Los Gatos Creek Bridge Replacement/ South Terminal Phase III Project. Traffic Technical Report

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1 Contract# 10-PCJPB-P-44A Work Directive #6851 Los Gatos Creek Bridge Replacement/ South Terminal Phase III Project Traffic Technical Report San Jose, California December 2013 Prepared for: Peninsula Corridor Joint Powers Board Prepared by:

2 Table of Contents 1.0 Summary Introduction Project Location Purpose and Need Existing Safety Concerns Need for Tail Track Purpose of the Proposed Project Project Description Construction Staging Project Coordination Methodology Intersection LOS Criteria At-Grade Crossing Delay Model Existing Conditions Street Network Traffic At-Grade Crossing Construction Conditions Site Access and Staging Areas Truck Routes Potential Lane Closures and Detours Construction Trip Generation and Distribution Traffic Impact Assessment Traffic At-Grade Crossing Analysis CEQA Analysis Mitigation/Project Commitments TOC

3 List of Figures Figure 1: Project Location... 3 Figure 2: Deteriorating Conditions of Los Gatos Creek Bridge... 4 Figure 3: Los Gatos Creek Bridge Replacement / South Terminal Phase III Project Site Plan... 8 Figure 4A: Construction Staging Plan Initial Out-of-Creek Construction Figure 4B: Construction Staging Plan Season 1 In-Creek Construction Figure 4C: Construction Staging Plan Winter Out-of-Creek Construction Figure 4D: Construction Staging Plan Season 2 In-Creek Construction Part Figure 4E: Construction Staging Plan Season 2 In-Creek Construction Part Figure 4F: Construction Staging Plan Finish Out-of-Creek Construction Figure 5: Traffic Analysis Locations Figure 6: Traffic Plan List of Tables Table 1. Construction Stage Work Elements Table 2. Intersection Level of Service Criteria Table 3. Levels of Service at Intersections within the Study Area Based on Traffic Counts Table 4. Traffic Sensitivity Analysis Table 5. Existing (2013) Traffic Delay from Trains at Grade Crossing Table 6. Cumulative Conditions Traffic Delay from Trains at Grade Crossing Table 7. Transportation CEQA Thresholds Appendices Appendix A: Capacity Analysis Worksheets Appendix B: ATR Counts Appendix C: At Grade Crossing Delay Analysis TOC

4 1.0 Summary The Peninsula Corridor Joint Powers Board (JPB) which operates the San Francisco Bay Area s Caltrain passenger rail service proposes to replace the two-track railroad bridge that crosses Los Gatos Creek, in the City of San Jose, Santa Clara County, California. The Proposed Action is needed to address the structural deficiencies and safety issues of the Caltrain Los Gatos Creek railroad bridge to be consistent with the standards of safety and reliability required for public transit, to ensure that the bridge will continue to safely carry commuter rail service well into the future, and to improve operations at nearby San Jose Diridon Station and along the Caltrain rail line. The purpose of this report was to evaluate the potential traffic impacts that could result from the proposed project to inform the environmental review processes under California Environmental Quality Act (CEQA) and the National Environmental Policy Act (NEPA). The report includes a description of the methodology utilized, existing traffic conditions in the project area, and potential impacts to traffic during construction and operation. The long-term impact on traffic due to the proposed project is limited to an increase in gate down time of three to five seconds at the Auzerais Avenue at-grade crossing due to the provision of a third track through the crossing. The at-grade crossing will continue to operate at LOS C or better even in a 2020 cumulative condition taking into account future development and increases in train service that are independent of the proposed project. The replacement bridge and tail track will improve the reliability of the rail transportation system and will have no effect on other modes. Project-related construction trip generation (six inbound and six outbound Passenger Car Equivalents per hour) is negligible in comparison to existing peak hour traffic volumes (for example, 430 eastbound-westbound vehicles on Auzerais Avenue in the AM Peak hour). Specific truck routes have not been determined at the current level of design, but regardless of which intersections are affected by the construction s truck routing, the additional temporary traffic load will not substantially change the volume to capacity ratio and the affected intersections are expected to operate at an acceptable (as defined by San Jose) level of service D or better. Therefore, the impact is less than significant. Auzerais Avenue will temporarily be closed at the at-grade crossing for two weekends, beginning on a Friday night and ending on Monday morning. The contractor will be required to prepare and implement a traffic management plan, and project special provisions will require that emergency service providers be given adequate advance notice of any street closures and detours during construction phases of the proposed project. Because of the limited duration of the closure and the availability of numerous alternative routes, no significant adverse impact will occur. 2.0 Introduction The Peninsula Corridor Joint Powers Board (JPB) which operates the San Francisco Bay Area s Caltrain passenger rail service proposes to replace the two-track structurally 1

