Item 20 Staff Report Consider Accepting the Traffic Engineer's Report and Directing Staff to Proceed with the Following Traffic StudiesDATE:
TO:
FROM:
SUBJECT:
MEETING DATE: 9/20/99
ITEM NO, D
COUNCIL AGENDA REPORT
September 16, 1999
MAYOR AND TOWN COUNCIL
TOWN MANAGER
CONSIDER ACCEPT' G THE TRAFFIC ENGINEER'S REPORT AND DIRECTING STAFF
TO PROCEED WITH THE FOLLOWING TRAFFIC STUDIES:
a. DOWNTOWN OPERATIONAL TRAFFIC STUDY AND EVALUATION OF STATE
ROUTE 17 RAMP CLOSURE
b. OLD TOWN TRAFFIC STUDY
c. EVALUATION OF STOP SIGNS AT BACHMAN/SANTA CRUZ AND
COLLEGE/MAIN
d. EVALUATE EXISTING TRAFFIC CALMING POLICY
e. PEER REVIEW OF COUNTY TRAFFIC STUDY RE: ENGLEWOOD AVENUE
RECOMMENDATION:
Accept the Traffic Engineer's report and direct staff to proceed with the following traffic studies:
a. Downtown Operational Traffic Study and Evaluation of State Route 17 Ramp Closure
b. Old Town Traffic Study
c. Evaluation of Stop Signs at Bachman/Santa Cruz and College/Main
d. Evaluate Existing Traffic Calming Policy
e. Peer Review of County Traffic Study re: Englewood Avenue
BACKGROUND:
Attached is a report from Gary Kruger, the Town's Traffic Engineer outlining the Scopes of Work, Budget and
Completion Schedules for each of the studies. Staff suggests that the Council specifically review the Downtown
Operational/Route 17 Ramp Closure Scope of Work to confirm that all of Council's issues and concerns will be
addressed by the study.
DISCUSSION:
The various traffic studies have been combined into five separate studies to provide evaluation of similar issues. Staff
had originally intended to present separate scopes/budgets/schedules to the Council over the next several meetings.
However, the consultant has submitted a more simplified report summarizing all of the studies.
Staff recommends that the Council direct the consultant to proceed with the studies with the exception of the Parking
Garage Exit Sight Distance Evaluation in the Old Town Study because the sight distance issue has already been resolved
with the removal of portions of the wall allowing greater visibility for both exiting cars and pedestrians (cost savings
of approximately $2110).
PREPARED BY: PAUL L. CURTIS
DIRECTOR OF COMMUNITY DEVELOPMENT \
Reviewed by: jtt/ Attorney Revised: 9/16/99 4:12 PM
Reformatted: 7/14/99
PAGE 2
MAYOR AND TOWN COUNCIL
SUBJECT: CONSIDER REPORT ON TRAFFIC STUDIES
September 16, 1999
Following Council's approval, the studies can be completed and scheduled for discussion as follows:
•
•
•
Downtown Operational Traffic/Route 17 Ramp Closure Study ($32,400) preliminary report
completed by the end of December 1999 (Presented to Town Council in January 2000).
Old Town Traffic Study ($8464) completed by October 1 (Presented to Town Council on October
18).
Evaluation of Stop Signs at Bachman /Santa Cruz ($810) and College/Main($1,070) completed by
October 1 (Presented to Town Council on October 18).
Evaluate Existing Traffic Calming Policy ($2,326) completed by October 1 (Presented to Town
Council on November 1).
Peer Review of County Traffic Study re: Englewood Avenue ($565) completed by October 1
(Presented to Town Council on November 1).
