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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

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



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



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



EXECUTIVE SUMMARY Project Description The 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 urban development. The David Brower Center portion of the development includes office space, an auditorium, an art gallery, and meeting rooms. The Oxford Plaza portion of the development is comprised of 96 residential apartment units. The apartments are proposed to be affordable workforce housing, occupied by low and very-low income residents. The ground floor of the Oxford Plaza portion includes retail uses, a restaurant, an open courtyard, and a residential parking garage. An underground public parking facility owned and operated by the City of Berkeley serving the retail and David Brower Center uses is also part of the design.

The project includes a General Plan amendment and possible zone change to permit the increased height of the development. The property is currently zoned as C-2 (Downtown Commercial). The project 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 change could be expanded to include an adjacent parcel at 2176 Kittredge Street. This site is currently occupied by a hand car wash. As part of this traffic and parking study, the impact of expanding the General Plan amendment and zone change to include the 2176 Kittredge parcel will be assessed in addition to the analysis of the potential impact resulting from the OP&DBC.

Analysis Methodology The 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 analysis methodology published in the 2000 Highway Capacity Manual (HCM). The HICAPv2 traffic analysis software, 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 traffic impact 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 trips generated by the additional maximum intensity development potential for the 2176 Kittredge parcel after the adoption of the General Plan Amendment.

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

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

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



A traffic signal warrant analysis was performed at the two unsignalized study intersections located adjacent to the OP&DBC project site. Future traffic conditions at the Oxford Street/Allston Way and Fulton Street/Kittredge Street intersections without the proposed OP&DBC project satisfy peak hour traffic signal warrants. Additionally, pedestrian safety concerns at both of these intersections contribute 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. Improvements could include restrictions on peak period left turns, pedestrian crossing enhancements, or new traffic signals at one or both intersections.

Parking Impacts Two parking concepts are under consideration for the OP&DBC. Both concepts proposed 40 at-grade parking spaces for the residential uses on-site. An underground public parking facility is also proposed as part of the project. Concept 1 would build a single-story underground facility with 104 parking spaces. 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 public parking utilization rates is anticipated to be 207 spaces. With the implementation of specific Transportation Demand Management (TDM) measures identified in Section 6.0, peak hour parking demand is anticipated to be 173 vehicles.

The peak weekday parking demand occurs at 12:00pm. Without TDM, parking demand generated by the development is comprised of 49 David Brower Center employee vehicles, 24 visitor vehicles, 24 resident vehicles, and historic utilization of 110 public parking spaces. Visitor demand is highest in the late morning, afternoon, and evening, ranging from 9 to 24 spaces during these periods. Employee demand is relatively stable at 49 to 56 spaces during the 9:00am to 4:00pm work period. With the implementation of TDM measures, employee demand is reduced to 13-25 spaces. Residential demand 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 as part of Concept 2. This concept even results in excess parking capacity of at least 44-78 spaces depending on the implementation of specific TDM measures outlined later in this report. Parking Concept 1 is not anticipated to provide sufficient parking capacity to meeting the estimated demand generated by the OP&DBC and existing public parking even with the implementation of the TDM measures identified in Section 6.0 of this report. As indicated above, the average daily parking demand generated by the OP&DBC ranges from 49 to 56 spaces for employee parking and 9 to 24 spaces for visitor parking without TDM measures. These average daily parking generation figures are in 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 accommodate anticipated parking demand. One available mitigation measure would be to require employees who commute via automobile to the David Brower Center and the Oxford Plaza retail uses to purchase monthly parking passes at other public parking facilities located in downtown Berkeley. As discussed in Section 5.7 of this report, several other parking facilities in the downtown area do have available capacity 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 ¼ mile of the OP&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 public parking 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 facility except at the 12:00pm peak period.

Recommended Mitigations The mitigation measures summarized below apply only to the proposed Oxford Plaza and David Brower Center project. Specific mitigation measures for future developments on the 2176 Kittredge



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

The Fulton Street/Kittredge Street intersection is forecast to operate at LOS F during the PM peak hour 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 on Kittredge Street to provide one exclusive left turn lane and one exclusive right turn lane. This proposed mitigation will improve the average delay experienced at the intersection to 190.7 seconds in the Future With Project Conditions for Scenario 1. This average delay is lower than the Future No Project condition, which experiences an average delay of 243.7 seconds. Based on this observed improvement, the recommended mitigation addresses the traffic impact resulting from the proposed OP&DBC project. The City of Berkeley will monitor the intersection to ensure that this recommended mitigation sufficiently addresses the anticipated project impact. If additional mitigations are required, it is recommended that the City consider prohibiting the eastbound left turn movement during the PM peak period or signalizing the intersection.



1.0 INTRODUCTION This report documents the results of the traffic impact analysis and parking study performed for the Oxford Plaza and David Brower Center (OP&DBC). The traffic impact analysis has been completed in accordance with the City of Berkeley’s Guidelines for Traffic Studies. Traffic level of service calculation sheets for the existing, future, and future with project conditions are provided in the Appendix of this report.

1.1 REPORT SECTIONS This 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 DESCRIPTION The 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 urban development. The David Brower Center portion of the development includes office space, an auditorium, an art gallery, and meeting rooms. The Oxford Plaza portion of the development is comprised of 96 residential apartment units. The apartments are proposed to be affordable workforce housing, occupied by low and very-low income residents. The ground floor of the Oxford Plaza portion includes retail uses, a restaurant, an open courtyard, and a residential parking garage. An underground public parking facility owned and operated by the City of Berkeley also part of the design.

The property is located within Downtown Berkeley, adjacent to the UC Berkeley campus, two miles from the San Francisco Bay. The area is served by an extensive transit system, including the Bay Area Rapid 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 is therefore one of the most transit, pedestrian, and bike-accessible locations in the East Bay, with the potential 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 in the 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 change could be expanded to include an adjacent parcel at 2176 Kittredge Street. This site is currently occupied by a hand car wash. As part of this traffic and parking study, the impact of expanding the General Plan amendment and zone change to include the 2176 Kittredge parcel will be assessed in addition 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 access driveways will be provided for each parking facility.

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

FIGURE 1-1IBI Oxford Plaza and the David Brower Center

Proposed Site Plan

GROUND FLOOR PLAN

Residential Parking Access

Public Parking Access



2.0 ANALYSIS METHODOLOGY The 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 estimating the traffic-carrying ability of facilities based on operational conditions.

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

The level of service analysis was performed using the TRAFFIX and HiCAPv2 traffic impact analysis software programs. TRAFFIX is a network-based interactive computer program that enables calculation of levels of service at signalized and unsignalized intersections for multiple locations and scenarios. TRAFFIX also calculates signal timing (green times and cycle lengths) and maximum queue 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 and unsignalized intersections. The HiCAPv2 software is very effective at evaluating traffic conditions at individual intersections using the HCM methodology. The detailed intersection level of service calculation sheets are provided in the Appendix of this report.

2.1 SIGNALIZED INTERSECTIONS Traffic conditions at signalized intersections were evaluated using the 2000 HCM operations methodology 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 the portion of the total delay attributed to the traffic signal operation including deceleration delay, queue move-up time, stopped delay, and final acceleration delay. The relationship between controlled delay per vehicle and LOS for signalized intersections is summarized in Table 2.1.

The City of Berkeley’s 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 of Service Description of Traffic Conditions

Controlled Delay

(sec/veh)

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

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

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

D Tolerable delays: drivers may wait through more than one red indication. Queues may develop but dissipate rapidly, without excessive delays.

> 35 – 55

E Significant delays: volumes approaching capacity. Vehicles may wait through 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




Controlled Delay

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

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

2.2 UNSIGNALIZED INTERSECTIONS For 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. The relationship between controlled delay per vehicle and LOS for unsignalized intersections is summarized in Table 2.2.

For unsignalized intersections, the City of Berkeley’s traffic study guidelines do not use intersection level of service as the sole criterion for establishing impact. For these intersections, impacts are established 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


Controlled Delay

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

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

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

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



3.0 EXISTING CONDITIONS This section provides information on the transportation system that serves the project site, including the 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 NETWORK The proposed project site is on property currently occupied by the City of Berkeley’s Oxford public parking 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 California at Berkeley (UCB). The surrounding roadway network consists of the following streets, which are shown 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. Between University Avenue and Center Street, Shattuck Avenue branches into two separate one-way streets. The west branch has three southbound lanes, and the east branch has three northbound lanes. Shattuck Avenue has retail and commercial property along the east and west sides. On-street parking is available, and is separated from through traffic lanes by channelizing 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 Fulton Street 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 and fast food restaurants line the street, and there is high pedestrian activity between the University 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 Shattuck Avenue. 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 eastbound lanes.

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

3.2 PROJECT STUDY INTERSECTIONS Eleven 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 signalized except for #8) Oxford Street/Allston Way and #9) Fulton Street/Kittredge Street. Allston Way forms a T-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 Street and Fulton Street is uncontrolled.



Table 3.1 – Project Study Intersections

Project Intersection Control 1 Shattuck Avenue (SB) / Center Street Signalized 2 Shattuck Square (NB) / Center Street Signalized 3 Shattuck Avenue / Kittredge Street Signalized 4 Shattuck Avenue / Bancroft Way Signalized 5 Shattuck Avenue / Durant Avenue Signalized 6 Shattuck Avenue / Channing Way Signalized 7 Oxford Street / Center Street Signalized 8 Oxford Street / Allston Way EB Stop Sign 9 Fulton Street / Kittredge Street EB Stop Sign 10 Fulton Street / Bancroft Way (WB) Signalized 11 Fulton Street / Durant Avenue Signalized

3.3 TRANSIT SERVICE The Downtown Berkeley area is served by an extensive transit system, including bus service and the Bay Area Rapid Transit (BART) system. Transit service routes and frequencies are discussed in this section.

AC Transit Alameda County Transit (AC Transit) provides bus service in the city of Berkeley and throughout the East Bay. Existing bus stops located adjacent to the project site are illustrated in Figure 3-2. The number of bus stops per hour at project intersections during the AM peak and PM peak are presented in 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 67 TOTAL

EB 0 0 0 4 0 0 0 0 2 6 1. Shattuck Street /Center Street

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

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

3. Shattuck Street /Kittredge Street SB 2 3 0 0 4 4 7 2 0 22 NB 2 0 0 0 0 4 0 2 0 8 SB 2 0 0 0 0 4 0 2 0 8 5. Shattuck Street /Durant Avenue EB 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 6 11. Fulton Street /Durant Avenue EB 0 3 0 0 4 0 7 0 0 14 Source: http://www.actransit.org/riderinfo/schedules/index.html



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 67 TOTAL

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 8 NB 2 3 2 0 0 4 8 2 0 21

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

3. Shattuck Street /Kittredge Street SB 2 3 0 0 4 4 7 2 0 22 NB 2 0 0 0 0 4 0 2 0 8 SB 2 0 0 0 0 4 0 2 0 8 5. Shattuck Street /Durant Avenue EB 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 6 11. Fulton Street /Durant Avenue EB 0 3 0 0 4 0 7 0 0 14 Source: AC Transit Schedules http://www.actransit.org/riderinfo/schedules/index.html

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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 8th highest ridership level in the BART system. According to the California Department of Transportation’s (Caltrans) California Transit-Oriented Development (TOD) Database3, 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 the station are listed in Table 3.4. Four train lines operating between Richmond–San Francisco Airport/Millbrae and Richmond–Fremont 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 Percentage Walk 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 PARKING The current vehicle, bicycle, and pedestrian traffic counts are presented in this section. A discussion of existing trip distribution and mode choice percentages is also provided.

