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S E P T E M B E R 2 0 1 0 I 73 CHAPTER THREE transportation and infrastructure The existing transportation system in the plan area serves local multi- modal access and circulation, while also accommodating regional through-traffic. To continue to play this role while supporting the Specific Plan’s objectives, this chapter evaluates the existing network and recommends improvements for modes of travel including automobile, bus, BART, pedestrian, bicycle, and parking. Building on the vision, the transportation planning for San Pablo Avenue greatly emphasizes walking, bicycling and transit to reduce automobile dependency, promote sustainable practices, and alter the area’s car-dominated character The chapter also provides an overview of the public utilities and infrastructure systems that the plan area is anticipated to require to smoothly and efficiently integrate new development with the services already provided by the cities of El Cerrito and Richmond. The chapter also highlights techniques to reduce the demand put on existing utility systems, thereby promoting environmental and economic sustainability. For a more detailed analysis of the issues identified in this chapter, please refer to Volume III Technical Appendices. IN THIS CHAPTER... Transportation Infrastructure ---PAGE BREAK--- v o l u m e I I c h a p t e r t h r e e 74 I S A N P A B L O A V E N U E S P E C I F I C P L A N A D M I N D R A F T TRANSPORTATION The transportation and circulation system for San Pablo Avenue is designed to improve the existing roadway system and provide additional access to serve the residential, commercial and public uses within the plan area. This integrated network will facilitate transit, pedestrian and bicycle modes as well as private vehicle travel. Current signal timing, phasing and coordination data was obtained from Kimley Horn and Associates, the City of Richmond, and CalTrans. The data was used in conjunction with field observations and traffic counts to help determine intersection levels of service and recommended improvements. The following goals set forth the overall aims towards which the cities of El Cerrito and Richmond will direct their efforts through the Specific Plan. The policies support each of the goals with specific statements of principle that the cities will follow in order to meet the goals. T-1.1 Encourage transit use, walking, bicycling and other non-motorized personal modes of transportation by providing clearly defined and safe routes for transit users, pedestrians and cyclists. T-1.2 Discourage local automobile traffic from performing short trips; instead promote transit use, walking and bicycling as a means for residents and employees to move between destinations located within the plan area. T-1.3 Install additional crosswalks at key intersections to minimize San Pablo Avenue as a barrier. T-1.4 Provide and enhance pedestrian and bicycle-only routes that allow alternative means of access to key destinations and penetrate long blocks. T-1.5 Install dedicated mid-block mews and greenway connections through long blocks to improve pedestrian and bicycle connectivity between San Pablo Avenue, the Ohlone Greenway, and Bay Trail. TRANSPORTATION GOALS AND POLICIES T-1 Make the plan area a walkable and bikeable corridor at the seam of the El Cerrito and Richmond communities. ---PAGE BREAK--- t r a n s p o r t a t i o n a n d i n f r a s t r u c t u r e S E P T E M B E R 2 0 1 0 I 73 T-1.6 Design the public realm and rights-of- way for universal design and Americans with Disabilities Act (ADA) compliance to meet or exceed guidelines set by the Division of the State Architect. T-1.7 Include universally accessible design improvements, such as appropriately placed curb cuts, audible pedestrian-crossing signals, minimum pathway grades, generous walkway width and areas for rest. T-1.8 Encourage the use of traffic-calming techniques, such as street narrowing, bulb outs, roundabouts, traffic diverters and other strategies on streets in the neighborhoods just off of the Avenue. TRANSPORTATION GOALS AND POLICIES (CONT.) T-2.1 Identify opportunities for parking pricing strategies and minimizing the number of parking spaces provided while ensuring parking needs are met. T-2.2 Explore the creation of public parking structures in strategic locations that may be shared by transit riders, residents and businesses. T-2.3 Explore improvements to seating and weather protection at transit stops along San Pablo Avenue. T-2 Improve ridership of transit options along the corridor, including BART, the Rapid Bus, and regional and local buses. T-3.1 Provide safe and efficient automobile circulation. T-3.2 Reconfigure bus routes through the Del Norte BART Station area to streamline bus operations and reduce the impact of bus traffic in the area. T-3 Strengthen multi-modal connections in and around the plan area. ---PAGE BREAK--- v o l u m e I I c h a p t e r t h r e e 74 I S A N P A B L O A V E N U E S P E C I F I C P L A N A D M I N D R A F T Roadway System The roadway system for the plan area is composed of San Pablo Avenue and the intersections with east-west streets along its length. There are 13 signalized intersections along San Pablo Avenue from Macdonald Avenue to El Cerrito Plaza with considerable variation in the distances between adjacent signals (see Figure 3.1). The highest trip-generating land uses along the Avenue are the two El Cerrito BART stations, El Cerrito Del Norte and El Cerrito Plaza. Key intersections