FISCAL IMPACT:
Traffic Studies to be funded from the adopted operating budget ($47,751)
Attachments:
Memorandum from Gary Kruger (Traffic Consultant), dated September 8, 1999
Distribution:
Terry A. Clark, 21384 Aldercroft Heights Road, Los Gatos, CA 95033
Peter & Cathy Cifelli, 18300 Lakeview Ct., Los Gatos, CA 95033
Gary Kruger, TJKM Transportation Consultants, 4234 Hacienda Dr., #101, Pleasanton, CA 94588-2721
PLC:mdc
N: \DE VIPAULITRAFSTDY
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NiiiTransportation Consultants
MEMORANDUM
September 8, 1999
To:
From:
Subject:
Bud Lortz, Assistant Director Project No.: 21-030
Dept. of Community Development
Town of Los Gatos 4,�� fI
1J
Gary Kruger, Town Traffic Engineer Jurisdiction: Los Gatos
Scope and Budget for Traffic Studies
This memorandum and attached spreadsheets detail the scopes, schedules and budgets for
upcoming traffic studies requested by city staff and the town council. I have placed all the Old
Town traffic studies into one project because many of the field observations will serve more than
one study. According to both Scott Alman and Scott Baker, we should charge time to the general
P.O. for studies regarding the Bachman/Santa Cruz 4-way stop and the College/Main St. all -way
stop. We have not received a general purchase order at this time so these two stop sign studies
cannot be completed by September 9, 1999 as desired for agendizing on the town council calendar
for September 20`h. For the other work, we understand that we will need specific purchase orders
for each project prior to our proceeding. For the September 25th work on Old Town, we will need a
purchase order no later than September 14, 1999 in order to finish all work by September 25, 1999.
Scope of Services: Old Town Traffic Study: (completion due by September 25, 1999)
The following five locations will be studied in. the Old Town Traffic Study. If there is a need to
separate each study in terms of budget, the aggregate budget should be divided by five for a cost
for each of the five studies. The attached Old Town Traffic Study spreadsheet is attached for your
information. All work will be completed by September 25, 1999 including a draft report.
(1) Elm Street Stop Sign at University: TJKM shall conduct approach counts for 48 hours on
University and Elm Street. Three years of accident statistics shall be reviewed, and accidents
per million entering vehicles shall be calculated and compared to statewide data for
intersection accident rates. A condition diagram will be prepared, and an on -site evaluation by
a registered traffic engineer will be performed including a calculation of safe stopping sight
distance for traffic on University Avenue. All data will be analyzed, and a report summarizing
the warrants for an all -way stop at the intersection will be prepared.
(2) Crosswalk at Elm Street'University (north): TJKM shall conduct pedestrian crossing studies of
pedestrian traffic across University at both the marked and unmarked crosswalk at Elm Street.
Accident statistics over the past three years shall be reviewed and analyzed. Pedestrian
crossing behavior between Elm Street and Main shall also be reviewed based upon field
observations_ The numbers of pedestrians crossing at crosswalks, crossing diagonally between
crosswalks, and the proportion of pedestrians forcing traffic to stop versus waiting for a
4234 Hacienda Drive, Suite 101, Pleasanton, California 9
• Phone (925)463-0611 • Fax (925)463-3690 • e-mail tjkm Attachment 1
rJr u(F 13DD 1L. 1G yZn41:1J.;bb
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Transportation Consul —Ants j Bud Lortz. September 8, 1999, Pg. 2
reasonable gap in traffic will also be noted. A review of the literature regarding crosswalk
safety will also be performed. On the basis of the collected data; field observations, and review
of literature, we will reach findings and conclusions regarding establishing a crosswalk on the
north approach of University Avenue at Elm Street, both without and with an all -way stop. A
report will be drafted and will be available in draft form on or before September 25, 1999.
(3) 20 MPH Speed Study on University Avenue: TJKM shall use existing aerial photos to develop
a conceptual plan for narrowing the traveled way on University Avenue to 25 feet. TJKM shall
also conduct an engineering and traffic survey of at least l 00 cars on University Avenue south
of Elm Street. The radar speed studies shall not be made during hours of congestion nor when
police cars and/or officers are present. A review of accidents on University Way in terms of
accidents per million vehicle miles of travel will also be completed. On the basis of the radar
studies, aerial photographs, field studies and review of accidents, TJKM shall make a
recommendation regarding establishing speed limits lower than 25 mph. In order to make such
a recommendation, the street must be narrowed to 25 feet or less for the traveled way in the
Old Town area. This can be done with various traffic calming strategies, and could also be
done on a temporary basis using construction -type traffic controls, pylons, etc. All work shall
be completed by September 25, 1999. The engineering and traffic studies will be conducted
without installing any interim traffic control devices to narrow University Avenue. If the street
is narrowed, the engineering and traffic survey will be sufficient to establish an enforceable 20
mph speed limit.
