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HomeMy WebLinkAbout1996-02-01 City CouncilCity of Palo Alto City Manager’s Report TO:HONORABLE CITY COUNCIL FROM:CITY MANAGER DEPARTMENT: PLANNING DATE:February 1, 1996 CMR:134:96 SUBJECT:Caltrans Project to Install a New Southbound On-ramp to U.S. Route 101 at San Antonio Road, Related Changes .to the Charleston Road/San Antonio Road Intersection, and Ramp Metering Along U.S. Route 101 in the Southbound Direction REQUEST This is an informational report, and no Council action is requested. Caltrans has had a proposed project (a) to install a new sonthbound on-ramp to U.S. Route 101 at San Antonio Road along with related changes to the Charleston Road/San Antonio Road intersection, and (b) to install ramp metering along U.S. Ronte 101 in the southbound direction. Recently, Caltrans has decided to delete the portion of the project that involves the new southbound on-ramp at San Antonio Road and related changes to the Charleston Road/San Antonio Road intersection and to proceed with only the portion of the project that involves the installation of ramp metering along U.S. Ronte 101 in the southbound direction (Attachment 1). Whereas Caltrans would have needed City approval of a revised Freeway Agreement in order to install the new southbound on-ramp at San Antonio Road, Caltrans does not need City approval for the ramp metering, as long as it does not involve any work witlfin the City’s fight-of-way and does not conflict with the existing freeway agreement. Therefore, Caltrans has not requested formal .approval of ramp metering from Palo Alto or other similarly affected cities (Mountain View, Santa Clara and Stmnyvale). The i~urpose of this report is to share information regarding the evolution of this project. RECOMMENDATIONS No Council action is required or recommended. CMR:134:96 Page 1 of 7 POLICY IMPLICATIONS The project, as originally proposed, is consistent with efforts to maintain and improve traffic conditions in major travel corridors and on regional roadway facilities. These are important considerations, in view of efforts to improve air quality and meet the objectives and requirements of the Santa Clara County Congestion Management Program. The deletion of the proposed new on-ramp at San Antonio Road, and closure of the existing Charleston on-ramp diminishes, but does not negate, some operational improvement for fi’eeway traffic flow. In 1982, when Caltrans proposed a set of operational improvements for southbound Route 101 it was referred to as the "Congestion Relief Project" and included both ramp metering and a new on-ramp at San Antonio Road and closure of the existing Charleston Road on- ramp. The City Council reviewed and approved that project, subject to several conditions. The current project, as originally proposed, includes essentially the same operational improvements proposed in the earlier Congestion Relief Project, and incorporates measures that address the conditions raised by the City of Palo Alto, during the review of the earlier (1982) proposed project. EXECUTIVE SUMMARY Background Caltrans has had a proposed project that would make certain operational improvements along U.S. Route 101 (San Mateo County line to Route 880). The proposed changes in Palo Alto would include the following items: Construction of a new southbound entrance ramp to Route 101 from San Antonio Road, in conjunction with the concurrent closure of an existing southbound Charleston Road entrance ramp, at the Rengstorff Avenue interchange; the installation of a traffic signal at the new intersection of the new freeway entrance ramp and San Antonio Road; and the minor widening of Charleston Road to provide two southbound left- turn lanes onto San Antonio Road. CMR:134:96 Page 2 of 7 Installation of ramp metering [including High Occupancy Vehicles (HOV) preference at some locations] on southbound entrance ramps to Route 101 at: Embarcadero Road, Oregon Expressway, and San Antonio Road (new entrance ramp). In order for Caltrans to proceed with the new on-ramp at San Antonio Road (part A), Caltrans needs, and has requested that the City of Palo Alto approve, a new Freeway Agreement, as well as a related Cooperative Agreement and two Utility Agreements. However, regarding ramp metering (Part B), Caltrans does not need City approval for the ramp metering, as long as it does not involve any work within the City’s right-of-way and does not conflict with the existing freeway agreements. Therefore, Caltrans has not requested formal approval of agreements with the City of Palo Alto, or other similarly affected cities (Mountain View, Santa Clara and Sunnyvale). The Council, at its regular meeting on Monday, March 22, 1993 considered the subject project and decided to continue the item until the April 12, 1993 City Council meeting. The item was then removed from the April 12th agenda, for the purpose of further evaluation. Subsequently, Caltrans put the prdject on hold pending completion and approval of required air quality analyses and other priority projects.. Included as Attachment 2 is an earlier staff report (CMR: 186:93; March 18, 1993) that provides more detail regarding the project. Additional information on three issues discussed at the March 1993 meeting is provided as Attaclmaent 3. Current Status During the intervening three years since this topic was last before the Council, Caltrans has completed a study to evaluate the air quality impacts on receptors near metered ramps. The Metropolitan Transportation Commission (MTC) has reviewed the study and concluded that the project meets air quality conformity requirements (Attachment 4). In August 1995, Caltrans advised City staffthat they were prepared to proceed with the advertisement and construction of the project and requested final Palo Alto City Council action on elements that require approval of the City of Palo Alto. CMR:134:96 Page 3 of 7 In the process of final staff review and preparation of information for Council review, a concern regarding the adequacy of the length of the proposed double left-turn lane, to be installed on the southbound approach of Charleston Road at the San Antonio intersection, arose. Several discussions with Caltrans staff established that the proposed length of the double let~-mm lane is insufficient and would, thereby, cause a negative impact on a local City street. Measures to resolve the negative impact, by extending the length of the double left-turn lane, are either insufficient and/or result in further negative impacts at the Charleston/Fabian intersection. Further discussions with Caltrans staff led