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

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

Allston Way

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

Figure 3-3 Study Intersection Turning Movement Volumes

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Figure 3-5 Select Intersection Bicycle and Pedestrian Volumes

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Figure 3-6 Select Intersection Bicycle and Pedestrian Volumes

Existing Condition - PM Peak

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Existing Intersection Level of Service Existing traffic, pedestrian, and bicycle counts, along with transit data were used to calculate the level of service at each of the project study intersections using HiCAPv2 software. The analysis input assumptions 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 Street operate at LOS F in the PM peak hour. Both intersections experience long delays for the eastbound left turn movement.

Table 3.5 – Existing LOS at Study Intersections

AM Peak Hour PM Peak Hour Intersection 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 0.536 2. 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 0.460 4. Shattuck Avenue / Bancroft Way Signalized 9.9 A 0.376 13.1 B 0.617 5. Shattuck Avenue / Durant Avenue Signalized 13.2 B 0.574 14.9 B 0.635 6. Shattuck Avenue / Channing Way Signalized 11.3 B 0.572 16.0 B 0.801 7. Oxford Street / Center Street Signalized 13.2 B 0.526 20.6 C 0.741 8. Oxford Street / Allston Way EB Stop Sign 27.8 D n/a 535.4 F n/a 9. Fulton Street / Kittredge Street EB Stop Sign 33.3 D n/a 122.8 F n/a 10. Fulton Street / Bancroft Way Signalized 9.5 A 0.371 12.5 B 0.540 11. Fulton Street / Durant Avenue Signalized 11.2 B 0.399 11.2 B 0.476 LOS – Level of Service

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

Non-Residential Trip Mode Choice Alameda County Travel Analysis Zone (TAZ) Trip Tables were used to obtain information relating to existing travel mode choice patterns within the area of Downtown Berkeley near the proposed Oxford Plaza 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 used to estimate a likely mode choice split for employees or visitors traveling to non-residential land uses in the OP&DBC.

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



• 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 alternative transportation modes. The mode split assumptions used for this analysis are based on the 1998 and 2010 Travel Analysis Zone Trip Tables for Alameda County, which are summarized in Table 3.6. The model data provides insight into recent and forecast travel mode splits for commute trips to parcels and developments located in close proximity to the Oxford Plaza parcel.

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

Mode Choice 1998 Percentage

2010 Percentage

2008 Estimated Percentage

Drive Alone 55.2% 49.3% 50.3% Carpool (2 passengers) 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 that TAZ 733 is about 0.5 square miles in size and includes the Downtown Berkeley BART station. Trip data contained in the regional model includes all parcels within this TAZ, some of which are more than ¼ mile from the BART station.

Typically, ¼ mile is considered to be a reasonable distance that people will walk to access a transit station. The OP&DBC parcel is located within 500 feet of the BART Station, well within a ¼ 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 to estimate non-residential trip generation for this project. Due to the proximity of the project site to the Downtown Berkeley BART station and to the University of California Berkeley campus, as well as the nature of the site usage, it is likely that a higher percentage of visitors will use transit, bicycle, and pedestrian modes of access than the zone average. The split estimate of 58% vehicle trips is a reasonable estimate for non-residential travel to and from this location.



Residential Trip Mode Choice Data from the 2000 United States Census was used to estimate the mode split for residential trips generated 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 3.7 summarizes 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 2000 Percentage

Drive 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 trips generated 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 transit services. Figure 3-8 illustrates the location of Census Tract 4229 and TAZ 733 in relation to the OP&DBC parcel.

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Figure 3-7

Ambient Traffic Distribution

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Project SiteCensus Tract 4229 and

MTC TAZ 733 Boundary

Figure 3-8 Berkeley, California

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

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



Existing Parking Utilization The 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 Berkeley for staff permit parking. The lot is controlled by an attendant who collects payment based on the duration 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 the day and time of week. By reviewing parking utilization at the existing Oxford Lot, parking demand peaks can be identified. Estimates of average utilization of the Oxford Plaza lot were developed using the vehicle entry volumes from the past three years, and are displayed in Figure 3-9. This exhibit shows the entry volumes for the current Oxford Lot from Monday-Saturday.

Oxford Street Parking Lot Entry Volumes

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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 recent studies (2001-2004) that incorporate a parking element. These studies include the Vista College DEIR and FEIR, and the Library Gardens DEIR, which consisted of several surveys of parking facility utilization in the Downtown area within the last three years. Based on the data presented below, the existing Oxford Lot public parking facility experiences a high level of utilization during weekdays and Saturday afternoon time periods.

Table 3.8 – Oxford Street Public Parking Lot Estimated Existing Utilization

Time Period Utilization Rate Weekday 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 no utilization data is available. Utilization rates assume a public space capacity of 122 spaces.



Accident Data A high level of pedestrian activity occurs near the project site, particularly between BART station access 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 measures to 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 area’s sidewalk network is relatively pedestrian-friendly. The City of Berkeley Southside/Downtown Transportation Demand Management Study Existing Conditions Report4 includes an evaluation of pedestrian level of service. Each roadway was assigned an LOS rating from A to F based on factors that relate to pedestrian comfort and safety, including public amenities, visual quality of the street, building facades, maintenance, lighting, landscaping, and street activity. All of the streets in the project study area had an LOS of A or B, except for the portion of Oxford/Fulton Street between Allston Way and Bancroft Way. According to the City of Berkeley report, this sidewalk segment operates at LOS D, which means “the street provides a poor pedestrian experience through a combination of narrow sidewalks, ill-defined streetwall, building scale that is out of scale to pedestrians, lack of landscaping, unsafe traffic conditions, or poor lighting.” Redevelopment in this area 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 Way approach, while through traffic on Oxford Street is uncontrolled. There is a triangular island within the crosswalk 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, as it resembles a free-right turn median, and gives drivers the impression that they have an open lane to turn into on Oxford Street. The median also gives pedestrians a false sense of security in an area with poor visibility. With five auto-pedestrian incidents during the four-year observation period, this intersection has been identified as a hazardous location and may require mitigation to address pedestrian safety issues.

Table 3.9 – Auto/Pedestrian Accidents Between 1995 and 1999

Intersection Auto/Pedestrian Accidents1. Shattuck Avenue / Center Street1 2 3. Shattuck Avenue / Kittredge Street 2 4. Shattuck Avenue / Bancroft Way 1 5. Shattuck Avenue / Durant Avenue 0 6. Shattuck Avenue / Channing Way 2 7. Oxford Street / Center Street 1 8. Oxford Street / Allston Way 5 9. Fulton Street / Kittredge Street 2 10. Fulton Street / Bancroft Way 1 11. Fulton Street / Durant Avenue 1 Source: 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) Shattuck Square/ Center Street was consolidated by the source.

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



4.0 FUTURE CONDITIONS WITHOUT PROJECT Traffic conditions in the buildout year are simulated by applying a traffic growth factor to the existing counts, 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 to significantly change existing travel patterns, so the trips were dispersed onto the network using the distribution assumption shown in Figure 3-7.

4.1 CUMULATIVE PROJECTS Cumulative projects are projects that have been approved by the City, are scheduled to be complete before the buildout year, and are forecast to generate vehicle trips within the project study area. The City of Berkeley staff identified one cumulative project for this analysis: a mixed-use development called Stadium Place that is currently under construction and is scheduled to be complete in the summer of 2005. It is located at 2310 Fulton Street, on the northwest corner of Fulton Street and Durant Avenue. The project consists of 74 rental apartments, 6,794 square feet of commercial floor area, and 18 parking spaces5.

Stadium Place Trip Generation Trip 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 to generate 7 vehicle trips during the AM peak hour and 21 vehicle trips during the PM peak hour. The calculation 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 Rates Land Use ITE

Code Unit Qty AM %In %Out

Auto Mode Factor

Trips In

Trips Out TOTAL*

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

Table 4.2 – Stadium Place Trip Generation Forecast – PM Peak


Code Unit Qty PM %In %Out

Auto Mode Factor

Trips In

Trips Out TOTAL*

Mid-Rise Apartment 223 DU 74 0.39 59% 41% 0.33 6 4 10 Specialty Retail Center 814 TGLA 6.8 2.71 44% 56% 0.58 5 6 11 TOTAL 11 10 21 DU – Dwelling units TGSF – Thousand gross square feet TGLA – 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.



4.2 INTERSECTION LEVELS OF SERVICE Table 4.3 summarizes the LOS for the 11 study intersections in the Future No Project Condition. The increases in traffic volumes reflect the ambient growth rate and new trips generated by the cumulative project. 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 are shown in Figure 4-1 and Figure 4-2.

Table 4.3 – Future (2008) Without Project LOS Summary


(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 0.657

5. 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

LOS – Level of Service

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5.0 FUTURE CONDITIONS WITH PROJECT As requested by the City of Berkeley, three levels of analysis were performed for the Future with Project 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. A General Plan Amendment and Zone Change have been proposed to increase the standards for the project parcel to allow a base building height of 5 stories and 4:1 FAR, with a downtown density bonus permitting a maximum building height of 7 stories and 6:1 FAR. As part of an alternative development scenario under consideration, the amendment could also affect the adjacent lot at 2176 Kittredge Street, which is currently utilized as an automated car wash.

Because the proposed project may include a General Plan Amendment and Zone Change, the development potential of the both 2200 Fulton Street parcel and the 2176 Kittredge Street parcel is increased. In order to understand the potential impact of the General Plan Amendment and Zone Change, the City requested that the potential worst-case development increase for each parcel be analyzed in addition to the proposed Oxford Plaza and David Brower Center project. This traffic analysis considers the traffic impacts of the Oxford Plaza project, as well as the impacts of the potential maximum allowable development on the Oxford parcel and the adjacent Kittredge parcel.

Three development scenarios were analyzed as part of the traffic impact analysis. These scenarios are identified below. Specific details on the land uses assumed in each scenario are provided in the following sections.

• Scenario 1 includes the trips generated by the OP&DBC as currently proposed. This analysis allows for an understanding of the impact resulting from this proposed project. Trips are generated from OP&DBC land uses alone, without the potential impacts from the General Plan amendment.

• Scenario 2 analyzes the impact of the OP&DBC as well as the new development potential of the 2176 Kittredge parcel. In this scenario, the analysis focuses on the difference between the current development potential of the Kittredge site and the new potential resulting from the General Plan Amendment and Zone Change. The purpose of this analysis is to understand the worst-case traffic impact of expanding the development potential for the Kittredge site. Trips are generated from OP&DBC land uses, as well as a hypothetical development on the 2176 Kittredge property.

