2200 oxford tia-revised comments 6-01-05

8/3/2019 2200 Oxford TIA-Revised Comments 6-01-05

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OXFORD PLAZA AND THE DAVID BROWER CENTER

TRAFFIC IMPACT ANALYSIS AND PARKING STUDY

JUNE 2, 2005

Prepared for: Equity Community Builders


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Oxford Plaza & David Brower Center Traffic Impact Analysis and Parking Study

I B I G R O U P P A G E 1 1

TABLE OF CONTENTS

EXECUTIVE SUMMARY ......................................................................................1 1.0 INTRODUCTION ........................................................................................4

1.1 REPORT SECTIONS .................................................................................................... 4 1.2 PROJECT DESCRIPTION ............................................................................................ 4

2.0 ANALYSIS METHODOLOGY ....................................................................6

2.1 SIGNALIZED INTERSECTIONS................................................................................... 6 2.2 UNSIGNALIZED INTERSECTIONS.............................................................................. 7

3.0 EXISTING CONDITIONS ...........................................................................8 3.1 EXISTING ROADWAY NETWORK............................................................................... 8 3.2 PROJECT STUDY INTERSECTIONS........................................................................... 8 3.3 TRANSIT SERVICE ...................................................................................................... 9 3.4 EXISTING CIRCULATION AND PARKING ................................................................ 13 3.5 EXISTING TRAFFIC PATTERNS, TRIP DISTRIBUTION, AND MODE CHOICE....... 18

4.0 FUTURE CONDITIONS WITHOUT PROJECT........................................25

4.1 CUMULATIVE PROJECTS......................................................................................... 25 4.2 INTERSECTION LEVELS OF SERVICE .................................................................... 26

5.0 FUTURE CONDITIONS WITH PROJECT ...............................................29 5.1 SCENARIO 1: OP&DBC DEVELOPMENT................................................................. 29 5.2 SCENARIO 2: OP&DBC PLUS 2176 KITTREDGE STREET FAR INCREASE ......... 38 5.3 SCENARIO 3: MAXIMUM INTENSITY REDEVELOPMENT ...................................... 43 5.4 PARKING IMPACTS ................................................................................................... 50 5.5 PEDESTRIAN AND BICYCLE CIRCULATION........................................................... 58 5.6 SITE ACCESS AND CIRCULATION RECOMMENDATIONS .................................... 58 5.7 PARKING AND TRAFFIC IMPACTS DURING CONSTRUCTION ............................. 58 5.8 PARKING RELATED TRAFFIC IMPACTS................................................................. 60

6.0 TRANSPORTATION DEMAND MANAGEMENT STRATEGIES.............62

6.1 PROPOSED TRANSPORTATION DEMAND MEASURES ........................................ 62

7.0 SUMMARY OF RECOMMENDED MITIGATIONS...................................67

7.1 CIRCULATION............................................................................................................67 7.2 PARKING.................................................................................................................... 68

TECHNICAL APPENDIX


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TABLE OF FIGURES

Figure 1-1: Site Plan ........................................................................................................................................... 5 Figure 3-1: Study Intersection Geometry.......................................................................................................... 11 Figure 3-2: Bus Stop Locations......................................................................................................................... 12 Figure 3-3: Existing Project Intersection Traffic Counts AM Peak ................................................................. 14 Figure 3-4: Existing Project Intersection Traffic Counts PM Peak ................................................................. 15 Figure 3-5: Select Intersection Bicycle and Pedestrian Counts AM Peak ..................................................... 16 Figure 3-6: Select Intersection Bicycle and Pedestrian Counts PM Peak ..................................................... 17 Figure 3-7: Trip Distribution............................................................................................................................... 21 Figure 3-8: Census Tract and TAZ ................................................................................................................... 22 Figure 3-9: Oxford Street Public Parking Lot Vehicle Entry Volumes............................................................... 23 Figure 4-1: Study Intersection Volumes, Future No Project AM Peak........................................................... 27 Figure 4-2: Study Intersection Volumes, Future No Project PM Peak........................................................... 28 Figure 5-1: Project Added Trips, OP&DBC Proposed Development AM Peak ............................................. 32

Figure 5-2: Study Intersection Volumes, OP&DBC Proposed Development AM Peak ................................. 33 Figure 5-3: Project Added Trips, OP&DBC Proposed Development PM Peak ............................................. 34 Figure 5-4: Study Intersection Volumes, OP&DBC Proposed Development PM Peak ................................. 35 Figure 5-5: Warrant 3, Peak Hour Graph from Chapter 4C of the MUTCD...................................................... 37 Figure 5-6: Project Added Trips, OP&DBC Plus FAR Increase AM Peak..................................................... 39 Figure 5-7: Study Intersection Volumes, OP&DBC Plus FAR Increase AM Peak......................................... 40 Figure 5-8: Project Added Trips, OP&DBC Plus FAR Increase PM Peak..................................................... 41 Figure 5-9: Study Intersection Volumes, OP&DBC Plus FAR Increase PM Peak......................................... 42 Figure 5-10: Project Added Trips, Maximum Development AM Peak ........................................................... 46 Figure 5-11: Study Intersection Volumes, Maximum Development AM Peak ............................................... 47 Figure 5-12: Project Added Trips, Maximum Development PM Peak ........................................................... 48 Figure 5-13: Study Intersection Volumes, Maximum Development PM Peak ............................................... 49 Figure 5-14: San Francisco Bay Area Vehicles per Household Data ............................................................... 56 Figure 5-15: Downtown Berkeley Public Parking Lots...................................................................................... 59


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TABLE OF TABLES

Table 2.1 Level of Service for Signalized Intersections................................................................................... 6 Table 2.2 Level of Service for Unsignalized Intersections ............................................................................... 7 Table 3.1 Project Study Intersections .............................................................................................................. 9 Table 3.2 Bus Stops per Hour at Project Intersections AM Peak ................................................................. 9 Table 3.3 Bus Stops per Hour at Project Intersections PM Peak ............................................................... 10 Table 3.4 Downtown Berkeley BART Station Passenger Access Modes ..................................................... 13 Table 3.5 Existing LOS at Study Intersections............................................................................................... 18 Table 3.6 Home-Based-Work Trip Mode Choice to Oxford Plaza TAZ ......................................................... 19 Table 3.7 2000 US Census Mode Choice from Oxford Plaza Census Tract................................................. 20 Table 3.8 Oxford Street Public Parking Lot Estimated Existing Utilization.................................................... 23 Table 3.9 Auto/Pedestrian Accidents Between 1995 and 1999..................................................................... 24 Table 4.1 Stadium Place Trip Generation Forecast AM Peak .................................................................... 25 Table 4.2 Stadium Place Trip Generation Forecast PM Peak .................................................................... 25