in the plan area include the two signalized intersections near the Del Norte BART station, at the intersection of Cutting Boulevard, and Hill Street/Eastshore Boulevard, and the intersection at Central Avenue near both the El Cerrito Plaza BART station and shopping area. A notable condition in the plan area is the westbound leg of the Cutting Boulevard intersection, which is one way heading west and serves outbound traffic from the BART station. In addition, the Hill Street/Eastshore Boulevard intersection includes a driveway to Orchard Supply Hardware (Peerless Avenue), making it effectively a five-legged intersection. The Hill Street/Eastshore Boulevard intersection near the Del Norte BART station effectively acts as a five-legged intersection, making it a challenge for pedestrians to cross. Hill St. San Pablo Ave. Eastshore Blvd. Peerless Ave. ---PAGE BREAK--- t r a n s p o r t a t i o n a n d i n f r a s t r u c t u r e S E P T E M B E R 2 0 1 0 I 75 El Cerrito Plaza BART Station El Cerrito Del Norte BART Station SAN PABLO AVE SAN PABLO AVE CARLSON BLVD CARLSON BLVD POTRERO AVE POTRERO AVE CENTRAL AVE MOESER LN CUTTING BLVD AR L INGTO N ASHBURY AVE FAIRMOUNT AVE BART - Richmond Line Ohlone Greenway MACDONALD AVE MANILA AVE BAYVIEW AVE EUREKA AVE COLUMBIA AVE SCHMIDT LN STOCKTON AVE PORTOLA DR WALDO AVE LINCOLN AVE HILL ST BLAKE ST A L B A N Y E L C E R R I T O R I C H M O N D San Francisco Bay I-580 I-80 Figure 3.1: Existing Roadway Network Project Area Existing Parks Ohlone Greenway Future Richmond Greenway BART Alignment City Limits Waterbodies Freeway ! BART Station 2000 0 FEET 1000 N Arterial Local Street Collector ! Signalized Intersection ---PAGE BREAK--- v o l u m e I I c h a p t e r t h r e e 76 I S A N P A B L O A V E N U E S P E C I F I C P L A N A D M I N D R A F T Projected Demand Project trip generation refers to the process for estimating the amount of vehicular traffic a project would add to the surrounding roadway system. Under 2030 traffic conditions, 5,259 net added trips daily are expected along San Pablo Avenue (see Table 3.1 and Figure 3.2). This estimate also includes the amount of background traffic (vehicles traveling through the corridor without either starting or ending their trips within the corridor itself) expected to be added to the corridor by the year 2030, in addition to the traffic generated by the development within the San Pablo Avenue corridor. Background traffic is anticipated to increase along most of San Pablo Avenue by approximately 325 and 215 total vehicles during the AM and PM peak hours, respectively. The Specific Plan would result in 600 additional AM Peak Hour trips and 657 additional PM Peak Hour trips. For projects that contain a mixture of uses, such as retail and residential, and access to high quality transit service (BART and AC Transit), a reduction in vehicle trips due to internalization* and the utilization of alternate modes of transportation, i.e. walking, biking, and transit, has been factored in. This traffic analysis and projected demand is supplemented by the technical appendix, which contains a more detailed description of the trip generation and internalization process, including the calculation worksheets, and intersection LOS calculation worksheets. Table 3.1 Net Added Daily Trips Character Area Daily AM Peak Hour PM Peak Hour Inbound Outbound Inbound Outbound Macdonald Gateway Area 1400 29 68 68 52 Del Norte BART Station Area 2923 167 261 296 218 Civic Center / Mid-Town Area 386 0 37 38 8 Plaza Area 550 6 68 60 16 Total Trips 5259 202 434 462 294 Source: Transportation Analysis of the Draft San Pablo Avenue Specific Plan Memorandum, Fehr & Peers (May 2009) * Internal trips are defined as those which begin and end within the project site and do not add any new vehicle trips to the external roadway network. ---PAGE BREAK--- t r a n s p o r t a t i o n a n d i n f r a s t r u c t u r e S E P T E M B E R 2 0 1 0 I 77 100 (120) 380 (400) 40 (50) 80 (90) Projected Background Growth (2009 - 2030): 325 (215) 100 (120) 380 (400) 40 (50) 80 (90) a b B A R T a b B A R T 123 C A L I F O R N I A 123 C A L I F O R N I A 580 80 80 Del Norte BART Station Area Mid-town/ Civic Center Macdonald Gateway Potrero Ave Knott Ave Hill St San Pablo Ave Central Ave Cutting Blvd Ce Traffic Growth San Pablo at Cutting 0 500 1,000 1,500 2,000 2,500 3,000 3,500 M P M A Peak Hour Two-way Traffic Volume Specific Plan Growth Background Growth Existing Traffic San Pablo Avenue Specific Plan FIGURE 2 April 2009 WC07-2409_2 ProjTrips NEW PROJECT TRIPS GENERATED BY PLAN Plaza Figure 3.2: New Project Trips Generated by Plan = AM (PM) Peak Hour Project Trips XX (YY) N. T. S. N ---PAGE BREAK--- v o l u m e I I c h a p t e r t h r e e 78 I S A N P A B L O A V E N U E S P E C I F I C P L A N A D M I N D R A F T Recommended Improvements The following are recommendations that will support the transportation system within the plan area under proposed development conditions (see Figure 3.3). Recommended improvements are focused around the Del Norte BART Station area due to the significant potential for new development around the BART station and the existing heavily-congested and irregularly configured intersections at Cutting Boulevard and Hill Street/Eastshore Boulevard. These improvements will serve to ease congestion, streamline vehicular, bus and pedestrian circulation, and reduce negative impacts to the pedestrian and bicycle environment. The conversion of Cutting Boulevard to two- way circulation between San Pablo Avenue and