HomeMy WebLinkAboutMINUTES - 10051999 - C67 TO: BOARD OF SUPERVISORS �.
FROM: Dennis M. Berry, AICP, Director of Community Development
DATE. October 5,1999
SUBJECT: Accept the Findings and Recommendations of the State Route 4 East Corridor
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Investment Stud
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SPECIFIC REQUEST( )OR RECOMMENDATION(S)& BACKGROUNDANIS JUSTIFICATION
RECQM ENDA QNS
ADOPT resolution accepting the findings and recommendations of the State Route 4 East Corridor
Major Investment Study, and pledging cooperation to complete future engineering, right-of-way and
environmental studies (see Exhibit A).
FISCAL IMPACT
None to the General Fund,
SACICGRQUiWREASONS FQR RECQMMENDATIONS
CCTA, in cooperation with the East Contra Costa Fee and Financing Authority (ECCFFA), initiated a
Major Investment Study (MIS)for the State Route 4 - East Corridor in late 1995. The preparation of
an MIS was at that time_a prerequisite to seeking Federal funds under the transportation funding law
then known as ISTEX The MIS was initiated because it was determined that Federal funds
combined with Measure C-88 and ECCFFA fee revenues would be needed to fund improvement in
the corridor. Although the recent passage of the new Federal transportation law, now referred to as
TEA-21, has changed the requirement for an ISIS by incorporated the study-requirement into the
project environmental review process, MTC hes encouraged OCTA and the participating agencies to
complete the MIS and use the study's findings and recommendations as the basis for pursuing
upgrades to the freeway.
CONTINUED ON ATTACHMENT- X YES SIGNATURE
®RECOMMENDATION OF COUNTY ADMINISTRATOR
RECOMMENDATION OF BOARD COMMITTEE
—APPROVE
_OTHER
SIGNATURE S;
ACTION CSF BOARD CSN October 5,1999 APPROVED AS I;'tECOM'MENDEDxx' OTHER
VOTE OF SUPERVISORS
I HEREBY CERTIFY THAT THIS IS A
Ya UNANIMOUS(ABSENT TRUE AND CORRECT COPY CIE AN
AYES. NOES- ACTION TAKEN AND ENTERED ON THE
ABSENT: ABSTAIN. MINUTES OF THE BOARD OF
SUPERVISORS Cath!' THE DATE SHOWN.
Contact Person, Steven Goetz, 335-1240 ATTESTED October 5, 1999
Origa Community Development' PHIL.BATCHELOR, CLERK OF
Public Works, THE BOARD OF SUPERVISORS
OCTA (vis CDD) AND COU TY ADMINISTRATOR
ECCrRFFA(vis CPUC})
BY f , DEPUTY
SLG:d:tranp1antsr4rnis.bo
State Route 4 - East Corridor Major Investment Study
October 6, 1999
Page Two
The MIS was completed over a two-year period_ public workshops and presentations to city councils
and interested agencies have occurred as part of this process. The MIS has resulted in a consensus-
based long-tears strategy to invest public funds for improving the State Route 4 - East corridor. A copy of
the executive summery is attached as Exhibit B. These upgrades include:
s widening State Route 4 to eight lanes, with the inside lanes being designated as carpool lanes:
s constructing a median wide enough to allow for future BART extensions';
i constructing an auxiliary lane in each direction between the Loveridge and Contra Loma
interchanges;
a installing traffic operation systems (TOS) such as changeable message signs:
a ramp metering;
constructing parr and ride lots; and
parallel arterial improvements.
Since current funding sources are not sufficient to implement the long-terra strategy as a single project,
the MIS identifies staged project implementation. Phase I includes improvements that could be funded
over the next 10 - 15 years given projected revenue from current funding sources. The focus of Phase I
is to identify improvements that would provide the most congestion relief as early as possible. Phase I
improvements have been incorporated into the Metropolitan Transportation Commission's long-range
planning document, the Regional Transportation dart, and include the following:
® widening State Route 4 to eight lanes with a wide median for future extension of SART from
Railroad Avenue through the Loveridge Road interchange;
designating the inside lanes for carpools;
® reconstructing the Railroad Avenue and Loveridge Road interchanges to accommodate the fully
widened Mate Route 4; and
widening Mate Route 4 from east of Loveridge to the future Mate Route 160/State Route 4
Bypass interchange to six lanes by widening within the existing median.
