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HomeMy WebLinkAbout4.03 DeficientPlan580WestSUBJECT: CITY CLERK File #1060-90 AGENDA STATEMENT CITY COUNCIL MEETING DATE: November 6, 2001 Adoption of Deficiency Plan for Interstate 580 Westbound from Center Street (Castro Valley) to Interstate 238 Report Prepared by: Lee Thompson, Public Works Director ATTACHMENTS: 1) Resolution approving the 1-580 Deficiency Plan 2) Deficiency Plan Executive Summary, dated OCtober 11,2001 RECOMMENDATION: ~A~ Adopt resolution approving the Deficiency Plan for I-580 westbound from Center Street to Interstate 238 FINANCIAL STATEMENT: If this Deficiency Plan is not approved by all the participating agencies and the Alameda County Congestion Management Agency, the agencies could have their State Gas Tax subventions withheld. Dublin receives approximately $617,000 in gas tax annually. DESCRIPTION: The Alameda County Congestion Management Agency (CMA) annually monitors traffic congestion on freeways and major roads identified in the Congestion Management Program. The 2000 Congestion Monitoring Report found that traffic congestion on 1-580 westbound in Castro Valley between Center Street and 1-238 had degraded to a level of service "F" during the afternoon commute period. If the level of service in any segment of the Alameda County Congestion Management Program Network drops to an "F", State law requires that a Deficiency Plan be prepared to identify measures that will mitigate the traffic congestion. The procedures adopted by the' CMA for the development of deficiency plans require the participation of jurisdictions that contribute at least ten percent (10%) of trips on the deficient segment. Dublin is required to participate since the Alameda County traffic model shows that more than ten percent of the traffic in the deficient segment has origins or destinations in Dublin, thus staff participated in the development of the Deficiency Plan. Alameda County is the lead agency in preparing the Plan as the deficient section of 1-580 is located in the unincorporated area of the County. The other participating agencies are the cities of Pleasanton, Livermore, San Leandro, and Oakland. The Deficiency Plan Study found that the 1-238 Widening Project between 1-880 and 1-580, which will widen the freeway from two to three lanes in each direction, would help to mitigate the congestion in the deficient segment. This project is fully funded and currently being designed by Caltrans. It should be noted that the actual starting point of the westbound 1-580 congestion is at the junction of 1-238 and 1-880 COPIES TO: G:agenmisc\agst 1-580 Deficiency Plan. doc southbound ramp where traffic backs up for up to three miles to Center Street in Castro Valley. The 1-238 Widening Project by itself will alleviate congestion on westbound 1-580 at 1-238 and eliminate deficient conditions upon its scheduled completion in 2008. Two other projects are also included in the Deficiency Plan: the 1-580/Center Street Off-Ramp Project and the Westbound 1-580 to Southbound State Route 238 Direct Connector Project. These projects have committed funding in the Countywide Transportation Plan and are expected to be complete by 2010. The traffic analysis shows the three projects identified in the Plan will mitigate the congestion in the deficient segment through at least Year 2025. State law requires that participating agencies adopt resolutions approving the Deficiency Plan. The Congestion Management Agency Board is scheduled to consider the Deficiency Plan at its November meeting. If the Deficiency Plan is not approved by the participating agencies and the Congestion. Management Agency by the end of November, participating agencies are subject to having their State Gas Tax subventions withheld~ Staff recommends that the Council adopt the resolution approving the Deficiency Plan for Interstate 580 Westbound from Center Street (Castro Valley) to Interstate 238. Page 2 RESOLUTION NO. - O1 A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF DUBLIN APPROVING THE DEFICIENCY PLAN FOR INTERSTATE 580 WESTBOUND FROM CENTER STREET (CASTRO VALLEY) TO INTERSTATE 238 WHEREAS, the 2001 Congestion Management Program states that a Level of Service Standard "E" or better is required for all roadways identified in the Congestion Management Program network; and WHEREAS, Interstate 580, from Center Street (Castro Valley) to Interstate 238, located in the unincorporated area of Alameda County, is included in the Congestion Management Program network; and WHEREAS, the 2000 Level of Service Monitoring of the Alameda County Congestion Management Program Network identified the westbound direction of Interstate 580 