HomeMy WebLinkAboutRESOLUTIONS - 02092021 - 2021/52
Final Report
East Contra Costa
Regional Fee
Program Update
Prepared for:
East Contra Costa Regional Fee &
Financing Authority
October 2020
1001-1655.02
Table of Contents
1. Introduction ............................................................................................................................. 1
Background .................................................................................................................................................................................... 1
Purpose ............................................................................................................................................................................................ 1
Study Area ....................................................................................................................................................................................... 1
Study Process ................................................................................................................................................................................. 2
Organization of the Report ...................................................................................................................................................... 2
2. Program Information and Project List .................................................................................. 4
3. Growth Projections ................................................................................................................. 9
Dwelling Unit Equivalent Factors .........................................................................................................................................10
Projected Growth in East County .........................................................................................................................................11
4. Nexus Analysis and Fee Calculations................................................................................... 12
Existing Deficiencies ..................................................................................................................................................................12
Proportional Cost Allocation .................................................................................................................................................13
Fee Calculations ..........................................................................................................................................................................17
Appendix
Appendix A: SCR Extension Project Costs
List of Figures
Figure 1: ECCRFFA Area and Projects .......................................................................................................................................... 3
Figure 2: SCR Extension Conceptual Alignment ..................................................................................................................... 5
List of Tables
Table 1: Current ECCRFFA Fees (as of January 2020) ............................................................................................................ 6
Table 2: ECCRFFA Project List ......................................................................................................................................................... 6
Table 3: Projected Land Use in East County ............................................................................................................................. 9
Table 4: DUE Conversion Factors ............................................................................................................................................... 10
Table 5: Forecasted Growth in East Contra Costa County (2020 to 2040) ................................................................ 11
Table 6: Existing Intersection Level of Service (LOS) .......................................................................................................... 13
Table 7: Projects and Fee Contribution Amounts................................................................................................................ 15
Table 8: New Maximum Fee Calculations ............................................................................................................................... 17
Final Report East Contra Costa Regional Fee Program Update
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1. Introduction
Background
The East Contra Costa Regional Fee and Financing Authority (ECCRFFA or the Authority) is a regional
planning agency charged with funding regional transportation improvement projects in eastern Contra
Costa County with revenue from the Authority’s regional transportation demand impact mitigation
(RTDIM) fees. The Authority's jurisdiction includes the eastern portion of the County, including
unincorporated areas and the Cities of Antioch, Brentwood, Oakley, and Pittsburg. The Authority’s
boundaries are shown in Figure 1.
The Authority first implemented a transportation development impact fee program in 1994. The fee was
calculated to reflect new development’s proportional share of the cost of various regional transportation
improvements, such as the State Route (SR) 4 Bypass and the widening of SR 4 through Pittsburg and
Antioch. The Authority conducted an update of the fee program in 2001 to help fund an expanded list of
regional transportation improvements. In the summer of 2005, the Authority completed a comprehensive
update of its RTDIM fee program. In June 2005, the ECCRFFA Board approved the East Contra Costa
Regional Fee Program Update Final Report (the “2005 Report”) prepared by Fehr & Peers, and each of the
five member jurisdictions adopted an updated set of fees pursuant to that report.
Since that time, the fees have been adjusted annually to reflect changes in construction costs. Beginning
in 2008-2009, a fee rebate program was established in response to the economic downturn. The fee
rebate has been reduced over time, but the Authority has continued to implement a 15% fee rebate since
January 1, 2017. Periodic program assessments have been completed and documented over the past
several years to evaluate the progress of the program in funding and delivering projects on the project
list.
Purpose
Recently, there has been interest in expanding the ECCRFFA fee program to include a project that would
involve the extension of Sand Creek Road westward, from its current terminus near SR 4, to a new
intersection with Deer Valley Road in Antioch (the “SCR extension”). At its December 13, 2018 meeting,
the ECCRFFA Board of Directors directed that a focused nexus study be conducted to evaluate the
addition of the SCR extension to the fee program. The purpose of this report is to evaluate the addition of
the SCR extension to the ECCRFFA project list, and to determine new development’s proportional share of
the cost of that project should it be added to the fee program.
Study Area
As shown on Figure 1, ECCRFFA’s jurisdiction area includes certain unincorporated areas of eastern
Contra Costa County, as well as the Cities of Antioch, Brentwood, Oakley, and Pittsburg.
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Study Process
This study was developed under the direction of ECCRFFA staff and with input from staff from each of the
member agencies. Because this is a focused nexus study, it follows the same technical methods and
procedures as were used in the 2005 Report. The intent is to maintain the existing structure of the
ECCRFFA program; therefore, the 2005 Report remains the best source of detailed information about the
nexus analysis for the existing program. The focus of this current analysis is to determine new
development’s proportional share of the cost of the SCR extension should it be added to the fee program,
as well as to incorporate updated cost information regarding all of the projects on the current ECCRFFA
project list (i.e., the projects evaluated in the 2005 Report).
Organization of the Report
After this introductory section, the report contains three additional sections:
• Section 2 – Program Information and Project List describes the background of the fee program,
the current fee amounts, and the list of projects included in the program.
• Section 3 – Growth Projections documents the amount of growth anticipated in East County over
the next twenty years that would be subject to the fee.
• Section 4 – Nexus Analysis and Fee Calculations describes the results of the nexus analysis for the
Sand Creek Road extension project and calculates the fee amounts using the updated information
presented in the report.
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Project Type
Freeway Improvements
Arterial Improvements
Regional Transit Improvements
East Contra Costa County Fee Boundary Figure 1
Note: The East County Express Bus project is notmapped as its location is not defined.26
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2. Program Information and
Project List
The existing ECCRFFA program authorizes ECCRFFA’s member agencies to charge RTDIM fees on new
development within ECCRFFA’s jurisdiction. The current schedule of ECCRFFA RTDIM fees is shown in
Table 1.