• Scenario 3 involves analyzing the worst-case development potentials for both the 2200 Fulton parcel and the 2176 Kittredge parcel allowable under the General Plan amendment. The traffic impacts for this case are estimated assuming that both the 2200 Fulton Street and the 2176 Kittredge Street parcels are redeveloped to the maximum FAR with permitted land uses that generate the highest number of daily trips.

5.1 SCENARIO 1: OP&DBC DEVELOPMENT The trip generation and traffic impacts of the Oxford Plaza and the David Brower Center proposed development are discussed in this section. The cumulative effects of the potential redevelopment of the 2176 Kittredge site and the worst-case redevelopment scenarios for both lots under the General Plan Amendment are analyzed in subsequent sections.

Project Description The proposed project is Oxford Plaza and the David Brower Center (OP&DBC). Oxford Plaza is a six-story residential complex with 96 units of affordable workforce housing and 40 reserved parking spaces for the residential uses. Retail uses (8,700 square feet) occupy the ground-floor of this section of the building. The four-story multiuse David Brower Center contains:



• Office space (33,000 square feet)

• A Conference and Educational Facility (7,400 square feet)

• A Restaurant (3,400 square feet)

• Public parking (104 below-grade spaces)

The project site is 46,306 square feet in size. The proposed building footprint is 42,431 square feet and the proposed gross floor area is 163,067 square feet. These figures correspond to lot coverage of 91.6% and a floor area ratio (FAR) of 3.52.

Trip Generation The project vehicle trip generation for the OP&DBC was estimated using a two-step process. First, the total number of peak hour trips to the site was estimated using rates published in the Institute of Transportation Engineers (ITE) Trip Generation, 7th Edition. Tables 5.1 and 5.2 contain the trip calculation data for the AM and PM peak time periods. The ITE rates represent the total automobile trips generated by the development.

Based on the ITE rates, the project is expected to generate 121 trips during the weekday AM peak period, and 133 trips during the weekday PM peak time period. This total includes a reduction in restaurant trips attributed to pass-by trips, which are trips that are already in the existing traffic flow and decide to stop at a particular development or land use. For example, a trip to the restaurant may be made by someone who is traveling between work and home and decides to stop off for a meal in between destinations. Pass-by trips were estimated using Trip Generation, Version 5.6 This software program includes the ITE Trip Generation, 7th Edition trip generation rates and pass-by trip estimates.

The second step was to apply the Alameda County Transportation Analysis Model mode split percentages to the ITE trip generation figures. Table 5.3 summarizes this process. As noted in Section 3.4, the 58% of the non-residential generated trips are expected to use the passenger vehicle mode, while 33% of the trips generated by residential uses will use automobiles. These mode splits result in a forecast of 64 vehicle trips during the AM peak period and 68 vehicle trips during the PM peak period. The project is not expected to significantly change existing travel patterns in the area, so project trips were dispersed onto the network using the existing ambient traffic distribution shown in Figure 3-7. AM peak hour project-added trips and turning movement volumes are shown in Figure 5-1 and Figure 5-2. The PM peak hour project-added trips and turning movement volumes are shown in Figure 5-3 and Figure 5-4.

Table 5.1 – ITE Trip Generation for the Weekday AM Peak Hour of Adjacent Street Traffic


Code Unit Qty AM %In %Out

Trips Pass-

By Trips

TOTAL*

Mid-Rise Apartment 223 DU 96 0.30 30% 70% 29 0 29 General Office Building 710 TGSF 34.4 1.55 88% 12% 53 0 53 Specialty Retail Center 814 TGLA 8.7 0 NA NA 0 0 0 High Turnover (Sit-Down) Restaurant 932 TGSF 3.4 11.52 52% 48% 39 0 39

TOTAL 121 0 121 DU – Dwelling units TGSF – Thousand gross square feet TGLA – Thousand gross square feet of leasable area * Total volume added to adjacent streets, assuming all trips are made by single occupancy vehicles.

6 Trip Generation by Microtrans, Version 5, Microtrans, Inc., 2003.



Table 5.2 – ITE Trip Generation for the Weekday PM Peak Hour of Adjacent Street Traffic


Code Unit Qty PM %In %Out

Trips Pass-

By Trips

TOTAL*

Mid-Rise Apartment 223 DU 96 0.39 59% 41% 37 0 37 General Office Building 710 TGSF 34.4 1.49 17% 83% 51 0 51 Specialty Retail Center 814 TGLA 8.7 2.71 44% 56% 24 0 24 High Turnover (Sit-Down) Restaurant 932 TGSF 3.4 10.92 61% 39% 37 16 21

TOTAL 149 16 133 DU – Dwelling units TGSF – Thousand gross square feet TGLA – Thousand gross square feet of leasable area * Total volume added to adjacent streets, assuming all trips are made by single occupancy vehicles.

Table 5.3 – Trip Generation Adjustment by Mode Split

Trips Adjusted Trips Land Use Unit Qty

AM PM

Auto Mode Factor AM PM

Mid-Rise Apartment DU 96 29 37 0.33 10 12 General Office Building TGSF 34.4 53 51 0.58 31 30 Specialty Retail Center TGSF 8.7 0 24 0.58 0 14 High Turnover (Sit-Down) Restaurant TGSF 3.4 39 21 0.58 23 12

TOTAL 121 133 64 68 The mode split reduction factor is based on data from the Alameda County Regional Model for Zone 733 and 2000 US Census data. Pass-by trips can be determined from auto trips either in the method shown above or after the mode split adjustment occurs in Table 5.3. Both methods result in an estimated 12 trips generated by the restaurant in the PM peak hour.

Most peak hour trips generated by the David Brower Center are anticipated to come from the office space and the restaurant uses. The Conference and Educational Facility, which is also part of the Center, is not expected to generate a significant number of trips during peak hours. The Conference and Educational Facility consists of an auditorium, meeting rooms, and a gallery to benefit organizations and the community. It is expected that this land use will typically be utilized during off-peak and evening hours. Traffic generated by events that attract a large number of visitors (up to 200) may be handled through a Traffic Demand Management Plan. Proposed strategies that could be employed as part of a Traffic Demand Management Plan are discussed in Section 5.4.

Allston Way

Kittredge St

Bancroft Way

Durant Ave

Channing Way

Haste St

Center St

Addison St

University Ave

Dwight Way

Bancroft Way

Shattuck A

ve

Fulton St

Ellsw

orth St

Oxford S

t

Milvia S

t

Shattuck A

ve



LEGEND

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Figure 5-1 Project Added Trips - AM Peak

Scenario 1: OP&DBC Proposed Development Impacts

# #

3

3

2

5

14

22

4

14

1

3

4

5

6

11

10

9

8

7

2

4

13

1

2

3

8

1

52

31

2

5

2

3

11

6

5

5

11

6

8

4

12

1

2

1

1

1

NOTE: Trip distribution values are rounded to the nearest whole number, therefore partial trips may not be reflected at the project intersections.

Allston Way

Kittredge St

Bancroft Way

Durant Ave

Channing Way

Haste St

Center St

Addison St

University Ave

Dwight Way

Bancroft Way

Shattuck A

ve

Fulton St

Ellsw

orth St

Oxford S

t

Milvia S

t

Shattuck A

ve



LEGEND

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Figure 5-2 Study Intersection Volumes - AM Peak

Scenario 1: OP&DBC Proposed Development

# #

31 44

686

735

2875

18

23

16

49

52107

23 281

77618128

114

55

838

808

17

69

12364

29

1

3

4

5

6

11

10

9

8

7

2

58

815

897

10721

3

25

28138

50 52

806

1062

2920

50

110

19

34

10334

265

670453

138

25

193

1087

123

93

90

18

1066

738

113

22

68

37

1119

640

36

17

45

21

14 10

1337

653

1448

5

29

18

43

3690

18 182

602

217

65109

Allston Way

Kittredge St

Bancroft Way

Durant Ave

Channing Way

Haste St

Center St

Addison St

University Ave

Dwight Way

Bancroft Way

Shattuck A

ve

Fulton St

Ellsw

orth St

Oxford S

t

Milvia S

t

Shattuck A

ve



LEGEND

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Figure 5-3 Project Added Trips - PM Peak

Scenario 1: OP&DBC Proposed Development Impacts

# #

1

2

3

10

9

11

9

9

1

3

4

5

6

11

10

9

8

7

2

9

9

1

1

6

5

3

32

53

1

10

1

2

7

11

10

3

7

11

5

8

11

12

1

2

2

1

2

1


Allston Way

Kittredge St

Bancroft Way

Durant Ave

Channing Way

Haste St

Center St

Addison St

University Ave

Dwight Way

Bancroft Way

Shattuck A

ve

Fulton St

Ellsw

orth St

Oxford S

t

Milvia S

t

Shattuck A

ve



LEGEND

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Figure 5-4 Study Intersection Volumes - PM Peak

Scenario 1: OP&DBC Proposed Development

# #

33 42

902

952

17119

59

48

20

52

8785

51 356

88440160

2934

92

1099

1032

42

171

31151

65

1

3

4

5

6

11

10

9

8

7

2

72

1181

1086

99237

19

66

6388

59 116

1280

1356

2043

92

172

23

74

7371

236

804554

162

50

368

1266

153

225

187

15

1232

1027

103

33

86

42

1041

936

36

92

22

28

6 13

1416

941

1963

4

55

41

65

8111

67 272

981

5524

92111



Traffic Impacts The trips generated by the OP&DBC development were distributed throughout the network using the trip distribution assumptions shown in Figure 3-7. The resulting study intersection LOS values are listed in Table 5.4

Table 5.4 – Scenario 1: Future With Project LOS at Study Intersections


(Sec) LOS V/C Delay

(Sec) LOS V/C









9. Fulton Street / Kittredge Street EB Stop Sign 54.2 F n/a 811.5 F n/a


11. Fulton Street / Durant Avenue Signalized 11.3 B 0.426 11.5 B 0.511 LOS – Level of Service

Two intersections have a LOS of E or F in the Future with Project condition during the AM peak, PM peak, or both peak periods. According to the City of Berkeley traffic analysis guidelines, for intersections that are at LOS E or F for project conditions, a volume-to-capacity ratio (v/c) increase of 0.01 or more is considered a significant impact. Traffic conditions at the two intersections are discussed in the following sections.

Oxford Street / Allston Way The unsignalized intersection of Oxford Street and Allston Way is currently operating at LOS F during the PM peak period. The critical movement at this intersection is the eastbound left turn from Allston Way onto Oxford Street. As shown in Figure 5-3, the project generates 11 northbound trips and 7 southbound trips through this intersection during the peak hour, which increases the delay from 906 seconds in the future without project scenario to 962 seconds. This impact is not considered to be significant based on the City of Berkeley Traffic Impact Analysis Guidelines.

Signal Warrant Analysis A signal warrant analysis was conduct for the Oxford Street/Allston Way intersection to determine if a traffic signal should be installed at this intersection. Oxford Street has two northbound lanes and two southbound lanes at this intersection, with a total combined approach volume of 2,041 vehicles during the PM peak hour. Allston Way has one approach lane, with a volume of 114 vehicles during this time period. The geometry and PM peak hour future with project volumes are shown in Figure 3-1 and Figure 5-4, respectively. These volumes satisfy Warrant 3, Peak Hour of the traffic signal warrants for the need for traffic control signal, as stated in Chapter 4C of the Manual on Uniform Traffic Control



Devices (MUTCD). Figure 5-5 shows a graph depicting numerical values for Warrant 3 from the 2003 Edition of the MUTCD.