5 deficient railroad bridge that crosses Los Gatos Creek, in the City of San Jose, Santa Clara County, California (see Figure 1). This report provides an update to the Construction Traffic Impact Technical Memorandum for the Los Gatos Creek Bridge Replacement Project prepared by Parsons in August 2009 to reflect changes in the project design and construction staging. The report describes the proposed project, the street network, existing traffic patterns and conditions; at-grade rail crossings, site access and staging areas, potential lane closures and detours; and potential construction traffic impacts. 2.1 Project Location As shown in Figure 1, the proposed project area, generally bounded by the San Jose Diridon Station to the north, Interstate 280 (I-280) to the south, Sunol Street to the west, and Royal Avenue on the east, occupies the width of the right-of-way (ROW) owned by JPB and extends a distance of approximately 0.4 mile. Two tracks, Main Tracks 1 and 2 (MT1 and MT2), run parallel through the entire project area. MT1 is owned by the Union Pacific Railroad (UPRR) and MT2 is owned by the JPB for Caltrain service. Both tracks connect with San Jose Diridon Station Tracks 1 through 9 immediately south of the Park Avenue Overpass. From the Park Avenue Overpass, the double-track alignment continues southward for approximately 800 feet before passing beneath the West San Carlos Street vehicular bridge. Immediately south of the West San Carlos Street vehicular bridge, the two tracks turn in a southeasterly direction and extend approximately 200 feet across the Los Gatos Creek railroad bridge. Both tracks continue southeast for approximately 500 feet before crossing Auzerais Avenue at grade. South of Auzerais Avenue, the double-track alignment continues for approximately 400 feet before reaching the project area's southern boundary immediately north of the I-280 overpass. Beyond I-280, the alignment continues south to Caltrain s Gilroy Station. 2

6 Figure 1: Project Location San Jose Diridon Station Tamien Caltrain Station 3

7 2.2 Purpose and Need The proposed project is needed to address the structural deficiencies and safety issues of the Caltrain Los Gatos Creek railroad bridge to be consistent with the standards of safety and reliability required for public transit. The project proposes to construct a third track to preserve rail service during the construction period. Following completion of construction, the third track would be retained to improve operations at nearby San Jose Diridon Station and along the Caltrain rail line. These project needs are discussed below Existing Safety Concerns The existing Los Gatos Creek Bridge measures 174 feet in length and 35 feet in width and is approximately 100 years old. The bridge is made up of two bridge types, steel girders on concrete piers and timber trestle on wooden pile bents (piers). There are a combined nine piers and bents in the creek including the abutments. Second-hand steel girders (now much older than 100 years) were used during the original construction of the bridge and contribute an additional risk for the structural failure of the bridge. The existing bridge was inspected in 2005 and 2012 as part of the on-going JPB Bridge Program and many elements were found to not meet current load requirements. Although the steel spans are in good condition, the southerly timber trestle approach spans have been damaged by fire and have experienced moderate section loss. The bridge was evaluated per current industry requirements for the inspected condition and was found to rate below the current and projected service loads as well as the JPB design criteria for live load capacity (Cooper E80) for new bridges. The bridge was also analyzed for seismic capacity and found to be vulnerable during significant magnitude earthquakes. Figure 2 shows two photographs from the most recent bridge inspection in The photographs highlight the deteriorating conditions of the bridge from the charring and rotting of the south bridge cap. Figure 2: Deteriorating Conditions of Los Gatos Creek Bridge 4

8 The bridge has reached and exceeded the 75-year useful life for which it was designed. Due to its increasing age, the compromised condition of the southerly trestle approach spans, failure of some bridge elements to meet current and projected service loads, and vulnerability in the event of a significant earthquake, the Los Gatos Creek Bridge needs to be replaced with a new structure Need for Tail Track Caltrain currently operates 46 northbound and 46 southbound trains per weekday (for a total of 92 trains per day). Forty of these trains originate and terminate at Tamien Station, located approximately 1.3 miles south of the Los Gatos Creek Bridge. Most Caltrain service to Tamien Station and further south utilizes only one of the two tracks through the project area, MT2. The San Jose Diridon Station has recently completed an expansion program that included four new platform faces with extended platform lengths. The expansion allows for more trains to serve the San Jose Diridon Station and more passengers to access the Caltrain trains. In addition to Caltrain, Altamont Corridor Express (ACE), Capitol Corridor, and Amtrak also serve San Jose Diridon Station. ACE currently operates three weekday trains to San Jose during the morning peak period and three weekday trains departing San Jose in the evening peak period. Capitol Corridor operates seven weekday trains originating and departing from San Jose Diridon Station (for a total of 14 trains per day). Amtrak Long Distance currently operates the Coast Starlight which serves San Jose Diridon Station with two trains per day (one northbound and one southbound). While ACE and Capitol Corridor trains terminate passenger service at San Jose Station, one Capitol Corridor train and three ACE trains use Tamien Station and the Tamien yard for layovers. These trains utilize MT1 through the project area from San Jose Station to Tamien Station. Since MT -1 is owned by UPRR, freight service has priority use for the track. Currently, the two tracks are sufficient to provide service through this rail corridor. However, several trains a day pass through the project area just to access the layover area at Tamien Station. There is no siding along this stretch of the Caltrain corridor; therefore non-revenue, non-passenger trains are traveling the full length between Diridon and Tamien Stations just to turn around. Moreover, other trains that terminate at San Jose Diridon Station have limited rail yard space to efficiently maneuver and change directions. A tail track extending south from San Jose Diridon Station would improve operations at San Jose Diridon Station and accommodate the trains otherwise laying over and changing direction at Tamien Station. In addition, if there is a delay in one of the rail services, or if a train breaks down, the lack of any siding along this alignment creates a delay along the entire route. The tail track in the project area would also be able to serve as a temporary, emergency layover area for passenger trains only. Passenger trains that use the tail track will not stop or change directions across Auzerais Avenue. 5