Kearny Street. The westbound approach to the Cutting/San Pablo intersections would contain one left-turn lane, two through lanes and one right-turn lane. The new eastbound direction on this approach would contain one lane. An additional eastbound approach lane at the Cutting Boulevard/San Pablo Avenue intersection to provide a left-turn lane, a through lane, and two right-turn lanes. This would allow buses and cars to proceed eastbound on Cutting Boulevard to the BART station and neighborhoods to the east, and require minor widening of the block of Cutting Boulevard between San Pablo Avenue and the I-80 ramps. The addition of a left-turn lane on the southbound San Pablo Avenue approach at Cutting Boulevard, to serve the new eastbound direction of travel on Cutting east of San Pablo. The addition of a third through-lane along San Pablo Avenue in the northbound direction, by restriping the existing pavement space, between Blake Street and about 150 feet north of Knott Avenue. At the intersections with Eastshore Boulevard/Hill Street, Cutting Boulevard and Knott Avenue, this involves converting the right-turn only lanes into through-right lanes, and the removal of four to six on-street parking spaces north of Knott Avenue. The addition of a third westbound lane at Hill Street approaching San Pablo Avenue, creating a left-turn lane, a through lane and a right-turn lane for vehicles. The addition of crosswalks at the southern crossing of the San Pablo Avenue/Cutting Boulevard intersection and the northern crossing of the San Pablo Avenue/Hill Street/ Eastshore Boulevard intersection. The creation of an overlap for the westbound right-turn vehicles from Hill Street to also be allowed to proceed freely while the southbound left-turn vehicles from San Pablo Avenue are moving. In addition to improving operations at the intersection, this helps circulation in the BART station area driveways. The addition of all-red time after the northbound lagging left-turn phase at San Pablo Avenue/Cutting Boulevard. Currently, the lack of all-red time after this phase causes delays for eastbound left-tun vehicles at Cutting Boulevard, as they wait for the northbound left-turn vehicles to clear the intersection. Signal timings and intersection offsets were optimized based on the geometry changes. All future improvements should discourage road widenings and explore all other alternatives first. 1 2 3 5 6 7 4 8 9 ---PAGE BREAK--- t r a n s p o r t a t i o n a n d i n f r a s t r u c t u r e S E P T E M B E R 2 0 1 0 I 79 Cutting Blvd Cutting Blvd San Pablo Ave San Pablo Ave Kearney St d v l B e r o h s t s a E Lexington Ave Liberty St Hill St Knott Ave Hagen Blvd Key Blvd Key Blvd Jct Ave Jct Ave Morris Ave Wall Ave Kear e t Av 80 123 C A L I F O R N I A MODIFY TO ACCOMMODATE INBOUND TRAFFIC ONLY NEW CROSSWALK NEW CROSSWALK POTENTIAL NEW MID-BLOCK CROSSING (SIGNALIZED) San Pablo Avenue Specific Plan FIGURE 4 PROPOSED ROADWAY CHANGES May 2009 Graphics\PDF\for May 2009 Memo\WC07-2409_4 Del Norte BART Station 4 6 6 7 2 1 1 2 3 5 Figure 3.3: Proposed Roadway Changes N. T. S. N New Crosswalks Roadway Improvements Existing Lane Geometry Proposed Lane Geometry ---PAGE BREAK--- v o l u m e I I c h a p t e r t h r e e 80 I S A N P A B L O A V E N U E S P E C I F I C P L A N A D M I N D R A F T ---PAGE BREAK--- t r a n s p o r t a t i o n a n d i n f r a s t r u c t u r e S E P T E M B E R 2 0 1 0 I 81 Transit System Transit service is very robust in the plan area, including both bus and BART. Bus providers include AC Transit, Golden Gate Transit, WestCAT, Napa County Transit and Vallejo Transit. Some of the AC Transit routes span the entire length of San Pablo Avenue in the plan area and serve both BART stations. The other routes serve only the Del Norte BART station to and from points north and west. The two BART stations in the corridor, Del Norte and El Cerrito Plaza, are both on BART’s Richmond-Fremont and Richmond-Daly City Lines. Weekday boardings in April of 2005 averaged 6,900 at Del Norte Station 3,900 at El Cerrito Plaza Station. Weekday alightings averaged 7,600 at Del Norte Station and 3,800 at El Cerrito Plaza Station. These stations thus exhibit highly directional boardings and alightings at different times of the day, with the majority of boardings occurring in the AM hours, and the majority of alightings in the PM hours. Bus routing at the Del Norte BART Station area currently involves the use of both Cutting Boulevard and Hill Street (see Figure 3.4). However, due to the one-way configuration of Cutting Boulevard between San Pablo Avenue and the BART tracks, southbound buses are forced to turn left off of San Pablo Avenue to access the station at Hill Street. This heavily-used left turn, combined with the buses entering at the same intersection from the south, results in congestion and long delays for buses and all vehicles traveling along San Pablo Avenue in the peak commute hours. The Del Norte BART Station averages a significant number of daily boardings and alightings. WestCAT is one of the many transit providers that serve the plan area. ---PAGE BREAK--- v o l u m e I I c h a p t e r t h r e e 82 I S A N P A B L O A V E N U E S P E C I F I C P L A N A D M I N D R A F T Cutting Blvd Cutting Blvd Hill Street Eastshore Blvd San Pablo Avenue Knott Ave Key Blvd Del Norte BART Station I-80 Figure 3.4: Existing Bus Route Circulation at Del Norte BART Station N. T. S. N Northbound Southbound ---PAGE BREAK--- t r a n s p o r t a t i o n a n d i n f r a s t r u c t u r e S E P T E M