Fulton Street / Kittredge Street The unsignalized intersection of Fulton Street and Kittredge Street is currently operating at LOS F during the PM peak period. The critical movement at this intersection is the unprotected eastbound left turn from Kittredge Street onto Fulton Street. This intersection is closest to the project site access driveway, and provides a major connection to the rest of the network. The project generates 31 trips through this intersection during the PM peak hour, which increases the delay from 243 seconds in the future without project scenario to 811 seconds.

Signal Warrant Analysis A signal warrant analysis was conduct for the Fulton Street/Kittredge Street intersection to determine if a traffic signal should be installed at this intersection. Fulton Street has two northbound lanes and two southbound lanes at this intersection, with a total combined approach volume of 2,405 vehicles during PM peak hour. Kittredge Street has one approach lane, with a volume of 119 vehicles during this time period. The geometry and PM peak hour future with project volumes are shown in Figure 3-1 and Figure 5-4, respectively. These volumes satisfy Warrant 3, Peak Hour of the traffic signal warrants for the need for a traffic control signal, as stated in Chapter 4C of the Manual on Uniform Traffic Control Devices (MUTCD). Figure 5-5 shows a graph depicting numerical values for Warrant 3 from the 2003 Edition of the MUTCD.

Figure 5-5: Warrant 3, Peak Hour Graph from Chapter 4C of the MUTCD.



5.2 SCENARIO 2: OP&DBC PLUS 2176 KITTREDGE STREET FAR INCREASE The proposed change to the General Plan would increase the allowable building height on the project site by two stories. The amendment also affects the adjacent lot at 2176 Kittredge Street, and increases the potential density if the property was redeveloped. In this section, the traffic impacts of the additional two stories of building area are evaluated in addition to the OP&DBC development impacts.

For evaluation purposes, the most reasonable land use scenario that generates the greatest number of trips was used. If the car wash site was redeveloped into an office building that covered the entire lot, then the traffic impact would be due to the trips generated by office space with an area twice the size of the property. The lot at 2176 Kittredge has an area of 21,350 square feet, which corresponds to 42,700 square feet of general office land use. Only the two additional stories of office floor area were included in the analysis to understand the traffic impact specifically associated with the General Plan Amendment and Zone Change. The full impacts of a new development on the 2176 Kittredge parcel would be evaluated as part of that project’s development application. This analysis would also include a reduction factor to account for trips generated by the existing car wash.

The trip generation for the OP&DBC plus the development potential of the FAR increase on the 2176 Kittredge site is listed in Table 5.5. As was the case with the OP&DBC analysis, the mode split factor was applied to the trip generation rates. The project is not expected to significantly change existing travel patterns in the area, so project trips were dispersed onto the network using the ambient traffic distribution shown in Figure 3-7. The AM peak hour project-added trips and turning movement volumes are shown in Figure 5-6 and Figure 5-7. The PM peak hour project-added trips and turning movement volumes are shown in Figure 5-8 and Figure 5-9.

Table 5.5 – OP&DBC Proposed Project Plus 2176 Kittredge Allowable Area Increase

AM Peak Hour PM Peak Hour Land Use Qty

Drive Alone Factor

ITE Rate Trips ITE

Rate Trips

2200 Fulton Street Mid-Rise Apartment (DU) 96 0.33 0.3 10 0.39 12 General Office Building (TGSF1) 34.4 0.58 1.55 31 1.49 30 Specialty Retail Center (TGSF1) 8.7 0.58 0 0 2.71 14 High Turnover Restaurant (TGSF1) 3.4 0.58 11.52 23 6.19 12

2176 Kittredge Street General Office Building (TGSF1) 42.72 0.58 1.55 38 1.49 37 TOTAL 102 105 1 TGSF – Thousand Gross Square Feet 2 The lot at 2176 Kittredge Street has an area of approximately 21,350 square feet. The two additional stories allowable under the General Plan amendment would provide 42,700 square feet of additional floor area for development.

Allston Way

Kittredge St

Bancroft Way

Durant Ave

Channing Way

Haste St

Center St

Addison St

University Ave

Dwight Way

Bancroft Way

Shattuck A

ve

Fulton St

Ellsw

orth St

Oxford S

t

Milvia S

t

Shattuck A

ve



LEGEND

IBI



Scenario 2: OP&DBC With FAR Increase on Adjacent Parcel

# #

3

6

2

6

27

33

5

27

1

3

4

5

6

11

10

9

8

7

2

5

25

2

4

4

15

2

95

32

4

6

4

5

19

7

6

8

19

7

14

5

24

1

4

1

1

11

1

1

1

1


Allston Way

Kittredge St

Bancroft Way

Durant Ave

Channing Way

Haste St

Center St

Addison St

University Ave

Dwight Way

Bancroft Way

Shattuck A

ve

Fulton St

Ellsw

orth St

Oxford S

t

Milvia S

t

Shattuck A

ve



LEGEND

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Scenario 2: OP&DBC Plus FAR Increase

# #

31 44

686

735

3175

18

24

16

49

65107

24 282

77819128

115

55

839

821

18

69

12364

29

1

3

4

5

6

11

10

9

8

7

2

58

816

909

10721

4

25

28238

50 52

807

1069

2921

54

110

22

34

10334

265

670454

140

25

193

1088

125

93

90

18

1066

738

122

23

69

40

1128

641

36

17

45

21

14 10

1343

654

1448

5

30

18

45

3791

20 182

602

217

65109

Allston Way

Kittredge St

Bancroft Way

Durant Ave

Channing Way

Haste St

Center St

Addison St

University Ave

Dwight Way

Bancroft Way

Shattuck A

ve

Fulton St

Ellsw

orth St

Oxford S

t

Milvia S

t

Shattuck A

ve



LEGEND

IBI



Scenario 2: OP&DBC With FAR Increase

# #

1

2

6

17

12

11

16

12

1

3

4

5

6

11

10

9

8

7

2

16

11

1

2

11

7

4

42

94

2

17

2

2

8

19

17

4

8

19

6

13

12

14

2

3

3

1

3

1

1

1


Allston Way

Kittredge St

Bancroft Way

Durant Ave

Channing Way

Haste St

Center St

Addison St

University Ave

Dwight Way

Bancroft Way

Shattuck A

ve

Fulton St

Ellsw

orth St

Oxford S

t

Milvia S

t

Shattuck A

ve



LEGEND

IBI



Scenario 2: OP&DBC Plus FAR Increase

# #

33 43

902

952

17119

62

55

20

52

9085

51 356

88441160

2934

92

1106

1035

42

171

31151

65

1

3

4

5

6

11

10

9

8

7

2

72

1188

1088

99237

19

66

6488

59 116

1285

1358

2044

93

172

24

74

7371

236

808555

162

50

368

1273

153

225

187

15

1232

1027

105

41

93

42

1042

944

36

92

22

28

6 13

1417

946

1963

4

55

41

66

8113

68 273

983

5724

92112



Traffic Impacts The LOS at each intersection for this scenario is summarized in Table 5.6. The impacts are similar to those in Scenario 1, with slightly higher delay at some intersections but no change in LOS. Detailed reports are available in the Appendix.



(Sec) LOS V/C Delay

(Sec) LOS V/C












Two intersections have a LOS of E or F in the Future with Project Scenario 2 condition during the AM peak, PM peak, or both peak periods. These intersections are identified below.

Oxford Street / Allston Way The unsignalized intersection of Oxford Street and Allston Way is currently operating at LOS F during the PM peak period. As shown in Figure 5-8, the project generates 19 northbound trips and 8 southbound trips through this intersection during the PM peak hour, which increases the delay from 906 seconds in the future without project scenario to 976 seconds. This impact is not considered to be significant based on the City of Berkeley Traffic Impact Analysis Guidelines.

Fulton Street / Kittredge Street The intersection of Fulton Street and Kittredge Street is warranted for signal control under the future with project conditions. If signalized, the intersection is forecast to operate at LOS A, even with the potential traffic impacts that could result from development increases allowable under the General Plan amendment.

5.3 SCENARIO 3: MAXIMUM INTENSITY REDEVELOPMENT If the General Plan amendment is approved, it would increase the potential development density on both the 2200 Fulton parcel and the 2176 Kittredge parcel. If the OP&DBC is not completed as planned, or if the property is redeveloped in the future, different traffic impacts may be involved. To evaluate the maximum reasonable traffic impacts of the General Plan amendment, the 2200 Fulton site was evaluated as a 5-story facility that covers the entire lot, with four stories of general office



space and one story of ground floor retail. The two-story increase on the 2176 Kittredge property is included in this analysis, as described in Scenario 2.

The trip generation for this scenario is listed in Table 5.7. The AM peak hour project-added trips and turning movement volumes are shown in Figure 5-10 and Figure 5-11. The PM peak hour project-added trips and turning movement volumes are shown in Figure 5-12 and Figure 5-13.

Table 5.7 – Scenario 3: Maximum Allowable Development

AM Peak Hour PM Peak Hour Land Use Qty

Drive Alone Factor

ITE Rate Trips ITE

Rate Trips

2200 Fulton Street General Office Building (TGSF1) 185.22 0.58 1.55 166 1.49 160 Specialty Retail Center (TGSF1) 46.33 0.58 0 0 2.71 73

2176 Kittredge Street General Office Building (TGSF1) 42.74 0.58 1.55 38 1.49 37 TOTAL 204 270 1 TGSF – Thousand Gross Square Feet 2 The Oxford lot has an area of 46,300 square feet. Four stories of office space covering the entire lot would have an area of 185.2 square feet. 3 One story of retail covering the Oxford lot would have an area of 46,300 square feet. 4 The lot at 2176 Kittredge Street has an area of approximately 21,350 square feet. The two additional stories allowable under the General Plan amendment would provide 42,700 square feet of floor area.

Traffic Impacts The LOS at each intersection for this scenario is summarized in Table 5.8. The impacts are similar to those in Scenario 1, with higher delay at some intersections but no change in LOS. Detailed HiCAPv2 reports are available in the Appendix.



(Sec) LOS V/C Delay

(Sec) LOS V/C







7. Oxford Street / Center Street Signalized 18.5 B 0.667 37.9 D 0.970







(Sec) LOS V/C Delay

(Sec) LOS V/C


Two intersections have a LOS of E or F in the Future with Project Scenario 3 condition during the AM peak, PM peak, or both peak periods. These intersections are identified below.

Oxford Street / Allston Way The unsignalized intersection of Oxford Street and Allston Way is currently operating at LOS F during the PM peak period. As shown in Figure 5-8, the project generates 52 northbound trips and 17 southbound trips through this intersection during the PM peak hour, which increases the delay from 906 seconds in the future without project scenario to 1,078 seconds. This impact is not considered to be significant based on the City of Berkeley Traffic Impact Analysis Guidelines.