(4) Garage Exit Sight Distance Evaluation: TJKM shall,_ on the basis of aerial photographs, field
measurements and observation of traffic conditions, evaluate the available sight distance for
traffic exiting the public parking garage for Old Town. TJKM shall also make manual counts
of turning traffic at the garage access points and shall calculate the unsignalized level of service
during mid -day and p.m. peak hours. TJKM shall complete a draft report describing the
findings of this study on or before September 25. 1999.
(5) Additional Crosswalks Evaluation: TJKM shall on the basis of field observations made for the
Elm Street crosswalk, also analyze the need and warrants for establishing additional crosswalks
across University Avenue between Elm Street and E. Main Street. Included will be a review of
literature, accidents, speeds, proximity to controlled intersections, traffic volumes, driveway
volumes, sight distance at the potential new crosswalks and other factors. On the basis of the
engineering review, TJKM shall forward a draft report of our findings and recommendations
by September 25, 1999.
Scope of Services for Downtown Operational Traffic Study:
We understand that two studies are to be combined into this one project: 1) the Downtown
Operational Traffic Study. and 2) the Route 17 Closure Study. This scope combines both studies
into one scope of services.
Issues:
The development of the Old Town Project has created concerns regarding traffic conditions in
downtown. The desire is to have a status report on traffic operations in downtown once the Old
Town Project is fully occupied and open, which is assumed to be September, 1999. The overlay of
Jc.J4o3�07rJ
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PAGE 04/10
Transportation Consu. Ants Bud Lortz, September B. 1999, Pg. 3
traffic to existing downtown uses, the new Old Town Project plus school traffic has the potential to
overload downtown streets and significantly increase congestion. There is already congestion in
downtown and on the routes serving downtown including Route 9, the Saratoga -Los Gatos Road.
There are questions regarding any further need to facilitate traffic circulation and access, and also
reduce existing levels of congestion by discouraging through traffic, especially on N. Santa Cruz
Avenue. In summary, the Downtown Operational Traffic Study will assess current traffic
conditions throughout downtown, will identify problems and deficiencies in terms of standard
traffic criteria; and will also identify feasible short and longer -term strategies to correct some, if not
all the noted deficiencies. Prior to data collection and analysis, the following type of concerns are
of special interest in the overall study:
a) Signalized Intersection Congestion and Delay;
- N. Santa Cruz Avenue and State Route 9
University Avenue and State Route 9
- N. Santa Cruz Avenue and W. Main Street
University Avenue and E. Main Street
- Los Gatos Boulevard and State Route 9
b) Unsignalized Intersection Congestion and Delay, and Safety
- N. Santa Cruz Avenue and Bachman (potential all -way stop)
- Massol Avenue and State Route 9
- E. Main Street at Jackson Street/Pleasant Street
- Los Gatos Boulevard at Loma Alta Avenue
- Santa Cruz Avenue and Broadway
c) Other Traffic Conditions
Bus influence on delay; E. Main Street/Montebelio
Accident rates at intersections, on through streets in downtown
Pedestrian and bicycle safety and circulation within downtown
- Parking accumulation; on street and off street
d) Through Commuter Traffic
- Through commuter traffic on N. Santa Cruz Avenue
- Through commuter traffic on University Avenue
Task Descriptions — Downtown Operational Traffic Study:
Task 1 —Data Collection: TJKM shall collect the following traffic data:
a) Manual Turn Counts, a.m., mid -day and pan. peak hours
N. Santa Cruz Avenue and State Route 9
University Avenue and State Route 9
N. Santa Cruz Avenue and W. Main Street
- University Avenue and E. Main Street
Los Gatos Boulevard and State Route 9
- N. Santa Cruz Avenue and Bachman (potential all -way stop)
- Massol Avenue and State Route 9
E. Main Street at Jackson Street/Pleasant Street
- Los Gatos Boulevard at Loma Alta Avenue
Santa Cruz Avenue and Broadway
C/lb/I bJ 1b y2b4b33b90