Table 4.3 Future (2008) Without Project LOS Summary ............................................................................... 26 Table 5.1 ITE Trip Generation for the Weekday AM Peak Hour of Adjacent Street Traffic........................... 30 Table 5.2 ITE Trip Generation for the Weekday PM Peak Hour of Adjacent Street Traffic........................... 31 Table 5.3 Trip Generation Adjustment by Mode Split .................................................................................... 31 Table 5.4 Scenario 1: Future With Project LOS at Study Intersections......................................................... 36 Table 5.5 OP&DBC Proposed Project Plus 2176 Kittredge Allowable Area Increase .................................. 38 Table 5.6 Scenario 2: Future With Project LOS at Study Intersections......................................................... 43 Table 5.7 Scenario 3: Maximum Allowable Development ............................................................................. 44 Table 5.8 Scenario 3: Future With Project LOS at Study Intersections......................................................... 44 Table 5.9 City of Berkeley Zoning Code Parking Requirements ................................................................... 50 Table 5.10 Parking Concepts: Oxford Street Development........................................................................... 51 Table 5.11 Downtown Berkeley Parking Spaces Per Residential Unit.......................................................... 51 Table 5.12 Residential Parking Space Ratios Applied to Oxford Plaza ........................................................ 52 Table 5.13 Anticipated Commute Modes for Employees at David Brower Center ........................................ 52 Table 5.14 Weekday Parking Accumulation Estimates for Brower Center and Retail Employees ............... 54 Table 5.15 Weekday Parking Accumulation Estimates for Brower Center and Retail Visitors ..................... 54 Table 5.16 Vehicle Ownership Reductions from Residential Parking Pricing ............................................... 57 Table 5.17 Observed Downtown Berkeley Parking Utilization....................................................................... 60 Table 6.1 Percent of Commute Vehicle Trips Reduced by Daily Parking Fees ............................................ 63 Table 6.2 Percent of Commute Vehicle Trips Reduced by Transit Subsidies ............................................... 64 Table 6.3 Percent of Commute Vehicle Trips Reduced by Rideshare Subsidies.......................................... 64 Table 6.4 Impact of TDM Measures on Weekday Parking Demand at Oxford Plaza & Brower Center........ 66 Table 7.1 Comparison of OP&DBC Parking Capacity and Demand ............................................................. 68 Table 7.2 Total Daily Parking Usage for OP&DBC........................................................................................ 69


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I B I G R O U P P A G E 1

EXECUTIVE SUMMARYProject DescriptionThe Oxford Plaza and David Brower Center (OP&DBC) project is located at 2200 Fulton Street

between Allston Way and Kittredge Street in downtown Berkeley. The project combines housing, retail,office, conference, and restaurant uses in a new prototype for environmentally responsible urbandevelopment. The David Brower Center portion of the development includes office space, anauditorium, an art gallery, and meeting rooms. The Oxford Plaza portion of the development iscomprised of 96 residential apartment units. The apartments are proposed to be affordable workforcehousing, occupied by low and very-low income residents. The ground floor of the Oxford Plaza portionincludes retail uses, a restaurant, an open courtyard, and a residential parking garage. Anunderground public parking facility owned and operated by the City of Berkeley serving the retail andDavid Brower Center uses is also part of the design.

The project includes a General Plan amendment and possible zone change to permit the increasedheight of the development. The property is currently zoned as C-2 (Downtown Commercial). Theproject site is also located in the Oxford Edge subarea within Downtown Berkeley. The currently

permitted maximum building height is three stories.As part of an alternative scenario under consideration, the General Plan amendment and zone changecould be expanded to include an adjacent parcel at 2176 Kittredge Street. This site is currentlyoccupied by a hand car wash. As part of this traffic and parking study, the impact of expanding theGeneral Plan amendment and zone change to include the 2176 Kittredge parcel will be assessed inaddition to the analysis of the potential impact resulting from the OP&DBC.

Analysis MethodologyThe traffic impact analysis was performed in accordance with the City of Berkeley Guidelines for Traffic Studies (October 2004). Traffic operations were analyzed using the capacity analysismethodology published in the 2000 Highway Capacity Manual (HCM). The HICAPv2 traffic analysissoftware, developed by Catalina Engineering, was used to perform the HCM analysis.

At the request of the City of Berkeley, three development scenarios were analyzed as part of the trafficimpact analysis. The three scenarios are:

Scenario 1: Trips generated by the proposed Oxford Plaza and David Brower Center Project.

Scenario 2: Trips generated by the Oxford Plaza and David Brower Center Project plus tripsgenerated by the additional maximum intensity development potential for the 2176 Kittredgeparcel after the adoption of the General Plan Amendment.

Scenario 3: Trips generated by the additional maximum intensity development potential for theOxford Plaza parcel plus the additional development potential of the 2176 Kittredge parcelafter adoption of the General Plan Amendment.

The proposed Oxford Plaza and David Brower Center project was the only scenario evaluated as partof the parking demand analysis. The parking demand generated by a new development on the 2176Kittredge parcel or a redevelopment of the Oxford Plaza parcel would be fully analyzed as part of theCity of Berkeleys development review process conducted for specific developments on these sites.

Traffic ImpactsExisting, Future No Project, and Future With Project traffic conditions were analyzed at 11 projectstudy intersections for the three development scenarios identified above. No significant impacts wereidentified to traffic circulation as a result of the proposed Oxford Plaza and David Brower Center project.


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A traffic signal warrant analysis was performed at the two unsignalized study intersections locatedadjacent to the OP&DBC project site. Future traffic conditions at the Oxford Street/Allston Way andFulton Street/Kittredge Street intersections without the proposed OP&DBC project satisfy peak hour traffic signal warrants. Additionally, pedestrian safety concerns at both of these intersectionscontribute to a potential need for traffic signal control. The City of Berkeley should consider alternatives to improve traffic and pedestrian operations at these two intersections. Improvementscould include restrictions on peak period left turns, pedestrian crossing enhancements, or new trafficsignals at one or both intersections.