from Center Street to Interstate 238 at Level of Service "F,", thus failing to meet the Level of Service Standard; and WHEREAS, the Level of Service remained at "F" after all statutory allowable exemptions were considered; and WHEREAS, the Congestion Management Program statute states that a Deficiency Plan with all of the mandatory elements shall be required if the leVel of service standard is not met; and WHEREAS, the Congestion Management Program requires that the jurisdiction in which the deficient segment is located shall have lead responsibility for preparation and implementation of the Deficiency Plan and that the segments are in unincorporated Alameda County; and WHEREAS, the Congestion Management Program requires a jurisdiction to participate in the preparation of a Deficiency Plan if it contributes at least ten percent (10%) of the trips on the deficient segment of the roadway, or if a jurisdiction that does not meet the threshold but is surrounded by jurisdictions which do meet the threshold; and WHEREAS, the Cities of Livermore, Pleasanton, Dublin, San Leandro, and Oakland meet the above threshold requirements and have participated in the development of the Deficiency Plan; and WHEREAS, adoption and implementation of the Deficiency Plan is required in order to be found in conformance with the Congestion Management Program; and WHEREAS, the Interstate 238 Widening Project, the Center Street Off-Ramp Project, and the Westbound Interstate 580 to Southbound State Route 238 Direct Connector Project improve the overall Level of Service on the Congestion Management Program Network, and contribute to significant air quality improvements; and -1- WHEREAS, the Interstate 238 Widening Project, the Center Street Off-RamP Project, and the Westbound Interstate 580 to Southbound State Route 238 Direct Connector Project form the basis for the Deficiency Plan; and WHEREAS, the Interstate 238 Widening Project, the Center Street Off-Ramp Project, and the Westbound Interstate 580 to Southbound State Route 238 Direct Connector Project are included as committed projects in the Countywide Transportation Plan that was adopted by the Alameda County Congestion Management Agency Board on AugUst 2, 2001; and WHEREAS, the Deficiency Plan for Westbound Interstate 580 from Center Street to Interstate 238 meets all statutory requirements. THEREFORE, BE IT RESOLVED that the City Council of the City of Dublin adopts the Deficiency Plan for Westbound Interstate 580 from Center Street (Castro Valley) to Interstate 238; and BE IT FURTHER RESOLVED that the City Council acknowledges that implementation of the Deficiency Plan will be monitored biennially as required by state law and that the schedule and progress for implementation of the Plan will be considered as part of the annual conformity requirements for the congestion management program. PASSED, APPROVED AND ADOPTED this 6th day of November, 2001. AYES: NOES: ABSENT: AB STAIN: ATTEST: Mayor Pro Tempore City Clerk g:agenmisc\reso 1-580 Deficiency Plan.doc -2- Executive Summary Deficiency Plan for 1-580 Westbound From Center Street to i-238 prepared for Alameda County Public Works Agency in partnership with City of Oakland City of San Leandro City of Pleasanton City of Dublin City of Livermore prepared by CCS PLANNING AND ENGINEERINg N C 0 R P 0 R A ~/ E D 800 Charcot Avenue, Suite 100 San Jose, CA 95131 (408) 544-2477 October 11, 2001 EXECUTIVE SUMMARY INTRODUCTION AND SETTING The roadway section that is the subject of this deficiency plan is located in the unincorporated area of Castro Valley within Alameda County. It consists of westbound 1-580 from the Center Street on ramp to the 1-238 on ramp from eastbound 1-580. Figure ES-1 shows the location of the deficient section~ Preparation of this deficiency plan was triggered by the results of the 2000 traffic monitoring study, which found an average travel speed of 24.0 mph. This value is below the Level of Service (LOS) F threshold of 30 mph established by the Alameda County Congestion Management Program. As the existing bottleneck is located downstream of the deficient seCtion, the study area includes 1-238, 1-880 on ramps, and 1-880 freeway mainline sections downstream and upstream of the on ramps. Figure ES-2 presents the existing lane configurations at major ramp junctions and traffic volumes. DEFICIENCY ANALYSIS Based on microsimulation of traffic conditions during the weekday PM peak hour, the source of the deficiency was found to be a capacity bottleneck at the westbound junction of the 1-880 northbound and southbound ramps on 1-238. This analysis is consistent with the traffic operations analysis for the 1-238 Widening Project Study Report, which