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PAGE 04
Transportation Consultants Bud Lortz, September 8. 1999; Pg. 4
b) Directional Machine Counts (simultaneous with manual turn counts)
- University Avenue south of State Route 9
- State Route 9 west of SR 17 southbound ramps
State Route 9 east of SR 17 northbound ramps
- State Route 9 west of University Avenue
- State Route 9 west of N. Santa Cruz Avenue
N. Santa Cruz Avenue north of State Route 9
N. Santa Cruz Avenue south of State Route 9
N. Santa Cruz Avenue south of Bean Avenue
- Santa Cruz Avenue south of W. Main Street
- Los Gatos Boulevard north and south of State Route 9
c) Maximum Back of Queue — these data will be collected at the same time the manual turn
counts are taken in order to calibrate Synchro and CORSIM models
d) License Plate Origin/Destination Studies — these studies will be conducted during the a.m. and
p.m. peak hours and will observe, for white passenger cars only, license plate numbers during
the a.m. peak for northbound traffic on Santa Cruz Avenue south of Main Street (entering
traffic). For exiting traffic in the a.m. peak the stations are westbound traffic on State Route 9
west of N. Santa Cruz, northbound traffic on N. Santa Cruz Avenue north of Blossom Hill
Road, northbound Los Gatos Boulevard north of Loma Alta Avenu, and northbound University
Avenue north of State Route 9. For p.m. peak traffic the entering stations will be eastbound
State Route 9 at Massol Avenue, southbound traffic on N. Santa Cruz Avenue north of
Blossom Hill Road, westbound State Route 9 west of the SR 17 southbound ramps, and
southbound Los Gatos Boulevard south of State Route 9_ The exiting traffic station will be
southbound Santa Cruz Avenue south of Main Street.
e) FIoating Car Studies — these studies will be taken simultaneously with the license plate origin -
destination studies in (d). These studies will be taken on State Route 9 from Montgomery
Street to Los Gatos Boulevard, on Santa Cruz Avenue/N. Santa Cruz Avenue from Lark
Avenue to SR l 7 ramps south of Main Street, on State Route 17 from Camden Avenue to Bear
Creek Road, Los Gatos Boulevard-E. Main Street from Lark Avenue to Santa Cruz Avenue,
and on University Avenue from Blossom Hill Road to E. Main Street.
f) Parking Accumulation — simple parking accumulation studies will be made for on street and off
street public parking on an hourly basis, starting at 9 a.m. and continuing to 5 p.m.
g) Accidents — three years of accidents will be compiled for downtown streets.
h) Field Observation — a registered traffic engineer will independently observe traffic conditions
during the time that the data are being collected.
Task 2 — Data Reduction and Analysis
TJKM shall develop a detailed and calibrated model of downtown traffic operations using both
Synchro 3.2 (or 4.0 if available as expected by October, 1999) and CORFLO/CORSIM. To do this
we will match up the manual counts and machine counts in order to estimate turning movement
counts during most hours of the day, and we also need to use the other data collected with the
counts including maximum back of queue which is an explicit output of Synchro_ We will
demonstrate that the Synchro model replicates the observed queues at the manual count
intersections. We will also, on the basis of the machine counts, be able to estimate turning traffic at
other intersections in downtown such as N. Santa Cruz and Bean Avenue, etc. We will also
process the license plate origin and destination data to determine the amount of commuter traffic
using downtown streets as a means to travel to and from the south on State Route 17 where other
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NITransportation Consi...ants Bud Lortz, September 8, 1999, Pg. 5
routes could also be used. The O&D data will be an input to the CORFLO model which is
sensitive to travel time on alternative routes between origins and destinations. We will use the
floating car studies to calibrate the CORFLO model in this regard. Once we have calibrated the
CORFLO model, we will then assess traffic operations in the event the State Route 17 ramps are
closed during the peak hours for Santa Cruz Avenue (e.g_, traffic using these ramps will use State
Route 9 ramps and other interchanges to the north).