The existing ECCRFFA program generates RTDIM fee revenue that can be used to fund new
development’s proportional share of any of the 26 transportation improvement projects listed in the 2005
Report. Those projects include freeway and regional transit improvements as well as projects along major
arterial roadways that connect different parts of the East County region. The proposed SCR extension has
been temporarily added as project #27 for the purposes of this study. See Figure 1 for a map of the
project locations, and Table 2 contains a description of each project along with its current status and
estimated cost.
For those projects that have been completed, the cost shown on Table 2 reflects the actual cost. For
projects yet to be completed, the cost estimate from the 2005 Report has been indexed to current dollars
by applying an annual construction cost index, consistent with the process used to index the ECCRFFA fee
amounts each year. In a few cases, the project sponsors were able to provide a more recent cost estimate,
which was then incorporated into Table 2. This was the case for project #16 (the James Donlon Boulevard
extension) and proposed project #27 (the SCR extension).
The SCR extension project involves the extension of Sand Creek Road as a four-lane, east-west arterial
from its current terminus at SR 4 in Brentwood westward to intersect with Deer Valley Road in Antioch.
See Figure 2 for an exhibit showing the conceptual alignment of the SCR extension. The SCR extension
would provide access to several areas proposed for development, including the developments known as
Bridle Gate in Brentwood, and Promenade and Aviano in Antioch. Near its western end, the SCR extension
would connect to Deer Valley Road, near the existing Dozier-Libbey Medical High School and the Kaiser
Permanente Medical Center.
The SCR extension will serve multiple purposes. Major functions of the road would include: 1) allowing
access to the proposed new development areas described previously; and 2) filling a transportation gap in
east-west connectivity between Antioch and Brentwood to serve the anticipated growth in regional travel
without overburdening the existing parallel routes of Balfour Road and Lone Tree Way. The SCR extension
would also allow more direct and efficient access to the Kaiser Medical Center and the Dozier-Libbey High
School from Brentwood and points east. As described further in Section 4, the portion of the SCR
extension project cost that is proposed to be included in the ECCRFFA program has been calculated to
account for new development’s proportional share of the cost of the project.
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Table 1: Current ECCRFFA Fees (as of January 2020)
Land Use Category Unit Fee per Unit ECCRFFA Fee Rebate Fee Less ECCRFFA Fee Rebate
Single-Family DU $22,920 15% $19,482
Multi-Family DU $14,070 15% $11,960
Commercial Sq. Ft. $1.90 $1.90
Office Sq. Ft. $1.66 $1.66
Industrial Sq. Ft. $1.66 $1.66
Other Peak Hour Trip $22,920 $22,920
Notes: DU = Dwelling Unit. For projects that do not fit in one of the general land use categories above, the fee is assessed on the basis of the number of peak hour vehicle trips estimated to be generated by that project. Source: Contra Costa County.
Table 2: ECCRFFA Project List
Number Project Description/ Project Limits Sponsor Total Cost
($ Million) Status
Freeway Improvements
1 SR 4 Freeway widening Railroad Avenue to Loveridge Road, widen to 8 lanes CCTA $ 101.0 Completed
Loveridge interchange CCTA $ 157.8 Completed
Loveridge to Bypass (8 lanes to Hillcrest, 6 lanes to Bypass) CCTA $ 374.7 Completed
Hillcrest interchange expansion CCTA $ 10.0 Completed
2 SR 4 Bypass Segment 1 Phase 1, 6 lanes to Laurel, interchanges at Laurel Rd and Lone Tree Bypass Authority $ 113.7 Completed
Phase 2, SR 160 interchange Bypass Authority $ 50.1 Completed
Laurel interchange, phase 2 Bypass Authority $ 1.0 Completed
3 SR 4 Bypass Segment 2 Phase 1, 2 lanes Bypass Authority $ 33.3 Completed
Phase 2, 4 lanes, Sand Creek Road to Balfour Road Bypass Authority $ 16.0 Completed
Widen to 6 lanes, Laurel Road to Sand Creek Road Bypass Authority $ 29.0
Sand Creek interchange and 4 lanes, Laurel to Sand Creek Bypass Authority $ 43.8 Completed
4 SR 4 Bypass Segment 3 Balfour to Marsh Creek (2 lanes) plus Marsh Creek east-west connector Bypass Authority $ 77.8 Completed
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Table 2: ECCRFFA Project List
Number Project Description/ Project Limits Sponsor Total Cost
($ Million) Status
Marsh Creek to Vasco, 2 lanes Bypass Authority $ 12.6 Completed
Segment 3, widen to 4 lanes Bypass Authority $ 58.9
Balfour interchange Bypass Authority $ 58.0 Completed
Marsh Creek interchange Bypass Authority $ 37.2
Vasco interchange Bypass Authority $ 31.0
Arterial Improvements
5 Laurel Road extension SR4 Bypass to Empire, 6 lanes Bypass Authority $ 22.6 Completed
6 SR 239/84 Connector Armstrong Road extension, 2 lanes (formerly Byron Airport Road) County $ 9.5
7 SR 239 Corridor study and preliminary design (no construction costs) County $ 15.5 Study completed
8 SR 4 (Main St or Brentwood Blvd) widening
Vintage Pkwy in Oakley to Marsh Creek bridge in Brentwood and from Chestnut Street to Balfour
Road in south Brentwood, 4 lanes
Oakley, Brentwood $ 48.0 Partially
completed
9 Balfour Road widening Deer Valley to Brentwood city limits, widen to 4 lanes County $ 10.5
10 Marsh Creek Road/Deer Valley Road Safety Enhancements
Marsh Creek: Walnut Boulevard to Clayton City Limits; Deer Valley: Balfour Road to Marsh Creek Road County $ 22.0
11 Route 84/Vasco Road Widen to 4 lanes to County line County $ 323.8
12 Pittsburg-Antioch Highway Widen to 4 lanes, Auto Center Drive to Loveridge Antioch, Pittsburg $ 17.0
13 Ninth and Tenth Streets Couplet improvements, A St to L St Antioch $ 7.0
14 California Avenue Widen to 4 lanes, Railroad to Loveridge Pittsburg $ 25.9
15 Willow Pass Road Widen to 4 lanes, Range to Loftus and Bailey to city limits Pittsburg, County $ 10.7
16 James Donlon Blvd Extension (formerly Buchanan Bypass)
New 2- to 4-lane arterial, Somersville to Kirker Pass Road Pittsburg $ 105.8 Design in
progress
17 West Tregallas/Fitzuren Widen to 4 lanes, Lone Tree to Buchanan Antioch $ 38.7
18 West Leland Road or Evora Road
Extend, San Marco to Avila Road Pittsburg
$ 18.0 Willow Pass Rd (BP) to Willow Pass Rd (Concord), widen to 4 lanes County
19 Wilbur Avenue Widen to 4 lanes, Minaker Drive to SR 160 Antioch, County $ 31.0
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Table 2: ECCRFFA Project List
Number Project Description/ Project Limits Sponsor Total Cost
($ Million) Status
20 Neroly Road Widen to 4 lanes, Oakley Rd to Laurel Rd Oakley $ 7.7
21 Deer Valley Road Widen to 4 lanes, Antioch city limits to Balfour Road County $ 13.9
22 Walnut Boulevard Widen to 4 lanes, Brentwood city limits to SR 4 Bypass County $ 18.6
23 John Muir Parkway New Roadway between Balfour Road and Fairview Avenue Brentwood $ 17.7 Design in progress
24 Byron Highway Safety Improvements between Delta Road and SR 4 County $ 5.6
27 Sand Creek Road Extension of 4-lane roadway between SR 4 and Deer Valley Road Antioch $ 34.9
Regional Transit Projects
25 East County Express Bus Tri-Delta Transit $ 8.3
26 Commuter Rail CCTA $ 513.0 Completed
TOTAL $2,531.5
Note: Project #27, the Sand Creek Road Extension, is not currently part of the ECCRFFA program. As explained above, the SCR extension is being considered for incorporation into the program. Source: ECCRFFA.