In accepting the ISIS, the CCTA and ECCRFFA also requested cooperation from the cities and the
County to in the next stage of project delivery for the State Route 4 - East Corridor, by cooperating in the
timely completion of engineering, right-of-way and environmental studies. The cities of Pittsburg and
Antioch have passed resolutions pledging such cooperation. County staff recommends that the Beard of
Supervisors adopt a resolution accepting the findings of the MIS and pledging the County's cooperation
in the next steps of project development and implementation.
Since accepting the MIS, the OCTA has proceeded with implementation of Phase 1. Preparation of a
Project Report and the associated environmental document have been initiated for the widening from
Railroad to Loveridge. A Project Study Report has been initiated for the widening east of Loveridge,
which includes an evaluation of utilizing a movable median barrier for a four-lanelthree-lame
configuration (four lanes in the pear direction). The ECCRFFA is currently updating Its strategic plan to
identify Its contribution of developer fees for both of these projects. Additional funding will also be
sought to complete these projects as part of the update to the Measure C-88 Strategic Ilan in 2000, and
as part of the update to the State Transportation Improvement Program in 2001.
THE BOARD OF SUPERVISORS EXHIBIT
OF ,,Q
6-
CONTRA COSTA COUNTY, CALIFORNIA
Passed and Adopted this Order on October 5. 1999 _ by the following gots;
AYES: SUPERVISORS GIOIA, UILKEMA, GERBER,, DeSAULNIER and CANCIAMILLA
NOES: NONE
ABSENT: NONE
ABSTAIN: NONE
RESOLUTION TION NO. 991 515
SUBJECT: Acceptance of the Findings and Recommendations Contained in The �
Stag Route 4-East Corridor Major Investment Study )
The Contra Costa County Board of Supervisors RESOLVES that:
WHEREAS, a ,point Exercise of Powers Agreement was executed in August 1994 by the Cities of
Antioch, Brentwood, Pittsburg, and the County of Contra Costa, to forma the East County Regional Fee
and Financing Authority (hereinafter referred to as "ECCRFFA") for the purpose of administering a
development mitigation feeprogram for regional transportation improvements in eastern Contra Costa
County; and,
WHEREAS, the development mitigation fee program for regional transportation improvements
administered by the ECCPFFA includes fending for the State Route 4-East Corridor, and,
WHEREAS, the Contra Costa Transportation Authority, has prepared a Major Investment Study
for the State Route 4-East Corridor which evaluates various transportation investment strategies and
recommends a phased strategy for improving the corridor from the railroad Avenue interchange in
Pittsburg to the future Stag Route 411601State Route 4 Bypass interchange; and
WHEREAS, the ECCPFFA helped fund the Major Investment Study by providing the local match
to the Federal demonstration funds used to pay for the study; and,
WHEREAS, the Major Investment Study has been prepared through a cooperative and
collaborative planning process involving interested agencies, organizations, and the public, including the
jurisdictions which comprise ECCRFFA.
NOW, THEREFORE, BE IT RESOLVED that the Board of Supervisors fires and determines as
follows:
Section 71. The study findings and recommendations contained in the major investment Study for the
State Route 4-East Corridor are hereby endorsed by the Contra Costa County Board of Supervisors.
Section 2. Contra Costa County Board of Supervisors urges the Contra Cash Transportation
Authority to proceed with the next stage of project delivery in the State Route 4-East Corridor by
advancing the project development and design process for the Phase I Implementation Plan identified in
the Major Investment Study, which includes the preparation of project and environmental studies, and
Section 3. The County of Contra Costa will continue to cooperate and assist the Contra Costa
Transportation Authority to the fullest extent possible in the next stage of project delivery for the State
Route 4-East Corridor, and to take necessary actions to assure timely completion of engineering, right-
of-way, and environmental review studies that may be undertaken by the Contra Costa Transportation
Authority during this stage of project delivery.
ATTEST:
Phil Batchelor, Clerk of the Board of Supervisors
By
eputy
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Contact: Steven Goetz, CDD (335-1240)
RESOLUTION 9915 15
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Vis;
RouTr 4 EAST CORF9D09e EXHIBIT M AOR INVESTMENT STUDY
� E
The State Route 4 East corridor is the only major east/west transportation route through
Northern Contra Costa County. For the communities of Antioch, Pittsburg, and Brentwood,
State Route 4 provides a lifeline to the areas of Central County and the ,greater Bay Area.
State Route 4 also provides access to major industrial facilities (refineries, etc.) in northern
and western Contra Costa County as well as a link between Contra Costa County and San
Joaquin County to the east.As a result, State Route 4 is East County's primary commute and
commerce route.(See Figure i).