Parking ImpactsTwo parking concepts are under consideration for the OP&DBC. Both concepts proposed 40 at-gradeparking spaces for the residential uses on-site. An underground public parking facility is also proposedas part of the project. Concept 1 would build a single-story underground facility with 104 parkingspaces. Concept 2 would provide two levels of underground parking and 211 public parking spaces.The estimated peak parking demand for all uses on the OP&DBC site combined with existing publicparking utilization rates is anticipated to be 207 spaces. With the implementation of specificTransportation Demand Management (TDM) measures identified in Section 6.0, peak hour parkingdemand is anticipated to be 173 vehicles.

The peak weekday parking demand occurs at 12:00pm. Without TDM, parking demand generated bythe development is comprised of 49 David Brower Center employee vehicles, 24 visitor vehicles, 24resident vehicles, and historic utilization of 110 public parking spaces. Visitor demand is highest in thelate morning, afternoon, and evening, ranging from 9 to 24 spaces during these periods. Employeedemand is relatively stable at 49 to 56 spaces during the 9:00am to 4:00pm work period. With theimplementation of TDM measures, employee demand is reduced to 13-25 spaces. Residentialdemand is stable at 24 spaces during the day and increases to a maximum of 36 spaces overnight.All residential parking demand is accommodated in the above grade residential parking area.

The estimated parking demand rates can be accommodated within the parking facilities proposed aspart of Concept 2. This concept even results in excess parking capacity of at least 44-78 spacesdepending on the implementation of specific TDM measures outlined later in this report. ParkingConcept 1 is not anticipated to provide sufficient parking capacity to meeting the estimated demandgenerated by the OP&DBC and existing public parking even with the implementation of the TDMmeasures identified in Section 6.0 of this report. As indicated above, the average daily parkingdemand generated by the OP&DBC ranges from 49 to 56 spaces for employee parking and 9 to 24spaces for visitor parking without TDM measures. These average daily parking generation figures arein addition to the existing daily public parking demand which ranges from 65 to 110 spaces.

If Concept 1 is selected for final development, parking mitigations would be required to accommodateanticipated parking demand. One available mitigation measure would be to require employees whocommute via automobile to the David Brower Center and the Oxford Plaza retail uses to purchasemonthly parking passes at other public parking facilities located in downtown Berkeley. As discussedin Section 5.7 of this report, several other parking facilities in the downtown area do have availablecapacity during the weekday hours. Alternative parking facilities include the Sather Gate Garage,Center Street Garage, and Allston Way Garage. These facilities are all located within mile of theOP&DBC, which is considered to be a reasonable walking distance.

Under this scenario, visitor parking demand for OP&DBC would be absorbed within the overall publicparking facility. If employee parking is not accommodated on site, the increased visitor demand of approximately 9 to 17 spaces can be accommodated within the proposed single level parking facilityexcept at the 12:00pm peak period.

Recommended MitigationsThe mitigation measures summarized below apply only to the proposed Oxford Plaza and DavidBrower Center project. Specific mitigation measures for future developments on the 2176 Kittredge


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parcel or a worst-case redevelopment of the Oxford Plaza site are summarized in Section 7 of thisreport.

The Fulton Street/Kittredge Street intersection is forecast to operate at LOS F during the PM peakhour in the Future With Project condition. Alternative mitigation measures were considered for this

location. The recommended mitigation measure is to restripe the eastbound intersection approach onKittredge Street to provide one exclusive left turn lane and one exclusive right turn lane. Thisproposed mitigation will improve the average delay experienced at the intersection to 190.7 seconds inthe Future With Project Conditions for Scenario 1. This average delay is lower than the Future NoProject condition, which experiences an average delay of 243.7 seconds. Based on this observedimprovement, the recommended mitigation addresses the traffic impact resulting from the proposedOP&DBC project. The City of Berkeley will monitor the intersection to ensure that this recommendedmitigation sufficiently addresses the anticipated project impact. If additional mitigations are required, itis recommended that the City consider prohibiting the eastbound left turn movement during the PMpeak period or signalizing the intersection.


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1.0 INTRODUCTIONThis report documents the results of the traffic impact analysis and parking study performed for theOxford Plaza and David Brower Center (OP&DBC). The traffic impact analysis has been completed in

accordance with the City of Berkeleys Guidelines for Traffic Studies . Traffic level of servicecalculation sheets for the existing, future, and future with project conditions are provided in theAppendix of this report.

1.1 REPORT SECTIONSThis report consists of seven sections.

Introduction

Analysis Methodology

Existing Conditions

Future Conditions Without Project

Project Impacts

Transportation Demand Management Strategy

Recommended Mitigations

1.2 PROJECT DESCRIPTIONThe OP&DBC project is located at 2200 Fulton Street between Allston Way and Kittredge Street indowntown Berkeley. The project combines housing, retail, office, conference, and restaurant uses in anew prototype for environmentally responsible urban development. The David Brower Center portionof the development includes office space, an auditorium, an art gallery, and meeting rooms. TheOxford Plaza portion of the development is comprised of 96 residential apartment units. Theapartments are proposed to be affordable workforce housing, occupied by low and very-low incomeresidents. The ground floor of the Oxford Plaza portion includes retail uses, a restaurant, an opencourtyard, and a residential parking garage. An underground public parking facility owned andoperated by the City of Berkeley also part of the design.

The property is located within Downtown Berkeley, adjacent to the UC Berkeley campus, two milesfrom the San Francisco Bay. The area is served by an extensive transit system, including the Bay AreaRapid Transit (BART) Downtown Berkeley Station, several Alameda County (AC) Transit bus routes,several bicycle routes (including City designated bicycle boulevards), and pedestrian paths. The site istherefore one of the most transit, pedestrian, and bike-accessible locations in the East Bay, with thepotential for a significant number of non-automobile trips to and from the completed development.

The project includes a General Plan amendment and zone change to permit the increased height of the development. The property is currently zoned as C-2 (Downtown Commercial), and is located inthe Oxford Edge subarea. The currently permitted maximum building height is five stories.