to consideration of several other possibilities, all predicated upon the new assumption that the Charleston on-ramp to Route 101 would remain open, rather than closing it. This would redistribute traffic on Charleston Road in a manner that renders the proposed length of the double left-turn lane sufficient. Alternatives During these discussions, Caltrans indicated a willingness to consider three options regarding the new on-ramp and related changes to the Charleston Road!San Antonio Road intersection. In all cases, installation of ramp metering on all southbound on-ramps would proceed as proposed. Option 1:Build the San Antonio on-rmnp, close the Charleston on-ramp, and modify_. City_ streets as proposed. This plan is the proposed project reviewed by Council at the March 1993 meeting, and is clearly Caltrans’ preference. This plan includes the closure of the Charleston on-ramp, which is one of the primary freeway operational improvements which this project is intended to achieve. However, it results in a negative impact in the area of the Charleston~abian intersection that calmot be satisfactorily resolved. Option 2:Build the San Antonio on-ramp, leave the Charleston on-ramp open, and do not make any changes to City, streets. This plan forgoes one of the primary freeway improvements that the project is intended to achieve, namely the closure of the Charleston on- ramp. In addition, the existing left-ram storage on southbound Charleston at San Antonio would be insufficient to handle some increment of additional left-turning vehicles, attracted to the new San Antonio on-ramp. CMR:134:96 Page 4 of 7 This plan would also require some type of formal legal agreement between Caltrans and Palo Alto, as well as Mountain View (the jurisdiction within which the existing Charleston on-ramp is located), in order to ensure that the Charleston 0n-ramp is not closed at some future time, without the concurrence of Palo Alto. Option 3:Do not build the San Antonio on-ramp, leave the Charleston on-ramp open, and make no changes to City. streets. While this option also forgoes one of the primary freeway improvements that the project is intended to achieve (closure of the Charleston on-ramp), it has little or no impact on Palo Alto’s streets and intersections. No agreement between Caltrans and Palo Alto and no further action by the Council would be required for this alternative. While problematic, there may come a time in the future when Caltrans again proposes the construction of a new southbound on-ramp at San Antonio Road, in conjunction with other actions. In addition to these three options, City staff felt that there was another and better option. Option 4:Build the San Antonio on-ramp, leave the Charleston on-ramp open, and modify. City streets as proposed. This plan would satisfactorily resolve the negative impact in the area of the Charleston/Fabian hatersection associated with Option 1, while still achieving some, albeit not all, of the freeway operational improvement associated with the closure of the existing Charleston on-ramp. By not closing the Charleston on-ramp to Route 101, traffic on Charleston Road, on the southbound approach to the San Aa~tonio intersection, would be redistributed in a manner that renders the proposed length of the double left-turn lane sufficient. This option would also require some type of formal legal agreement between Caltrans and Palo Alto, as well as Mountain View (the jurisdiction within which the existing Charleston on-ramp is located), in order to ensure that the Charleston on-ramp is not closed at some future time, withont the concurrence of Palo Alto. CMR:134:96 Page 5 of 7 Conclusion Caltrans clearly prefers to proceed with the project as originally proposed (Option 1), which is to include the construction of a new San Antonio on-ramp and close the existing Charleston on-ramp. However, without resolving the identified associated negative impact on a local City street and preparation of appropriate environmental documentation, City staff does not support Option 1. Caltrans indicated some willingness to proceed with Option 2, which they feel addresses and resolves the concern regarding the negative impact on a local City street, provided Palo Alto agrees to support the closure of Charleston Road, if and when some undefined criteria are met in the future. City staff does not believe that the existing left-turn storage along Charleston Road at San Antonio Road is sufficient and, therefore, a negative impact is likely to occur. Furthermore, it appeared that the intent and content of a potential agreement regarding the future closure of Charleston Road was viewed quite differently by Caltrans staff and City staff. Caltrans indicated that they believe there is not sufficient justification from a traffic operations standpoint to support Option 4, which includes the improvements at the Charleston Road!San Antonio Road intersection and did not agree that a negative impact would occur on City streets if Option 2 were built. Therefore, they would not support Option 4. Subsequently, Caltrans has now advised City staffthat they are proceeding with Option 3, which provides for the installation of ramp metering along U.S. route 101 in the southbound direction, and deleting the portion of the project that involves the new southbound on-ramp at San Antonio Road. They are revising their plans for submittal to their headquarters office for approval and advertisement. Whereas Caltrans’ would have needed City approval of a revised Freeway Agreement in order to install the new southbound on-ramp at San Antonio Road, Caltrans’ position is that they already have the necessary authority to fully implement ramp metering; and, therefore, have not requested formal approval of ramp metering from Palo Alto or other similarly affected cities (Mountain View, Santa Clara and Suunyvale). City staffhad offered to bring the issue of the various options before the Council for some policy direction, and was prepared to do so on January 16, 1996, Caltrans indicated that they did not wish to bring the item to the Council without City staff support and agreement with Caltrans regarding a recommended option. CMR: 134:96 Page 6 of 7 In summary, Caltrans is proceeding with the implementation of a project that includes installation of ramp metering on the southbound lanes of U.S. Route 101 at Embarcadero and Oregon in Palo Alto. Work on this project is likely to begin in the late spring or summer of this year (1996). No changes (additions or closures) are to be made to the ramp configuration that now exists at San Antonio Road and Charleston Road and no changes will be made to the Charleston Road!San Antonio Road intersection. FISCAL IMPACT There is no fiscal impact to the City of Palo Alto. ENVIRONMENTAL ASSESSMENT Caltrans has indicated that they have completed the necessary environmemal analysis to proceed with this project. ATTACHMENTS 1:Letter from Caltrans (January 5, 1996) regarding options and intent. 