36, which is a result of the proposed lane reconfiguration, pedestrian bulb-outs, visibility improvements or additional space taken by roundabouts that impact the area of side streets immediately adjacent to the intersection. There would be no further impact beyond this area.
In the westbound direction, the number of parking spaces decreases slightly from 222 to 213. Generally, the number of parking spaces on the blocks remains the same between No Build and Build conditions except for visibility and bus stop improvements at intersections. From Encinal Avenue/Sherman Street to Bay Street, the number of available parking spaces increases slightly as a result of the road diet providing additional cross-sectional width for on-street parking. From Page Street to Webster Street, parking becomes unavailable on the entire block due to the lane reconfiguration and a new consolidated bus stop. Off-street parking is available in this area, allowing access to the commercial stores on this block. From Webster Street to Sixth Street, all of the available parking spaces would be preserved in the proposed design. From Fifth Street to Fourth Street, a few more parking spaces are available due to a no stopping zone east of Fourth Street converted to parking allowed. From Fourth Street to Third Street, there are additional parking spaces available on the side of the proposed landscaped island west of Fourth Street.
For side streets on the north side of Central Avenue, the number of parking spaces decreases from 79 to 39, which is a result of the proposed lane reconfiguration, pedestrian bulb-outs, visibility improvements or additional space taken by roundabouts that impact the area of side streets immediately adjacent to the intersection. There would be no further impact beyond this area. Compared to side streets on the south side, there is a greater reduction due to the larger number of side streets on the north sides and greater losses on Pacific Avenue east of the intersection where bike lanes are planned and on Eighth Street where a left-turn pocket is added to improve traffic operations.
Outreach
The Central Avenue final concept is the culmination of an extensive community-based planning process and reflects community member comments received mainly from community workshops, on-line surveys and focus group meetings starting in 2015 and continuing through this year with a Virtual Open House (<https://gather.cdmsmith.com/v/y2qm2KdR1wO>) in October, which represents the fifth community workshop for this project. City staff announced these community input opportunities by distributing public notices to adjacent properties within 300 feet of the project site and by providing announcements to email list servs, the project web page - <https://www.alamedaca.gov/Central>, social media and local news media outlets as well as to key stakeholders - West Alameda Business Association, Bike Walk Alameda, Alameda Unified School District, AC Transit, Caltrans and the Association of Bay Area Governments for the San Francisco Bay Trail. Exhibits 4 and 5 provide the comments received as part of the Virtual Open House and via social media/emails, respectively. The main themes are as follows:
• Opposition to roundabout at Sherman/Encinal/Central mainly due to parking loss, and also concern about pedestrian/bike access as well as inconvenience of one-way street and fear that it will increase traffic, greenhouse gas emissions, etc.;
• General support of the roundabouts and apprehension about people being able to understand how to maneuver through them;
• Appreciate the focus on safety for all road users, especially the vulnerable bicyclists and pedestrians, which will help more kids to bicycle to/from schools;
• General support of the project and frustrated that it is taking so long to complete;
• Frustration that the city is too focused on the needs of people bicycling; and
• Concern about traffic and construction impacts.
ALTERNATIVES
The key updates that City staff is requesting the Transportation Commission and City Council to approve could be modified as follows:
Webster Street Area: The City staff/consultant team chose the safer two-way bikeway option on the south side of the street; however, the staff/consultant team also studied the potential for bike lanes as well as a “do nothing” approach. These bike lane and “do nothing” approaches are inconsistent with the City policies of safety as the highest priority; however, these alternatives could be recommended by the City Council. Another approach would be to have sub-standard travel, parking and bikeway widths to maximize parking on the south side of the street, which is not recommended due to the safety impacts. The City staff/consultant team also are recommending consolidated bus stops to simplify the Webster Street and Eighth Street intersections, which the City Council could deny consequently eliminating the left-turn pocket into the foot of Webster Street.
Roundabouts: The installation of roundabouts is considered best practices in that roundabouts are better at reducing fatal and severe injury collisions compared to traffic signals so roundabouts are consistent with the City Council’s new Vision Zero Policy. Thus, City staff/consultant team are recommending roundabouts at: 1) Main Street/Pacific Avenue; 2) Third Street/Taylor Avenue with the potential to close Taylor Avenue; 3) Encinal Avenue/Sherman Street with the potential to close Sherman Street south of the roundabout; and 4) If funding permits, at Fourth Street/Ballena Blvd. The City Council could recommend more traditional traffic signals at these intersections, or could choose to continue with only one type of design option for the proposed roundabouts at Third Street/Taylor Avenue and at Encinal Avenue/Sherman Street.