As part of an alternative scenario under consideration, the General Plan amendment and zone changecould be expanded to include an adjacent parcel at 2176 Kittredge Street. This site is currentlyoccupied by a hand car wash. As part of this traffic and parking study, the impact of expanding theGeneral Plan amendment and zone change to include the 2176 Kittredge parcel will be assessed inaddition to the analysis of the potential impact resulting from the OP&DBC.

Figure 1-1 on the following page is the proposed site plan for the project. Access to the proposed on-site residential and public parking facilities will be provided from Kittredge Street. Separate accessdriveways will be provided for each parking facility.


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OXFORD PLAZA AND THE DAVID BROWER CENTER TRAFFIC IMPACT AND

IBI Oxford Plaza and the David Brower Center Proposed Site Plan

GROUND FLOOR PLAN


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2.0 ANALYSIS METHODOLOGYThe analysis was performed in accordance with the City of Berkeley Guidelines for Traffic Studies(October 2004). Traffic operations were analyzed using the capacity analysis methodology published

in the 2000 Highway Capacity Manual (HCM). Capacity analysis is a set of procedures for estimatingthe traffic-carrying ability of facilities based on operational conditions.

The efficiency of traffic operations is commonly measured by traffic engineers and planners with agrading system called Level of Service (LOS). Evaluation of roadways and intersections involves theassignment of grades from A to F, with A representing the highest level of operating conditions andF representing extremely congested and restricted operations.

The level of service analysis was performed using the TRAFFIX and HiCAPv2 traffic impact analysissoftware programs. TRAFFIX is a network-based interactive computer program that enablescalculation of levels of service at signalized and unsignalized intersections for multiple locations andscenarios. TRAFFIX also calculates signal timing (green times and cycle lengths) and maximumqueue lengths to assist in evaluating signalized intersections. HiCAPv2 is a traffic analysis computer program employing the 2000 HCM analysis procedures to evaluate traffic operations at signalized andunsignalized intersections. The HiCAPv2 software is very effective at evaluating traffic conditions atindividual intersections using the HCM methodology. The detailed intersection level of servicecalculation sheets are provided in the Appendix of this report.

2.1 SIGNALIZED INTERSECTIONSTraffic conditions at signalized intersections were evaluated using the 2000 HCM operationsmethodology for signalized intersections, which evaluates capacity in terms of the volume-to-capacity(v/c) ratio and evaluates LOS based on controlled delay per vehicle. Controlled delay is defined as theportion of the total delay attributed to the traffic signal operation including deceleration delay, queuemove-up time, stopped delay, and final acceleration delay. The relationship between controlled delayper vehicle and LOS for signalized intersections is summarized in Table 2.1.

The City of Berkeleys traffic study guidelines identify the minimum acceptable level of service for signalized intersections as Level of Service (LOS) D. For intersections that are at LOS E or F for project conditions, an increase in 0.01 or more is considered to be a significant impact. 1

Table 2.1 Level of Service for Signalized Intersections

Level ofService Description of Traffic Conditions

ControlledDelay

(sec/veh)

A Insignificant delays: no approach phase is fully utilized and no vehiclewaits longer than one red indication. 10

B Minimal delays: an occasional approach phase is fully utilized. Driversbegin to feel restricted. > 10 20

CAcceptable delays: major approach phase may become fully utilized.Most drivers feel somewhat restricted. > 20 35

DTolerable delays: drivers may wait through more than one redindication. Queues may develop but dissipate rapidly, withoutexcessive delays.

> 35 55

E Significant delays: volumes approaching capacity. Vehicles may waitthrough several cycles and long vehicle queues form upstream. > 55 80

F Excessive delays: represents conditions at capacity, with extremely > 80

1 City of Berkeley, Guidelines for Traffic Studies, October 2004


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ControlledDelay

(sec/veh)long delays. Queues may block upstream intersections.

Source: Highway Capacity Manual, Transportation Research Board, 2000.

2.2 UNSIGNALIZED INTERSECTIONSFor unsignalized intersections, the HCM 2000 methodology for unsignalized intersections was used.With this methodology, LOS is related to the controlled delay for each stop-controlled movement. Therelationship between controlled delay per vehicle and LOS for unsignalized intersections issummarized in Table 2.2.

For unsignalized intersections, the City of Berkeleys traffic study guidelines do not use intersectionlevel of service as the sole criterion for establishing impact. For these intersections, impacts areestablished on a case by case basis where LOS E or F occurs for a specific movement or approach. 2

Table 2.2 Level of Service for Unsignalized Intersections


ControlledDelay

(sec/veh)A No delay for stop-controlled approaches. 0 10B Operations with minor delay. > 10 15C Operations with moderate delays. > 15 25D Operations with some delays. > 25 35E Operations with high delays and long queues. > 35 50

F Operation with extreme congestion, with very high delays and longqueues unacceptable to most drivers. > 50

Source: Highway Capacity Manual, Transportation Research Board, 2000.

2 City of Berkeley, Guidelines for Traffic Studies, October 2004


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3.0 EXISTING CONDITIONSThis section provides information on the transportation system that serves the project site, includingthe surrounding street network, bus routes, bicycle paths, and parking facilities. Existing traffic counts

and levels of service at the project study intersections are also presented in this section.

3.1 EXISTING ROADWAY NETWORKThe proposed project site is on property currently occupied by the City of Berkeleys Oxford publicparking lot. The property is located at 2200 Fulton Street between Allston Way and Kittredge Street.The site is in the central business district of downtown Berkeley, adjacent to the University of Californiaat Berkeley (UCB). The surrounding roadway network consists of the following streets, which areshown in Figure 3-1. All of the streets in the project study area have a speed limit of 25 miles per hour.

Shattuck Avenue is a four-lane arterial that runs north and south in the project area. BetweenUniversity Avenue and Center Street, Shattuck Avenue branches into two separate one-waystreets. The west branch has three southbound lanes, and the east branch has threenorthbound lanes. Shattuck Avenue has retail and commercial property along the east andwest sides. On-street parking is available, and is separated from through traffic lanes bychannelizing islands along some segments.

Oxford/Fulton Street is a north-south arterial that runs along the west side of the University of California Berkeley (UCB) campus. The four-lane roadway is named Oxford Street north of Kittredge Street, and becomes Fulton Street south of Kittredge. At the intersection of FultonStreet and Durant Avenue, Fulton transitions into a one-way street with two southbound lanes.Metered on-street parking is available along both sides of the street.