2:Staff Report (CMR:186:93; dated March 18, 1993). 3:Additional information regarding three topics discussed at March 22, 1993 Council meeting. 4: Letter from Caltrans (September 12, 1995) regarding air quality conformity. Prepared By: Marvin L. Overway, Chief Transportation Official Department Head Review: KENNETH R. SCHREIBER Director of Plmming and Community Environmem City Manager Approval: City CO:Caltrans (Stewart Ng) City of Mountain View (Dennis Belluomini) James Dinkey Larry Barone Walt Bailey Leanne Bryant Jack Woodson Owner/managers 835 & 851 San Antonio 830, 849, & 870 Charleston CMR: 134:96 Page 7 of 7 STATE OF CAUFORNIA--BUSINESS, TRANSPORTATION AND HOUSING AGENCY DEPARTMENT OF TRANSPORTATION DISTRICT 4, OFFICE OF PROJECT DEVELOPME~f SANTA CLARA COUNTY 1754 Technology Drive, Suite 200 San Jose, CA 95110 ATTACHMENT1 PETE WIL~ON, Governor January 5, 1996 Mr. Marvin L. Overway Chief Transportation Official City of Palo Alto P. O. Box 10250 Palo Alto, CA 94303 Dear Mr. Overway: The purpose of this letter is to confirm our understanding of the current status of the proposed project to construct a new southbound on-ramp to Route 101 at the San Antonio interchange and to install ramp metering along southbound Route 101 from the San Mateo county ¯ line to the De La Cruz Boulevard!Trimble Road Interchange. In the meeting with you on December 6, 1995, our staff discussed three options: Option 1 Build the Route 101 southbound on-ramp at the San Antonio Interchange, close the Charleston Road on-ramp to southbound Route 101 and provide street improvements at the San Antonio Road/Charleston Road intersection. This option provides: Two metered mixed-flow lanes at the new on-ramp to provide maximum storage of 44 vehicles (maximum demand is 30 vehicles. 250 feet double left turn lanes from southbound Charleston Road to eastbound San Antonio Road. The demand for these.left turns requires 900 feet of left turn storage length. Due to the close proximity with the Fabian/Charleston intersection, the required storage length cannot be met. This option was reflected on the Plans Specifications and Estimate (PS&E) transmitted to the City on September 21, 1995 for review and comments. Mr. Marvin L. Overway January 5, 1996 Page 2 Option 2 Build the new Route 101 southbound on-ramp at the San Antonio Interchange. The existing Charleston Road to southbound Route 101 on-ramp remains open. This on-ramp will not be metered under this project due to limited space for storage. There are no city street improvements under this option. Option 3 Not build the new on-ramp, at San Antonio Interchange. The existing Charleston Road on-ramp to southbound Route 101 remains open. The proposed project will move forward with ramp metering on other southbound on-ramps, except the Charleston Road on-ramp to southbound Route 101. In the meeting with our staffon November 21, 1995, you indicated your opposition to the Option 1 because of potential impacts on city streets due to lack of storage length for lef~ turn movements at the San Antonio Road/Charleston Road intersection. In the December 6, 1995 meeting, you again confirmed your position not to support Option 1. You also requested Caltrans to revise Option 2 to include the improvements at the San Antonio Road/Charleston Road Intersection as called out in the PS&E under Option 1. Without those improvements included, you were opposed to Option 2. We have considered your proposal, but there is not sufficient justification from a traffic operations standpoint to support the improvements at the San Antonio Road/Charleston Road intersection. We believe the majority of the traffic currently using the Charleston Road on-ramp will continue to use that on-ramp. Only a portion of that traffic will use the new on-ramp at San Antonio Road Interchange, since this ramp will be metered. Therefore, Caltrans will be proceeding ahead with Option 3. We are making corrections on the project’s PS&E to remove all works at the Route 10 I/San Antonio Road Interchange as well as street improvements at Charleston Road/San Antonio Road Intersection. As you are aware, this project is in the CTC’s 1995 Allocation Plan and it is critical that there be no further delays to the project. The final project’s PS&E will then be submitted to our Headquarters in the later part of January, 1996 for approval and advertisement. Mr. Marvin L. Overway January 5, 1996 Page 3 If you have any questions, please contact Paul Mai, Senior Transportation Engineer, at (408) 452-7331. Sincerely, JOE BROWNE Distric~!~irector STEWART D. NG, 0ffice~ Division of Design West Project Development, Santa Clara "B" sta o,t March 18, 1993 ATTACHMENT 2 12 HONORABLE CITY COUNCIL Palo Alto, California APPROVAL OF AGREEMENTS BETWEEN THE STATE OF CALIFORNIA AND CITY OF PALO ALTO IN CONNECTION WITH U.S. ROUTE i01 NEW ON-RAMP AT SAN ANTONIO ROAD,RELATED CHANGES TO CHARLESTON ROAD/SAN ANTONIO ROAD INTERSECTION,AND RAMP METERING ALONG U.S. ROUTE i01 IN SOUTHBOUND DIRECTION Members of the Council: REPORT IN BRIEF The California Department of Transportation (Caltrans) has proposed a project that will make certain operational improvements along U.So Route i01 (San Mateo County line to Route 880)° The proposed changes in Palo Alto, as illustrated in Figures 1 and 2, include the following items: Part A Construction of a new southbound entrance ramp to Route i01 from San Antonio Road, in conjunction with: the concurrent closure of an existing southbound Charleston Road entrance ramp at the Rengstorff Avenue interchange, the installation of a traffic signal at the new intersection of the new freeway entrance ramp and San Antonio Road, and the minor widening of Charleston Road to provide two southbound left-turn lanes onto San Antonio Road. CMR:186:93 Part B Installation of ramp metering (includlng High Occupancy Vehicles (HOV) preference at some locations) on southbound entrance ramps to Route I01 at: Embarcadero Road, Oregon Expressway, and San Antonio Road (new entrance ramp) In order for Caltrans to proceed with the new on-ramp at San Antonio Road (Part A), Caltrans needs and has requested that the City of Palo Alto approve a new Freeway Agreement, as well as two Utility Agreements° However, regarding ramp metering (Part B), Caltrans, position