B E R 2 0 1 0 I 83 LA LA 7 72 72 72M 72M 72R 72 72M 72R 76 376 800 L 800 L 40 42 30Z JPX J LYNX LYNX 72R JX VINE Cutting Blvd Cutting Blvd Hill Street Eastshore Blvd San Pablo Avenue Knott Ave Key Blvd Del Norte BART Station I-80 Golden Gate Transit WestCAT J/JX - Express Routes JPX/30Z Routes LYNX - Transbay Route 40/42 Routes Commute-hours service (no midday or night service) L Daytime 72R, 76 Day and evening (last weekday bus after 8 p.m.) LA, 7, 71 Day and late evening (last weekday bus after 10 p.m.) 72, 72M Other operating hours such as special late-night, weekend or midday only 376 All Nighter 800 AC Transit Bus Routes Route Description Routes Rapid Bus 72R 72R Route Variations Napa County VINE Commuter Express Route 29 N Figure 3.5: Existing Bus Route Circulation at Del Norte BART Station N. T. S. ---PAGE BREAK--- v o l u m e I I c h a p t e r t h r e e 84 I S A N P A B L O A V E N U E S P E C I F I C P L A N A D M I N D R A F T Recommended Improvements Transit improvements fall into three basic categories: the potential re-routing of certain routes through the Del Norte BART Station Area; improved transit access through new development design; and the provision of improved bus shelters. • Re-routing of southbound bus routes through the Del Norte station – The Specific Plan proposes the conversion of the one-way (westbound) section of Cutting Boulevard just east of San Pablo Avenue to two-way circulation (see Figure 3.6). This would allow buses entering the station from the north to enter at Cutting Boulevard, rather than traveling further south to Hill Street and making the left turn onto Hill Street. This heavily used left turn, combined with all of the buses entering from the south, results in congestion and long delays along San Pablo Avenue in the peak commute hours. The proposed change is projected to preserve adequate traffic operations in the peak commute hours, even with the traffic growth projected in the plan area. • Improved transit access through new development design – New development projects should provide improved transit shelter if and where needed, and ADA- compliant access to those shelters. Larger development proposals may provide the opportunity to consolidate or better-locate transit stops, and/or provide for better pedestrian connections to stops on the other side of San Pablo Avenue. Additional enhancements, such as signage or wayfinding materials indicating the shortest path to the Ohlone Greenway for bicycle commuters, should be considered. Promote bundling the cost of discounted transit passes into HOA dues. • Improved bus shelters along the San Pablo Avenue corridor – The City may choose to invest in targeted bus stop improvements prior to development of adjacent properties, if the need is determined to warrant this investment. Through the San Pablo Avenue Streetscape Improvement Project, the City will be undertaking improvements to Rapid Bus stops. Improvements to the Del Norte BART transit center should also be undertaken in concert with new development on the BART parking lot. • Study the potential for a local-serving shuttle – The City may consider investigating the potential for a developer funded shuttle that would connect current and future residents between BART stations, regional hillside open space and the San Francisco Bay Trail Enhanced bus stops with shelters and wayfinding signage would enhance the transit experience. ---PAGE BREAK--- t r a n s p o r t a t i o n a n d i n f r a s t r u c t u r e S E P T E M B E R 2 0 1 0 I 85 Cutting Blvd Cutting Blvd Hill Street Eastshore Blvd San Pablo Avenue Knott Ave Key Blvd Del Norte BART Station I-80 Figure 3.6: Proposed Bus Route Circulation at Del Norte BART Station N. T. S. N Northbound Southbound ---PAGE BREAK--- v o l u m e I I c h a p t e r t h r e e 86 I S A N P A B L O A V E N U E S P E C I F I C P L A N A D M I N D R A F T Pedestrian and Bicycle System The pedestrian system is composed of sidewalks and crosswalks, the condition and presence of which impact the quality of the pedestrian environment. Typical sidewalks along the project corridor are in fair to poor condition. There are occasional stretches of sidewalk in better condition, usually concurrent with specific properties, indicating that they may have been improved as part of other property improvements. Some sidewalks are extremely wide with ample room for pedestrian and outdoor dining while others are narrow and contain many obstacles such as trees, street signs, or bus stop benches that could impede wheelchair accessibility. Some of the narrowest portions of sidewalk are alongside the Del Norte BART Station, where the width is less than five feet, and overgrown shrubs make it feel even narrower. Existing conditions and planned improvements are outlined in the El Cerrito Bicycle and Pedestrian Master Plan. Additional pedestrian barriers exist in the busiest intersections on the corridor due to lack of crosswalk completeness. The absence of crosswalks on the southern leg of the Cutting Boulevard intersection, the northern leg of the Hill Street/Eastshore Boulevard intersection, the southern leg of the Manila Avenue intersection, and the northern leg of the Central Avenue intersection make it necessary for pedestrians to make up to three separate crossings (or four, in the case of the Hill Street intersection), just to cross to the other side of San Pablo Avenue. There are no bike lanes on San Pablo Avenue, and the sidewalks are not easy to ride on. The designated bike facility for the corridor is the