Paden School/Bay Trail Area: Additional parking loss adjacent to Paden Elementary School and the San Francisco Bay Trail is recommended to create standard widths for the travel lanes, on-street parking and the two-way bikeway and to simplify travel movements adjacent to the school and the Bay Trail in an effort to improve safety. Nevertheless, the project could accommodate additional on-street parking on the south side of the street, which would cause the parking lanes, motor vehicle travel lanes and the bikeway to be narrower than typically occur adjacent to schools and on streets that are truck routes.
FINANCIAL IMPACT
This item is a budget neutral request; however, the project will require financial contributions from the City that would be subject to future City Council appropriations approval. The initial concept phase completed between 2014 and 2016 was funded by a Caltrans CBTP grant with matching funds for a total of $221,550. The Caltrans required PID phase, which was finished in April 2020, was funded with local transportation funds for $557,000. The remaining pre-construction work of environmental clearance and design drawings totals $2.5 million, and is funded by a federal Active Transportation Program grant, Measure B and BB Local Streets and Roads monies and the General Fund per the approved Capital Improvement Program for fiscal year 2019-20. The costs are higher than other corridor projects because an extra level of effort is required for projects on the State Highway System and because the City has obtained federal monies, which necessitate that the City fulfill federal requirements.
Construction, which is expected to start in 2022, is supported by two federal grants for the project in the amount of $11.7 million, when including the required local match monies. In total, the project will cost approximately $15 million with 74 percent coming from federal and state grants and 26 percent coming from local monies. If the adjacent Enterprise District at Alameda Point were to develop during construction of the Central Avenue project, there would be potential for development fees to cover some of the local match requirements for construction.
MUNICIPAL CODE/POLICY DOCUMENT CROSS REFERENCE
The Central Avenue project is consistent with the following City documents:
• The Safety and Noise Element of the General Plan (Policy SN-5) states: “Ensure that the City prioritize public safety through the implementation of a Vision Zero policy to reduce annual pedestrian and bicyclist fatalities and serious injuries resulting from collisions with faster moving vehicles and unsafe street design.”
• The Transportation Element of the General Plan lists Central Avenue as a transit priority street, a bicycle priority street and a truck route, in school and recreation zones and as an island arterial, and lists other priorities that are addressed in the Central Avenue concept such as multimodal, safety and environmental improvements and considering needs for individuals with disabilities.
• The Pedestrian Plan identifies the Central Avenue improvements as a priority.
• The Bicycle Plan identifies the Central Avenue bikeway project as a high-priority project.
• The Transportation Choices Plan lists the Central Avenue project as a Vision Zero Safety Improvements and Traffic Calming priority.
• The Vision Zero Policy that focuses on eliminating fatal and severe injury collisions, and is the citywide guiding principle for transportation planning, the design of streets and sidewalks, and the maintenance of the public rights-of-way making safety as the highest priority when balancing competing needs and demands for space within the public right-of-way.
ENVIRONMENTAL REVIEW
Approval of the Central Avenue Safety Improvement Project final concept is categorically exempt pursuant to California Environmental Quality Act (CEQA) Guidelines section 15301(c) Existing Facilities (Minor alterations to existing facilities including bicycle facilities), Section 15304(h) Minor Alterations to Land and the creation of bicycle lanes on existing public rights of way, and Section 15183 (projects consistent with a Community Plan, General Plan, or Zoning), each as a separate and independent basis.
As a separate and independent basis, the project also is statutorily exempt from CEQA pursuant to Public Resources Code Section 21080.20.5 (restriping of streets and highways for bike lanes in an urbanized area that is consistent with a bike plan).
The City Council already made this determination in February 2016, and is being asked to revalidate CEQA with the approval of the final concept. Additional environmental review is being done in compliance with NEPA, and the environmental document is expected to be a categorical exclusion for NEPA. To protect environmental resources the project design includes the following features:
• Cultural Resources: In the event of discoveries of buried or concealed heritage resources, ground disturbance activities shall cease in the area of the find and the project sponsor shall consult a qualified archaeologist for recommended procedures. The majority of the anticipated excavation work will occur within soils that have been previously disturbed by existing utilities and road construction work. The only excavations that are anticipated to require disturbing native soil include potential light pole foundations or utility pole relocations. The drainage improvements and flashing beacon foundations are at a depth where some minor disturbance of native soil is possible depending on the location.