Fulton Street / Kittredge Street The intersection of Fulton Street and Kittredge Street is warranted for signal control under the future with project conditions. If signalized, the intersection is forecast to operate at LOS A, even with the potential traffic impacts that could result from development increases allowable under the General Plan amendment.

Allston Way

Kittredge St

Bancroft Way

Durant Ave

Channing Way

Haste St

Center St

Addison St

University Ave

Dwight Way

Bancroft Way

Shattuck A

ve

Fulton St

Ellsw

orth St

Oxford S

t

Milvia S

t

Shattuck A

ve



LEGEND

IBI



Scenario 3: Worst Case Maximum Development Impacts

# #

7

14

2

6

63

88

5

63

1

3

4

5

6

11

10

9

8

7

2

5

59

4

9

4

36

2

2211

32

9

6

9

11

46

6

6

20

46

6

32

5

410

1

10

1

1

22

1

1

1

1


Allston Way

Kittredge St

Bancroft Way

Durant Ave

Channing Way

Haste St

Center St

Addison St

University Ave

Dwight Way

Bancroft Way

Shattuck A

ve

Fulton St

Ellsw

orth St

Oxford S

t

Milvia S

t

Shattuck A

ve



LEGEND

IBI



Scenario 3: Worst Case Maximum Development

# #

35 44

686

735

3975

18

24

16

49

101107

25 282

78224128

116

55

839

857

17

69

12364

29

1

3

4

5

6

11

10

9

8

7

2

58

816

943

10721

6

25

28738

50 52

807

1089

2921

67

110

28

34

10334

265

670454

145

25

193

1088

130

93

90

18

1066

738

148

22

69

52

1154

641

36

17

45

21

14 10

1362

653

1448

5

32

18

51

3791

26 182

602

217

65109

Allston Way

Kittredge St

Bancroft Way

Durant Ave

Channing Way

Haste St

Center St

Addison St

University Ave

Dwight Way

Bancroft Way

Shattuck A

ve

Fulton St

Ellsw

orth St

Oxford S

t

Milvia S

t

Shattuck A

ve



LEGEND

IBI



Scenario 3: Worst Case Maximum Development Impacts

# #

4

5

15

43

22

33

39

22

1

3

4

5

6

11

10

9

8

7

2

39

20

1

3

31

13

8

83

2512

3

47

3

4

17

52

47

7

17

52

12

37

14

411

4

9

9

11

4 2

2

12

4


Allston Way

Kittredge St

Bancroft Way

Durant Ave

Channing Way

Haste St

Center St

Addison St

University Ave

Dwight Way

Bancroft Way

Shattuck A

ve

Fulton St

Ellsw

orth St

Oxford S

t

Milvia S

t

Shattuck A

ve



LEGEND

IBI



Scenario 3: Worst Case Maximum Development

# #

36 52

902

952

20119

71

81

20

52

10085

52 359

88642160

2935

92

1129

1045

45

171

31151

65

1

3

4

5

6

11

10

9

8

7

2

72

1211

1097

99237

19

66

6588

59 116

1305

1364

2048

97

172

24

74

7371

236

824563

164

50

368

1303

155

225

187

15

1232

1027

114

74

123

46

1051

978

36

92

22

28

6 13

1423

970

1963

4

55

41

68

11120

70 274

989

6324

92113



5.4 PARKING IMPACTS Parking demand and supply were analyzed only for the Oxford Plaza & David Brower Center. The City of Berkeley did not require analysis of parking demand created by the worst-case development scenarios. Parking demand for these scenarios will be analyzed in the future in conjunction with specific development proposals for these sites.

The City of Berkeley Zoning Code was used to determine the required number of parking spaces for the land uses proposed in the OP&DBC. Table 5.9 summarizes the size and type of uses planned and identifies the minimum parking requirements outlined by the City of Berkeley Zoning Code.

Table 5.9 – City of Berkeley Zoning Code Parking Requirements

Land Use Proposed Sq. Ft. Parking Requirement Required

Spaces

Office 33,000 1.5 spaces/1,000 sqft of gross floor area of applicable non-residential space* 50

Conference and educational facility 7,400 1.5 spaces/1,000 sqft of gross floor area of

applicable non-residential space* 11

Restaurant 3,300 1.5 spaces/1,000 sqft of gross floor area of applicable non-residential space* 5

Retail 8,400 1.5 spaces/1,000 sqft of gross floor area of applicable non-residential space* 13

Affordable multi-family housing

100,560 (96 units) One per 1,200 sqft of gross floor area** 84

Total SqFt 152,660 Total Non-Residential Parking Required 79* City of Berkeley Zoning Code Section 23E.68.080 Total Residential Parking Required 84** Zoning Code Section 23E.68.070 Total Parking Required by Code 163

Required Parking to Replace Existing Surface Parking 110

Total Parking Required per Code and for Replacement of Existing Parking 273

Project Parking Supply Parking for the OP&DBC will be provided by an underground parking structure accessible from Kittredge Street. The parking structure will be separated into two distinct sections accessed from separate driveways. The first section will be located at-grade, providing 40 parking spaces for the planned residential units. The second parking section will be an underground public parking garage, operated by the City of Berkeley.

Several factors are considered in the identification of the preferred public parking configuration, including:

• Estimated parking demand,

• Existing City parking requirements for the new development, and

• Cost of construction for each parking concept.

There are two alternatives under consideration for the public garage. The first concept provides one level of underground public parking; the second provides two levels of underground public parking. A summary of the capacity of both concepts is included in Table 5.10.



Table 5.10 – Parking Concepts: Oxford Street Development

Parking Entrance Configuration

Two parking entries located on Kittredge Street. One entry for public parking access and one for residential parking.

Concept 1 Concept 2

Public Parking Lot Type One level below grade Two levels below grade Number of Public/Non-Residential Spaces 104 211

Number of Residential Spaces (street level) 40 40

Total Parking Spaces 144 251

Residential Parking Comparison Based on observations of other residential developments in downtown Berkeley, it appears that the Zoning Code residential parking requirements are too conservative and may result in excess parking capacity, particularly if shared parking strategies and Transportation Demand Management (TDM) measures are implemented.

It is important to note that the Berkeley Zoning Code residential parking requirement is reduced to 1 space per 3 units for projects in the Downtown area that are exclusively residential. This requirement means that mixed use projects in Downtown Berkeley are required by Code to provide more residential parking than projects that are exclusively residential. Mixed-use developments would arguably require less residential parking compared to developments that are exclusively residential since the mixed-use developments encourage pedestrian activity and reduce their residents’ reliance on automobiles.

There have been several residential and mixed use developments throughout downtown Berkeley that have set a precedent for lower residential parking capacity in establishing lower needs from those identified in the zoning code. For example, the Gaia Building provides 41 parking spaces for 91 residential units. Also, the Shattuck Avenue Lofts provide 14 parking spaces for 24 residential units. Table 5.11 shows a comparison of residential parking supply provided by various residential and mixed use developments in downtown Berkeley.

Table 5.11 – Downtown Berkeley Parking Spaces Per Residential Unit

Development Parking Spaces Residential Units Space/Unit Gaia Building 41 91 0.45 The ARTech Building 12 21 0.57 Shattuck Avenue Lofts 14 24 0.58 The Berkeleyan 39 56 0.70 Stadium Place 18 74 0.24

As shown in Table 5.11, recent housing developments in downtown Berkeley provide between 0.24 and 0.70 residential parking spaces per unit. For comparison purposes, these space per unit ratios and the two Berkeley Zoning Code standards were applied to the proposed 96 Oxford Plaza residential units. The results of this comparison are summarized in Table 5.12 below.



Table 5.12 – Residential Parking Space Ratios Applied to Oxford Plaza

Source of the Space/Unit Ratio Space/Unit Comparable Number of Parking Spaces

Gaia Building 0.45 43 The ARTech Building 0.57 55 Shattuck Avenue Lofts 0.58 56 The Berkeleyan 0.70 67 Stadium Place 0.24 23 Berkeley Zoning Code Residential Projects 0.33 32 Berkeley Zoning Code Mixed-Use Projects 1/1,200 sqft 84

As shown in Table 5.12, the Berkeley Zoning Code requirement for one residential parking space for every 1,200 square feet of gross floor area results in a very conservative estimate for required residential parking. There are several examples of other developments in Downtown Berkeley adequately serving residential parking demand with lower space to unit ratios than what is required by code for Oxford Plaza. These precedents suggest that a lower parking requirement could meet anticipated residential parking demand at the Oxford Plaza development.

Non-Residential Parking Generation Estimates The analysis of parking demand from the non-residential uses in the David Brower Center looked at the generation rates and the expected time periods when each land use would likely generate its greatest demand for parking. The OP&DBC includes a mix of land uses including offices, retail, a restaurant, and conference/meeting space for special events. It should be noted that the time periods where these land uses generate the greatest demand for parking do not usually overlap.

The City of Berkeley Zoning Code parking regulations provides the most conservative approach for estimating parking demand generated by the proposed non-residential uses in the David Brower Center. The Berkeley Zoning Code requires 79 spaces based on the non-residential square footage. Parking management and reductions to parking generation rates identified by this analysis will use these standards as the starting point for comparison.

The project developer has surveyed the expected tenants of the office space at the David Brower Center to determine the current transportation modes used by their employees for the daily commute. The office uses within the David Brower Center have the highest level of required parking per the Berkeley Zoning Code, so reducing parking generation rates from the office tenants would have the greatest benefit in reducing parking demand from the new development. The employees of the currently proposed office tenants at the David Brower Center rely heavily on transit and other alternative modes of transportation for work trips. Table 5.13 summarizes the results of the travel mode survey for each of the known office tenants.

Table 5.13 – Anticipated Commute Modes for Employees at David Brower Center

Place of Residence Commute by Transit/Bike/

Carpool Commute by

SOV Tenant Leased Area

# of Empl. East

Bay SF Other # of Empl. % # of

Empl. %

Center for EcoLiteracy 3,000 10 3 4 3 5 50% 5 50%

Ran 10,000 31 25 5 1 29 94% 2 6%



Place of Residence Commute by Transit/Bike/

Carpool Commute by

SOV Tenant Leased Area

# of Empl. East

Bay SF Other # of Empl. % # of

Empl. %

Earth Island Institute 10,000 40 13 27 0 38 95% 2 5%

Total 23,000 81 41 38 4 72 89% 9 11% Source: Equity Community Builders and individual organizations identified in the table above. SOV = Single Occupancy Vehicle

Typical Parking Demand

A parking accumulation estimate was developed for a typical weekday to determine average primary demand for the non-residential uses in the David Brower Center. Tables 5.14 and 5.15 summarize the results of this analysis. Estimated weekday parking demand rates for the non-residential uses in the David Brower Center were developed using several sources of information, including the mode choice data summarized earlier in this report, Institute of Transportation Engineers (ITE) parking generation data, and the employee commute modes summarized above in Table 5.13. The baseline assumptions associated with the parking demand accumulation analysis are summarized below:

• The parking demand and accumulation rates shown in Tables 5.14 and 5.15 do not take into account any transportation demand management (TDM) measures implemented at the David Brower Center. The estimates are based on survey data from the proposed office tenants and mode split data obtained from the regional model.