Ohlone Greenway, running parallel to San Pablo Avenue one block to the east, underneath the BART tracks. The Ohlone Greenway runs further south through Albany and into Berkeley, providing access to numerous bicycle routes, and is planned to continue northwest into Richmond and connect to the Richmond Greenway. However, it is not easy to access El Cerrito by bicycle from Richmond to the west; Potrero Avenue is the only east/west arterial with a bike lane that connects to the Ohlone Greenway in El Cerrito, and the barriers of Interstates 80 and 580 limit both bike and pedestrian accessibility from parts of the Richmond Annex neighborhood to the west. In addition, due to irregular and often long block connections from San Pablo Avenue to the Ohlone Greenway and the San Francisco Bay Trail are often difficult for bicyclists to make. A lack of clear signage and wayfinding can also result in a lack of awareness on the part of bicyclists, which could impede its use as a safer and viable alternative to bicycling along the Avenue. Furthermore, better connections to the San Francisco Bay Trail are needed ---PAGE BREAK--- t r a n s p o r t a t i o n a n d i n f r a s t r u c t u r e S E P T E M B E R 2 0 1 0 I 87 Recommended Improvements The Specific Plan envisions better pedestrian and bicycle mobility and connectivity, achieved through the following techniques: • Preservation of wide sidewalks along the Avenue, and widening where needed as part of adjacent property development – Continuous sidewalks of 15 to 20 feet are the goal. When combined with generous setbacks, landscaping within the sidewalk realm where feasible, pedestrian-scale lighting, and street furniture, the pedestrian environment will be more welcoming and will encourage walking along San Pablo Avenue for a variety of trip purposes (shopping, getting to BART, mid-day lunches for employees, etc.) • Enhancement of crossing treatments at existing intersections – Add missing crosswalks at intersections of San Pablo Avenue/Hill Street/Eastshore Boulevard and San Pablo Avenue/Cutting Boulevard; consider raised crosswalks, colored pavement and/or distinctive striping at all signalized intersection crosswalks; corner bulb-outs to shorten crossing distances; provision of pedestrian countdown signals where not already provided; and ensure adequate sight distance is provided at intersection corners, when reviewing new development proposals. • Provision of new crossing opportunities along long blocks – As development projects occur, consider providing new roadway connections to San Pablo Avenue to break up the long blocks that act as a barrier to pedestrians wanting to cross. If signalized, these new intersections would provide a protected pedestrian crossing, but potentially slow traffic; if unsignalized, crosswalks may still be provided with enhancements to make them more visible to drivers, but may be unsafe for pedestrians. • Provision of enhanced pedestrian and bicycle connections between San Pablo Avenue and the Ohlone Greenway – On existing streets and within new development projects, where feasible, provide better connections between these two key corridors. This can be achieved through wayfinding signs along San Pablo Avenue at key connecting cross-streets, wider sidewalks and provision of Class II (bike lanes) or Class III (signed bike route) bike and pedestrian routes on those cross streets, and through high visibility connections within new development projects. • Implementation of the Ohlone Greenway Master Plan – The recently completed Ohlone Master Plan describes a series of recommended improvements to the Ohlone Greenway to support additional pedestrian and bicycle use of the shared-use pathway. These improvements include widening the pedestrian and bicycle pathways, and the addition of new landscaping and safety features, such as lights and cameras. The Ohlone Greenway Master Plan provides recommendations for improvements to the Greenway. ---PAGE BREAK--- v o l u m e I I c h a p t e r t h r e e 88 I S A N P A B L O A V E N U E S P E C I F I C P L A N A D M I N D R A F T Parking While walking, bicycling and transit are a major emphasis of the Specific Plan and vision, parking will continue to play an important role in the plan area. In concert with new development, Transportation Demand Management (TDM) programs and policies regarding parking should be explored by both cities. The potential exists to create parking districts with shared parking by multiple businesses and properties in consolidated parking structures as significant commercial development occurs in nodes along the Avenue, such as at the Del Norte BART and El Cerrito Plaza BART stations. It is also recommended that El Cerrito work with BART to explore the option of sharing parking structures and facilities to consolidate parking transit riders and new development. The City Charging stations and parking for alternative-energy vehicles should be encouraged in new developments. ---PAGE BREAK--- t r a n s p o r t a t i o n a n d i n f r a s t r u c t u r e S E P T E M B E R 2 0 1 0 I 89 should also work with BART to encourage the pricing of BART parking to reflect the actual market value of parking spaces as a strategy to boost transit ridership and reduce automobile dependency. It has been shown that shifting from free to cost parking (prices that reflect the full cost of providing parking facilities) typically reduces automobile commuting, particularly if implemented with improved transportation choices and other complementary TDM