9 The South Terminal program of improvements includes multiple phases, each of which has independent utility from the other and from the JPB s plans to electrify the corridor. Phase I of the South Terminal improvement program was completed in 2012 and involved the addition of two new platforms and four new tracks at San Jose Diridon Station, as noted above. The JPB has completed operational analyses that indicate the need for track improvements north and south of San Jose Diridon Station. South Terminal Phase II would add a fourth main track of approximately 2,100 feet in length from Caltrain s Centralized Equipment Maintenance and Operations Facility (CEMOF) (MP 46.9) to the north end of San Jose Diridon Station (MP 47.3), just north of West Santa Clara Street. The Phase II project is integral to ensuring all passenger trains can efficiently maneuver between the tracks at San Jose Diridon Station and the main tracks north of the station, while following the required operating profile, as well as providing capacity for Caltrain non-revenue equipment moves between CEMOF and San Jose Diridon Station. No timeline for the CEQA evaluation of Phase II is currently available. The South Terminal Phase III project being evaluated in this IS/MND would improve the reliability of the Diridon-Tamien Station segment, and would allow greater flexibility at San Jose Diridon Station by enabling out-and-back movements of empty trains switching tracks without competing with revenue trains at CP Alameda (north of the station) or south of the station. These benefits are distinct from the operational benefits provided by the Phase II project. In addition, completion of the Phase III project would not cause or require the Phase II project to be built in the future. The Phase II project need described above is independent of Phase III. The two projects have logical termini and do not impact the same area. Therefore, it is appropriate for South Terminal Phase II and III to be addressed in separate CEQA documents Purpose of the Proposed Project The purpose of the proposed project is to replace the structurally deficient Los Gatos Creek railroad bridge and provide a tail track south of San Jose Diridon Station in order to: Ensure safe rail travel for Caltrain passengers and other users of the Los Gatos Creek railroad bridge; Improve operations at the San Jose Diridon Station and provide an efficient way for trains to change directions; and, Minimize system-wide delays by providing a temporary, emergency layover area. Without the proposed project, the replacement of the Los Gatos Creek railroad bridge would not be completed and the bridge would present an increasing safety hazard to all users. In addition, operations at nearby San Jose Diridon Station would not be improved and system-wide delays would be likely to occur. 2.3 Project Description The proposed project consists of replacing the existing Los Gatos Creek Bridge while maintaining rail services across the bridge. The new bridge will consist of a two-track alignment over Los Gatos Creek with the addition of a tail track extending south from San Jose Diridon Station. The addition of the tail track, which comprises Phase III of the South Terminal Project, is incorporated into the Los Gatos Creek Bridge Replacement 6

10 project because the two projects are co-located along the same extent of track. Since the railroad bridge over Los Gatos Creek will be replaced with a new structure, and construction will require a fully functional shoofly track (i.e., temporary track) and bridge in order to maintain operations during construction, building both projects together has been determined by the JPB to be considered more cost-effective and to have less impact to the sensitive environment in the project area. Figure 3 illustrates the elements of the proposed project. The existing bridge consists of a north abutment, three piers in the creek area, and a series of timber bent segments on the south end; the new bridge would have a north abutment, two piers within the creek area, and a south abutment. The two tracks that currently utilize this bridge are MT1 (owned by UPRR and on the east side of the bridge) and MT2 (owned by the JPB). 7

11 Figure 3: Los Gatos Creek Bridge Replacement / South Terminal Phase III Project Site Plan 8

12 The new bridge will be wider than the existing bridge, with the expansion occurring on the west side to accommodate the tail track to improve operations at the San Jose Diridon Station just to the north of the project area. The tail track and several shoofly tracks will be used to route trains around the area under construction in order to maintain active rail service across the bridge at all times. The ultimate alignments of MT1 and MT2 over the new bridge will be generally unaltered from their current configuration. The northern limit of the tail track begins approximately 300 feet north of West San Carlos Street, and the southern limit of the tail track is located 300 feet south of Auzerais Avenue, where it ties back into MT2 before the alignment crosses over I-280. Due to spacing requirements between adjacent tracks, minor right-of-way acquisitions from two parcels on the west side of the tracks will be required. In order to construct the new piers and bridge superstructure, Los Gatos Creek will require temporary realignment via a diversion channel or pipe twice during construction to allow creek flow at all times during construction. During the in-creek work windows, discussed more fully in Sections D and IV, diversion channels will redirect potential flow away from construction areas. During the out-of-creek work windows, when no construction will take place in the water, the creek channel will be returned to its natural state. In addition, rock slope and scour protection materials (riprap) will be installed on the north bank of the creek. There is an existing storm sewer that runs east/west under the creek and immediately adjacent to the existing bridge s north abutment. In order to construct the approach slab for MT1, it is necessary to replace the existing storm sewer with a new storm sewer that will be located slightly to the north of the existing sewer line. The new storm sewer will be directionally bored under the creek from dry ground outside of creek footprint, in order to minimize impacts to the creek. Directional boring requires the construction of two temporary pits: a delivery, and a receiving pit, both approximately six feet wide by approximately 10 feet long. Since the exact location of these pits is not known at the current 35 percent level of design, a larger impact area (rectangular extension of project limits just south of West San Carlos Street) is shown in Figure 3 to account for the various possible locations of the pit. The sewer will be advanced using horizontal directional drilling. The fluid will be recycled in the delivery pit and reused. The soils under the creek are clayey and are highly resistant to failure of the drilling fluid (a.k.a. frac out). In the unlikely event that there is a pressure loss in the fluid, construction will halt immediately and the contractor shall initiate mitigation procedures in order to minimize impacts to the creek. Proposed staging and laydown areas have been identified on the east side of the existing bridge. A portion of the staging area lies on private property and temporary construction easements will be needed for this area Construction Staging Replacement of the Los Gatos Creek railroad bridge is estimated to last approximately 24 months starting in Work within the creek will be limited to the time between June 15th and October 15th in order to accommodate sensitive environmental resources. As a result of the environmentally constrained window for work within the creek, the in-creek construction elements will be completed in two consecutive summer 9