• The employee commuter survey data in Table 5.13 was used to identify parking demand for the office uses accounting for 23,000 of the 33,000 square feet allocated to office space.

• Parking demand for the remaining 10,000 square feet of office space was calculated using the regional model mode split percentages, assuming 58% of trips are made via automobile.

• Visitor parking demand for office uses was developed using ITE daily trip generation rates and subtracting employee trips. Visitor mode split matches the regional mode split percentages. Visitor parking demand was distributed proportionally throughout the day with an assumed midday peak, similar to the existing pattern for the Oxford Plaza public lot.

• Retail employees were estimated using a rate of 2.3 employees per thousand square feet. Parking demand for retail customers is based on ITE estimates for peak parking demand. Adjustments were made for both employee and customer parking demand rates to match regional model mode split percentages (i.e. peak parking demand was assumed to be 58% of ITE estimated figure, consistent with regional mode split for single occupancy vehicle trips for this TAZ).

• Restaurant employees were estimated using a rate of 3.2 employees per thousand square feet. Parking demand for restaurant customers is based on ITE estimates for peak parking demand. Adjustments were made for both employee and customer parking demand rates to match regional model mode split percentages consistent with the retail uses.



Table 5.14 – Weekday Parking Accumulation Estimates for Brower Center and Retail Employees

Table 5.15 – Weekday Parking Accumulation Estimates for Brower Center and Retail Visitors

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As shown in Tables 5.14 and 5.15, the peak demand periods for the non-residential uses in the David Brower Center will occur during the midday and late afternoon time periods. The midday time period represents the peak demand period for the office uses, with retail uses peaking in the midday and evening time periods. The restaurant peak demand period occurs in the early evening after most of office parking demand has dissipated. However, the restaurant parking demand is expected to increase in the afternoon in anticipation of the evening peak, creating a higher overall rate of demand for the David Brower Center.

It is important to note that these parking generation and accumulation estimates do not factor in the meeting and conference facilities proposed for the David Brower Center. The parking demand for these uses is more difficult to quantify since the use of these facilities will not be as consistent as the office, retail, and restaurant uses. The analysis of parking for the meeting and conference facilities at the David Brower Center is discussed in the following section.

Special Events and Meetings The conference center and meeting facilities at the David Brower Center would be utilized by the organizations operating in the building and other similar groups in the Bay Area for special conferences and events. The anticipated maximum demand for parking that could be generated by these uses is discussed in this section.

The proposed David Brower Center development allocates 7,400 square feet to the conference and meeting facilities. These facilities include a small gallery, several small meeting rooms and an auditorium. The developer estimates that these conference facilities could accommodate a maximum of 150 to 200 people for special events.

Maximum parking demand for the conference facility was estimated assuming an event that draws 200 people to the David Brower Center. Using the mode split data for the Oxford Plaza area identified by the regional model (54.1% automobile), a large event would generate demand for as many as 108 parking spaces beyond those identified in Tables 5.14 and 5.15. Events on this scale would be infrequent, with a majority of the conferences and events drawing fewer than 100 people. It should also be noted that many of the events held at the David Brower will be environmentally themed, potentially attracting attendees who are more likely to use alternative transportation modes than the population as a whole.

Large events held during the midday hours on weekdays combined with the standard office, retail, and restaurant uses would generate a substantial amount of demand for parking at Oxford Plaza. Proposed Traffic Demand Management strategies to mitigate the demand for parking include:

• The David Brower Center will be managed by full-time on-site staff members. These staff members will be responsible for event scheduling, advertising and management. The staff members will be trained in the Traffic Demand Management strategies developed in this report, ensuring that these strategies will be coordinated with large events.

• If large events (greater than 100 people) are scheduled during weekday or weekend peak hours, attendant parking will be provided to accommodate the possible increase in demand. Using an attendant to manage parking demand could temporarily increase the capacity of the public parking lot by approximately 26 automobiles for the single level concept and 50 automobiles for the two level concept.

• Work with the City of Berkeley to develop special event parking control strategies that direct visitors to use other public parking lots in the downtown area. This planning can use the proposed downtown parking guidance system under development by the City.

• Event notices and advertising materials will promote the use of transit and other alternative transportation modes by event attendees. Event materials could also identify alternative



public parking facilities located near the David Brower Center to assist in dispersing parking demand.

• In cases where a large event will generate significant parking demand during normal peak public parking hours, special arrangement can be made to designate off-site parking and shuttle services for event attendees. This measure would be used only if necessary, when the traffic management measures identified above are not anticipated to sufficiently mitigate parking demand.

Assuming these measures are in place, the impact of conference and event parking demand would not exceed the capacity available in the two-level public parking facility.

Residential Parking Generation Estimates The occupants of the 96 affordable housing units at the Oxford Plaza will be low to very low income residents. Demographic analysis shows that higher densities of development as well as low income households own fewer vehicles per household. According to Figure 5-14 below, the average vehicle per household in developments with 5 or more units falls below the average vehicle per household (1.76).

1. Bay Area Vehicles per Household by Income and Unit Type (1990)

0.0

0.5

1.0

1.5

2.0

2.5

3.0

6% 18% 30% 42% 54% 72% 102% 150% 210% 240%+

Percent of Median Incom e

Vehi

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Avg. veh/hh = 1.76

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Figure 5-14: San Francisco Bay Area Vehicles per Household Data

Since the 96 high density affordable housing units at the Oxford Plaza are designated for low income residents and vehicle ownership decreases with higher densities and lower income status, this could translate into a reduced demand for parking. Two significant resources were consulted to assist in estimating possible residential parking demand at the OP&DBC:

• 2000 US Census Data

• Parking Management and Downtown Land Development: The Case of Downtown Berkeley, CA - Elizabeth Deakin, et al, UC Berkeley

US Census Tract 4229 is located in Downtown Berkeley and includes the OP&DBC parcel. The 2000 Census data reported that 42.7% of households in Tract 4229 do not have access to a vehicle. The application of this percentage to the 96 proposed residential units in Oxford Plaza would result in an estimate of at least 41 units occupied by residents who do not own vehicles, and about 55 units with a vehicle.



The UC Berkeley study, conducted by Professor Elizabeth Deakin, found that 55% of new residents in downtown Berkeley do not own a vehicle. An additional 40% of these residents only own one vehicle.7 The information was collected from surveys conducted during a study of downtown Berkeley parking demand rates. The study noted that most residential developments in the downtown were constructed with off-street parking supplies significantly below a ratio of one space per unit. Even with this ratio, many of these residential developments experienced an underutilization of residential parking. As illustrated in Figure 5-14, affordable housing units typically have lower than average vehicle ownership rates. In light of these statistics, the base residential parking demand before the implementation of TDM measures for the Oxford Plaza residential units is assumed to be a maximum of 48 vehicles.

In order to reduce this estimated demand, additional TDM strategies should be explored by the OP&DBC. One option is to encourage residents to participate in a CarShare program. Members of City CarShare8 have 24-hour access to cars at 40 locations throughout the Bay area. Reservations can be made online or by phone, for any length of time from 15 minutes to 15 days or more. A fee charged per hour and per mile includes the cost of gas, insurance, parking, and maintenance. Downtown Berkeley includes several City CarShare locations, including three locations within a ¼ mile of the project site.

In a study that followed hundreds of members of City CarShare over an 18-month period, it was shown that overall automobile travel among users dropped 47%. Since joining, 30% of City CarShare households in San Francisco have sold one or more of their privately owned cars, and 67% have chosen not to purchase an additional car.9 These figures indicate that each CarShare vehicle substitutes for 5 to 10 private vehicles. The OP&DBC will support CarShare use by providing a CarShare vehicle and a dedicated parking space on the premises. The OP&DBC will cover the application fee, monthly membership dues, and the deposit for qualified tenants who wish to enroll in the program. Residents would only be responsible for paying the daily usage and mileage fees associated with the use of the vehicle.

Another effective residential parking reduction strategy is to unbundle the allocation of parking spaces with the rental of an apartment. By having apartment renters pay separately for a parking space, only spaces that are needed by the residents will be occupied. The lower rent associated with not having a parking space will attract tenants that do not own vehicles, or encourage vehicle owners to use alternative transportation instead. A study funded by the Victoria Transport Policy Institute (VTPI) found that unbundling residential parking fees from monthly rent can result in reduced parking utilization rates. Table 5.16 summarizes the anticipated reductions in residential parking demand resulting from various monthly parking charges.

Table 5.16 – Vehicle Ownership Reductions from Residential Parking Pricing

Annual (Monthly) Fee -0.4 Elasticity -0.7 Elasticity -1.0 Elasticity $300 ($25) 4% 6% 8% $600 ($50) 8% 11% 15% $900 ($75) 11% 17% 23% $1,200 ($100) 15% 23% 30% $1,500 ($125) 19% 28% 38% Source: Todd Litman, “Parking Requirement Impacts on Housing Affordability”, Victoria Transport Policy Institute, June 2004.

7 E. Deakin. et al. “Parking Management and Downtown Land Development: The Case of Downtown Berkeley,” Transportation Research Board Annual Meeting, 2004. 8 http://www.citycarshare.org/ 9 Robert Cervero and Yushin Tsai, “San Francisco City CarShare: Second-Year Travel Demand and Car Ownership Impacts”, UC Berkeley, July 2003.



The unbundling strategy may be implemented for the residential units at Oxford Plaza. Assuming a monthly charge of $50 per parking space, vehicle ownership could be reduced by 11%. This percentage reduction was combined with the estimated percentage of CarShare members who sell one or more vehicles after joining CarShare to determine a possible reduction in Oxford Plaza residential parking demand. Combining these two TDM measures, it is estimated that residential parking demand in the OP&DBC could be reduced from 48 spaces to approximately 36 spaces. This assumption uses an estimate that the CarShare program will substitute for 7 vehicles (the average observed in the 2003 UC Berkeley study) and the unbundled parking charges would further reduce demand by an additional 5 vehicles.

As noted previously, developments in Downtown Berkeley that are exclusively residential are required per code to provide only one parking space for every three residential units. Applying this ratio to the Oxford Plaza would result in a requirement for only 32 residential parking spaces. Considering the observed parking demand in other downtown residential developments, the incentives to attract tenants with a low rate of vehicle ownership, and existing Berkeley Zoning Code Standards, it is anticipated that the proposed 40 residential parking spaces in the OP&DBC will be sufficient to meet demand.

5.5 PEDESTRIAN AND BICYCLE CIRCULATION The OP&DBC development is not anticipated to have negative impacts on pedestrian or bicycle circulation. The signalization and redesign of the intersection of Oxford Street/Allston Way and the signalization of the Fulton Street/Kittredge Street intersection will improve pedestrian safety and circulation.

5.6 SITE ACCESS AND CIRCULATION RECOMMENDATIONS The OP&DBC will include two access driveways on Kittredge Street. One driveway will provide exclusive access to the at-grade residential parking spaces. The second driveway will access the proposed underground public parking facility. Kittredge Street is a two-lane roadway that serves relatively low volumes of automobile traffic in the existing and future conditions. The low traffic volumes make this roadway an excellent choice as the access route to the OP&DBC parking facilities.