The parking accumulation data will be used to make estimates of traffic created by the search for
parking. For curb occupancies over 85% and off street parking over 90%, we will assume that
drivers need to search two to three parking locations prior to finding and accepting parking. The
effects of the parking search traffic will be estimated so that traffic conditions with and without
excessive parking search traffic can be made.
Additional observations will also quantify the extent to which loading and bus operations
contribute to congestion on E. Main Street and other locations as requested (up to five additional
special locations).
The information in the CORFLO and Synchro models will be input to CORSIM to simulate traffic
conditions throughout downtown on the basis of existing conditions and also for a potential closure
of the Santa Cruz ramps to and from State Route 17.
The results of this task will be compiled into the draft report for this project.
Task 3 — Evaluation
The results of the analysis will be used to evaluate traffic conditions with quantitative and objective
criteria for signalized and unsignalized intersections. These criteria include levels of service,
delay, and accident rates. The contribution of through commuter traffic as well as parking search
traffic will be quantified; in other words, if there were none of this traffic, what are the resulting
traffic conditions, and what are the impacts of rerouting commuter traffic to alternate routes?
Locations with accident rates significantly above normal rates will also be noted.
The results of this analysis will be reported as being within or outside normal ranges of traffic
performance measures for capacity, congestion and safety.
Task 4 — Improvement Strategies
For conditions, situations and locations where performance measures indicate there are problems;
TJKM shall develop, where feasible means can be found, short and longer -term improvement
strategies to correct the problems. These can include better signal timing, changes in
channelization, modification of traffic controls and regulations, closure of State Route 17 ramps,
and many other possible improvements. The budget for this task is predicated on the assumption
that we will find ten improvement strategies for which to further develop and estimate preliminary
costs. Prior to initiating work on the draft report in Task 5, TJKM staff shall review all work
through Task 4 with the Director of Community Development and other town staff as required.
. 11: lb 'J2b4b33690
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PAGE 07/10
Transportation Consonants Bud Lortz, September 8. 1999, Pg. 6
Task 5 —Draft Report and Presentation
A summary report will be prepared for the results and findings of Tasks 1 through 4, and a
CORSIM computer model will be developed of traffic conditions for existing conditions as well as
for any recommended improvement strategies. The summary report will tell the story in graphic
form. Text will primarily be bulleted points with minimal paragraph text. The summary report
will be supplemented with a full report including all collected data and the results of the analysis
and evaluations of the data, This draft report can be presented to the planning commission, the
town council and any general public meeting as directed by town staff. The presentation will
include the computer simulation model showing traffic conditions with and without requested and
recommended improvements. This task assumes there will be up to three meetings. The budget
for each meeting is provided in the event there are fewer or more meetings than anticipated.
Task 6 — Final Report
On the basis of the meetings for review and comments on the draft report, TJKM shall prepare a
final report that incorporates the desired changes in the draft report. Up to 100 copies of the final
summary report can be made available, along with up to five copies of the full final report.
Schedule
TJKM can complete Tasks 1 through 3 within four weeks after notice to proceed. No data shall be
collected during inclement weather, school breaks, or on holidays or other non -typical conditions.
Task 4 can be completed within two weeks after Task 3. and Task 5 can be completed within one
week of town managing staff approval of the work through Task 4. The meetings, if necessary,
will take place at times and places as directed by the Director of Community Development. Task
6, the final report, can be completed within two weeks of approval of the draft report in Task 5.
The attached spreadsheets detail the requested budget for the Downtown Operational Traffic Study
by task. The State Route 17 Closure Study budget is incorporated into the Downtown Operational
Traffic Study.
Scope of Services: Evaluate Existing Traffic Calmine Policy
The Town of Los Gatos has, through experience, developed a traffic calming policy in response to
requests from citizens and neighborhood groups. That policy generally consists of gathering traffic
operations data including speeds, volumes and accidents, and then reviewing the implications of
the data with engineering and police personnel. Other communities have a more extensive process
set up, but these communities are likely larger cities with formal programs. The town traffic
engineer shall compare the effects and results of the Los Gatos projects with those of other
communities. In addition there are acknowledged criteria for evaluating requests for traffic
calming. The town traffic engineer shall report the results of the comparison of programs and any
recommended criteria for evaluating requests for traffic calming in a draft report to the Director of
Community Development. The town traffic engineer will attend the October 18, 1999 Town
Council meeting to present any findings as directed by the Community Development Department.