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3. Growth Projections
An important element of every fee calculation is the estimate of future growth in the fee area. As part of
this update, the current land use files available from the Contra Costa Transportation Authority (CCTA)
travel demand model were reviewed. These files contain projections of the amount of residential and
employment growth that is anticipated to occur in East County. CCTA has just completed an update of the
travel model and has developed a new set of land use files that reflect the totals from the Association of
Bay Area Governments (ABAG) Projections 2017 publication, which is the most current set of regional
growth projections available.
The first step in the process was to identify which of the model’s traffic analysis zones (TAZs) are within
ECCRFFA’s jurisdiction. The ECCRFFA jurisdictional boundary was available as a GIS file, and was overlaid
with the CCTA TAZ structure to identify the TAZs that are located within ECCRFFA’s jurisdiction. For those
TAZs that are only partially within ECCRFFA’s jurisdiction, the TAZ was included in the calculation only if
more than 50% of the TAZ land area was within ECCRFFA’s jurisdiction.
The next step was to tabulate the total amount of households and employment in the ECCRFFA TAZs, as
shown in Table 3. The year 2020 is used as the baseline and the year 2040 is the horizon year. The
employment categories shown are those that have historically been used in prior nexus studies for the
ECCRFFA program, and are used here for consistency with the existing fee program.
Table 3: Projected Land Use in East County
Jurisdiction
Year 20201 Year 2040
Employment Residential Units Employment Residential Units
Service Retail Other Single
Family
Multi-
family Service Retail Other Single
Family
Multi-
family
Antioch 6,055 7,819 8,105 27,956 7,326 7,587 9,923 10,280 31,808 10,425
Brentwood 2,160 2,883 3,134 15,565 1,880 2,901 3,321 3,833 20,037 2,555
Oakley 1,121 1,355 1,918 10,411 2,002 1,944 1,762 2,494 13,411 3,836
Pittsburg 4,232 4,472 7,463 14,573 7,039 5,952 5,660 8,129 18,953 11,557
Unincorporated East County 1,327 3,051 5,514 15,827 3,456 2,798 3,643 4,815 18,657 4,685
Total East County 14,895 19,580 26,134 84,332 21,703 21,182 24,309 29,551 102,866 33,058
Relationship between land use categories in the model and the fee program were assumed to be: Retail=Commercial; Service=Office; and Other=Industrial, Manufacturing, Agriculture and other land use categories included in the CCTA model. 1. 2020 land use was derived by a linear interpolation between the 2010 and 2040 land use data provided by CCTA in March 2019. Source: ECCRFFA, CCTA, Fehr & Peers.
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Dwelling Unit Equivalent Factors
It is common in many fee programs to convert the projected growth into a standard unit of measurement
called the dwelling unit equivalent (DUE), in order to account for the fact that different types of
development have different travel characteristics. The factors used to convert the future land use numbers
into DUEs are shown in Table 4. These factors have been developed following the same structure
established in the 2005 Report; the values in each column have been updated to reflect the most current
data available. These DUE conversion factors involve the following elements: land use-specific PM peak
hour trip rates from ITE Trip Generation, 10th Edition; estimates of the percent new trips from SANDAG
Brief Guide of Vehicular Traffic Generation Rates (2002); and average trip lengths from the 2012 California
Household Travel Survey for census tracts within ECCRFFA’s jurisdiction.
Table 4: DUE Conversion Factors
Land Use Category Unit PM Peak Trip Rate1 % New Trips2 Average Trip Length (miles)3
PM Peak New Trip Length per Unit4 DUE per Unit5
Housing
Single Family a Dwelling Unit 0.99 100 9.0 8.9 1.00
Multi-Family b Dwelling Unit 0.56 100 7.5 4.2 0.47
Employment
Commercial c 1,000 square feet 3.81 45 5.0 8.6 0.96
Office d 1,000 square feet 1.15 75 14.0 12.1 1.36
Industrial e 1,000 square feet 0.63 80 14.0 7.1 0.79
1. The average PM peak hour (between 4 and 6 PM) trip rate was taken from the ITE Trip Generation Manual, 10th Edition, for the following land use codes: a. Single Family Detached - Code 210 b. Multifamily Housing (Low Rise) - Code 220 c. Shopping Center - Code 820 d. General Office - Code 710 e. General Light Industrial - Code 110 2. Taken from the SANDAG Brief Guide of Vehicular Traffic Generation Rates, April 2002. 3. Average trip lengths for the East County area as derived from 2012 California Household Travel Survey Data. For single family and multifamily housing, used travel survey data for all home-based trip purposes. For commercial uses, used data for home-based shopping purpose. For office and industrial uses, used data for all work-related trips. 4. Calculated as: PM Peak Trip Rate * % New Trips * Average Trip Length. 5. DUE per Unit is calculated by normalizing the PM Peak New Trip Length for each category such that the single-family residential category is assigned a DUE of 1.00. This is accomplished by dividing the PM Peak New Trip Length for each category by the PM Peak New Trip Length of the single-family residential category. So, for example, the DUE per Unit for the Multi-family category is calculated as 4.2 / 8.9 = 0.47. Source: ECCRFFA, Fehr & Peers.