Center Street is an east-west roadway with one lane in each direction. Ground floor retail andfast food restaurants line the street, and there is high pedestrian activity between theUniversity of California Berkeley and Shattuck Avenue along this road.

Allston Way is an east-west roadway with one lane in each direction.

Kittredge Street is an east-west roadway with one lane in each direction.

Bancroft Way is a two-lane, east-west street with one lane in each direction west of ShattuckAvenue. East of Shattuck Avenue, Bancroft is a one-way street with two westbound lanes.

Durant Avenue is a two-lane, east-west street with one lane in each direction west of Shattuck Avenue. East of Shattuck Avenue, Durant is a one-way street with two eastboundlanes.

Channing Way is a two-lane roadway that runs east and west in the project area.

3.2 PROJECT STUDY INTERSECTIONSEleven intersections were selected for evaluation by the City of Berkeley, which are listed in Table 3.1.Figure 3-1 shows the study intersections with existing lane geometries. All intersections are signalizedexcept for #8) Oxford Street/Allston Way and #9) Fulton Street/Kittredge Street. Allston Way forms aT-intersection with Oxford Street. Likewise, Kittredge Street forms a T-intersection with Fulton Street.The approaches on Allston Way and Kittredge Street are stop sign controlled. Traffic on Oxford Streetand Fulton Street is uncontrolled.


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Table 3.1 Project Study Intersections

Project Intersection Control1 Shattuck Avenue (SB) / Center Street Signalized2 Shattuck Square (NB) / Center Street Signalized3 Shattuck Avenue / Kittredge Street Signalized4 Shattuck Avenue / Bancroft Way Signalized5 Shattuck Avenue / Durant Avenue Signalized6 Shattuck Avenue / Channing Way Signalized7 Oxford Street / Center Street Signalized8 Oxford Street / Allston Way EB Stop Sign9 Fulton Street / Kittredge Street EB Stop Sign

10 Fulton Street / Bancroft Way (WB) Signalized11 Fulton Street / Durant Avenue Signalized

3.3 TRANSIT SERVICEThe Downtown Berkeley area is served by an extensive transit system, including bus service and theBay Area Rapid Transit (BART) system. Transit service routes and frequencies are discussed in thissection.

AC TransitAlameda County Transit (AC Transit) provides bus service in the city of Berkeley and throughout theEast Bay. Existing bus stops located adjacent to the project site are illustrated in Figure 3-2. Thenumber of bus stops per hour at project intersections during the AM peak and PM peak are presentedin Table 3.2 and Table 3.3.

Table 3.2 Bus Stops per Hour at Project Intersections AM Peak

AC Transit Line (Bus stops per hour)Intersection Dir

F 7 9 15 40 43 51 65 67TOTAL

EB 0 0 0 4 0 0 0 0 2 61. Shattuck Street /Center Street

WB 0 0 3 4 0 0 0 0 2 9NB 2 3 3 0 0 4 9 2 0 23

2. Shattuck Square /Center StreetWB 2 0 0 0 4 0 0 0 0 6NB 2 3 0 0 0 4 9 2 0 20

3. Shattuck Street /Kittredge StreetSB 2 3 0 0 4 4 7 2 0 22NB 2 0 0 0 0 4 0 2 0 8SB 2 0 0 0 0 4 0 2 0 85. Shattuck Street /Durant AvenueEB 0 3 0 0 4 0 7 0 0 14

9. Oxford Street /Kittredge Street NB 2 0 0 0 4 0 0 0 0 611. Fulton Street /Durant Avenue EB 0 3 0 0 4 0 7 0 0 14Source: http://www.actransit.org/riderinfo/schedules/index.html


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Table 3.3 Bus Stops per Hour at Project Intersections PM Peak

AC Transit Line (Bus stops per hour)Intersection Dir

F 7 9 15 40 43 51 65 67TOTAL

EB 0 0 0 4 0 0 0 0 2 6

1. Shattuck Street /Center Street WB 0 0 2 4 0 0 0 0 2 8NB 2 3 2 0 0 4 8 2 0 21

2. Shattuck Square /Center StreetWB 2 0 0 0 4 0 0 0 0 6NB 2 3 0 0 0 4 8 2 0 19

3. Shattuck Street /Kittredge StreetSB 2 3 0 0 4 4 7 2 0 22NB 2 0 0 0 0 4 0 2 0 8SB 2 0 0 0 0 4 0 2 0 85. Shattuck Street /Durant AvenueEB 0 3 0 0 4 0 7 0 0 14

9. Oxford Street /Kittredge Street NB 2 0 0 0 4 0 0 0 0 611. Fulton Street /Durant Avenue EB 0 3 0 0 4 0 7 0 0 14Source: AC Transit Schedules http://www.actransit.org/riderinfo/schedules/index.html


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A l l s t o n Wa y

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UC Berkeley Project Site

OXFORD PLAZA AND THE DAVID BROWER CENTER TRAFFIC IMPACT AND PARKING ANALYSIS

LEGEND

IBI

Project LocationUC Berkeley CampusStudy Intersection - SignalizedStudy Intersection - Stop SignFree Right TurnOne-Way Street Direction

Figure 3-1Study Intersection Geometry

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Bay Area Rapid Transit (BART)The Berkeley Downtown BART station is located near the corner of Shattuck Avenue and Center Street. The station has the 8 th highest ridership level in the BART system. According to the CaliforniaDepartment of Transportations (Caltrans) California Transit-Oriented Development (TOD) Database 3,there was a weekday average of 10,303 boardings and 9,880 alightings per day at this station in 2001.The 1998 BART Station Profile Survey results regarding passenger access modes to and from thestation are listed in Table 3.4. Four train lines operating between RichmondSan FranciscoAirport/Millbrae and RichmondFremont run with 15-minute headways, for a total of 16 stops per hour at this station during the weekday peak periods.

Table 3.4 Downtown Berkeley BART Station Passenger Access Modes

Mode PercentageWalk 59.3 %Bicycle 4.6 %Transit 18.6 %Drive Alone 7.4 %Carpool 0.9 %Shuttle 0.0 %Other 9.2 %Total 100 %

Source: BART 1998 Station Profile Survey

3.4 EXISTING CIRCULATION AND PARKINGThe current vehicle, bicycle, and pedestrian traffic counts are presented in this section. A discussionof existing trip distribution and mode choice percentages is also provided.