13 seasons. The construction stages and major work elements are outlined in Table 1 and illustrated in Figures 4A through 4F. Construction trucks entering and leaving the project site will follow different routes depending on the staging area they need to reach and the most direct access to/from the closest freeway (I-280). Figure 4A identifies the proposed construction access pathways. Table 1. Construction Stage Work Elements Construction Stage 1 Initial out-of-creek construction 2 - Season 1 in-creek construction 3 - Winter out-of-creek construction 4 - Season 2 in-creek construction 5 - Finish out-of-creek construction Time period for Work Project Start to June 15 June 16 to October 14 October 15 to June 15 June 16 to October 14 October 15 to project completion Construction Work Elements o Relocate fence by staging area o Relocate overhead and underground utilities as required o Construct north end of tail track up to bridge approach area o Install shoring and grade temporary access ramp/pathways o Construct southwest wingwall for abutment 4 o Temporarily realign channel flow o Add tie-backs and shoring as needed o Grade temporary access pathways into creek area o Construct temporary creek diversion, new sanitary sewer line under the creek, and piers 2 and 3 for new tail track bridge o Install precast abutments and southwest wingwall caps and remove tie-backs o Adjust shoring and remove access ramps o Restore channel flow o Construct tail track bridge superstructure o Install tail track over new track bridge o Install new fiber optic and other electrical associated with new bridge o Cut in tail track at ends on train-free weekends and begin operations o Remove tie-backs under MT2 track and add tie-backs and shoring for MT1 o Grade temporary access pathways into creek area o Construct temporary creek diversion o Cut timber deck and remove existing MT2 section of bridge superstructure, piers, and abutments o Construct piers, abutments, and superstructure for new MT2 bridge o Construct MT1 shoofly on approaches and across MT2 bridge o Remove existing MT1 section of bridge superstructure, piers, and abutments o Construct piers and abutments for new MT1 bridge o Grade ultimate creek channel, regrade upstream channel embankment, and place riprap as necessary o Remove access pathways from creek area and regrade downstream channel embankments o Restore channel flow o Construct superstructure for new MT1 bridge o Construct new MT1 track on new bridge o Remove remaining access pathway segments o Remove temporary MT1 shoofly and return service to MT1 mainline track 10

14 Construction Stage Time period for Work Construction Work Elements o Remove temporary tail track connection and return service to MT2 mainline track Project Coordination The Los Gatos Creek Replacement / South Terminal Phase III project is located in the proximity of other improvement projects, including: the City of San Jose s Los Gatos Creek Trail Extension; the Santa Clara Valley Transportation Authority (VTA) Vasona Light Rail Transit Extension; Santa Clara Valley Water District flood control and water operation plans; California High Speed Rail; and City of San Jose s West San Carlos Street overpass replacement. The JPB is coordinating with these project sponsors and will continue its outreach through final design to ensure that project elements are consistent with the goals and objectives of these related projects and do not preclude the design and implementation of these projects. One of the members of the JPB Board is the VTA; therefore, significant coordination is maintained between the agencies. 11

15 Figure 4A: Construction Staging Plan Initial Out-of-Creek Construction 12

16 Figure 4B: Construction Staging Plan Season 1 In-Creek Construction 13

17 Figure 4C: Construction Staging Plan Winter Out-of-Creek Construction 14

18 Figure 4D: Construction Staging Plan Season 2 In-Creek Construction Part 1 15

19 Figure 4E: Construction Staging Plan Season 2 In-Creek Construction Part 2 16

20 Figure 4F: Construction Staging Plan Finish Out-of-Creek Construction 17

21 3.0 Methodology This section provides a description of the intersection level of service LOS criteria and the at-grade crossing delay model methodologies. 3.1 Intersection LOS Criteria The primary performance indicator for intersections is level of service (LOS). LOS is a qualitative measure that describes operational conditions and provides an index to the quality of traffic flow. LOS is defined in letter designations from A to F. LOS A represents the best operating condition, LOS C describes a stable flow condition, and LOS F represents the worst operating condition and is generally considered unacceptable to most drivers. Since the LOS of a traffic facility is a function of the traffic flows placed upon it, the LOS of a facility may vary greatly, depending on the time of day, day of week, or period of year. LOS for signalized intersections is defined in terms of average control delay, which is a measure of driver discomfort, frustration, fuel consumption, and lost travel time (see Table 2). The average control delay includes initial deceleration delay, queue move-up time, stopped delay, and final acceleration delay. Table 2. Intersection Level of Service Criteria Level of Service Average Control Delay (seconds/vehicle) Signalized Intersection Source: Highway Capacity Manual (TRB, 2000) 1. A 10 B >10 to 20 C >20 to 35 D >35 to 55 E >55 to 80 F >80 For CEQA purposes, the threshold of significance for impacts to signalized intersections was defined according to the City of San Jose Traffic Impact Analysis Handbook thresholds, which state: A significant LOS impact occurs when the project would cause the Levels of Service at an intersection to fall below LOS D with the addition of project traffic to baseline conditions. For intersections already operating at unacceptable LOS (E or F) under the baseline condition, a significant impact is defined as the proposed project causing: 1 Highway Capacity Manual, Special Report 209, Transportation Research Board,