Figure 1.5tudy Area and Exlstng Transportaton Systemccx
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Because of rapid development in the East County and an increase in regional traffic, conges-
tion along the 7.5-mile long State Route 4 East corridor has worsened steadily over the past f
decade and is projected to worsen well into the next century. A good illustration of this de�
cline is the time it takes to travel along a givers stretch of roadway. During uncongested peri-
ods,
eriods, in 1990 it took 6 minutes to travel State Route 4 between the project boundaries (ap-
proximately from the SR 160/4 split to Railroad Avenue). By the year 2015, without any im-
CONTRAt COSTA TRA,NSPORRTATEoN AUTHORITY MAY,1999 �
Rot,gE 4 EAST CORRIDOR MAJOR INVESTMENT,S77iJOY
provernents to the corridor, this travel time is expected to increase to over 20 minutes. By
2425, the travel time along this stretch of State Route 4 could increase to over ars hour if all
the projected demand for travel occurs and if no improvements are made.
To address the worsening congestion along the State Route 4 Corridor, the Contra Costa
Transportation Authority (CCTA), the California Department of Transportation (Caltrans),
and the Federal Highway Administration (FHWA), in coordination with the Metropolitan
Transportation Commission (MTC),commissioned this Major Investment Study(MIS). The
purpose of the WIS is to determine the preferred transportation investment strategy for the
corridor. As such, this MIS looks at a wide range of possible improvements and evaluates
their effectiveness in addressing the transportation problems in the study area Tong with cost
and environmental constraints. potential improvements evaluated as part of this MIS include
the following:
* freeway widening * median for BART extension
* auxiliary lanes * traffic operations systems(TOS)
* parallel arterial improvements * BART
* transportation demand management(TDM) * commuter rail
* high-occupancy vehicle(HO V')lanes * dedicated busway
* high-occupancy/toll(HOT)lanes * ramp metering
* HOT ramp metering * light rail
* pedestrian and bicycle improvements
These individual improvements were grouped into three different packages or strategies, and
a detailed evaluation was completed for each one based upon six criteria system continuity,
traffic operations I Trak Service Objectives (TSO) compliance, change in corridor travel
time,environmental issues,cost issues,and phased implementation.
A summary table of the three transportation strategies evaluated and the "no-build alterna-
tive" is presented on the following pages. The table includes an analysis of each strategy re-
lated to the evaluation criteria, and provides a brief summary of the impacts associated with
each strategy.Although the'°no-build alternative„would not require a financial investment,it
carries with it a number of indirect costs, both to the community and to the environment, in
the form of increased traffic congestion,and loss of economic vitality, which correspond to a
reduction in overall quality of life.
Public Outreach
The Recommended Long-Term Strategy outlined in this MIS responds to the comments and
concerns of elected officials and citizens in Bast County. CCTA conducted a number of
briefings for elected officials and two public meetings to receive input and comments on the
Draft MIS. These meetings included:
• February 11, 1999 Briefing of TRANSPLAN
* February 22, 1999.Briefing of the Pittsburg City Council
CONTRA CoSTA TRANspoRTATIoN AUTHORITY MAY,1999 vt
Roo 4 EAST CoRRWR MAJOR INVESTMENT STUDY
i February 23, 1939 Briefing of the Antioch City Council
March 3, 1999 Public Meeting in Brentwood
i March 4, 1999 Public Meeting in Antioch
The comments received at these meetings and in writing during the public',review period for
the Draft MIS are summarized in Appendix F. The comments and input supported the rec-
ommended long-term strategy presented in the Draft MIS. used on the input received on the
Draft MIS, OCTA and the East Contra Crista Regional Fee and Finance Authority
(ECCRFFA), in collaboration with Caltrans, BART, MTC, Contra Costa County,'Tri•Delta
Transit, and the cities of Pittsburg, Antioch, and Brentwood, have accepted the long-terns
recommended strategy for the State Route 4 East Corridor.
Recommended Long Term Strategy
The Lang-term Recommended Strategy emphasizes traditional capacity-enhancing projects
coupled with proven Transportation System.Management(TSM)and Transportation Demand
Management (TDM) components. The Long-terra Recommended Strategy includes the fol-
lowing improvements within the State Route 4 East Corridor:
• widening State Route 4 to eight lanes, with the inside lanes being designated as carpool
lanes;
• constructing a median wide enough to allow for future BART extensions;
• constructing an auxiliary lane in each direction between the Loveridge and Contra Lorna
interchanges;
• traffic operations systems,such as changeable message signs('TOS);
s ramp metering;
• park and ride lots;and
parallel arterial improvements.