Traffic CountsTraffic counts were made at the 11 project study intersections on Tuesdays, Wednesdays, andThursdays between November 30 th and December 9 th 2004. Counts were conducted from 7:00 AM to9:00 AM to capture the AM peak hour and from 4:00 PM to 6:00 PM for the PM peak hour. Vehiclecounts by turning movement were taken at all 11 project intersections, and are shown in Figure 3-3and Figure 3-4. Bicycle and pedestrian counts by direction were taken at four intersections alongOxford Street near the project site, and are shown in Figure 3-5 and Figure 3-6.

3 Source: Caltrans California Transit-Oriented Development Databasehttp://transitorienteddevelopment.dot.ca.gov/station/stateViewStationTransportation.jsp?stationId=5


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Project LocationUC Berkeley CampusStudy Intersection - SignalizedStudy Intersection - Stop SignOne-Way Street DirectionTurn Movement Volume

Figure 3-3Study Intersection Turning Movement Volumes

Existing Condition - AM Peak

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Figure 3-5Select Intersection Bicycle and Pedestrian Volumes

Existing Condition - AM Peak

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Figure 3-6Select Intersection Bicycle and Pedestrian Volumes

Existing Condition - PM Peak

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Existing Intersection Level of ServiceExisting traffic, pedestrian, and bicycle counts, along with transit data were used to calculate the levelof service at each of the project study intersections using HiCAPv2 software. The analysis inputassumptions and the reports detailing the analysis results are provided in the Appendix of this report.The results of the analysis are summarized in Table 3.5.

The unsignalized intersections #8) Oxford Street/Allston Way and #9) Fulton Street/Kittredge Streetoperate at LOS F in the PM peak hour. Both intersections experience long delays for the eastboundleft turn movement.

Table 3.5 Existing LOS at Study Intersections

AM Peak Hour PM Peak HourIntersection Control

Delay(Sec)

LOS V/C Delay(Sec)

LOS V/C

1. Shattuck Avenue / Center Street Signalized 12.5 B 0.428 14.1 B 0.5362. Shattuck Square / Center Street Signalized 13.1 B 0.343 15.7 B 0.511

3. Shattuck Avenue / Kittredge Street Signalized 10.8 B 0.336 12.4 B 0.4604. Shattuck Avenue / Bancroft Way Signalized 9.9 A 0.376 13.1 B 0.6175. Shattuck Avenue / Durant Avenue Signalized 13.2 B 0.574 14.9 B 0.6356. Shattuck Avenue / Channing Way Signalized 11.3 B 0.572 16.0 B 0.8017. Oxford Street / Center Street Signalized 13.2 B 0.526 20.6 C 0.7418. Oxford Street / Allston Way EB Stop Sign 27.8 D n/a 535.4 F n/a9. Fulton Street / Kittredge Street EB Stop Sign 33.3 D n/a 122.8 F n/a10. Fulton Street / Bancroft Way Signalized 9.5 A 0.371 12.5 B 0.54011. Fulton Street / Durant Avenue Signalized 11.2 B 0.399 11.2 B 0.476LOS Level of Service

3.5 EXISTING TRAFFIC PATTERNS, TRIP DISTRIBUTION, AND MODE CHOICEThis project is not expected to significantly change existing travel patterns in the area. As such, theexisting traffic patterns are a reasonable base for estimating the origin and destination of future tripsgenerated by the project. Existing average daily traffic (ADT) volumes were used to establish the tripdistribution on the study area network, as shown in Figure 3-7.

Non-Residential Trip Mode ChoiceAlameda County Travel Analysis Zone (TAZ) Trip Tables were used to obtain information relating toexisting travel mode choice patterns within the area of Downtown Berkeley near the proposed OxfordPlaza and David Brower Center. Mode choice model data provides insight into travel mode splits for

commute trips to locations in close proximity to the Oxford Plaza parcel. This information can be usedto estimate a likely mode choice split for employees or visitors traveling to non-residential land uses inthe OP&DBC.

The analysis used model data that summarized home based work trips from the Bay Area in the Years1998 and 2010 to the TAZ area that contains the OP&DBC parcel (TAZ 733). The difference betweenthe mode split percentages for the 1998 data and 2010 data was annualized to estimate the likelymode split for the opening year of the project (2008). Table 3.6 summarizes the mode choicepercentages. Home based work trips from all other TAZs (1,099 total) in the Bay Area werecategorized into the following modes:


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Drive Alone

Carpool (2+ passengers)

Carpool (3+ passengers)

Transit Bike

Walk

Mode split is a breakdown of the percentage of trips made by private vehicles and other alternativetransportation modes. The mode split assumptions used for this analysis are based on the 1998 and2010 Travel Analysis Zone Trip Tables for Alameda County, which are summarized in Table 3.6. Themodel data provides insight into recent and forecast travel mode splits for commute trips to parcelsand developments located in close proximity to the Oxford Plaza parcel.

Table 3.6 Home-Based-Work Trip Mode Choice to Oxford Plaza TAZ

Mode Choice1998

Percentage2010

Percentage2008 Estimated

PercentageDrive Alone 55.2% 49.3% 50.3%Carpool (2passengers) 6.3% 6.8% 6.7%

Carpool (3+passengers) 1.0% 1.2% 1.2%

Transit 15.7% 19.9% 19.2%Bike 5.4% 5.8% 5.7%Walk 16.4% 17.0% 16.9%Total 100% 100% 100%Source: Alameda County Transportation Analysis Model

The Year 2008 forecast data in Table 3.6 suggests that a substantial percentage (41.8%) of commuters to TAZ 733 do not use automobiles to make their commute trip. It is important to note thatTAZ 733 is about 0.5 square miles in size and includes the Downtown Berkeley BART station. Tripdata contained in the regional model includes all parcels within this TAZ, some of which are more than mile from the BART station.

Typically, mile is considered to be a reasonable distance that people will walk to access a transitstation. The OP&DBC parcel is located within 500 feet of the BART Station, well within a mile walk.The proximity of the OP&DBC parcel to the BART station could result in a higher percentage of commuters to the OP&DBC using transit compared to TAZ 733 as a whole.