was completed for Caltrans in 1998. Because of the bottleneck, upstream queuing has now extended well into the study area and results in the deficient average travel speed. The results of the microsimulation analysis for the PM peak hour are presented in Table ES-1. This presents baseline results for the evaluation of selected roadway improvement projects. Deficiency plan for 1-580 Westbound Alameda County Public Works Agency CCS ES- 1 October 11, 2001 CASTRO VALLEY {UNINCORPORATED ALAMEDA COUNTY) Deficient Section HA't'WARD HAYWARD Legend ~Freeway - - ,Deficient Section 2,000 4,000 6,000 Feet October 8, 200t Westbound 1-580 Deficiency Plan Figure ES-t Location Map 8,750 ~ Note: Volumes rounded to nearest 10. 2001 Westbound 1-580 Deficienw Figure Existing ES2 PM Peak Hour Volumes and ~ CCS Lane Configuration Table ES-1 Analysis of Existing PM Peak Hour Conditions (2000) on Deficient Section (Average Travel Speed) Avg. Times Speed (min.) (mph) 5:00-5:15 36.2 5:15-5:30 17.5 individual 15-minute Time Periods 5:30-5:45 6.4 5:45-6:00 3.4 Average 15.9 5:00-5:15 36.2 Oumulative 15-minute Time Periods 5:00-5:30 25.4 5:00-5:45 10.0 5:00-6:00 9.7 Analysis is provided for two horizon years. The first year is 2008, the projected completion date for near-term improvement projects. The second year is 2025, the current horizon year for the 2001 Countywide Transportation Plan, and includes all long-term improvement projects. The analyses are based on traffic volumes from the most current forecasts from the 2005 and 2025 versions of the Countywide transportation forecasting model. Traffic volume projections for the 2008 analysis were determined through interpolation between the volumes for these years on the appropriate 2005 network links. MULTI-JURISDICTIONAL DEFICIENCY PLAN PARTICIPATION The procedures adopted for the development of deficiency plans adopted by the Alameda County Congestion Management Program (CMP) require the participation of jurisdictions who contribute at least ten percent (10%) of trips on the deficient segment. For the deficient segment on westbound 1-580, participating agencies include the following: Alameda County, City of Dublin, City of Livermore, City of Oakland, City of Pleasanton, and City of San Leandro. Alameda County is the lead agency as the deficient section is located within its jurisdiction. Staff from these agencies participated in the development of improvement projects and reviewed the deficiency plan. Deficiency plan for 1-580 Westbound Alameda County Public Works Agency CCS ES-4 October 11, 2001 SCREENING OF ACTIONS Several projects were considered within the deficient section and adjacent sections for reducing congestion. They included the following: 1-238 Widening Project. This project provides a third lane between the 1- 580/I-238 junction and the junction for the 1-880 northbound and southbound on ramps. The project will retain an auxiliary lane between the 1-580 on ramp from eastbound 1-580 and the Mission Boulevard (SR 185) off ramp. Currently, project funding of $100 million has been programmed, and completion is-scheduled for 2008. This project is in the 2001 Countywide Transportation Plan and the 2005 Countywide traffic forecasting model network. Ramp metering at the 1-880 on ramps from 1-238. This project is not expected to affect existing capacity of the on ramp but only provide more uniform traffic flows onto 1-880. This project is included in the 1-238 widening project. Fourth lane in each direction on 1-238 between the 1-580 on ramp and the junction for the 1-880 on ramps. This project represents the ultimate lane configuration for 1-238 but is not included in the 2001 Countywide Transportation Plan and is not included in the 2005 or 2025 CMP traffic forecasting models. SR 238 Hayward Bypass from the 1-580 Junction. The project has been programmed and is currently awaiting final Federal approval. A new roadway would be constructed east of and parallel to Foothill Boulevard, which currently is SR 238. The Hayward Bypass has been included in the 2025 CMP traffic forecasting network but not the 2005 network. This project provides new .connections to existing ramps that serve the deficient section and would not affect existing travel patterns to or from the section. Westbound 1-580 to Southbound SR 238 Direct Connector. This project was originally part of major interchange improvements at the 1-580/I-238 junction in the early 1990's. This project, thus, is separate from the Hayward Bypass but is related to it, and Caltrans would like to construct the two projects at approximately the same time. The connector provides a new off ramp immediately after the Strobridge Avenue off ramp. The project's