is that it already has the necessary authority to fully implement ramp metering; therefore, Caltrans has not requested formal approval or agreements with the City of Palo Alto, or other similarly affected cities (Mountain View, Santa Clara, and Sunnyvale). The City Attorney agrees that Caltrans does not specifically need Palo Alto’s approval for the ramp metering project° However, the Attorney’s office has requested, and Caltrans has agreed, that the two agencies also enter into a Cooperative Agreement that would supplement the Freeway Agreement by delineating the rights and responsibilities of.each party with respect to the on-ramp project and the ramp metering project. The Cooperative Agreement does not mandate that either project be done. The purpose of this report is to recommend, with respect to Part A (construction of a new southbound entrance ramp to Route i01 from San Antonio Road, and related changes to Charleston Road), that the Council: (1) (2) (3) (4) find that Part A of the proposed Caltrans project is consistent with the Comprehensive Plan,-and the Negative Declaration prepared by Caltrans is adequate; approve Part A of the proposed Caltrans project; approve a resolution (Attachment i) authorizing the Mayor to sign a Cooperative Agreement (Attachment 2) and a new Freeway Agreement (Attachment 3) with the State of California for Route I01 within the City of Palo Alto; authorize the Mayor to sign a Utility Agreement with the State of California for relocation of electric facilities (Attachment 4); and (5)authorize the Mayor to sign a Utility Agreement with the State of California for relocation of gas facilities (Attachment 5). C~R:186:93 3118193 Page 2 Staff also recommends, with respect to Part B (installation of ramp metering, including HOV preference, on southbound entrance ramps to .Route i01), that the Council: (6)underscore the importance of a commitment by Caltrans to (a) ongoing monitoring of the operations; (b) a thorough operational evaluation, inclusive of before and after conditions; and (c) remedial actions/projects to address any adverse impacts on local city streets. BACKGROUND AND DESCRIPTION OF PROJECT In 1982, Caltrans proposed a set of operational improvements for southbound Route I01 that was referred to as the "Congestion Relief Project,,. The City reviewed and approved that project (subject to several conditions); however, Caltrans never implemented the project, due to a number of factors. The current proposed project includes, essentially, the same operational improvements previously proposed in the earlier Congestion Relief Project, and incorporates measures that address the conditions raised by the City of Palo Alto, during the review of the earlier proposed project. Purpose of New San Antonio Road Entrance RamD CPart A) The purpose of closing the existing southbound Charleston Road entrance ramp and replacing it with a new entrance ramp at San Antonio Road is to reduce the repetitive delays and conflicts at the Rengstorff interchange. The congestion at this location is caused by vehicles entering Route i01 from Charleston Road and exiting Route I01 to Rengstorff Avenue (compounded by the close proximity of another entrance ramp from Rengstorff Avenue and the relatively high volumes of traffic making these maneuvers). Closure of the Charleston Road entrance ramp will significantly reduce the weaving maneuvers and conflicts that presently occur at this location, thereby improving traffic flow in the through travel lanes, as well as the entrance and exit ramps of Route i01o The proposed new southbound entrance ramp at San Antonio Road will serve much the same traffic as the existing Charleston Road entrance ramp, without many of the operational shortcomings and negative impacts. The closure of the Charleston Road entrance ramp at Rengstorff and the addition of the new ramp at San Antonio Road will cause a re- orientation of southbound traffic, that will create the heed for a second left-turn lane on the southbound Charleston Road approach to San Antonio Road° CMR:186:93 3/18/93 Page 3 Purpose of Ramp Meterinq ~Part B) When the traffic volume on a freeway is low-to-moderate, the intrusion of traffic from freeway ramps has little or no adverse impact on the overall flow of traffic. However, during the periods of peak traffic flow, as the traffic volume on freeways approaches the capacity of the roadway, the intrusion of traffic entering from freeway ramps becomes increasingly noticeable. As the volume of entering traffic increases, the effect on freeway traffic flow becomes increasingly pronounced to a point where entering traffic can, and often does, cause freeway traffic flow to deteriorate to a stop and go condition° This reduces the actual volume of traffic that the freeway can serve to a level well below its potentia! capacity° The primary purpose of ramp metering is to regulate the flow of ramp traffic entering the freeway traffic stream during the period of peak traffic flow, so that it has a minimal effect on the ability of the freeway to operate at its full capacity° By converting platoons of traffic into individual units, the merging process can be accomplished more efficiently with less disruption to traffic flow on the freeway, which preserves the full capacity of the freeway and reduces accidents and delay normally encountered in congested stop and go conditions° Actual experience with ramp metering in Denver has resulted in a i0 to 15 percent increase in the volume-carrying capability of the freeway° In Minneapolis, ramp metering has resulted in a 26 percent reduction in travel time and a 38 percent reduction in the accident rate° More Detailed Description of Proposed Project (Parts A and B) A March 20, 1992 staff report to the Planning Commission (Attachment 6) provides useful background information, as wel! as a more detailed description and discussion of the various components of the current proposed Caltrans project. PLANNING COMMISSION REVIEW The previous project (1982) received extensive review by the Planning Commission° Since the current proposed project will widen an existing roadway and is considered to have some effect on the physical development of the City, it was brought before the Planning Commission for its review and comments in accordance with Section 19o04o050 of the Palo Alto Municipal Code. The proposed Caltrans project was reviewed by the Planning Commission on March 25, 1992 (minutes included as Attachment 7). The Planning Commission passed a motion (7-0), finding that the project is consistent with the Comprehensive Plan and the negative CMR:186:93 3/18/93 