strategies. Prices should be well publicized and predicable, payment systems should be convenient. Prices for the most convenient parking spaces should be higher and should have smaller time increments than for less convenient parking spaces, and rates should be higher during peak periods and lower during off-peak periods. TDM programs and parking management strategies may include: • Unbundling parking spaces from residential units, reducing the cost of units and creating flexibility for unit owners. • Setting parking maximums to ensure that developers do not over provide parking in transit-rich areas. • Reducing commercial parking requirements if parking spaces are provided in lots that are shared with other buildings, especially if the building uses have different peak-demand time periods. • Providing parking for alternative-energy vehicles and charging stations for electric- powered vehicles. 1. Shoop, Donald. (2005). High Cost of Free Parking. Chicago, Planner’s Press. ---PAGE BREAK--- v o l u m e I I c h a p t e r t h r e e 90 I S A N P A B L O A V E N U E S P E C I F I C P L A N A D M I N D R A F T • Providing parking for car-share vehicles and working with car share programs to establish hubs within each Character Area. Promote provision of free car share membership for new housing and offices. • Making parking reasonably available by exploring a pricing policy to attain a target occupancy rate of 85 percent.1 • Exploring market based parking pricing strategies and parking benefit districts. Benefit districts are set up to fund improvements that encourage walking while supporting driver convenience of finding parking without circling for spaces. • Protect existing neighborhoods from spillover parking by evaluating the rules and restrictions of residential parking permit programs, as needed. I-1.1 Upgrade the existing water system to meet existing El Cerrito and Richmond standards and provide adequate fire protection. I-1.2 Upgrade the existing sewer system according to the El Cerrito and Richmond’s Capital Improvement Program. I-1.3 Ensure that all new and redevelopment projects underground utility lines on and adjacent to the project site. INFRASTRUCTURE GOALS AND POLICIES I-1 Ensure efficient, effective and equitable provision of high quality utilities and infrastructure throughout the plan area. ---PAGE BREAK--- t r a n s p o r t a t i o n a n d i n f r a s t r u c t u r e S E P T E M B E R 2 0 1 0 I 91 I-2.1 Require public and private projects to conserve water resources and reduce discharge into the sewer system. I-2.2 Encourage the incorporation of water conservation measures in new projects including but not limited to low flow showers and toilets, low flow and gray water irrigation systems, and the use of drought tolerant landscaping. I-2.3 Minimize sewer loads by reducing discharge into the sewer system and encourage water conservation within existing development. I-2.4 Encourage developers to utilize low- impact development (LID). LID addresses storm water treatment through small, cost- effective landscape features located at the site level. These landscape features, known as Integrated Management Practices (IMPs), are the building blocks of LID. IMPs include planter strips, rooftop gardens, planter boxes, and pervious concrete pavers. I-2.5 Encourage developments on adjacent and/or contiguous lots within the plan area to jointly meet C3 requirements through shared swales and other integrated management practices. I-2.6 Require public projects to explore integrated storm water management systems to reduce discharge into the storm drain system. I-2.7 Require private projects to contain storm water on-site to reduce discharge into the storm drain system. I-2.8 Encourage storm water management practices that emphasize conservation and sustainability and add to the educational and aesthetic value of the area. I-2.9 Require all new commercial and residential development to provide trash enclosures that can accommodate receptacles for garbage, recycling and green and food waste collection. I-2 Encourage new development to incorporate sustainable building principles. INFRASTRUCTURE GOALS AND POLICIES (CONT.) ---PAGE BREAK--- v o l u m e I I c h a p t e r t h r e e 92 I S A N P A B L O A V E N U E S P E C I F I C P L A N A D M I N D R A F T INFRASTRUCTURE Cost-efficient infrastructure systems must be provided without compromising the character of the plan area to ensure comprehensive and effective management and development of San Pablo Avenue. This section evaluates existing infrastructure facilities and recommends improvements that are necessary to support the Specific Plan’s overall development vision. It identifies the utility providers for the corridor, provides a general review of potential limitations in the currently installed systems, and recommends feasibility-level improvements. This chapter also identifies improvements through 2030 based on anticipated residential and commercial development. This review is based on block map information from the various utility companies, discussions with utility provider staff, and available public domain reports and records. The following goals and policies outline the end results for the plan area as well as specific guiding strategies to achieve the goals. ---PAGE BREAK--- t r a n s p o r t a t i o n a n d i n f r a s t r u c t u r e S E P T E M B E R 2 0 1 0 I 93 Water Water service to the San Pablo Avenue plan area is supplied by the East Bay Municipal District (EBMUD). The Pardee Reservoir (supplied by