estimated cost of $17 million is fully funded and is included in the 2025 but not the 2005 Countywide transportation forecasting model. Improvements at Center Street interchange, This project is funded through the recent transportation sales tax measure. The Alameda County Transportation Improvement Authority's (ACTIA's) 20-year expenditure plan includes $9.2 million for this project. A new westbound off ramp will divert some traffic that otherwise would have traveled through part of the deficient Deficiency plan for 1-580 Westbound Alameda County Public Works Agency CCS ES-5 October 11, 2001 section and, thus, may provide operational benefits. Aisc included in the Castro Valley .interchange project are two eastbound ramp projects that are unrelated to traffic in the deficient section. They are an eastbound on ramp from Redwood Road and replacement of the existing eastbound off ramp to Center Street. The new off ramp at Center Street is included in the 2025 CMP network but not the 2005 network. Ramp metering on 1-580 between Livermore and Castro Valley. This project is unfunded at the present time, and no implementation schedule exists; however, it is in Caltrans' overall plan for ramp metering on 1-580. The project is not expected to significantly impact freeway capacity or traffic operations within the deficient section. The following criteria were considered in deciding which projects to include in the deficiency analysis: 1. Is the project in the 2025 Countywide Transportation Plan? 2. Is funding committed for the project? Based on the above noted criteria, the deficiency plan includes three projects. They are as follows: 1-238 Widening Project: This project has been recognized as a high priority. Funding has been secured, preliminary studies are complete, and final design will begin in early 2002. The existing queuing that originates at the junction for the 1-880 ramps and extends well into the deficient section by the end of the PM peak hour demonstrates the necessity for this project. Based on the latest Caltrans schedule, the implementation year for this plan has been presumed to be 2008. This project has been included in the network for the 2005 Countywide transportation forecasting model. This project is considered to be the primary project to address the deficiency in the near- term. Center Street Westbound Off Ramp: This project is included in the 2025 but not the 2005 Countywide transportation forecasting network. It is anticipated that the project will be completed after 2008, and, thus, has been included in the 2025 but not the 2008 analysis. Westbound 1-580 to Southbound SR 238 Direct Connector: The project has been included in the 2025 analysis with the understanding that the project will be completed after 2008. The project, although related to the Hayward Bypass, is a separate project. The Hayward Bypass project itself has not been included in the implementation plan, as noted, because it does not provide any new connections to or from the deficient section. Nevertheless, as already noted, it is included in the 2025 network and, thus, has been assumed to be constructed by this date. Deficiency p/an for 1-580 Westbound CCS Alameda County Public Works Agency ES-6 October 11, 2001 ~ 690~~ <> HOV Lane Note: Volumes rounded to the nearest 10. 2001 Westbound 1-580 Deficiency Figure 2008 Intermediate ES3 PM Peak Hour Volumes and Lane Configuration Yalley 340 P~ Pe~k Hour Volumes --- Lane Addiiion for Fin,, Note: Volumes rounded to nearest ~0. 2001 Westbound I-~80 Deficiency Figure 2025 Final ES4 PM Peak Hour Volumes and ' Lane Configuration , EVALUATION OF SUITABLE ACTIONS For both the near-term (2008) and long-term (2025) scenarios, microsimulation of traffic flows during the PM peak hour was conducted to determine the average speeds during the PM peak hour. Traffic volumes and lane configuration for the 2008 and 2025 scenarios are presented in Figures ES-3 and ES-4. As the existing bottleneck is located downstream of the deficient section, the study area includes 1-238, 1-880 on ramps, and 1-880 freeway mainline sections downstream and upstream of the on ramps. Table ES-2 provides average travel speed during the PM peak hour for the near-term and long-term scenarios as well as the analysis of existing conditions for comparison purposes. Short Term (2008) Analysis As shown in Table ES-2, the average speed of PM peak hour travel time runs in 2008 would be expected to be approximately 32.8 mph. As this speed corresponds to LOS E, the 1-238 widening project by itself will eliminate deficient conditions when it is completed in 2008. This corresponds to an average travel speed 8.8 mph higher than the speed recorded during