Based on data from the 1998 and 2010 Travel Analysis Zone Trip Tables for Alameda County, a Year

2008 mode split of 58% vehicle trips (drive alone and carpool trips) and 42% other trips was used toestimate non-residential trip generation for this project. Due to the proximity of the project site to theDowntown Berkeley BART station and to the University of California Berkeley campus, as well as thenature of the site usage, it is likely that a higher percentage of visitors will use transit, bicycle, andpedestrian modes of access than the zone average. The split estimate of 58% vehicle trips is areasonable estimate for non-residential travel to and from this location.


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Residential Trip Mode ChoiceData from the 2000 United States Census was used to estimate the mode split for residential tripsgenerated by the Oxford Plaza and David Brower Center project. Census data was obtained for Census Tract 4229, which encompasses the area surrounding the OP&DBC site. Table 3.7summarizes the residential trip mode split percentages for Census Tract 4229.

Table 3.7 2000 US Census Mode Choice from Oxford Plaza Census Tract

Mode Choice Year 2000PercentageDrive Alone 29.0%Carpool 4.1%Motorcycle 0.9%Transit 20.5%Bike 5.5%Walk 35.3%

Other 4.7%Total 100%Source: 2000 US Census

The mode split percentages in Table 3.7 were applied to the residential trip generation estimates for the OP&DBC. Automobile residential trip generation rates comprise 33% of the total number of tripsgenerated by the proposed residential uses. This figure appears to be reasonable given the transit-oriented environment of Downtown Berkeley, the proposed use of the residential apartments as work-force housing for downtown employees, and the proximity of this development to regional transitservices. Figure 3-8 illustrates the location of Census Tract 4229 and TAZ 733 in relation to theOP&DBC parcel.


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Figure 3-7Ambient Traffic Distribution

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M a r t i n L u t h e r K i n g J r . W a y

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Census Tract4229

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Project SiteCensus Tract 4229 andMTC TAZ 733 Boundary

Figure 3-8Berkeley, California

U.S. Census Tract 4229 and MTC TAZ 733 Boundaries

Note: Census Tract 4229 and the MTC TAZ 733are bounded by the same area.


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Existing Parking UtilizationThe project site is currently occupied by the Oxford Lot, an hourly surface parking lot with 132 spaces,122 of which are available for public use. The remaining 10 spaces are used by the City of Berkeleyfor staff permit parking. The lot is controlled by an attendant who collects payment based on theduration that a car is parked in the lot.

Parking utilization is an indicator of the demand for parking within an area during specific hours of theday and time of week. By reviewing parking utilization at the existing Oxford Lot, parking demandpeaks can be identified. Estimates of average utilization of the Oxford Plaza lot were developed usingthe vehicle entry volumes from the past three years, and are displayed in Figure 3-9. This exhibitshows the entry volumes for the current Oxford Lot from Monday-Saturday.

Oxford Street Parking Lot Entry Volumes

0

10

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t r y

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b e r o

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)

MOTUW ETHFRSA

Figure 3-9: Oxford Street Public Parking Lot Vehicle Entry Volumes

Table 3.8 is a summary of data collected and compiled by the City of Berkeley from several recentstudies (2001-2004) that incorporate a parking element. These studies include the Vista College DEIRand FEIR, and the Library Gardens DEIR, which consisted of several surveys of parking facilityutilization in the Downtown area within the last three years. Based on the data presented below, theexisting Oxford Lot public parking facility experiences a high level of utilization during weekdays andSaturday afternoon time periods.

Table 3.8 Oxford Street Public Parking Lot Estimated Existing Utilization

Time Period Utilization RateWeekday Morning 90%Weekday Afternoon 77%Weekday Evening 75%Saturday Morning 56%Saturday Afternoon 97%Saturday Evening 68%

Notes: The Oxford Plaza lot has only been open on Sundays for a few months, and noutilization data is available. Utilization rates assume a public space capacity of 122 spaces.


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Accident DataA high level of pedestrian activity occurs near the project site, particularly between BART stationaccess points and the University of California, Berkeley campus. Recent statistics for pedestrian vs.automobile accident rates were reviewed to determine locations that may require mitigation measuresto address possible pedestrian safety issues. Table 3.9 summarizes the number of pedestrian vs.automobile accidents reported between July 1995 and July 1999.

In general, the study areas sidewalk network is relatively pedestrian-friendly. The City of BerkeleySouthside/Downtown Transportation Demand Management Study Existing Conditions Report 4 includes an evaluation of pedestrian level of service. Each roadway was assigned an LOS rating fromA to F based on factors that relate to pedestrian comfort and safety, including public amenities, visualquality of the street, building facades, maintenance, lighting, landscaping, and street activity. All of thestreets in the project study area had an LOS of A or B, except for the portion of Oxford/Fulton Streetbetween Allston Way and Bancroft Way. According to the City of Berkeley report, this sidewalksegment operates at LOS D, which means the street provides a poor pedestrian experience through acombination of narrow sidewalks, ill-defined streetwall, building scale that is out of scale topedestrians, lack of landscaping, unsafe traffic conditions, or poor lighting. Redevelopment in thisarea should pay particular attention to improving the pedestrian environment.

The T-intersection of Oxford Street and Allston Way is stop-sign controlled on the Allston Wayapproach, while through traffic on Oxford Street is uncontrolled. There is a triangular island within thecrosswalk across Allston Way, to separate vehicles making right-hand turns from those making left-hand turns, and to provide a pedestrian refuge. This island has proven to be problematic, however, asit resembles a free-right turn median, and gives drivers the impression that they have an open lane toturn into on Oxford Street. The median also gives pedestrians a false sense of security in an area withpoor visibility. With five auto-pedestrian incidents during the four-year observation period, thisintersection has been identified as a hazardous location and may require mitigation to addresspedestrian safety issues.

Table 3.9 Auto/Pedestrian Accidents Between 1995 and 1999

Intersection Auto/Pedestrian Accidents1. Shattuck Avenue / Center Street 1 23. Shattuck Avenue / Kittredge Street 24. Shattuck Avenue / Bancroft Way 15. Shattuck Avenue / Durant Avenue 06. Shattuck Avenue / Channing Way 27. Oxford Street / Center Street 18. Oxford Street / Allston Way 59. Fulton Street / Kittredge Street 210. Fulton Street / Bancroft Way 111. Fulton Street / Durant Avenue 1Source: Berkeley Southside/Downtown TDM Study, Existing Conditions, Chapter 6.http://www.ci.berkeley.ca.us/transportation/TDM/existingconditions/BERKtdm06.pdf 1 Accident data for project intersection #1) Shattuck Avenue/Center Street and #2) ShattuckSquare/ Center Street was consolidated by the source.