the Mokelumne River Basin system) is the main source of water for EBMUD. Based upon utility block maps obtained from EBMUD, the general pipe size within San Pablo Avenue (from north to south) ranges from 12-inch on the left side of the street (from Macdonald Avenue to Potrero Avenue) to 8-inch on the east side of the street (from Potrero Avenue to Fairmount Avenue). Similarly, on the west side of the street, pipe sizes range between 4-inch and 6-inch (from Macdonald Avenue to Cutting Boulevard) to 8-inch (from Cutting Boulevard to Fairmount Avenue). The San Pablo Avenue corridor is served by two separate pressure zones: 1) GIA (elevation 355) at the north from Nevin Avenue to Ohio Street, and 2) G0A (elevation 202) from Ohio Street in the north to the boundary of the City of Albany. Current work planned for San Pablo Avenue, based on the EBMUD FY08 Pipeline Master Plan, identifies 655 ft of 8-inch water pipeline for replacement between Rose Street and Wall Street. Table 3.2 Additional Water Demands and Associated Distribution System Improvements* Total Water Demand, Max Day (gpm) Fire (gpm) Total Water Demand, Max Day + Fire (gpm) Pipe Size (in) Length (ft) Macdonald Gateway Area 51 3,625 3,676 10 2,000 Del Norte BART Station Area 162 3,625 3,787 12 4,000 Civic Center / Mid-Town Area 95 3,625 3,720 10 4,000 Plaza Area 165 3,625 3,790 12 2,500 Source: Infrastructure Analysis of the Draft San Pablo Avenue Specific Plan Memorandum, Nolte Engineering (May 2009) * All pipes are new and will be connected to the high pressure zone. ---PAGE BREAK--- v o l u m e I I c h a p t e r t h r e e 94 I S A N P A B L O A V E N U E S P E C I F I C P L A N A D M I N D R A F T Recommended Improvements Demand and recommended improvements to the water system were developed based upon the proposed development program through 2030. The projected water demand associated with the development program is primarily associated with population growth. Several individual water pipe lines will need to be upgraded or installed to provide hook-ups to new residential and mixed-use development areas. Additionally, buildings two stories or taller may warrant a water pressure boosting system to compensate for low water pressure levels in the plan area. It is anticipated that upgrades to pipes will be necessary within the Macdonald Gateway, Del Norte BART Station Area, Civic Center/Mid- town Area and Plaza Area, though further analysis will be required on a project-by-project basis to assess the full extent of necessary improvements. Though not mandated, new projects will be encouraged to include water conservation measures such as: • Installation of water conservation devices such as low flow showerheads, faucets, and toilets; • Installation of low flow irrigation systems in public rights-of-way, public parks, and recreation areas; and • Use of drought tolerant plant palettes in all new streetscape areas. Sanitary Sewer The sanitary sewer system within in the San Pablo Avenue corridor is managed by the Stege Sanitary District (SSD). SSD operates and maintains 150 miles of sanitary sewer in a total area of 5.3 square miles. SSD also operates two pumping stations. Wastewater collected in the SSD system flows to the Special District #1 Interceptor Sewer. Sewage is then conveyed to the EBMUD Wastewater Treatment Facility in Oakland. Based upon utility block maps obtained from SSD, pipelines are located on the left and right side of San Pablo Avenue. From north to south, the general pipeline sizes are: East side of San Pablo: • 8-inch pipeline from Ohio Street to Knott Avenue, • 8-inch pipeline from Hill to Schmidt • 10-inch pipeline from Schmidt to Waldo Avenue • 12-inch pipeline from Waldo Avenue to Fairmount Avenue. West hand side of San Pablo Avenue • 6-inch pipeline from Ohio to Knott Avenue • 10-inch pipeline from Hill to Potrero Avenue • 8-inch pipeline from Potrero Avenue to Bayview Avenue ---PAGE BREAK--- t r a n s p o r t a t i o n a n d i n f r a s t r u c t u r e S E P T E M B E R 2 0 1 0 I 95 From Bayview Avenue to Fairmount Avenue, the size of the line is not given but is shown to be associated with the Richmond line. At the following locations, larger diameter sewer lines cross San Pablo. These lines could potentially be main service lines, and care must be taken to note their location. • Knott Avenue: 18-inch, 15-inch, and 10-inch pipelines. • Cutting Boulevard: 1-inch pipeline. • Potrero Avenue: 18-inch pipeline. • Waldo Avenue through Huntington Avenue: 12-inch pipeline to 18-inch pipeline at center line of San Pablo. • Columbia Avenue to Eureka Avenue: 24-inch pipeline. • Central Avenue: 36-inch pipeline. Recommended Improvements The projected wastewater demand associated with the development program is tied to new residential and commercial development. Master Plan-level modeling of the existing system will be required as new development is proposed to assist in determining the effects of new projects on the existing sewer system as well as required improvements. Collection system improvements will parrallel the existing network with connections to off-site trunk sewers at Knott Avenue, Cutting Boulevard, Potrero Avenue, Columbia Avenue, and Central Avenue. Table 3-2 presents the additional sewer flows that will be generated by the additional commercial and residential areas. The pipes shown in the table are sized to serve only the additional area. Table 3.3 Projected Additional Sanitary Sewer Flows and Collection System Improvements* Total Sewer Demand (gpm) Total Sewer Demand per