• Construction Noise and Vibrations: During construction, heavy equipment will be used for excavation, paving and installation of proposed improvements. The construction activities will cause temporary increases of noise and vibration within and adjacent to the project area. It is not anticipated that excessive vibrations will be caused during construction that would damage buildings or nearby infrastructure.
• Visual Resources: The project will not impact the visual environment, nor will it impact any designated scenic resources. The project will increase visual access to waterfront resources because of improved ingress and egress to the bay and improved ADA considerations as its designation as part of the San Francisco Bay Trail between Main Street/Pacific Avenue and east of Fifth Street by Crown Drive at the Bay Trail trailhead. The proposed landscaping features such as the roundabouts and green infrastructure also will improve its visual character. No designated scenic resources will be impacted by the project including the historic plane trees, which will be protected.
• Land Use and Community Resources: No permanent right-of-way acquisition is proposed, although some temporary construction easements will be required to properly construct improvements near property lines or that connect to private improvements. These easements will include documented construction protocols that minimize impacts to adjacent properties and users. The proposed project will not be expected to result in a shift in land use patterns. The project will improve community character and cohesion; therefore, no adverse impacts to community character and cohesion are anticipated. It also will serve as an important part of the San Francisco Bay Trail constructing a one-half mile section of it.
• Transportation and Parking. The project will not result in any additional vehicle miles traveled. In fact, the project is designed to support safe and convenient mode shift and to reduce automobile congestion and automobile greenhouse gas emissions by creating a safe and convenient alternative to automobile travel across the city. Finally, loss of on-street parking is not an impact on the environment under CEQA.
• Environmental Justice: The project will increase public safety and connectivity for all community members and especially for community members living and working along or near the corridor who do not own a personal automobile or do not drive such as children, seniors or low-income populations. No disproportionally high or adverse impacts are anticipated to the identified environmental justice populations. City staff targeted environmental justice populations with flyers in English, Spanish and Chinese.
• Drainage/Flood Management: Drainage improvements, including green stormwater infrastructure, are proposed to alleviate flooding issues and provide water quality improvements. The drainage system within the project corridor drains to the San Francisco Bay, a Water of the State. No jurisdictional wetlands, streams/streambeds, channels, etc. will be impacted by the project. Drainage improvements and stormwater management facilities are planned, but no changes to the existing surface or subsurface drainage patterns are anticipated as project modifications will be designed to perpetuate existing drainage facilities. New connection laterals will be required to perpetuate existing drainage patterns, but no major culvert structures are anticipated.
• Vegetation/Tree Removal: The project will minimize the loss of trees, and is expected to require tree removal in front of Encinal School on City property and potentially at other spot locations. The tree removal will be in compliance with the City tree ordinance in the Alameda Municipal Code Section 13-21. The majority of the existing street trees will be protected in place. A tree survey is being conducted and special protective measures will be developed for the large heritage trees lining much of Central Avenue. Privately owned landscaping that must be removed, or is damaged during construction, will be replaced, or compensation will be negotiated. Replacement plantings will be funded by the roadway contract, and will include a one-year plant establishment period.
CLIMATE IMPACTS
Vehicle miles traveled in Alameda is the largest source of greenhouse gas emissions in Alameda. In 2020, automobiles are estimated to generate approximately 70% of Alameda’s greenhouse gas emissions. The Central Avenue Safety Improvement Project implements the City’s Climate Action and Resiliency Plan (2019), which highlights the need for sustainable transportation such as increased bicycling and walking and for the reduction of solo driving so as to reduce greenhouse gas emissions. The project also improves the resiliency to the impacts of climate change with drainage system upgrades and best practice stormwater management treatments such as rain gardens, street trees and pollutant reduction measures to mitigate flooding and the water quality impacts of storm water runoff.
RECOMMENDATION
Approve the Central Avenue Safety Improvement Project Final Concept.
Respectfully submitted,
Andrew Thomas, Planning, Building and Transportation Director
By,
Gail Payne, Senior Transportation Coordinator
Financial Impact section reviewed,
Annie To, Finance Director
Exhibits:
1. Central Avenue Project Description
2. Central Avenue Project Final Concept (Exhibits 2a, 2b and 2c)
3. Traffic Operations Analysis Report
4. Community Comments from the Virtual Open House
5. Community Comments from Social Media and Email Correspondence