Separate driveways were proposed for the two parking facilities at the request of City of Berkeley staff. The separate driveways will facilitate easier access and egress to the underground public parking facility and help to reduce possible driver confusion related to authorized use for each parking facility.

5.7 PARKING AND TRAFFIC IMPACTS DURING CONSTRUCTION No public parking will be available in the Oxford parking lot during construction of the OP&DBC and the new underground parking facility. During construction, daily public parking demand for the Oxford parking lot will need to be distributed to other public parking facilities located in downtown Berkeley. City-owned public parking lots located in close proximity to the Oxford lot include the Center Street Garage and the Sather Gate Garage. Privately-owned public parking facilities include the Allston Way Garage and Promenade Garage. Based on the average weekday daily parking utilization rates reported in the Berkeley Parking Utilization Study for these four facilities, it is anticipated that sufficient parking capacity is available to accommodate displaced demand from the Oxford parking lot.10 Table 5.17 summarizes the average daily utilization for each of the nearby public parking facilities. Figure 5.15 identifies the location of these parking facilities in relation to the Oxford parking lot.

10 City of Berkeley, “Berkeley Traffic Data and Parking Utilization Analysis” and “Downtown Berkeley Parking Information Study: Draft Inventory and Needs Statement”, March 2003.

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Table 5.17 – Observed Downtown Berkeley Parking Utilization

Parking Facility Total

Parking Supply

Weekday Morning

Utilization

Weekday Afternoon Utilization

Weekday Evening

Utilization

Minimum Available Parking

Oxford Lot 132 90% 77% 75% 13 Center Street Garage 410 98% 88% 51% 8 Sather Gate Garage 436 15% 62% 24% 165 Allston Way Garage 610 73% 84% 37% 97 Promenade Garage 120 57% No Data 30% 51 Source: City of Berkeley, “Berkeley Traffic Data and Parking Utilization Analysis”

It is recommended that temporary signage detailing the date of construction initiation, the anticipated duration of construction, and suggested alternative public parking facilities be posted at the Oxford parking lot at least one month prior to the beginning of construction. Temporary signage should also be provided at the former entrance to the Oxford parking lot during construction, identifying alternative public parking facilities. Notifications should also be provided to business and theaters located near the Oxford parking lot so that these businesses can notify customers that alternative parking facilities should be used during construction.

While the temporary closure of the Oxford parking lot will redistribute traffic patterns in the vicinity of the parking lot, no significant permanent traffic impacts are anticipated to result from the parking lot’s temporary closure. The temporary signage placed in the Oxford parking facility and at adjacent businesses prior to the beginning of construction will assist in minimizing the number of automobiles who travel directly to the Oxford parking lot and then “search” through the downtown area for available parking. Advance notice to frequent patrons of the Oxford lot will assist these drivers in finding alternative parking facilities during the construction period.

5.8 PARKING RELATED TRAFFIC IMPACTS As discussed previously in this report, two underground public parking concepts have been developed for the OP&DBC. The first concept would provide a single-level underground public parking lot with 104 parking spaces. The second concept includes two underground parking levels with a total of 211 public parking spaces. As discussed in Section 5.4 of this report, the combined parking demand of the OP&DBC and existing public parking utilization will likely exceed the capacity of the 104 space single-level parking lot. In this scenario, the overflow parking demand for the Oxford public lot would disperse to alternative public parking facilities located in downtown Berkeley. Available public parking facilities capable of absorbing this excess parking demand are identified in Section 5.7. This section discusses the possible traffic impacts resulting from the excess parking demand recirculating into the downtown roadway network.

The City of Berkeley has requested an analysis of the potential impact resulting from additional automobile traffic generated by vehicles traveling to the Oxford parking lot and reentering the roadway network because the parking facility is at capacity. These additional automobile trips have been termed parking search trips for the purposes of identification in this report. It is anticipated that the parking search trips would only be generated in the single-level public parking facility is implemented. The two-level public parking lot is anticipated to have enough capacity to meet projected parking demand.

Overall, parking search trips are not anticipated to have a significant impact on traffic operations in the vicinity of the Oxford parking lot. The traffic impact of parking search trips is limited because the peak time periods for parking demand and roadway traffic volumes do not experience a significant amount



of overlap. A full summary of parking demand versus capacity can be found in Section 6.0 of this report.

The single level public parking lot is not anticipated to approach capacity until 10:00am on weekday mornings. This estimate is based on observed existing utilization and estimated demand for the new land uses. By comparison, the AM peak hour ends by 9:00am for all project study intersections analyzed in this report. Because there is not overlap between the AM peak traffic period and AM time periods where parking demand exceeds capacity, there are no anticipated traffic impacts in the AM peak period as a result of parking search automobile trips.

There is an overlap between the PM peak period for traffic and time periods where parking demand is anticipated to exceed the capacity of the single level public parking lot. The PM peak hour for a majority of the project study intersections occurs within the 4:00pm to 6:00pm time frame. During this time period, excess parking demand is anticipated to range from zero vehicles to 41 vehicles depending on the implementation of specific TDM measures identified in Section 6.0.

In a worst-case scenario, as many as 41 automobile trips would reenter the roadway network from the Oxford parking lot and travel to a nearby parking facility. The two closest facilities with significant amounts of available parking capacity are the Allston Way Garage and the Sather Gate Garage. Automobile trips between the Oxford lot and Allston Way garage would travel through one study intersection, Shattuck Avenue/Kittredge Street. Trips between the Oxford lot and the Sather Gate Garage would travel through three study intersections, Fulton Street/Kittredge Street, Fulton Street/Bancroft Way, and Fulton Street/Durant Avenue.

With the exception of the Fulton Street/Kittredge Street intersection, these study intersections are forecast to operate at LOS B or better in the Future With Project condition. These additional parking search trips would not have significant impact on these intersections. While the Fulton Street/Kittredge Street intersection is forecast to operate at LOS F in the PM peak hour during the Future With Project condition, the primary cause of the impact is the delay associated with the eastbound left turn movement. A majority of the trips passing through this intersection will be traveling to access the Sather Gate Garage or other parking lots to the south, requiring a right turn at this intersection. The addition of as many as 20 right turns during the PM peak hour at this intersection would contribute the deficient traffic operations already identified in this report. Mitigation measures for this intersection are identified in Section 7.0 of this report. The proposed mitigation measures would address project-related trips and the parking search trips. This scenario assumes that half of the 41 parking search trips generated during the PM peak hour travel to the Sather Gate garage, while the remaining trips travel to the Allston Way Garage.

It should also be noted that the City of Berkeley is currently studying the implementation of a real-time parking guidance and information system. This system will include variable message signage located throughout the downtown, providing directions to public parking facilities with available parking capacity. If implemented, this system would significantly reduce the number of automobiles forced to search for available parking between public parking facilities.



6.0 TRANSPORTATION DEMAND MANAGEMENT STRATEGIES Transportation demand management (TDM) measures can be very effective at reducing the number of automobile trips and parking demand generated by a particular development. TDM measures have the potential to be very effective due to the proximity of the OP&DBC to regional and local transit systems such as BART and AC Transit. Downtown Berkeley is also very pedestrian and bicycle friendly, further encouraging the use of alternative non-automobile modes of transportation. Data from the Alameda County Transportation Analysis Model suggests that a significant percentage (42%) of people traveling to and from the traffic analysis zone containing the OP&DBC parcel use transit or other alternative transportation modes to complete their trip. The trip distribution percentages obtained from the model have already been incorporated in the parking accumulation analysis presented in Section 5.0.

As noted previously, the traffic impact analysis and parking accumulation analysis presented earlier in this report do not incorporate TDM measures. This section summarizes TDM measures that will be implemented at the OP&DBC in order to reduce the number of automobile trips generated by the development and overall parking demand in the on-site parking lots.

6.1 PROPOSED TRANSPORTATION DEMAND MEASURES Transportation and parking demand management measures are aimed at mitigating the number of automobile trips and parking demand generated by a development. Several TDM measures are proposed for the OP&DBC, with the objective of reducing the number of automobile trips generated by the development, therefore decreasing the necessary amount of parking supply at the OP&DBC. Recommended transportation and parking demand management measures include:

• A centrally located kiosk or bulletin board will be provided in both the David Brower Center lobby and Oxford Plaza residential area of the development. These information centers will provide transit schedules, carpool/ridershare information, contact data for the City of Berkeley’s Office of Transportation, and other transit and ridershare supportive materials. Consistent alternative transportation information will also be included in any website or other marketing materials.

• Building Management will designate a permanent Employee/Resident Transportation Coordinator, who will coordinate the CarShare, Transit benefits, kiosk, Guaranteed Ride Home, etc programs. The David Brower Center will include on-site management staff. One staff on-site staff member will be designated as the development’s Employee Transportation Coordinator. Residential transportation coordination will be handled by the on-site residential building manager.

• Employees and visitors to the David Brower Center will be charged parking fees for use of the underground public parking lot.

• A monthly transit or ridershare allowance will be provided to employees working in the David Brower Center. This allowance will likely be coordinated through the Bay Area Commuter Check program. Employer participation will likely be ensured through requirements incorporated into tenant leases for the building.

• OP&DBC will participate in the City CarShare program by providing up to 3 parking spaces for City CarShare vehicles in the public and residential portions of the parking garage. One space would be provided in the residential parking facility, and two spaces would be located in the underground public parking lot. The development will also pay the initial CarShare membership fee and monthly subscription fees for residents of Oxford Plaza to join the CarShare program.



• OP&DBC will participate in the Alameda County Guaranteed Ride Home program.

• Reduced cost parking will be provided for employee carpools and vanpools.

• The site plan for the OP&DBC includes a private 25-foot by 21-foot bicycle storage room in the residential parking garage to support bike usage.

A comprehensive transportation and parking management plan that includes several strategies (shared parking, more accurate parking requirements, pricing, etc.) can often reduce parking demand requirements by 30-50% compared with generous minimum parking requirements, free parking, and each space assigned to an individual motorist. The benefits of several of these TDM measures are discussed further in the following sections.

Parking Fees

Parking fees may be implemented as a parking management measure in a particular area to reduce parking demand. Parking fees can play a significant role in influencing the parking generation rates for particular land uses. Pricing of commuter parking and higher rates during peak periods is particularly effective at reducing peak use. Charging drivers directly for parking is more equitable and economically efficient to those who drive less or not at all. The Victoria Transport Policy Institute (VPTI) sites a previous study completed by the Comsis Corporation in 1993 that identified reductions in vehicle trips resulting from daily parking fees. Table 6.1 summarizes the observations from this study.

Table 6.1 – Percent of Commute Vehicle Trips Reduced by Daily Parking Fees

Daily Parking Fee (1991 $) Setting

$0.00 $1.30 $2.60 $4.00 $5.20

Suburban, transit-oriented 0.0% 5.9% 13.1% 21.0% 28.6%

Activity Center, transit-oriented 0.0% 14.3% 30.5% 46.8% 61.4%

Regional Central Business District, transit-oriented 0.0% 22.5% 42.6% 58.7% 70.6%

Sources: Victoria Transport Institute, Comsis Corporation, Implementing Effective Travel Demand Management Measures: Inventory of Measures and Synthesis of Experience, USDOT and Institute of Transportation Engineers, 1993.