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Projected Growth in East County
Forecasted growth in East Contra Costa County is shown in Table 5 in absolute numbers of new jobs and
residential units, and then those numbers are converted to DUEs. The total number of new DUEs
projected in the 20 years from 2020 to 2040 is 29,808. As a point of comparison, in the 2005 Report the
amount of growth projected over the 20-year period from 2005 to 2025 was approximately 42,000 DUEs.
This result is an indication that the East County area is moving closer to a build-out condition, as the
amount of future growth begins to moderate.
Table 5: Forecasted Growth in East Contra Costa County (2020 to 2040)
Jurisdiction
Estimated Growth (2020 to 2040) Estimated Growth in DUEs (2020 to 2040)
Total DUEs Employment Residential Units Employment DUEs Residential DUEs
Service Retail Other Single Family Multi-family4 Office1 Commercial2 Industrial3 Single Family Multi-family4
Antioch 1,532 2,104 2,175 3,852 3,099 571 1,012 689 3,852 1,461 7,585
Brentwood 741 438 699 4,472 675 276 211 221 4,472 318 5,498
Oakley 823 407 576 3,000 1,834 307 196 182 3,000 865 4,549
Pittsburg 1,720 1,188 666 4,380 4,518 641 572 211 4,380 2,130 7,933
Unincorporated
East County 1,471 592 0 2,830 1,229 548 285 0 2,830 579 4,242
Total East County 6,287 4,729 4,116 18,534 11,355 2,343 2,275 1,304 18,534 5,353 29,808
Relationship between land use categories in the model and the fee program were assumed to be: Retail=Commercial; Service=Office; and Other=Industrial, Manufacturing, Agriculture and other land use categories included in the CCTA model. 1. Office DUE conversion assumes 275 square feet per employee and a DUE per thousand square feet of 1.36. DUE = EMP * 0.275 * 1.36 2. Commercial DUE conversion assumes 500 square feet per employee and a DUE per thousand square feet of 0.96. DUE = EMP * 0.500 * 0.96 3. Industrial DUE conversion assumes 400 square feet per employee and a DUE per thousand square feet of 0.79. DUE = EMP * 0.400 * 0.79 4. The multifamily units were multiplied by a DUE of 0.47. Source: ECCRFFA, Fehr & Peers.
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4. Nexus Analysis and Fee
Calculations
Existing Deficiencies
One of the key functions of a fee program is to charge fees to new development in order to fund new
development’s proportional share of transportation improvements needed to serve the demand and
impacts generated by that new development. The purpose of an impact fee is not to correct existing
deficiencies, which should be funded through other revenue sources. Therefore, it is necessary to
determine whether there are existing deficiencies in the roadway network that may be related to or
affected by the SCR extension.
Because the SCR extension would be a new east-west roadway that does not currently exist, the
determination of existing deficiencies is done by addressing whether the existing roadways that currently
serve east-west travel in this general vicinity are already experiencing deficient operations. The following
intersections, which are parallel to, and roughly the same east-west extent as, the proposed SCR
extension, were chosen for analysis:
• Lone Tree Way/Canada Valley Road
• Lone Tree Way/Hillcrest Avenue
• Lone Tree Way/Deer Valley Road
• Balfour Road/Cortona Way
• Balfour Road/Foothill Drive
• Balfour Road/Deer Valley Road
AM and PM peak period traffic counts were collected on a typical weekday with good weather conditions
and when school was in session. The count data was used to calculate the peak hour Level of Service
(LOS) at each study intersection. These results were compared to the applicable LOS standard for those
facilities in order to identify existing deficiencies.
The City of Brentwood requires that “intersection levels of service should be maintained at LOS D or
better” for Signalized Suburban Arterial Routes (City of Brentwood General Plan, July 2014). Similarly, the
City of Antioch’s requirement for signalized intersections is that they be maintained at LOS D (City of
Antioch General Plan, 2003).
The results of the LOS analysis performed at each study intersection are presented in Table 6. The analysis
identified one deficiency, at the intersection of Balfour Road and Cortona Way in Brentwood. During the
PM peak hour, the results of the analysis indicate LOS E at that intersection with a total average delay of
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78 seconds. The threshold for LOS D operations at a signalized intersection is 55 seconds of delay
(Highway Capacity Manual, 2010).
The analysis indicated that the southbound approach at the Balfour Road/Cortona Way intersection has
the highest reported delay, and reducing the volume of the southbound left-turn movement would have
the greatest effect on level of service. To achieve LOS D, a reduction of southbound left-turning volume,
from 176 vehicles to 123 vehicles, would be required. However, it should be noted that the southbound
left-turn movement at this intersection is largely unrelated to the SCR extension. Cortona Way is a short
north-south street that serves several commercial businesses, an assisted living facility, and a relatively
small number of residences. The vehicles that are turning left from southbound Cortona Way onto Balfour
Road in the PM peak hour will be heading either onto SR 4 or further eastward into southern Brentwood.
These travel patterns would not be served or affected by the SCR extension. Therefore, while this
intersection currently operates at a deficient level of service, the particular travel patterns involved lead to
the conclusion that the Balfour Road/Cortona Way intersection does not represent an existing deficiency
that would affect the nexus determination for the SCR extension.