Page 4 declaration is adequate, and recommending approval of the project to the City Council. The motion also included the importance of a commitment by Caltrans to: (a) ongoing monitoring of operations, (b) a thorough operational evaluation, inclusive of before and after conditions, and (c) remedial actions/projects to address any adverse impacts on local City streets° Finally, the Commission added a condition that Caltrans work with City staff, along with Planning Commissioner Tony Carrasco,to explore additional landscaping along Charleston Road. LANDSCAPING PLAN At the time of the Planning Commission review, the project, as proposed, required the removal of a total of II trees (4 mature trees [10-13 inches] and 7 young trees [2-3 inches]), all along Charleston Road. The proposed plan was to plant 12 new trees within the private, adjacent landscaped area belonging to Sun Microsystems. Figure 3 illustrates the locations of trees that are to be removed and the location of the new trees. The Planning Commission discussion reflected a strong interest in having additional trees included as part of the proposed project, including the possibility of a landscaped median° The action of the Planning Commission was to ask Caltrans, City staff and Commissioner Carrasco (having expressed an interest), to work together to explore additional landscaping possibilities. On April 2, 1992~ City staff (Transportation Division, City Arborist, and a staff representative of the Architectural Review Board) met with Commissioner Carrasco at the Charleston Road site, to discuss what would be an appropriate landscape treatment for the section of Charleston Road between San Antonio Road and Fabian Way. The individuals present reached the following conclusions: The provision of a landscaped median, albeit desirable, is not practical, due to through lane off-sets, dual turning lanes, and right-of-way limitations, and °A total of 26 new trees should be planted along Charleston Road, as illustrated in Figure 4. The tree replacement plan includes the planting of 16 pistachio trees, 9 sycamore trees, and 1 oak tree (at locations that are compatible with existing trees which will not be removed) as part of the roadway widening project° Caltrans has approved a request to incorporate the 26 tree replacement plan (Figure 4) as part of the overall Caltrans project, rather than the previous proposed plan (Figure 3). The project plans and specifications have been modified accordingly° CMR:186:93 3/18/93 Page 5 NEW FREEWAY AGREEMENT Caltrans has an established practice of executing a freeway agreement with each jurisdiction through which its freew~ays traverse. The agreement is a general statement of intent by appropriate parties regarding local streets, costs, and rights-of- way as they relate to a particular freeway alignment and configuration, including interchanges and ramps. The existing Freeway Agreement for the portion of Route i01 within the City .of Palo .Alto is dated May 12, 1958. At that time, portions of Route i01 were outside the then existing corporate limits of the City of Palo Alto and within the jurisdiction of Santa Clara County. Therefore, there presently exists a similar freeway agreement between the State and the County, dated September 17, 1958, covering the portion of Route i01 which, at that time, fell within the jurisdiction of Santa Clara County. In order for Caltrans to proceed with the portion of the proposed project that involves the new southbound entrance ramp from San Antonio Road to Route i01, Caltrans is requesting that the City of Palo Alto execute a new Freeway Agreement. The new Freeway Agreement would supersede the existing agreement executed in 1958 between the State and the City, as well as the one between the State and the County, since intervening annexation has caused portions of Route i01 previously within the County to now lie within the jurisdiction of the City of Palo Alto. The new Freeway Agreement incorporates a configuration for Route i01 and its interchanges and ramps, similar to what exists today, with the inclusion of a new freeway entrance ramp at. San Antonio Road. A copy of the proposed new Freeway Agreement is included as Attachment 3. COOPERATIVE AGREEMENT During discussions between Caltrans and City staff regarding the Freeway Agreement, City staff raised several issues which, due to limitations on format and content imposed by Caltrans, could not be fully resolved within the Freeway Agreement document itself. Therefore, a Cooperative Agreement between Caltrans and the City was developed, as a means to resolve Palo Alto’s concerns. A copy of the Cooperative Agreement is included as Attachment 2. UTILITY AGREEMENTS As part of the minor modifications to Charleston Road, there is a need for relocation of existing above and below ground utilities. As part of this proposed project, the City of Palo Alto will perform the necessary work to relocate electric and gas utilities; and Caltrans will reimburse the City for all costs related to such work. Other utility work will be done by the project contractor to the specifications and approval of the City of Palo Alto. CMR:186:93 3/18/93 Page 6 The estimated costs for the utility work to be done by the City, and fully reimbursed by Caltrans, is approximately $62,000 and $5,000 for electric and gas facilities, respectively. A copy of the Utility Agreement for electric related work is included as Attachment 4, and a copy of the Utility Agreement for gas related work is included as Attachment 5o STATUS OF PROJECT The plans and specifications for this project have been fully prepared by Caltrans and the project is ready for implementation° However, due to a new "post-CEQA" requirement from the Metropolitan Transportation Commission (MTC) Caltrans is currently preparing supplementa! air quality analyses and information for the project. This will eventually be submitted to MTC for its review and approval. In the meantime, further major progress on project implementation is on hold. Once Caltrans makes a firm decision to proceed with the project, Palo Alto staff will then do the necessary electric and gas relocation work, prior to the time that the project contractor implements the proposed physica! changes to Charleston Road. The portion of the project through Palo Alto is expected to take about four months to complete and the entire project is expected to take about ten months to fully complete° ENVIRONMENTAL ASSESSMENT An Environmental Assessment/Initial Study with a Negative Declaration was prepared by the California Department of Transportation, as lead agency, for the project