4 http://www.ci.berkeley.ca.us/transportation/TDM/existingconditions/Map6-3PedestrianLevelofService.pdf


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4.0 FUTURE CONDITIONS WITHOUT PROJECTTraffic conditions in the buildout year are simulated by applying a traffic growth factor to the existingcounts, and adding in cumulative project trips. A traffic growth rate of 2% per year over three years

was used, for a total ambient traffic growth of 6.12%. The cumulative project trips are not expected tosignificantly change existing travel patterns, so the trips were dispersed onto the network using thedistribution assumption shown in Figure 3-7.

4.1 CUMULATIVE PROJECTSCumulative projects are projects that have been approved by the City, are scheduled to be completebefore the buildout year, and are forecast to generate vehicle trips within the project study area. TheCity of Berkeley staff identified one cumulative project for this analysis: a mixed-use developmentcalled Stadium Place that is currently under construction and is scheduled to be complete in thesummer of 2005. It is located at 2310 Fulton Street, on the northwest corner of Fulton Street andDurant Avenue. The project consists of 74 rental apartments, 6,794 square feet of commercial floor area, and 18 parking spaces 5.

Stadium Place Trip GenerationTrip generation for Stadium Place was forecast using ITE rates, and the mode split assumption of 58%drive-alone trips established in Section 3.4. In the analysis year, Stadium Place is estimated togenerate 7 vehicle trips during the AM peak hour and 21 vehicle trips during the PM peak hour. Thecalculation of these values is shown in Table 4.1 and Table 4.2.

Table 4.1 Stadium Place Trip Generation Forecast AM Peak

Peak Hour RatesLand Use ITECode Unit Qty AM %In %Out

AutoModeFactor

Trips In

TripsOut TOTAL*

Mid-Rise Apartment 223 DU 74 0.30 30% 70% 0.33 2 5 7Specialty Retail Center 814 TGLA 6.8 0 NA NA 0.58 0 0 0TOTAL 2 5 7DU Dwelling unitsTGSF Thousand gross square feetTGLA Thousand gross square feet of leasable area* Total volume added to adjacent streets.

Table 4.2 Stadium Place Trip Generation Forecast PM Peak

Peak Hour RatesLand Use ITECode Unit Qty PM %In %Out

AutoModeFactor

Trips In

TripsOut TOTAL*

Mid-Rise Apartment 223 DU 74 0.39 59% 41% 0.33 6 4 10Specialty Retail Center 814 TGLA 6.8 2.71 44% 56% 0.58 5 6 11

TOTAL 11 10 21DU Dwelling unitsTGSF Thousand gross square feetTGLA Thousand gross square feet of leasable area* Total volume added to adjacent streets.

5 Stadium Place land use data was obtained from the City of Berkeley Planning Department staff.


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4.2 INTERSECTION LEVELS OF SERVICETable 4.3 summarizes the LOS for the 11 study intersections in the Future No Project Condition. Theincreases in traffic volumes reflect the ambient growth rate and new trips generated by the cumulativeproject. As would be expected, LOS levels at each intersection were slightly worse than the existing

conditions. The intersection turning movement volumes for the Future Without Project condition areshown in Figure 4-1 and Figure 4-2.

Table 4.3 Future (2008) Without Project LOS Summary

AM Peak Hour PM Peak HourIntersection Control

Delay(Sec)

LOS V/C Delay(Sec)

LOS V/C

1. Shattuck Avenue / Center Street Signalized 12.7 B 0.455 14.5 B 0.569

2. Shattuck Square / Center Street Signalized 13.3 B 0.363 16.8 B 0.541

3. Shattuck Avenue / Kittredge Street Signalized 11.1 B 0.356 12.9 B 0.490

4. Shattuck Avenue / Bancroft Way Signalized 10.1 B 0.401 13.9 B 0.6575. Shattuck Avenue / Durant Avenue Signalized 14.2 B 0.608 17.9 B 0.767

6. Shattuck Avenue / Channing Way Signalized 11.8 B 0.608 18.3 B 0.850

7. Oxford Street / Center Street Signalized 15.8 B 0.604 28.3 C 0.881

8. Oxford Street / Allston Way EB Stop Sign 31.6 D n/a 906.0 F n/a

9. Fulton Street / Kittredge Street EB Stop Sign 39.6 E n/a 243.7 F n/a

10. Fulton Street / Bancroft Way Signalized 9.6 A 0.393 12.5 B 0.573

11. Fulton Street / Durant Avenue Signalized 11.3 B 0.424 11.6 B 0.509

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Future No Project Condition - AM Peak

# #

28 43

686

735

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38107

23 281

77416128

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55

834

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634

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32 40

902

952

15119

56

38

20

52

7885

51 355

88339160

2934

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1090

1023

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31151

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59 116

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799551

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1232

1027

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76

39

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66 272

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5.0 FUTURE CONDITIONS WITH PROJECTAs requested by the City of Berkeley, three levels of analysis were performed for the Future withProject Condition. The Oxford Plaza portion of the proposed OP&DBC development includes a six-

story residential building, which exceeds the height limit established in the current zoning code. AGeneral Plan Amendment and Zone Change have been proposed to increase the standards for theproject parcel to allow a base building height of 5 stories and 4:1 FAR, with a downtown density bonuspermitting a maximum building height of 7 stories and 6:1 FAR. As part of an alternative developmentscenario under consideration, the amendment could also affect the adjacent lot at 2176 KittredgeStreet, which is currently utilized as an automated car wash.

Because the proposed project may include a General Plan Amendment and Zone Change, thedevelopment potential of the both 2200 Fulton Street parcel and the 2176 Kittredge Street parcel isincreased. In order to understand the potential impact of the General Plan Amendment and ZoneChange, the City requested that the potential worst-case development increase for each parcel beanalyzed in addition to the proposed Oxford Plaza and David Brower Center project. This trafficanalysis considers the traffic impacts of the Oxford Plaza project, as well as the i

2200 oxford tia-revised comments 6-01-05

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