22 1. An increase in average critical delay value by 4.0 seconds or more and an increase in the critical V/C ratio of or more, or 2. A decrease in average critical delay and an increase in the critical V/C ratio of or more. 3.2 At-Grade Crossing Delay Model The at-grade crossing delay study used a railroad crossing delay model to estimate the delay experienced by vehicular traffic. The model was developed by Parsons for the Surface Transportation Board to measure traffic delay and safety consequences of the merger of the Union Pacific and Southern Pacific Railroads. 2 Only the delay portion of the model is used in this study. This model calculates four measures of crossing delay, as follows: Average delay per highway vehicle, in seconds This is the average delay per vehicle crossing railroad tracks during a 24-hour period. It is used to compute the corresponding LOS based in the 2000 HCM signalized intersection delay criteria shown in Table 2. Total delay per day at crossing, in vehicle hours This delay includes the time waiting for the traffic queue to dissipate as well as when the crossing is closed by the gate. Maximum average delay per vehicle, in seconds This statistic measures the average delay per vehicle resulting from the worst crossing blockage of the day caused by a single train. A degradation of average delay per highway vehicle to the equivalent of LOS D or lower was identified as the threshold for significant impacts to at-grade crossings under CEQA (consistent with the LOS D threshold for signalized intersections discussed in Section 3.1). 4.0 Existing Conditions This section provides a description of the street network in the project area, and the results of existing conditions traffic and at-grade crossing analyses. 4.1 Street Network Regional access is provided by Interstate 280 (I-280), California State Route 87 (Guadalupe Parkway), and Interstate 880 (I-880). Local access to the site is provided by Bird Avenue/South Montgomery Street, West San Carlos Street, Sunol Street, and Auzerais Avenue. 2 Parsons, 2009, Draft Traffic Impact Report for the Dumbarton Rail Corridor Project. 19

23 Interstate 280 (I-280) I-280 is generally an east-west eight-lane freeway in the vicinity of the project site. Access to the project site to and from I-280 is provided via full interchange at Bird Avenue. California State Route 87 California State Route 87 is a four-lane freeway that is aligned in a north-south orientation. Access to the project site is provided via partial interchanges at Park Avenue, Auzerais Avenue, and Woz Way. Interstate 880 (I-880) I-880 is a north-south six-lane freeway in the vicinity of the project site. I-880 provides access to the project site via a full interchange at I-280. Local access to the site is provided various roadways: Auzerais Avenue is an east-west two-lane arterial providing direct access to southbound SR 87 and to the project site. Auzerais Avenue provides east-west access through the at-grade crossing between Bird Avenue and Sunol Street. In the vicinity of the site, Auzerais Avenue provides sidewalks and parking on both sides of the street. Bird Avenue is a four to six lane north-south arterial with access to I-280. Bird Avenue accesses the project site through a signalized intersection with Auzerais Avenue and provides access to the east side of the at-grade rail crossing on Auzerais Avenue. After the intersection of Bird Avenue and West San Carlos Street, Bird Avenue continues to become South Montgomery Street. Sunol Street is a north-south two-lane street with access to the west side of the at grade rail crossing through a signalized intersection with Auzerais Avenue. West San Carlos Street is an east-west four-lane street. It is grade separated were it passes over the railroad tracks. Dupont Street is an east-west two-lane dead-end street that extends from West San Carlos Street to Los Gatos Creek Trail and the railroad tracks. 4.2 Traffic The intersection capacity analyses for eight signalized intersections that may be potentially affected by construction traffic were provided by the City of San Jose. 3 The eight intersections are listed below and shown in Figure 5: I-280 and Bird Avenue (N) (signalized) I-280 and Bird Avenue (S) (signalized) Bird Avenue and West San Carlos Street (signalized) Bird Avenue and Auzerais Avenue (signalized) South Montgomery Street and Park Avenue (signalized) Park Avenue and Sunol Street (signalized) West San Carlos Street and Sunol Street (signalized) 3 May 13, from Paul Ma, City of San Jose to Wendy Aviles, The Louis Berger Group, Inc. 20

24 Sunol Street and Auzerais Avenue (signalized) Figure 5: Traffic Analysis Locations Table 3 summarizes the intersection analysis summary of the key intersections based on the latest turning movement counts available. The dates when traffic data was collected range from 2008 to 2012, depending on the intersection. Detailed capacity analysis worksheets from City of San Jose s Traffix Database are attached in Appendix A. Acceptable intersection operations in the City of San Jose are defined as LOS D or better. 4 The intersections selected for analysis operate at an acceptable LOS D or better during the AM and the PM peak hours based on the latest counts available from the City of San Jose. 4 San Jose Traffic Impact Analysis Handbook Policies & Guidelines, Volume II,