Table 6: Existing Intersection Level of Service (LOS)
Intersection Control Type1 Peak Hour2 Delay3 LOS4
1 Lone Tree Way/Canada Valley Road Signalized AM PM 17.9 28.2 B C
2 Lone Tree Way/Hillcrest Avenue Signalized AM PM 19.5 21.6 B C
3 Lone Tree Way/ Deer Valley Road Signalized AM PM 27.3 24.8 C C
4 Balfour Road/Cortona Way Signalized AM PM 43.9 78.0 D E
5 Balfour Road/Foothill Drive Signalized AM PM 48.9 32.3 D C
6 Balfour Road/Deer Valley Road Side-Street Stop-Controlled AM PM 13.8 (21.7) 9.9 (13.8) B (C) A (B)
Notes: 1. Existing intersection traffic control type 2. AM = Weekday morning peak hour, PM = Weekday evening peak hour 3. Whole intersection average delay reported for signalized intersections. Side-street stop-controlled delay presented as Whole Intersection Average Delay (Worst Movement Delay). Delay calculated per HCM 2010 methodologies. 4. LOS designation per HCM 2010. Bold indicates a LOS result lower than the relevant standard. Source: Fehr & Peers, March 2019.
Proportional Cost Allocation
As described previously, the purpose of this study is to evaluate the incorporation of the proposed SCR
extension into the ECCRFFA fee program. As such, the focus here is on defining the proportion of the SCR
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extension project cost that could be included in the fee program. No changes are being made to the cost
proportions included in the fee for all of the other projects that are already part of the ECCRFFA fee
program. Table 7 includes the total cost of each project, as well as the portion of that cost that is
considered part of the ECCRFFA fee program.
Per the above discussion, there are no current existing deficiencies that would affect the determination
about what proportion of the SCR extension cost should be included in the ECCRFFA fee program. If a
facility is not subject to an existing deficiency, then the need for the improvement can be presumed to be
generated by new development. As described in Section 2 of this report, the SCR extension is designed to
serve multiple purposes, including access to the proposed new development areas in southern Antioch,
and serving the anticipated increase in regional travel demand without overburdening the parallel routes.
The extension would also provide a more direct connection to the existing Kaiser Medical Center and
Dozier-Libbey High School.
The SCR extension would fill a gap in east-west connectivity between Balfour Road and Lone Tree Way.
Balfour Road is approximately one mile south of the SCR extension while Lone Tree Way is about one mile
north, and both are projected to serve relatively high levels of traffic demand in the future. For example,
the transportation impact analysis recently completed for the project known as The Ranch, which would
be located just west of the future SCR/Deer Valley Road intersection, assumed that the SCR extension
would be constructed; even with that assumption, that study identified several future LOS issues at major
intersections along both Lone Tree Way and Balfour Road. If the SCR extension were not constructed,
traffic volumes and the associated LOS results along those roadways are expected to be even higher than
were analyzed in The Ranch study. This is an indication that the SCR extension is needed to accommodate
future demand for travel in the area around southern Antioch and Brentwood.
When a new roadway will serve both local access and regional travel needs, it is common practice to
divide the responsibility for constructing the facility between local and regional entities. As described
above, the need for the SCR extension is due entirely to the demands of new growth and is not related to
an existing deficiency. The project designers have developed a detailed cost estimate for the SCR
extension and have determined how each cost element reflects the road’s purpose. The regional portion
will include the center median and one lane of travel on either side of the median, while the local portion
will include all other cost elements (e.g., outside lanes, retaining walls, landscaping, most of the cost of
grading and utilities). The logic is that a two-lane road would be necessary in order to provide local access
to the new development areas, so only the cost elements required to expand the road’s capacity to four
lanes should be considered a regional responsibility. A detailed breakdown of the SCR extension’s costs is
attached as Appendix A. As shown, the division between local and regional responsibility is
approximately a 70%/30% split: the total project cost is estimated to be $34.9 million, of which
approximately $24.1 million would be the responsibility of the local developers, while approximately $10.8
million is the regional share that will be included in the ECCRFFA program.
Final Report East Contra Costa Regional Fee Program Update
October 2020
15
Table 7: Projects and Fee Contribution Amounts
Number Project Description/Project Limits Sponsor Total Cost ($ million) Fee Contribution ($ million)
Freeway Improvements
1 SR 4 Freeway widening Railroad Avenue to Loveridge Road, widen to 8 lanes CCTA $ 101.0 $ 2.0
Loveridge interchange CCTA $ 157.8
Loveridge to Bypass (8 lanes to Hillcrest, 6 lanes to Bypass) CCTA $ 374.7