and was approved by the U.So Department of Transportation, Federal Highway Administration, in November 1982o A copy of the Negative Declaration and Finding of No Significant Impact are included as attachments to the March 20, 1992 staff report to the Planning Commission (Attachment 6). In 1990, Caltrans completed a supplemental environmental review/report and concluded that "changes which have occurred in the proposal and in the surrounding conditions since the approval of the negative declaration have been reviewed, and no evidence of significant environmental impacts have been found°" In addition to the Caltrans environmental assessments, the proposed widening of Charleston Road, in conjunction with the closure of the existing Charleston Road entrance ramp and the provision of a new southbound entrance ramp from San Antonio Road (Part A), was included in the City’s environmenta! analysis for the City Wide Land Use and Transportation Study (87-EIA-50), as well as the San Antonio/west Bayshore Area CS/GM Zone Study (85-EIA-7). CMR:186:93 3/18/93 Page 7 CONCLUSION Staff believes that the proposal to: (a) replace the existing Charleston Road ramp with a new ramp at San Antonio Road, along with minor widening of Charleston Road to provide two left-turn lanes (Part A) and (b) install ramp metering with HOV preference, where practical (Part B), will individually and collectively contribute to improved traffic flow on Route i01 without significant adverse impact on other streets. Experience indicates that the freeway will be able to serve a higher volume of traffic with improved travel speed, smoother traffic flow, fewer and less severe accidents, and reduced congestion attributable to disruptions from platoons of traffic entering from freeway ramps, accidents, and other incidents. Furthermore, the proposed project is consistent with efforts to maintain and improve traffic conditions in major travel corridors and on regional roadway facilities. These are important considerations, in view of efforts to improve air quality and meet the objectives and requirements of the Congestion Management Program for Santa Clara County. RECOMMENDATION Staff recommends, with respect to Part A (construction of a new southbound entrance ramp to Route i01 from San Antonio Road, and related changes to Charleston Road) that the Council: find that -Part A of the proposed Caltrans project is consistent with the Comprehensive Plan and that the Negative Declaration prepared by Caltrans is adequate; (2)approve Part A of the proposed Caltrans project; (3)approve a resolution (Attachment i) authorizing the Mayor to sign a Cooperative Agreement (Attachment 2) and a new Freeway Agreement (Attachment 3) with the State of California for Route i01 within the City of Palo Alto; (4) (5) authorize the Mayor to sign a Utility Agreement with the State of California for relocation of electric facilities (Attachment 4); and authorize the Mayor to sign a Utility Agreement with the State of California for relocation of gas facilities (Attachment 5). C51R:186:93 3/18/93 Page 8 Staff also recommends, with respect to Part B (installation of ramp metering, including HOV preference, on southbound entrance ramps to Route I01) that the Council: (6)underscore the importance of a commitment by Caltrans to (a) ongoing monitoring of the operations; (b) a thorough operational evaluation, inclusive of before and after conditions; and (c) remedial actions/projects to address any adverse impacts on local city streets. Respectfully submitted, MARVIN OVERWAY Chief Transportation official City Manager KENNETH R. SCHREIBER Director of Planning and Community Environment Attachments: These attachments are available for reference in the Transportation Division, sixth floor, City Hall io Resolution 2.Cooperative Agreement 3o Freeway Agreement 4°Utility Agreement (Electric) 5°Utility Agreement (Gas) 6.March 20, 1992 staff report to the Palo Alto Planning Commission 7o March 25, 1992 Planning Commission minutes cc:Caltrans (Dennis Bosler, Rodney Oto) City of Mountain View City of Menlo Park City of East Palo Alto City of Sunnyvale Stanford University Palo Alto Chamber of Commerce Walt Bailey, Space Systems Loral Larry Barone, Sun Microsystems James Dinkey Businesses in 800 block of Charleston Road CMR:186:93 3/18/93 Page 9 ATTACHMENT 3 ADDITIONAL INFORMATION ON THREE ISSUES DISCUSSED AT THE MARCH 1993 COUNCIL MEETING Additional information regarding the following three topics: o Letter commitment from Caltrans o Ramp storage and vehicle cues o New traffic signal at entrance ramp and San Antonio Road LETTER COMMITMENT FROM CALTRANS Caltrans has stated that they already have the necessary authority to fully implement ramp metering and do not intend to seek formal approval or formal agreements with the City of Palo Alto or other similarly affected cities(Mountain View, Santa Clara, and Sunnyvale) for that purpose. However, they have stated that they will work cooperatively with the city to address impacts to local street operation that occur after this project is implemented and, furthermore, that the costs of such mitigation wil! be covered by the State. Caltrans has provided a letter to the Mayor, dated April 7, 1993, reiterating their commitment to resolve any adverse impacts to local streets and to fund, if necessary, any such actions. Short of a formal agreement with Caltrans, staff believes this is a reasonable basis upon which future action, if necessary, can be expected to occur. RAMP STORAGE AND VEHICLE CUES Following is a summary description of the available ramp storage and related anticipated peak vehicle queues for each of the southbound on-ramps within Palo Alto. Embarcadero Road EB - Caltrans information indicates that the anticipated maximum number of vehicles in the queue will be 20, based upon a metering rate of 7.5 sec/veh. The distance from the metering light back to the gore area of the ramp is approximately Ii00 feet which provides sufficient storage for 40 vehicles. This ramp includes a narrow overpass structure that separates it from an existing Route i01 exit ramp and makes it impractical to widen to provide a second lane for HOV preference or other use. CMR:Page 8 of Embarcadero Road WB - Caltrans information indicates that the anticipated maximum number of vehicles in the queue will be i0, based upon a metering rate of 5.2 sec/veh. The distance from the metering light back to the gore area of the ramp is 300 feet which provides sufficient storage for ii vehicles. In addition, the project includes widening the existing ramp to two lanes with one lane designated for HOV preference. If