25 Table 3. Levels of Service at Intersections within the Study Area Based on Traffic Counts Intersection Traffic Count Year LOS AM Peak Hour Average Delay (sec) LOS PM Peak Hour Average Delay (sec) I-280 and Bird Avenue (N) 2012 C 32.0 C 27.4 I-280 and Bird Avenue (S) 2012 C 28.6 C 25.0 Bird Avenue and West San Carlos Street 2012 C D 39.0 Bird Avenue and Auzerais Avenue 2009 C C 25.8 S. Montgomery Street and Park Avenue 2009 C 29.5 C 28.1 West San Carlos Street and Sunol Street 2012 B 16.1 B Park Avenue and Sunol Street 2008 A 7.4 B Sunol Street and Auzerais Avenue 2009 A 7.9 A 7.5 Source: Traffix Database, City of San Jose. Notes: LOS = Level of Service. LOS calculations conducted using Traffix level of service analysis software using the HCM methodologies. Delay is measured in seconds per vehicle. A sensitivity analysis was prepared to ensure that the intersection LOS calculated from traffic counts conducted in 2008 (Park Avenue and Sunol Street) and 2009 (Bird Avenue and Auzerais Avenue, S. Montgomery Street and Park Avenue, and Sunol Street and Auzerais Avenue) remained a reasonable baseline for assessing potential temporary impacts of the project. The sensitivity analysis involved identifying annual average traffic volume growth rates between 2008 and 2012 for intersections with count data available for both years. These growth rates were then applied to the intersections with only 2008 or 2009 counts available to estimate 2012 traffic volumes. The 2012 estimated traffic volumes were then used to estimate any potential changes in LOS due to growth since Two intersections in the study area had data available for 2008 and 2012: Bird Avenue and West San Carlos Street, and West San Carlos Street and Sunol Street. Bird Avenue and West San Carlos Street was selected as being representative of two intersections on the east side of the study area: Bird Avenue and Auzerais Avenue, and South Montgomery Street and Park Street. The West San Carlos Street and Sunol Street intersection was selected as being representative of two intersections on the west side of the study area (this intersection has higher growth rate than the Bird Avenue and West San Carlos Street intersection, possibly due to proximity to the Monte Vista Townhome development): Park Avenue and Sunol Street, and Sunol Street and Auzerais Ave. Table 4 summarizes the results of the traffic sensitivity analysis. Based on the estimated 2012 traffic volumes, it was concluded that Bird Avenue and Auzerais Avenue, and South Montgomery Street and Park Avenue will remain at LOS C in the AM and PM 22

26 peak periods in The 2009 average delay at these intersections was under 30 seconds per vehicle; the increased volumes in 2012 will not be enough to increase average delay to over 35 seconds (LOS D threshold). Park Avenue and Sunol Street, and Sunol Street and Auzerais Ave will likely drop from LOS A in 2008/2009 to LOS B in the AM peak hour in 2012 due to estimated traffic volume growth. Both intersections will also likely be at LOS B in the PM peak hour in In conclusion, consideration of traffic growth between 2008/2009 and 2012 showed that all intersections in the study area will operate at LOS C or better, with the exception of the Bird Avenue and West San Carlos Street intersection that operates at LOS D in the PM peak period. Table 4. Traffic Sensitivity Analysis AM Peak Hour PM Peak Hour Traffic Count Years Available Previous Traffic Volume (2008 or Traffic Volume 3 Annual Average Growth Rate Previous Traffic Volume (2008 or Traffic Volume 3 Annual Average Growth Rate Bird Avenue and West San Carlos Street Bird Avenue and Auzerais Avenue 2012 and ,457 2, % 3,213 3, % ,608 2, % 2,728 2, % South Montgomery Street and Park ,710 1, % 1,888 1, % Avenue 1 West San Carlos Street and Sunol Street 2012 and , % 1,332 1, % Park Avenue and 2 Sunol Street , % 882 1, % Sunol Street and 2 Auzerais Avenue % % Notes: 1. Intersections represented by Bird Avenue and West San Carlos Street growth. 2. Intersections represented by West San Carlos Street and Sunol Street growth traffic volumes in italics were estimated using growth rates developed from nearby intersections with counts available for 2008 and At-Grade Crossing Traffic delay at the Auzerais Avenue crossing was calculated based on average daily traffic (ADT) on Auzerais Avenue and estimates of the number of passing trains, lengths, and speeds. Mechanical ATR counts were conducted in both directions for 48 hours in 15-minute intervals on Auzerais Avenue adjacent to the existing at-grade rail crossing (see Figure 5). These counts were conducted on Tuesday and Wednesday of the third week of February The 2013 ADT volumes on Auzerais Avenue are 2,962 23