Hillcrest interchange expansion CCTA $ 10.0
2 SR 4 Bypass Segment 1 Phase 1, 6 lanes to Laurel, interchanges at Laurel Rd and Lone Tree
Bypass Authority $ 113.7 $ 88.7
Phase 2, SR 160 interchange Bypass Authority $ 50.1 $ 0.2
Laurel interchange, phase 2 Bypass Authority $ 1.0 $ 1.0
3 SR 4 Bypass Segment 2 Phase 1, 2 lanes Bypass Authority $ 33.3 $ 33.3
Phase 2, 4 lanes, Sand Creek Road to Balfour Road Bypass Authority $ 16.0
Widen to 6 lanes, Laurel Road to Sand Creek Road Bypass Authority $ 29.0 $ 4.0
Sand Creek interchange and 4 lanes, Laurel to Sand Creek Bypass Authority $ 43.8 $ 5.8
4 SR 4 Bypass Segment 3 Balfour to Marsh Creek (2 lanes) plus Marsh Creek east-west connector
Bypass Authority $ 77.8 $ 77.8
Marsh Creek to Vasco, 2 lanes Bypass Authority $ 12.6 $ 12.6
Segment 3, widen to 4 lanes Bypass Authority $ 58.9 $ 58.9
Balfour interchange Bypass Authority $ 58.0 $ 28.0
Marsh Creek interchange Bypass Authority $ 37.2 $ 37.2
Vasco interchange Bypass Authority $ 31.0 $ 31.0
Arterial Improvements
5 Laurel Road extension SR4 Bypass to Empire, 6 lanes Bypass Authority $ 22.6 $ 22.6
Final Report East Contra Costa Regional Fee Program Update
October 2020
16
Table 7: Projects and Fee Contribution Amounts
Number Project Description/Project Limits Sponsor Total Cost ($ million) Fee Contribution ($ million)
6 SR 239/84 Connector Armstrong Road extension, 2 lanes (formerly Byron Airport Road) County $ 9.5 $ 9.5
7 SR 239 Corridor study and preliminary design (no construction costs) County $ 15.5 $ 15.5
8 SR 4 (Main St or Brentwood Blvd) widening
Vintage Pkwy in Oakley to Marsh Creek bridge in Brentwood and from Chestnut Street to Balfour Road in south Brentwood, 4 lanes
Oakley, Brentwood $ 48.0 $ 48.0
9 Balfour Road widening Deer Valley to Brentwood city limits, widen to 4 lanes County $ 10.5 $ 10.5
10 Marsh Creek Road/Deer Valley Road Safety Enhancements
Marsh Creek: Walnut Boulevard to Clayton City Limits; Deer Valley: Balfour Road to Marsh Creek Road County $ 22.0 $ 7.3
11 Route 84/Vasco Road Widen to 4 lanes to County line County $ 323.8 $ 323.8
12 Pittsburg-Antioch Highway Widen to 4 lanes, Auto Center Drive to Loveridge Antioch, Pittsburg $ 17.0 $ 17.0
13 Ninth and Tenth Streets Couplet improvements, A St to L St Antioch $ 7.0 $ 7.0
14 California Avenue Widen to 4 lanes, Railroad to Loveridge Pittsburg $ 25.9 $ 25.9
15 Willow Pass Road Widen to 4 lanes, Range to Loftus and Bailey to city limits Pittsburg, County $ 10.7 $ 10.7
16 James Donlon Blvd Extension (formerly Buchanan Bypass)
New 2- to 4-lane arterial, Somersville to Kirker Pass Road Pittsburg $ 105.8 $72.0
17 West Tregallas/Fitzuren Widen to 4 lanes, Lone Tree to Buchanan Antioch $ 38.7 $ 38.7
18 West Leland Road or Evora Road
Extend, San Marco to Avila Road Pittsburg
$ 18.0 $ 18.0 Willow Pass Rd (BP) to Willow Pass Rd (Concord), widen to 4 lanes County
19 Wilbur Avenue Widen to 4 lanes, Minaker Drive to SR 160 Antioch, County $ 31.0 $ 31.0
20 Neroly Road Widen to 4 lanes, Oakley Rd to Laurel Rd Oakley $ 7.7 $ 7.7
21 Deer Valley Road Widen to 4 lanes, Antioch city limits to Balfour Road County $ 13.9 $ 13.9
22 Walnut Boulevard Widen to 4 lanes, Brentwood city limits to SR 4 Bypass County $ 18.6 $ 18.6
23 John Muir Parkway New Roadway between Balfour Road and Fairview Avenue Brentwood $ 17.7 $ 3.6
Final Report East Contra Costa Regional Fee Program Update
October 2020
17
Table 7: Projects and Fee Contribution Amounts
Number Project Description/Project Limits Sponsor Total Cost ($ million) Fee Contribution ($ million)
24 Byron Highway Safety Improvements between Delta Road and SR 4 County $ 5.6 $ 1.9
27 Sand Creek Road Extension of 4-lane roadway between SR 4 and Deer Valley Road Antioch $ 34.9 $ 10.8
Regional Transit Projects
25 East County Express Bus Tri-Delta Transit $ 8.3 $ 2.7
26 Commuter Rail CCTA $ 513.0 $ 38.0
TOTAL $2,531.5 $1,135.1
Note: Project #27, the Sand Creek Road Extension, is not currently part of the ECCRFFA program. As explained above, the SCR extension is being considered for incorporation into the program.
Fee Calculations
Table 8 displays the calculated maximum impact fees based on this nexus analysis. These fees have been
calculated based on the complete list of projects as shown in Table 7. The total fee contribution toward all
the projects shown in Table 7 ($1,135.1 million) has been divided by the total number of future Dwelling
Unit Equivalents (DUEs) expected in East County as shown in Table 5 (29,808 DUEs), to calculate the
resulting maximum fee per DUE of $38,080. These calculations represent new development’s proportional
share of the cost of projects on the project list, including the SCR extension, as determined by this study.
Table 8: New Maximum Fee Calculations
Land Use Category New Maximum Fee
Single-Family Residential (dwelling unit) $38,080
Multi-Family Residential (dwelling unit) $17,950
Commercial (square foot) $36.64
Office (square foot) $51.61
Industrial (square foot) $30.16
Other (per peak hour trip) $38,080
Source: Fehr & Peers.
Appendix A:
SCR Extension Project Costs
Sand Creek Road Extension-State Route 4 to Deer Valley Road
Estimate of Probable Cost and Allocation
Date: 5.8.2020
ITEM NO.