the HOV designation were ever removed, the additional storage area (300 feet) would accommodate ii additional vehicles. Oreqon Expressway - Caltrans information indicates that the anticipated maximum number of vehicles in the queue will be 20, based upon a metering rate of 8.0 sec/veh. The distance from the metering light back to the gore area of the ramp is 700 feet (sufficient storage for 25 vehicles) plus an additional 400 feet back to the intersection of West Bayshore Road. In addition, the project includes widening the existing ramp to two lanes with one lane designated for HOV preference. If the HOV designation were ever removed, the additional storage area (550 feet) would accommodate 20 additional vehicles. San Antonio (New Ramp) - Caltrans information indicates that the anticipated maximum number of vehicles in the queue will be 30, based upon a metering rate of 7.0 sec/veh, and assuming two lanes of ramp metering. The distance from the metering light back to the gore area of the ramp is approximately 560 feet which provides sufficient storage space for 20 vehicles on one lane and an addition 20 vehicles on a second lane. Caltrans’ original proposal, at this location, was to have two lanes of ramp metering without provision for HOV preference, city staff had requested that Caltrans.initially designate one of the lanes for HOV preference. If actual queuing of single occupant vehicles becomes excessive, then other options (including the designation of both lanes for single occupant vehicles) could be pursued. Caltrans agreed to initially designate one lane as HOV preference but continues to believe it will not work, and the HOV preference wil! need to be removed. More recently, Caltrans has provided information that indicates that a single lane would be inadequate to handle the volume of single occupant vehicles, therefore, the second lane is needed as well. For example, with only one mixed flow lane and one HOV bypass lane, the anticipated maximum number of vehicles in the queue will be 135 vehicles, based upon a metering rate of 4.0 sec/veh, which is the maximum metering rate possible for one lane. The distance from the metering light back to the gore area of the ramp is sufficient to accommodate only 20 vehicles and inadequate for the projected demand. CMR:Page 9 of Based upon further consideration of this matter, City staff concurs with Caltrans’ assessment that both lanes of the new on-ramp will be needed, in order to avoid excessive queues. Therefore, staff plans to request that Caltrans modify their project to eliminate the HOV preference at this location° NEW TRAFFIC SIGNAL AT ENTRANCE RAMP AND SAN ANTONIO ROAD The proposed new traffic signal at the location where the new freeway entrance ramp connects to San Antonio Road, will operate as a simple two-phase signal, providing green time for left turning vehicles° Westbound traffic on San Antonio Road, coming from the freeway overpass as well as traffic leaving Route i01 (southbound) and headed in the direction of Charleston Road, will not be required to stop at the new traffic signal under any situation. Eastbound traffic on San Antonio Road, headed toward the overpass as well as headed toward the new on-ramp, will be required to stop periodically in order to permit left turning vehicles to safely access the new entrance ramp. During the peak period of traffic flow in this area, eastbound traffic on San Antonio Road will receive 90 percent of’ the green time with the left turning vehicles receiving the remaining i0 percent. CMR:Page 10 of STATE OF CAUFORNIA--BUSINE~S, "fl~ANSPORTATION AND HOLI~ING AGENCY DEPARTMENT OF TRANSPORTATION DISTRICT 4, OFFICE OF PROJECT DEVELOPMENT SANTA CLARA COUNTY 1754 Technology Drive, Suite 228 San Jose, CA 95110 April 7, 1993 PETE WILSON, Governor (408) 452-7300 Honorable Jean McCown Mayor City of Palo Alto P. Oo Box 10250 Palo Alto, CA 94303 Dear Mayor McCown: At the March 22, 1993 Palo Alto City Council meeting, our proposed project to construct a southbound on-ramp at San Antonio Road and Route i01 and to install ramp metering on four ramps was discussed. Questions were raised by the Council as to what Caltrans actions and responsibilities would be if traffic on City streets was adversely impacted by the ramp metering. We expect our practices will be the same as those employed in initiating and operating other metering systems in Santa Clara County. One of the basic guidelines that we follow whenever we begin operation of a new ramp meter is to cause no adverse operational impacts to the local traffic on the streets adjacent to the metered ramp. During the Initial implementation period, Caltrans staff will closely monitor the operation of both the meters and adjacent local streets and make adjustments to the signal cycling rates as necessary. Our goal will be to achieve effective ramp meter operation that benefits both freeway and !ocal street traffic. There may be temporary impacts on local street operation in the vicinity of the ramps during this start- up period but we are confident that these impacts will be negligible after we make the adjustments and as drivers become accustomed to the ramp meters. If adverse local street operation remains as a result of the ramp metering, Caltrans will work cooperatively with the city and we will take the necessary steps for correction. There are several ways that this can be addressed. In the short term, we may be able to handle some of the potentia! problems by adjustments to the ramp meter rates. Other options also include converting an HOV bypass lane to mixed flow or minor restriping or widening to provide greater storage capacity. Honorable Jean McCown April 7, 1993 Page 2 Corrective actions costing less than $300,000 will be financed directly by Caltrans. More costly solutions may require some type of major capital improvements to the local street system or the freeway. Under the recently implemented ISTEA legislation, the procedure by which funding for these types of capital improvements is secured has changed significantly. The most likely source of funding for capital improvements is from the Federal Congestion Mitigation/Air quality (CMAQ) program. Although the State Transportation System Management (TSM) program still exists as a source of funds for projects to improve traffic operations, the number of new projects that will be funded from it has been drastically reduced in order to support the CMAQ program. Authority to allocate the CMAQ funds rests primarily with the County Congestion Management Agency. Therefore, it is likely that major improvements to address traffic congestion