27 (eastbound) and 2,886 (westbound) vehicles per day. Detailed information regarding the ATR counts is shown in Appendix B. Existing traffic delay was calculated based on 2013 ADT volumes, estimates of current daily number of trains, lengths, and speeds. The maximum average delay per delayed vehicle, total delay per day, and average delay per vehicle at the analyzed railroad crossing location is presented in Table 5. While there is no commonly accepted method for rating the severity of at-grade crossing delay, Table 5 shows LOS results based on the same criteria used to determine intersection delay. This includes average daily delay per vehicle as a measure by which to indicate the amount of circulation disruption attributable to the rail crossing throughout the day as compared to typical peak-hour intersection conditions. Detailed information regarding the existing 2013 at-grade crossing delay at Auzerais Avenue is shown in Appendix C. The rail crossing at Auzerais Avenue has a low average delay per vehicle, resulting in a LOS A. Crossing Street Table 5. Existing (2013) Traffic Delay from Trains at Grade Crossing Average Daily Traffic Average Delay per Vehicle (sec) Corresponding HCM Intersection LOS Total Delay per Day (veh-hours) Max Average Delay per Delayed Vehicle (sec) Auzerais Avenue 5, A Source: The Louis Berger Group, Inc., Note: Maximum average delay per delayed vehicle measures the average delay per vehicle in the worst crossing blockage of the day by a single train. 5.0 Construction Conditions This section provides a discussion of the construction site access and staging areas, truck routes, potential lane closures and detours, and construction trip generation and distribution. 5.1 Site Access and Staging Areas Most construction activities will be limited to 7:00 AM to 7:00 PM on weekdays per San Jose construction noise ordinance. The exception is a small amount of trackwork that must be conducted at night to not interfere with rail operations. Access, staging and laydown areas are shown on Figure 3. The potential staging and laydown areas are proposed on a paved lot behind of the Orchard Supply Hardware (OSH) store and east of the rail tracks and the existing railroad bridge. Primary access to the staging and laydown areas are provided from Auzerais Avenue. Access pathways are also located on the west side of the bridge, as shown in Figure 4A, but there would not be a staging area on the west siede. 24

28 5.2 Truck Routes Specific truck routes will be determined in the project s final design. Once these specific truck routes are determined, JPB will reach out to those residences and businesses affected by construction traffic to maintain safe access to the neighboring properties. For impact analysis purposes, it is assumed that any of the intersections in the project area could experience construction truck traffic. 5.3 Potential Lane Closures and Detours As part of the addition of the tail track, the at-grade crossing at Auzerais Avenue will require some improvements (such as relocating the existing crossing gates). This activity will require a temporary partial closure of Auzerais Avenue, and therefore traffic detours. The partial closure of Auzerais Avenue will occur only during two separate weekends, starting on a Friday night and ending early during a Monday morning. The Traffic Plan is shown in Figure 6. During the Auzerais Avenue partial closure, limited access to Auzerais Avenue will be maintained, however the road will be closed to through traffic (traffic crossing east-west on Auzerais Avenue). Although the east side of Auzerais Avenue (east of the at-grade crossing) will remain accessible directly from Bird Avenue, Royal Avenue, and Drake Street, the west side of Auzerais Avenue (west of the at-grade crossing) will be accessed from the east side using Bird Avenue, Royal Avenue, West San Carlos Street and Sunol Street. Construction signs will be used to ensure safety during construction activities. Pedestrians will also be affected by construction activities. Local residents crossing east-west on Auzerais Avenue will be directed to take Royal Avenue, West San Carlos Street, Dupont Street and Los Gatos Creek Trail. 25

29 Figure 6: Traffic Plan 26

30 5.4 Construction Trip Generation and Distribution The construction activities are estimated to last approximately 24 months starting in It is projected that the majority of construction work will occur during weekdays from 7:00 AM to 7:00 PM. During the construction activities, additional traffic will be generated due to commuting construction workers and the construction trucks, specially the haul trucks and concrete trucks. Based on the previous traffic impact study prepared for the project by Parsons in 2009, there will be an average of 8 workers on site per workday during the peak months of construction. During the peak construction period, construction workers will generate 10 daily trips (assuming one-third of the workforce will carpool to the site), 7 of which will occur during the AM and PM peak hours (assuming 70% of workforce commutes during peak traffic hours). These assumptions are conservative given the start time of construction at 7:00 AM; many workers will need to arrive on the site before 7:00 AM and thus will not commute during the AM peak hour (approximately 8:00 AM- 9:00 AM based on the Auzerais Avenue ATR counts). Similarly, with a construction end time of 7:00 PM, not all workers will commute home in the PM peak hour. If a peak employee load of 12 workers occur, approximately 6 inbound and 6 outbound construction trucks (haul trucks and concrete trucks) trips will occur over a typical eighthour work day. This is an average of 2 truck trips inbound and 2 truck trips outbound per hour 5. To be conservative, it is assumed that the same number of construction trucks per hour will occur during a 12-hour work day. Considering that the trucks will follow a random arrival-departure distribution, it is projected that as many as 3 trucks trips inbound and 3 truck trips outbound may occur during the AM and PM peak hours. Using a Passenger Car Equivalent (PCE) factor of 2.0 for trucks, a total of 6 inbound and 6 outbound PCE s per hour are estimated. 6.0 Traffic Impact Assessment This section analyzes the construction related traffic impacts and summarizes the traffic impact analysis conclusions in terms of the CEQA significance thresholds. 6.1 Traffic There will be no long-term impacts related to traffic congestion (no additional trips will be generated by the project and no changes to the operation of existing intersections/roadways will occur). Project-related construction trip generation (six inbound and six outbound Passenger Car Equivalents per hour) is negligible in comparison to existing peak hour traffic volumes (for example, 430 eastbound-westbound vehicles on Auzerais Avenue in the AM Peak hour). Regardless of which intersections are affected by the construction s truck routing the additional temporary traffic load will not substantially change the volume to capacity ratio and the affected intersections are expected to operate at an acceptable 5 Parsons, 2009, Construction Traffic Impact Technical Memorandum for the Los Gatos Creek Bridge Replacement Project 27