IJKM
PAGE 08/10
NiiTransportation Consu..nts Bud Lortz, September S. 1999, P. 7
Total Budget: $2,326 including travel and fax costs. [14 hours Town Traffic Engineer, 4 hours
Graphics Designer, 2 hours Clerical, plus 90 miles ($31) plus $5 Fax._]
Scope of Services: Peer Review of County Traffic Study re: Englewood Avenue
The town traffic engineer shall review the county traffic study done for Englewood Avenue in
terms of the recommended criteria for traffic calming also on the October 18, 1999 Town Council
agenda. The review will be reported in a draft report to the Director of Community Development,
Budget: $565 for all costs. [4 hours Town Traffic Engineer, $5 Fax]
Attachments: Budget Spreadsheets for larger studies
1s9/16/1999 11:31 9254633690 TJKM PAGE 02
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Town Council Minutes September 20, 1999
Redevelopment Agency Los Gatos, California
TRAFFIC STUDIES/TRAFFIC ENGINEER'S REPORT (20.40)
Council consensus that after due consideration to accept the Traffic Engineer's report and
direct staff to proceed with the following traffic studies:
A. Downtown operational study and evaluation of State Route 17 ramp closure.
B. Old Town traffic study
C. Evaluation of stop signs at Bachman/Santa Cruz and College /Main
D. Evaluate existing traffic calming policy
E. Peer review of County traffic study re: Englewood Avenue
DOWNTOWN PARKING IMPROVEMENT PLAN (21.40)
Council considered various downtown parking issues and made several decisions by consensus.
The following people from the audience spoke to this issue:
Dianne McNutt, 25 Jackson Street, representing the Chamber of Commerce, spoke of the efforts
involved in identifying funding sources for the proposed parking structures. She noted three
separate issues: 1) The special needs assessment district spoke of identifying the owners of
properties in the downtown district and asking them to commit to a new district at an assessment
of 1 cent a square foot of property for a period of twenty years. The response to that request
was 45.5% in favor so far. The assumption is that 60% would be in favor when more specifics
were presented to them. 2) The raising of revenue was also addressed under paid for parking
programs. The market research study identified parking as the most critical issue in the
downtown according to Los Gatos residents. 3) Interim parking solutions were identified which
could be implemented immediately. Daytime parking on University. Employee parking on
Miles with additional lighting and patrol on Miles. Map identifying parking locations in the
downtown. Valet parking on select public lots on key weekends of the holiday season. Shuttle
service from outlying parking areas. Employee parking permits for car pooling efforts. Dianne
presented a Summary of Parking Solution Action Items from the Chamber to the Council and
asked that they be addressed, approved and initiated tonight.
Edelen Parking District: (Items 2 and C)
Bill Errico, 236 University Ave., as a resident, business owner in Los Gatos and member of the
Chamber, he related that he agreed with the Action Items with the one exception of parking in
the Edelen parking district.
Philip Rhodes, 230 University, opposed the change in the Edelen parking district and asked that
the 24 hour parking restriction remain in effect.
Judy Holcome, 210 Edelen, opposed change in Edelen parking and asked that preferential
parking for residents remain in effect especially during the time that Old Town parking is still
restricted and there is additional impact from holiday shoppers.
Stacy Stewart, 123 Edelen, asked about notification to the neighborhood when there are
contemplated changes to the established preferential parking district.
Jackie Wilson, 239 Edelen, opposed changes in Edelen parking district and reminded Council
that this is a residential district with family visitations and service deliveries and added residential
activities during the holiday season.
Rex Morton, 51 University, representing the Parking Commission, noted that the Almond Grove
Preferential Parking District had agreed to share its parking during the day and believes that the
Edelen district could also share in the daylight hours.
TC:D11:MM092099
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