Unit Unit Price Escalated Unit Price Quantity Escalated Cost Quantity Escalated Cost Quantity Quantity Escalated Cost Quantity Escalated Cost Quantity Escalated Cost Quantity Amount
1 Clearing and Grubbing SF 0.25$0.28$186,000 51,266$104,000 28,665$240,000 66,150$95,200 26,240$92,400 25,468$92,400 25,468$378,000 104,186.25$327,442.50$
2 Rough Grade Street Section CY 10.00$11.03$27,500 303,188$8,100 89,303$21,200 233,730$8,700 95,918$8,400 92,610$8,400 92,610$31,000 341,775.00$1,249,132.50$
3 Grading to Property Line SF 0.45$0.50$186,000 92,279$104,000 51,597$242,000 120,062$95,200 47,231$92,400 45,842$92,400 45,842$378,000 187,535.25$590,388.75$
6 Subgrade Fabric SF 0.20$0.22$197,200 43,483$58,200 12,833$120,000 26,460$57,500 12,679$52,000 11,466$54,000 11,907$160,000 35,280.00$154,107.45$
4 6.5" Asphalt Concrete SF 3.25$3.58$197,200 706,592$58,200 208,538$120,000 429,975$57,500 206,030$52,000 186,323$54,000 193,489$160,000 573,300.00$2,504,246.06$1,565,153.79$939,092.27$
5 25"Aggregate Base SF 5.00$5.51$197,200 1,087,065$58,200 320,828$120,000 661,500$57,500 316,969$52,000 286,650$54,000 297,675$160,000 882,000.00$3,852,686.25$2,407,928.91$1,444,757.34$
7 Fog Seal SF 0.05$0.06$197,200 10,871$58,200 3,208$120,000 6,615$57,500 3,170$52,000 2,867$54,000 2,977$160,000 8,820.00$38,526.86$24,079.29$14,447.57$
8 Vertical Curb and Gutter LF 25.00$27.56$5,800 159,863$1,600 44,100$3,800 104,738$1,600 44,100$1,700 46,856$1,700 46,856$5,000 137,812.50$584,325.00$584,325.00$-$
9 Median Curb with Cushion LF 25.00$27.56$5,800 159,863$1,400 38,588$3,900 107,494$1,660 45,754$1,700 46,856$1,700 46,856$5,000 137,812.50$583,222.50$-$583,222.50$
10 6' Sidewalk with Cushion SF 5.00$5.51$34,800 191,835$10,200 56,228$22,600 124,583$10,000 55,125$10,000 55,125$10,200 56,228$30,000 165,375.00$704,497.50$704,497.50$-$
11 Commercial Driveway EA 2,000.00$2,205.00$2 4,410$4 8,820$4 8,820$2 4,410$0 -$0 -$1 2,205.00$28,665.00$28,665.00$-$
12 Handicap ramps EA 2,000.00$2,205.00$0 -$4 8,820$-$0 -$0 -$0 -$10 22,050.00$30,870.00$30,870.00$-$
13 Survey Monuments EA 300.00$330.75$2 662$7 2,315$7 2,315$2 662$2 662$1 331$8 2,646.00$9,591.75$9,591.75$-$
14 Traffic Signs EA 250.00$275.63$0 -$4 1,103$8 2,205$0 -$0 -$0 -$-$3,307.50$1,653.75$1,653.75$
15 Street Signs EA 250.00$275.63$0 -$4 1,103$6 1,654$0 -$0 -$0 -$8 2,205.00$4,961.25$2,480.63$2,480.63$
16 Striping LF 20.00$22.05$5,800 127,890$1,600 35,280$4,200 92,610$1,700 37,485$1,650 36,383$1,650 36,383$-$366,030.00$183,015.00$183,015.00$
17 Retaining Wall LF 50.00$55.13$2,900 159,863$1,600 88,200$4,000 220,500$0 -$0 -$0 -$--$468,562.50$468,562.50$-$
18 Street Barricade LF 50.00$55.13$100 5,513$100 5,513$100 5,513$100 5,513$100 5,513$100 5,513$100 5,512.50$38,587.50$38,587.50$-$
3,104,640$1,005,039$2,214,923$901,283$842,619$862,133$2,608,515.00$11,539,150.88$7,790,214.01$3,748,936.87$
STORM DRAIN -$
19 Catch Basin EA 4,000.00$4,410.00$2 8,820$4 17,640$40 176,400$2 8,820$0 -$2 8,820$18 79,380.00$299,880.00$
20 Manholes EA 4,000.00$4,410.00$2 8,820$4 17,640$8 35,280$0 -$0 -$0 -$8 35,280.00$97,020.00$
21 18" Storm Drain LF 54.00$59.54$5,800 345,303$900 53,582$2,100 125,024$600 35,721$750 44,651$200 11,907$3,200 190,512.00$806,699.25$
22 24" Storm Drain LF 72.00$79.38$0 -$140 11,113$2,100 166,698$0 -$0 -$1,500 119,070$-$296,881.20$
23 36" Storm Drain LF 108.00$119.07$0 -$-$1,100 130,977$0 -$0 -$60 7,144$-$138,121.20$
24 Connect to Existing 84"LS 10,000.00$11,025.00$0 -$-$1 11,025$0 -$4 44,100$2 22,050$-$77,175.00$
SANITARY SEWER
25 8"PVC LF 50.00$55.13$2,900 159,863$-$160 8,820$0 -$0 -$0 -$-$168,682.50$168,682.50$-$
26 12"PVC LF -$-$-$-$-$2,000 240,000.00$240,000.00$240,000.00$
27 18"PVC LF 100.00$110.25$-$800 88,200$2,100 231,525$80 8,820$0 -$0 -$-$328,545.00$328,545.00$-$
28 Manholes EA 7,500.00$8,268.75$0 -$4 33,075$5 41,344$0 -$0 -$0 -$7 57,881.25$132,300.00$132,300.00$-$
29 Lateral for Albers EA 5,000.00$5,512.50$4 22,050$1 5,513$1 5,513$0 -$0 -$0 -$-$33,075.00$33,075.00$-$
30 School Connection LS 10,000.00$11,025.00$0 -$-$1 11,025$0 -$0 -$0 -$-$11,025.00$11,025.00$-$
31 Bore and Jack Steel Sleeve LF 600.00$661.50$1 662$-$120 79,380$1 662$0 -$0 -$-$80,703.00$80,703.00$-$
-$-$
WATER IMPROVEMENTS
32 12" PVC LF 90.00$99.23$-$975 96,744$2,100 208,373$-$-$-$2,500 248,062.50$553,179.38$345,737.11$207,442.27$