31 (as defined by San Jose 6 ) level of service D or better. The impact will be less than significant. The temporary Auzerais Avenue closure on two weekends will not exceed San Jose traffic impact standards because it will occur during the weekend, detour routes will be provided, and the work will be scheduled to avoid major events at the SAP Center. 6.2 At-Grade Crossing Analysis At the Auzerias Avenue at-grade crossing the JPB estimates the length of gate down time will increase by approximately three to five seconds due to the increased length of the crossing with the addition of the tail track. The proposed project does not include any increase in the number of trains utilizing the crossing. Given the existing LOS A at this crossing, the increase in delay due to three to five seconds longer of gate down time will not cause an exceedence of the City of San Jose s LOS standard. To address public comments on the draft IS/MND, a cumulative impact analysis of the at-grade crossing was conducted. Per San Jose policy, a project is deemed to contribute to a cumulative traffic impact if the addition of traffic from pending projects (or application of a growth factor) plus project-generated traffic/delay results in a significant impact based on the same criteria as for project-level impacts (in this case the LOS D standard). As part of the cumulative impact analysis, the at-grade crossing delay at Auzerais Avenue was evaluated for three additional scenarios: Background Conditions refer to background traffic volumes estimated by adding to the existing ADT volumes the projected ADT volumes from approved, but not yet completed developments in the project area. Cumulative Conditions without Project were represented by adding to the existing traffic volumes the additional vehicle traffic and train service generated by all other potential projects in the study area that have been proposed, but have not yet been approved. Cumulative Conditions with Project refer to Cumulative Conditions including the addition of 4 seconds longer gate down time due to the wider at-grade crossing at Auzerais Avenue. The existing conditions traffic volumes already include the effect of the Monte Vista Townhome development. To account for other development projects in the vicinity, the future ADT volumes were estimated from the projected Background and Cumulative Conditions peak hour volume increments on Auzerais Avenue from the Ohlone Mixed- Used DEIR prepared for the City of San Jose on The future train service increment on Auzerais Avenue was estimated using information from Caltrain operational analyses of the South Terminal Area. Detailed information regarding the future scenarios is shown in Appendix C. Table 6 shows the LOS results for the Background, 2020 Cumulative without Project, and 2020 Cumulative with Project scenarios. Even with future development and increases in train service (such as Caltrain electrification), the at-grade crossing would be at LOS C. No significant cumulative impacts would occur, therefore it is not 6 San Jose Traffic Impact Analysis Handbook Policies & Guidelines, Volume II,

32 necessary to determine if the contribution of the project is cumulatively considerable and no further analysis is warranted. Table 6. Cumulative Conditions Traffic Delay from Trains at Grade Crossing Scenario Average Daily Traffic Average Delay per Vehicle (sec) Corresponding HCM Intersection LOS Total Delay per Day (vehhours) Max Average Delay per Delayed Vehicle (sec) Background 11, A Cumulative w/o Project 12, C Cumulative with Project 12, C Source: The Louis Berger Group, Inc., Note: Maximum average delay per delayed vehicle measures the average delay per vehicle in the worst crossing blockage of the day by a single train. 6.3 CEQA Analysis Table 7 summarizes the impacts of the proposed project in relation to the CEQA thresholds for significant adverse transportation impacts. The proposed project will not result in significant adverse transportation impacts based on the CEQA thresholds. 29

33 Table 7. Transportation CEQA Thresholds CEQA Guidelines Appendix G Transportation Thresholds a) Conflict with an applicable plan, ordinance or policy establishing measures of effectiveness for the performance of the circulation system, taking into account all modes of transportation including mass transit and non-motorized travel and relevant components of the circulation system, including but not limited to intersections, streets, highways and freeways, pedestrian and bicycle paths, and mass transit? Long-Term Operation Impact Less than Significant Impact. Gate down time will increase 3 to 5 seconds at the Auzerias Avenue at-grade crossing, but will not result in an exceedence of the City of San Jose s intersection level of service standard. The replacement bridge and tail track will improve the reliability of the rail transportation system and will have no impact on other modes. Temporary Construction Impact Less than Significant Impact. Project-related construction trip generation (six inbound and six outbound Passenger Car Equivalents per hour) is negligible in comparison to existing peak hour traffic volumes (for example, 430 eastbound-westbound vehicles on Auzerais Avenue in the AM Peak hour). The additional traffic load will not substantially change volume to capacity and the affected intersections operate at an acceptable (as defined by San Jose) level of service D or better. The temporary Auzerais Avenue closure on two weekends will not exceed San Jose traffic impact standards because it will occur during the weekend, detour routes will be provided, and the work will be scheduled to avoid major events at the SAP Center. Through the use of temporary bypass tracks, Caltrain and UPRR service will continue uninterrupted during construction of the new bridge and tail track. Therefore, there will be no impact on these services. The Los Gatos Creek Trail will remain open throughout construction. Sidewalks at Auzerais Avenue at-grade crossing will be closed two weekends, but detour route signage will be provided. Therefore, impacts to bicycle and pedestrian movements will be less than significant. 30

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