System (gpm) Pipe size (in) Length (ft) Macdonald Gateway Area 49 49 8 2,500 Del Norte BART Station Area 250 250 8 2,200 Civic Center / Mid-Town Area 46 46 8 2,000 Plaza Area 80 126 8 2,500 Source: Infrastructure Analysis of the Draft San Pablo Avenue Specific Plan Memorandum, Nolte Engineering (May 2009) * Based on the proposed additional development areas (2030) as an addition to the existing sanitary sewer system. ---PAGE BREAK--- v o l u m e I I c h a p t e r t h r e e 96 I S A N P A B L O A V E N U E S P E C I F I C P L A N A D M I N D R A F T Storm Water Maintaining and improving storm water quality is essential to protect public health, wildlife, and watersheds, and to ensure opportunities for public recreation and economic development in El Cerrito and Richmond. Water pollution can be dramatically curbed through storm water management and appropriately designed development. New drainage infrastructure will be required in certain portions of the plan area to avoid concentrating runoff or increasing runoff volumes and to properly convey the runoff to existing drainage facilities. All development projects throughout El Cerrito and Richmond are subject to Provision C3 of the City’s joint National Pollutant Discharge Elimination System (NPDES) municipal permit. The storm drainage system within San Pablo Avenue is owned and maintained by the City of Richmond and the City of El Cerrito. Because the roadway is a state route, the California Department of Transportation (CalTrans) may be involved in operation and maintenance of the roadway drainage system. The pipelines that collect runoff from this area discharge to Baxter Creek and Cerrito Creek. ---PAGE BREAK--- t r a n s p o r t a t i o n a n d i n f r a s t r u c t u r e S E P T E M B E R 2 0 1 0 I 97 The general drainage direction of the watershed is from northeast to southwest. Drainage on San Pablo Avenue is collected in gutters along the face of existing concrete curbs. The gutters convey runoff flow to inlets along the edges of the roadway. The inlets discharge to underground pipes which then flow to Baxter Creek and Cerrito Creek, within the project limits. Recommended Improvements The proposed improvements cited relate to the right-of-way limits of San Pablo Avenue. The parcels to be developed into mixed-use, office, residential, and commercial sites must accommodate their own storm drainage, and storm water quality improvements for each parcel. Permanent post-construction Best Management Practices (BMPs) are required when more than 10,000 square feet of impervious surface is created or replaced. Permanent treatment BMPs include: • Biofiltration swales. • Detention basins. • Bioretention areas. • Flow-through planter boxes BMPs must be incorporated to accommodate the runoff from impervious surfaces in compliance with the NPDES Permit. This need can be achieved through the use of low impact development (LID) features as well as various BMPs. LID features can reduce the impervious surfaces. These features include pervious pavements, landscape features, and green roofs. Parking stalls and plaza areas along San Pablo Avenue may be able to utilize pervious asphalt, pervious concrete, or permeable pavers. Landscaped open space will contribute to reductions in impervious surfaces. Given the existing level of urbanization and the proposed plans for the areas adjacent to San Pablo Avenue, BMPs should fit the project character and account for potential constraints. Bioretention planter areas or tree wells may be used to treat roadway runoff. Flow-through planter boxes may be used to treat roof runoff. During design, the Stormwater C3 Guidebook should be referenced for acceptable BMPs, design considerations, design criteria, and operation and maintenance information. Based upon the El Cerrito General Plan, there are no known areas of flooding or of system failure within the study limits. Therefore, improvements to collect and convey the 10-year event do not appear to be required within the City of El Cerrito. Furthermore, no flooding or drainage issues were reported from the city of Richmond in this area. To comply with generally accepted standards as well as City standards, the project may require additional inlets and connecting pipelines at traffic calming bulb-outs and upstream of mid-block crosswalks. Because of the highly-developed nature of the project and the requirement for ---PAGE BREAK--- v o l u m e I I c h a p t e r t h r e e 98 I S A N P A B L O A V E N U E S P E C I F I C P L A N A D M I N D R A F T compliance with hydromodification management within the County, it is assumed that there will be no need for trunk pipe size increases. Modifications to curbs, gutters, medians, and crossing locations may necessitate the replacement of existing storm drain inlets and connecting pipelines. These modifications may also require the addition of manholes at junction points to facilitate maintenance. ---PAGE BREAK--- COLLECTIVELY, A CITY’S ABUNDANT SMALL SPACES HAVE A MAJOR IMPACT ON THE QUALITY OF LIFE. IF THOSE SPACES ARE UNATTRACTIVE, PEOPLE WILL LIKELY RETREAT FROM THE CITY STREET, PERHAPS FROM THE CITY ITSELF - TO THE SUBURBS AND COUNTRY IF THEY CAN MANAGE IT, TO FORTIFIED SHELTERS IN CITIES IF THEY CANNOT. BUT IF WE LEARN TO ADVANTAGE OF OUR SMALL URBAN SPACES, IF WE DESIGN NEW ONES WELL, AND FIX UP THE OLD ONES, WE WILL KEEP THE STREETS ALIVE. WE MAY EVEN ENCOURAGE PEOPLE TO USE THEM, AND TO SMILE ABOUT IT. - William H. Whyte The Social Life of Small Urban Spaces (The Conservation Foundation, 1979), 7