33 16 PVC (Zone I for Brentwood)LF 117.00$128.99$-$-$-$-$-$-$2,500 322,481.25$322,481.25$201,550.78$120,930.47$
34 School Connection LS 15,000.00$16,537.50$2 33,075$-$1 16,538$2 33,075$2 33,075$2 33,075$-$148,837.50$148,837.50$-$
35 2" PVC Water Service EA 2,000.00$2,205.00$-$-$1 2,205$1 2,205$1 2,205$1 2,205$2 4,410.00$13,230.00$13,230.00$-$
36 2" Irrigation Service EA 2,000.00$2,205.00$1 2,205$-$1 2,205$-$1 2,205$-$2 4,410.00$11,025.00$6,890.63$4,134.38$
37 Fire Hydrant EA 5,000.00$5,512.50$2 11,025$1 5,513$2 11,025$1 5,513$1 5,513$1 5,513$6 33,075.00$77,175.00$48,234.38$28,940.63$
38 Irrigation Sleeves LF 10.00$11.03$2 22$120 1,323$120 1,323$1 11$2 22$0 -$240 2,646.00$5,347.13$3,341.95$2,005.17$
39 Backflow Device EA 2,000.00$2,205.00$-$-$1 2,205$-$-$-$2 4,410.00$6,615.00$4,134.38$2,480.63$
40 Irrigation Meter and Box EA 2,000.00$2,205.00$1 2,205$-$1 2,205$1 2,205$1 2,205$1 2,205$2 4,410.00$15,435.00$9,646.88$5,788.13$
41 Irrigation Controller EA 15,000.00$16,537.50$1 16,538$-$1 16,538$1 16,538$1 16,538$1 16,538$2 33,075.00$115,762.50$72,351.56$43,410.94$
1 -$-$-$-$
NON -POTABLE WATER -$
42 12" PVC LF 90.00$99.23$-$-$-$-$-$2,500 248,062.50$248,062.50$155,039.06$93,023.44$
610,587$330,342$1,285,625$113,569$150,513$228,526$12,989 1,508,095.50$4,227,257.40$3,290,157.21$937,100.19$
ELECTRICAL -$
43 Street Lights EA 5,000.00$5,512.50$12 66,150$10 55,125$28 154,350$12 66,150$10 55,125$10 55,125$32 176,400.00$628,425.00$314,212.50$314,212.50$
44 Signal Interconnect LF 20.00$22.05$5,800 127,890$1,600 35,280$4,200 92,610$1,700 37,485$1,650 36,383$1,630 35,942$2,500 55,125.00$420,714.00$210,357.00$210,357.00$
45 Joint Trench LF 110.00$121.28$2,900 351,698$1,600 194,040$4,200 509,355$1,700 206,168$1,650 200,104$1,630 197,678$2,500 303,187.50$1,962,229.50$1,962,229.50$0
46 Traffic Signal LS 350,000.00$385,875.00$2 771,750$1 385,875$-$-$1 385,875$1 385,875$1 385,875.00$2,315,250.00$1,157,625.00$1,157,625.00$
-$
1,317,488$670,320$756,315$309,803$677,486$674,620$920,587.50$5,326,618.50$3,644,424.00$1,682,194.50$
MISCELLANEOUS
47 Bus Turnouts EA 10,000.00$11,025.00$-$-$1 11,025$-$-$-$-$11,025.00$11,025.00$-$
48 Parkway Landscaping SF 10.00$11.03$24,000 264,600$14,000 154,350$17,600 194,040$8,500 93,713$16,500 181,913$16,500 181,913$99,000 1,091,475.00$2,162,002.50$2,162,002.50$-$
49 Median Landscaping SF 10.00$11.03$24,000 264,600$5,500 60,638$23,000 253,575$10,500 115,763$1,100 12,128$1,060 11,687$21,000 231,525.00$949,914.00$-$949,914.00$
50 Gas Line Protection LF 50.00$55.13$-$-$200 11,025$-$-$-$-$11,025.00$11,025.00$-$
51 Bridge over Sand Creek EA 3,000,000.00$3,307,500.00$-$0 -$-$-$-$-$1 3,307,500.00$3,307,500.00$2,067,187.50$1,240,312.50$
52 Fencing along Sand Creek LF 50.00$55.13$-$-$1,100 60,638$-$-$-$-$60,637.50$60,637.50$-$
529,200$214,988$530,303$209,475$194,040$193,599$4,630,500.00$6,502,104.00$4,311,877.50$2,190,226.50$
5,561,914$2,220,689$4,787,165$1,534,129$1,864,658$1,958,878$9,667,698$27,595,130.78$19,036,673$8,558,458$
10%556,191$222,069$478,717$153,413$186,466$195,888$966,770$2,759,513.08$1,903,667.27$855,846$
Total - Capital Improvements 6,118,105$2,442,757$5,265,882$1,687,542$2,051,124$2,154,766$10,634,468$30,354,643.85$20,940,339.99$9,414,304$
Soft Cost @15% of Capital 917,716$366,414$789,882$253,131$307,669$323,215$1,595,170.17$4,553,196.58$3,141,051.00$1,412,146$
7,035,821$2,809,171$6,055,764$1,940,673$2,358,793$2,477,981$12,229,638$34,907,840.43$24,081,390.99$10,826,449$
*City of Brentwood Interfacing Developments:Brentwood Bridle Gate Assumptions:
STREET IMPROVEMENTS
AVIANO - PHASE II
1,740,803.40$580,267.80$
1,286,832.49$428,944.16$
Item Total Developer Responsibility Agency Responsibility
**City of Antioch Interfacing Developments: WESTERN END, AVIANO - PHASE II, AVIANO - Phase III, PROMENADE - SEG 1, PROMENADE - SEG 2, PROMENADE - SEG 3 WESTERN
END.
PROMENADE - SEG 3
Escalated Cost
WESTERN END
TOTAL
AVIANO - Phase III PROMENADE - SEG 1 PROMENADE - SEG 2
GRADING
Total Grading and Paving
Total Wet Utilities
Total Electrical and Traffic Signal
Total Miscellaneous
1. See "Sand Creek Road Extension (SR 4 to Deer Valley Road) Distribution of Costs
Summary" dated 12.6.2019 for responsibity allocations.
2. Probable cost estimate based on "PRELIMINARY REGIONAL TRANSPORTATION
ROUTING EXHIBIT SAND CREEK ROAD" dated May 29, 2018 .
SUBTOTAL
Contingency
Brentwood Bridle GateUnit Cost Data