Phase 1 Implementation Plan
Since current local,regional,state and federal funding sources are not sufficient to implement
the Long-Tenn'Recommended Strategy as a single project, a Phase I Implementation Plan
has been developed. The Phase I Implementation flan includes improvements in the State
Route 4 corridor that could be fund over the next 1€1--1S years given current projections of
local, regional, state and federal funding sources. Since funding is limited, the focus of the
Phase 1 Implementation Plan has been to implement improvements in the corridor that would
provide the most congestion relief for East County residents. 'The IMUS concluded that the
most effective means to provide immediate congestion, relief for East County residents is to
widen State Route 4. The Phase 1 Implementation Flare includes the following improve-
ments:
CONTRA COSTA` RAhf: poRTATioN AUTHORITY MAY,IM vi#
ROUTE 4 FAST CeRRDOR kWOR i3NVESTMENT S-rUDY
A Widen Mate Route 4 to 8 lanes with a wide median for the future extension of BART
from Railroad Avenue through the Loveridge.Road interchange(4 lanes in each direction
including one P1OV lane)
> Reconstruct the Railroad Avenue and Loveridge Road interchanges to accommodate the
fully widened Mate Route 4.
> Widen Mate Route 4 from east of Loveridge to the future State Route,160/State Route 4
Bypass Interchange to 6 lanes by paving the existing median to provide an additional lane
in each direction.
> Provide for ramp metering at Railroad Avenue and Loveridge Road interchanges.
The Phase I Implementation Plan is estimated to cost$166 million and be implemented over
the next 143-15 years. This phase I Implementation Plays was presented as part of the City
Council briefings and the public meetings held on the State Route 4 Bast MIS and received
positive support from the public and elected official as a innovative approach to provide con-
gestion relief given current funding constraints.
Issues for Farther Consideration
In addition to addressing long-term as well as immediate congestion relied'for Bast County
residents,the MIS process surfaced,other issues that should receive additional attention in the
future.
A Access to Pittsburg/Bay Point BART station. The Pittsburg/Bay Point BART station
has been successful in attracting Fast County commuters and as a result, parking and ac-
cess to the station may become a significant constraint to increased ridership in the fu-
ture. This constraint could become even more significant if the BART'system is not ex-
tended to the east to Railroad Avenue.
> Extension of BART. The Phase I Implementation Ulan and the Long-Term Recom-
mended Strategy for the State Route 4 Fast Corridor call for widening State Route 4 and
providing a wide median for the future extension of BART to the east. However,at this
time BART does not have funding earmarked to extend service east of the existing Pitts-
burg/Bay Print station: Furthermore, a key finding of this study has been that ridership
projections for extending BART further to the east are lower than originally expected.
These projections were also found to be extremely sensitive to the above-mentioned
parking constraint issue at Pittsburg/Bay Point,The analysis showed that adding parking
at Pittsburg/Bay Point had the same effect on ridership as did extending the BART lime,
but at a much lower cost. The analysis suggests that addressing the parking shortage at
Pittsburg/Bay Point during an interim period may be more cost effective than extending,
BART;or, as an alternative to providing more parking at the Pittsburg/Bary Point BART
Station,the development of a more extensive feeder bus system may be a more cost ef-
fective strategy during an interim period.
> Future Commuter Rail.The commuter rail study conducted as part of this NfIS showed
that while there is some demand for such a service, it does not appear roost effective per
rider at this time and was not recommended as part of the Recommended Long-Terra
Strategy in this study. However, circumstances may change in the future that would
CONTRA CosTA TRANSPORTATiom AUTHDRETY MAY,1999 viii
ROUTE 4 EAST CORRIDOR MAJOR INVESTMENT S-nmy
make the service more attractive, such as changes in travel patterns and increases in the
Altamont Commuter Express(ACE)train service. As a result the feasibility of commuter
rail in East County should be reviewed periodically in connection with oth;r studies,such
as the ACE tram service.
> Right-of-moray Protection. The Long-Term Recommended Strategy provides the long-
term vision for transportation improvements in East County. Local jurisdiction such as
Pittsburg, Antioch and Contra Costa County should begin the process of adopting plan
lines for the ultimate widening of State Route 4 so that right-of-way needed in the future
for widening the freeway can be preserved now. Land development along the State
Route 4 corridor has already occurred in areas where right-of-way will be needed to
widen State Route 4. The land development,or encroachment, within the area needed to
widen State Route 4 mattes widening of the freeway very disruptive and expensive. Lo-
cal jurisdictions can minimize additional disruptions and costs by limiting development
within the areas planned for the ultimate widening of State Route 4 and other local arteri-
als.