the 2000 monitoring period (24.0 mph). The improvement project would provide increased capacity on 1-238 that eliminates the existing bottlenecks on 1-238 at the junction of the 1-880 on ramps and also would provide needed vehicle storage if capacity constraints on the 1-880 ramps result in upstream queuing. The 2008 analysis indicates some queuing on the northbound on ramp to 1-880, but the queue does. not extend as far east as the junction of the- northbound and southbound on ramps. The analysis results are considered conservative, as the Castro Valley Road on ramp traffic forecasts are significantly higher than existing conditions. Long Term (2025) Analysis Over time, traffic will increase in the study area. The two additional projects included in the 2025 analysis, Center Street off ramp and the 1-580 westbound to southbound SI:{ 238 connector, will result in changes in traffic patterns within the deficient section and are both in the 2025 Countywide traffic forecasting network. The Hayward Bypass (SR 238) is included in the 2025 network, but the project utilizes existing connections to the 1-580/I-238 corridor in both directions and, as noted earlier, is not included in the implementation plan. There will be some localized congestion in the deficient section but queuing from the westbound 1-580 ramp that occurred in the 2008 analysis would be eliminated. The result will stabilize traffic conditions throughout the peak hour, with average travel speeds during the peak hour in the narrow range of 35.1 to 35.7 mph. Despite the increase in overall traffic, the overall average speed actually increases by 2.5 mph from the 2008 value to 35.3 mph. Congestion on the 1-880 on ramps will increase compared to 2008 conditions. Queues on both ramps will extend to the junction on 1-238 for the ramps but will not extend into the deficient section. Deficiency plan for 1-580 Westbound CCS Alameda County Public Works Agency ES-9 October 11, 2001 Table ES-2 Comparison of Average Speed Analysis Results for PM Peak by Link and Scenario for Westbound 1-580 Deficient Section Link 2000 2008 2025 Length Conditions Conditions Conditions No.;From To (ft.) (mph) (mph) (mph) 1 Center St. On Ramp Lane Addition 1,245 38.6 52.6 50.6 2 Lane Addition Redwood On Ramp 1,075 36.4 54.9 53.5 3 Redwood On Ramp Strobridge Off Ramp 1,320! 29.4 49.0 48.1 4a Strobridge Off Ramp Hayward Bypass Off Ramp(i) 400 27.9 22.3 22.9 4b Hayward Bypass Off Ramp(i) 1-580/I-238 Junction 1,000 24.3 5 1-580/I-238 Junction Foothill On Ramp 2,660 11.0 28.0 27.2 6 Foothill On Ramp On Ramp from NB 1-580 1,155 13.5 46.2 45.8 Deficient Section (Center St. to 1-580 On Ramp) 8,855 15.9 32.8 35.3 Notes: (1) Hayward Bypass only exists in 2025 analysis. Deficiency plan for 1-580 Westbound Alameda County Public Works Agency CCS ES-lO October 11, 2001 Several important points are noted: Benefits of the two additional roadway improvements included in the 2025 analysis will occur after 2008. These projects have been funded but they require significant amounts of time for design and construction, and completion soon after 2008 is anticipated. For purposes of this study, a date of 2010 has been assumed. · Projects included in the implementation plan will ensure an acceptable level of service in the deficient section from 2008 to at least 2025. IMPLEMENTATION PLAN The implementation plan includes three improvement projects, which all have a high degree of being implemented as planned because funding has been secured. A summary of the construction projects is provided in Table ES-3. Table ES-3 Summary of Projects in Implementation Plan Estimated Name Description Estimated Cost Funding Status Completion Date 1-238 Widening Adding 3rd Lane $100 million Funded with Final 2008 from 1-238/I-580 (total project) Design to Begin junction to I- Early 2002 238/I-880 ramps junction Center Street Off Construct new $9.2 million Funded with Design 2010 Ramp off ramp (overall project to Begin Spring, for Castro Valley 2002 interchanges) Westbound 1-580 Direct connector $17 million Funded as 2010- to Southbound from westbound identified in the SR 238 1-580 to 2001 Countywide connector southbound SR Transportation Plan 238 CONCLUSION Based on the analysis performed for the preparation of the deficiency plan, the existing deficiency will be eliminated in 2008 and remain at an acceptable level of service until at least 2025, as long as the three designated projects in the implementation plan are in operation by the completion dates that have been assumed. P:\01074\Reports\10-11-01 Report\Exec Sum\Section Executive Summary.doc Deficiency plan for 1-580 Westbound Alameda County Public Works Agency CCS ES-11 October 11, 2001