on the loca! street system or freeway will require a joint effort between the city and Caltrans to secure ISTEA funding. We will work cooperatively with the city to pursue any needed improvements. We feel confident that any problems encountered can be resolved to the satisfaction of both agencies. In the unlikely event that an impasse occurs between Caltrans and the City, MTC staff has agreed to act as a mediator to resolve any disputes not resolved between us. Our representatives will attend your Council meeting on April 12, 1993 to respond to any further questions you might have. If earlier information should be needed, please contact either Dennis Bosler at (408) 452-7336 or Rod Oto at (510) 286- 4540. Sincerely, PRESTON W. KELLEY District Director GERALD E. DUCEY Deputy District Director Project Development "A" South Bay Counties STATE OF CAUFORNIA--BUSINESS, TRANSPORTATION AND HOUSING AGENCY DEPARTMENT OF TRANSPORTATION DISTRICT 4, OFFICE OF PROYECT DEVELOPMENT SANTA CLARA COUNTY 1754 TechnololD’ Drive, Suite 200 San.rose, CA 95110 ATTACHMENT 4 September 12, 1995 PETE WILSON, Covemor Mr. Marvin L. Overway Chief Transportation Official City of Palo Alto P. O. Box 10250 Palo Alto, CA 94303-0862 Dear Mr. Overway: SUBJECT: Route 101 Southbound Ramp Metering Project - Air Quality Conformity Caltrans has completed a study to evaluate the air quality impacts on receptors near metered ramps. The scope and the results of the study are included in a report entitled "Carbon Monoxide Concentrations Adjacent to Ramp Meters", dated May 20, 1994. The Metropolitan Transportation Commission (MTC) has reviewed the report and found acceptable. The project is now clear of air quality requirement and can proceed to advertisement and construction. Attached for your information are: The June l, 1994 cover letter of the "Carbon Monoxide Concentrations Adjacent to Ramp Meters", summarizing the findings and conclusion. The September 15, 1994 review letter from MTC. If you have any questions, please contact Paul Mai, Senior Transportation Engineer, at (408) 452-7331. Sincerely, JOE BROWNE District Director Attachments By STEWART D. NG Office Chief Division of Design West Project Development, Santa Clara "B" STATE OF CALIFORNIA--BUSINESS, TRANSPORT,~ AND HOUSING AGENCY D/::PARTMENT OF TRANSPORTATION BOX 23660 OAKLAND, CA 94623-0660 (51o) 286-4.~4 TDD (510) 286-4-454 PETE WILSON, June 1, 1994 Mr. Lawrence Dahms, Executive Director Metropolitan Transportation Commission Metro Center 101 Eighth Street Oakland, CA 94607-4700 Attention: Marc Roddin, County Planning Coordinator Dear Mr. Dahms: Attached for your information are the results of our air quality assessment of the State Route 101 ramp metering project at various locations from Guadalupe River in San Jose to Moffett Boulevard Overcrossing in Mountain View in Santa Clara Count),. This project is identified as 04-0468, EA 396171, SC1-101-40.0/47.9, page 187, 1994 TIP, Volume II, Highway Element. The assessment for this ramp metering project is based on actual field data collection of carbon monoxide emissions at two currently metered ramps. They are: 1. DeAnza Boulevard on-ramp to southbound SC1-280 in Cupertino. Two mixed-flow lanes plus one HOV lane. Metered during afternoon peak period. 2. Blossom Hill on-ramp to northbound SC1-101 in San Jose. One mixed-flow plus one HOV lane. Metered during the morning peak period. In order to evaluate the air quality impacts on receptors near metered ramps, Caltrans initiated a CO monitoring study adjacent to the above described ramps during the 1993-94 CO season. The scope and the results of the study are included in the enclosed report entitled "Carbon Monoxide Concentrations Adjacent to Ramp Meters’, dated May 20, 1994. Total Maximum 1-hour and 8-hour CO concentrations, in parts per million (ppm) were as follows: Mr. Lawrence Dahms June 1,1994 Page Two Ramp Location 1-hour 8-hour DeAnza 6.9 ppm 4.8 ppm Blossom Hill 7.3 ppm 6.1 ppm The report suggests that ramp metering does not affect CO concentrations at nearby receptors, but that there is a dear relationship between peak driving periods and monitored CO levels. In addition, a CO burden analysis for the freeway mainline was performed for the years 1995 and 2010. The burden analysis is based on an operational analysis for both the BUILD and NO-BUILD scenarios. The analysis revealed a 26 and 30 percent decrease of CO emissions for the years 1995 and 2010 during the peak period. Emission factors EMFAC7F were used for the analysis. Based on the above analysis we conclude that there will be no violation of the 1-hour and 8-hour state or federal CO standards. If you have any questions, please contact Mr. Victor Zeuzem of my staff at (510) 286-5677. Sincerely, JOE BROWNE District Director Deputy District Director Planning and Public Transportation Attach bcc:HYYahata DSteinhauser JSMcCrank JJSpinello DM ulli..,-~ n DAOdell VRZeuzem RNOto MEWelsh PBcnson(NTM ~ R) HPHensley SChongchaikit ASChow DBosler files MTC METROPOLITAN TRANSPORTATION COMMISSION S=n M~t~ County Wu.u*~ F. H~,~ Dianne Stei~hauser Caltrans Box 23660 Oakland, CA 94623-0660 De~~6irah~user: September 15, 1994 ¯ :.;:-T~ ! <9 MTC staff reviewed the Caltrans study, "Carbon Monoxide Concentrations Adjacen~ to Ramp Meters", dated May 1994. "We understand that the purpose of the study was to provide information on the air quality impacts of ramp meters that ca.~ be used in project spedfic conformity determinations. Caltrans gathered monitor data because, as explained in the report, existing air quality models cannot predict these impacts accurately. Monitors were placed at two ramp meter sites where worst case conditions were considered to exist with regard to po~entiaI CO concentrations. Because the study found no violations of the federal 8- hour CO standard, Caltrans hopes to enable MTC to find that all ramp meter projects do not create CO standard violations and thus meet Resolution ~2270 requirements. We agree that the study was well designed and implemented. -Therefore, we agree to use the study’s conclusions to show that other ramp meter ¯ prqjects meet conformity requirements. However, a concern is that the conclusions are based on limited data taken at just two ramp meter sites. We recommend that Caltrans continue to monitor at worst case ramp meter sites in order to add to the information about CO impacts. Thank you for undertaking this very useful study. Sincerely, William F. Hein Deputy Executive Director- ¢c Mike Kim, BAAQMD Jo~ee~ P. Bo~T ~OC~T~ ¯ 101 I:ICHTH 5;=eET " O~J~U~O, CA 94607-4700 510/464-7700 ¯ TDD/TTY 510/464.7769 ¯ FAX 510/464-7848