> Land Use. Given the current levels of traffic, the projected growth in East County, and
the resulting traffic forecasts for the years 21315 and 2025, it is clear that future traffic
demands in the corridor will exceed the capacity provided by even the Long-Terra Rec-
ommended Strategy.
The current "pipeline" projects' in the East County (Pittsburg, Antioch, Brentwood and
unincorporated areas) are primarily residential. These projects are being constructed in
response to the pressure for additional housing in the Bay Area and the lack of available
sites for housing in other parts of the Bay Area. Within the planning horizon of this MIS
(year 2025), the trend of residential development in East County is not projected to
change substantially. As a result, there will continue to be additional demand placed on
the regional transportation system as residents commute to jobs located in Central
County,the Tri-Valley area,San Francisco and even Silicon Valley.
The issue of continued residential growth in East County is currently berg debated at
many different levels. During the public review process for the Draft MIS public meet-
ings were held in Brentwood and Antioch. In addition,CCTA prodded briefings for the
Antioch and Pittsburg city councils. At these meetings and briefings,the issue of contin-
ued residential growth and its effect on the transportation infrastructure was discussed at
great length, The Antioch City Council indicated that it is currently debating this issue in
light of several pending residential development projects. In addition, the Antioch City
Council has been discussing the issue of growth and possible growth restrictions. At the
same time,the Contra Costa County Board of Supervisors is considering limiting growth
in East County as part of updating the County's Growth Management plan.
At the request of MTC,'the Draft MIS included discussions of measures that local juris-
dictions could consider as ways to encourage development that minimizes impacts to the
transportation infrastructure to be constructed over the next 20 to 30 years, Some of the
measures discussed with representatives of local jurisdictions and presented in the Draft
Pipeline projects refer to projects that are planned or approved,but not yet conshxted.
CONTRA COSTATRANSPORTATION AUTHORITY MAY,1999 ix
MIS relate to housing and subdivision design features intended to reduce car trips, such
as:
• Houses can be designed to accommodate telecommuting and home business more
easily,thereby reducing commute trips.
• Subdivision street design can use more historic grid-type patterns, which are more
"bus friendly" than the meandering streets more common in recent subdivision de-
sign.
• Neighborhood commercial uses can be located, closer to residential areas to allow
walking or shoat car trips,
s Convenient bicycle and pedestrian facilities that allow residents to walk or bike to lo-
cal services or provide recreational benefits in their own neighborhoods.
o Higher-density residential uses can be located closer to BART stations, main bus
routes,and other transit centers.
• New business can be encouraged to locate in East County, crewing a balance
between employment and housing.
'The Metropolitan Transportation Commission has begun a program to work with local
communities to assist them in designing "transit-friendly" residential and commercial
projects.
In summary,the link between land use and transportation in East County is critical to the
continued economic health of the region. The region's challenge will be to coordinate
future development with the tinning and design of transportation improvement to maxi-
mize the benefits of continued growth in the region.
Next Steps
With the completion of this study,CCI'°A will now begin}worst with Caltrans, FA and the
local jurisdictions to deliver the Phase l Implementation Plan. Specifically the next steps will
include:
> Preparation of Project study Reports for the widening of Sate Route 4 to the future State
Route 160/State Route 4 Bypass interchange,reconstruction of the Loveridge Road inter-
change, construction of east side ramp improvements at the Contra Loma/L Street inter-
change and removal of the west side fps from the G Street interchange(resulting in an
overcrossing only).
> Preparation of environmental document(s) and Project Reports for specific construction
projects such as the widening of State Route 4 and the reconstruction of the Railroad
Avenue and Loveridge Road interchanges.
CONTRA CosTA TRANSPORTATION AUTHORITY MAY, 1999 �
_. . ...... ......_..
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ROUTE d EAST CORRIDOR MAJOR 3 M.E T STUDY
> Resign for specific construction projects such as the widening of State Route 4 and ether
reconstruction of the Railroad Avenue and Loveridge Road interchanges.
> Develop a process for Contra Costa County and the cities of Pittsburg and Antioch to
adopt pian lines for the ultimate widening of State Route 4.
CONTRA COSTA TRANSPORTATioN AUTHORITY MAY, 1999 za
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