Downtown Berkeley is a very transit-oriented area with direct access to the Bay Area Rapid Transit (BART) system and Alameda County (AC) transit system. The data presented in Table 6.1 suggests that single-occupancy vehicle trips could be dramatically reduced after the implementation of parking fees. However, the overall impact of parking fees on vehicle trips to and from the OP&DBC is anticipated to be slightly lower than the figures identified in Table 6.1. The City of Berkeley already charges high daily parking fees ($12 to $15 per day) in its City-owned parking lots. For the purposes of this TDM analysis, it is assumed that parking charges would reduce vehicle trips and parking demand for the David Brower Center by 30%. This figure is one-half of the 61% trip reduction estimate presented in Table 6.1. This figure is also a conservative estimate for parking demand reduction resulting from high daily parking fees, considering the parking fee structure already in place within Downtown Berkeley.

Ridershare and Transit Subsidies

Another effective trip reduction and parking demand management strategy is for employees to provide rideshare and/transit subsidies to their employees. These subsidies can be provided in the form of additional compensation or in-lieu of salary increases. The subsidies are usually provided with a



defined set of use standards, which require participating employees to commute via transit or ridershare for a minimum number of days each month.

TDM studies have identified a strong link between the amount of the transit and ridershare subsidy and employee participation rates. As would be expected, higher subsidies result in a greater number of employees participating in the program. The impact of transit and ridershare subsidies was estimated for the OP&DBC using data provided by the VTPI.11 Tables 6.2 and 6.3 summarize the VPTI estimated percentages for vehicle trip reduction resulting from various daily transit and ridershare subsidies.

Table 6.2 – Percent of Commute Vehicle Trips Reduced by Transit Subsidies

Daily Transit Subsidy Setting

$0.00 $0.50 $1.00 $2.00 $4.00

Activity Center, rideshare oriented 0.0% 1.1% 2.4% 5.8% 16.5%


Table 6.3 – Percent of Commute Vehicle Trips Reduced by Rideshare Subsidies

Daily Rideshare Subsidy Setting

$0.00 $1.00 $2.00 $3.00 $4.00

Activity Center, rideshare oriented 0.0% 8.4% 17.0% 24.9% 31.4%


The David Brower Center ownership group has committed to ensuring that a minimum $2/day transit and ridershare subsidy is provided by the office and retail tenants. This subsidy requirement would be incorporated into the tenant lease agreements to ensure participation by all employers located in the David Brower Center. For the purposes of estimating reductions in trip generation and parking demand in this study, it is assumed that a $2/day transit and ridershare subsidy would result in a trip reduction of 25%. This figure represents the combined percentage of the trip reduction rates linked to subsidies in transit-oriented activity centers.

Shared Parking

Shared Parking means parking spaces are shared by more than one user, allowing parking facilities to be used more efficiently. The mixed uses at the Oxford Plaza/David Brower Center create a base of diverse parking users with varying peak demand times for parking. The mixed uses and varying peak demand times increase the likeliness of a successful shared parking program. For example, the restaurant can share parking with the office space tenants because restaurant parking demand peaks are in the evening and the office parking demand is during the day. Additionally, a significant portion of the daytime demand for the restaurant could come from the adjacent office uses, which would not generate parking demand.

To determine the feasibility of shared use parking, projections for types of use and peak demand by time of day are provided to demonstrate the potential reduction for demand by time of day and use. The parking accumulation estimates presented in Tables 5.14 and 5.15 reflect shared use of available

11 Victoria Transport Policy Institute, “Commuter Financial Incentives”, June 2004, http://www.vtpi.org/tdm/tdm8.htm



parking facilities. VTPI’s recommended percentages for basic minimum parking needs by use and time of day are 100% for office, 90% for retail and 70% for restaurant during weekday midday hours were used in these estimates.

Regulate Parking

Parking facilities can be managed and regulated to encourage more efficient use of parking resources and more efficient travel. This often involves making the most convenient parking spaces available to certain higher-value uses. Below are typical strategies:

• Set parking prices to equal or exceed transit fares. For example, set daily rates at least equal to two single transit fares and monthly rates at least equal to a monthly transit pass.

• Use rates that are higher for peak times.

• Avoid discounts for long-term parking (i.e. monthly parking permits).

• Unbundle parking from housing, so apartment and condominium residents pay only for the parking spaces they need.

• Provide free or discounted parking for Rideshare and CarShare vehicles.

The OP&DBC will implement several of these parking management measures including setting parking fees to exceed transit fares and unbundling residential parking from housing. Additional parking management measures will be considered if necessary.

Impact of TDM Measures

With the implementation of TDM measures (parking pricing, transit and rideshare subsidies, CarShare, unbundled residential parking, etc.), anticipated trip generation rates and parking demand at the OP&DBC would be reduced. The combined impact of parking pricing and a proposed $2/day transit/ridershare subsidy for employees is anticipated to reduce employee parking rates by as much as 55%. Visitor parking demand rates are anticipated to be reduced by 30% as a result of the parking pricing. It is assumed that may of the automobile trips removed by the TDM measures will be completed using transit or other alternative modes of transportation.

Table 6.4 summarizes the estimated impact that TDM measures would have on hourly parking demand at the OP&DBC. This table summarizes the data presented in Tables 5.14 and 5.15 and estimates potential residential parking demand during weekday daytime hours. It is assumed that residential parking demand would be at 100% (40 spaces) between 10:00pm and 6:00am. Average residential parking demand during daytime hours is estimated to be 60% of peak demand.



Table 6.4 – Impact of TDM Measures on Weekday Parking Demand at Oxford Plaza & Brower Center

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7.0 SUMMARY OF RECOMMENDED MITIGATIONS Recommended mitigation measures related to circulation and parking associated with the Oxford Plaza and David Brower Center development are presented in this section.

7.1 CIRCULATION The Oxford Plaza and David Brower Center development is not expected to have a significant impact on the circulation system in the project area. There are locations where mitigation measures are recommended, however, due to existing safety and operational issues. Mitigations associated with the project are included in this section, as well as a discussion of General Plan Amendment impacts.

Project Mitigations The forecast traffic volumes at Fulton Street/Kittredge Street intersection satisfies Warrant 3, Peak Hour of the traffic signal warrants for the need for a traffic control signal, as stated in Chapter 4C of the Manual on Uniform Traffic Control Devices (MUTCD). The satisfaction of a traffic signal warrant or warrants does not in itself require the installation of a traffic control signal. Other mitigation measures can be considered if they adequately address the traffic impacts at the intersection.

It is important to note that the traffic signal warrants at this intersection is satisfied based on future traffic conditions without the trips added by the OP&DBC project. The trips generated by the project do contribute to the poor traffic operations at these intersections, but these trips are not the cause of the deficiencies. Any contribution by the project to the cost of a new traffic signal should correlate with the portion of the traffic impact resulting from trip-added trips. The exact contribution percentage would be determined through negotiations between the developer and the City of Berkeley

Fulton Street / Kittredge Street The intersection of Fulton Street and Kittredge Street is located at the southeast corner of the OP&DBC development site, and is the closest intersection to the driveway that will provide access to and egress from the property. This intersection is currently operating at LOS F during the AM and PM peak periods, and is forecast to have even longer delays and queues in the Future With Project condition.

Three alternative mitigation measures were considered for this location. The recommended mitigation measure is to restripe the eastbound intersection approach on Kittredge Street to provide one exclusive left turn lane and one exclusive right turn lane. This proposed mitigation will improve the average delay experienced at the intersection to 190.7 seconds in the Future With Project Conditions for Scenario 1. This average delay is lower than the Future No Project condition, which experiences an average delay of 243.7 seconds. Based on this observed improvement, the recommended mitigation addresses the traffic impact resulting from the proposed OP&DBC project. The LOS calculation sheet for this proposed mitigation is located in the Appendix of this report.

Additional mitigation options include prohibiting eastbound left turns during the PM peak period. This mitigation would result in a redistribution of traffic on the surrounding street network. However, this redistribution would not result in a significant traffic impact since many of the adjacent intersections are operating at an acceptable level of service.

The final alternative option would signalize the intersection to better serve the eastbound left turn vehicular movement as well as pedestrian traffic. Under signal control, the intersection is forecast to operate at LOS A. The City of Berkeley will monitor traffic conditions at the Fulton Street/Kittredge Street intersection after completion of the OP&DBC project. If the recommended mitigation for this intersection does not adequately address the identified project impact, one of the two alternative mitigations identified in this section will be considered for implementation.



General Plan Amendment It should be noted that even without the General Plan Amendment, redevelopment of either site to capacity could generate enough trips to cause significant impact. A reasonable development with a balance of uses and open space may be developed on the property without significant impact, or with impacts that may be mitigated through traffic demand management and other measures. The amendment is not anticipated to allow developments that would generate an overwhelming amount of traffic. However, given the increased potential, new projects on affected property should be carefully reviewed to ensure that the traffic generated by those projects is reasonable.

7.2 PARKING The average weekday parking demand, including existing demand for public parking, for the Oxford Plaza property with the implementation of TDM measures would be expected to range from a maximum of 173 vehicles in the morning and midday hours to an average of 147 vehicles in the afternoon. These figures incorporate employee and visitor parking for the David Brower Center, existing public parking demand, and residential parking from Oxford Plaza. The anticipated high end for total parking demand in the evening is 148 vehicles. The high-end for parking demand without TDM measures would be 207 vehicles during the weekday mid-day time period.

Two parking facility concepts are under consideration for the OP&DBC. Concept 1 would provide a total of 145 parking spaces. In both concepts, 40 at-grade parking spaces are provided for the residential units. Concept 1 provides 104 parking spaces in an underground public parking facility. Concept 2 includes the addition of a second level to the public parking lot, allowing for 211 public parking spaces to be provided. In total, 251 spaces would be provided in Concept 2.

It is anticipated that the combined parking demand for the OP&DBC and the existing public parking will exceed the proposed capacity of Parking Concept 1. Parking Concept 2 should be able to accommodate anticipated parking demand with excess capacity. The excess capacity for Concept 2 is expected to range from 39 spaces in the mid-day to 60 spaces in the afternoon and 204 spaces in the early morning. Table 7.1 compares the capacity of the two alternative parking concepts and anticipated demand.

Table 7.1 – Comparison of OP&DBC Parking Capacity and Demand

Concept

Parking Provided (Public &

Residential Combined)

Range of Parking Demand

Without TDM Measures

Range of Parking

Demand With TDM Measures

Range of Surplus/Deficit Without TDM

Measures

Range of Surplus/Deficit

With TDM Measures

Concept 1 144 42 to 207 41 to 173 102 to -63 103 to -29 Concept 2 251 42 to 207 41 to 173 209 to 44 210 to 78 Note: See Table 6.4 for a detailed summary of parking demand by time of day.

The peak weekday parking demand with TDM measures occurs at 12:00pm and is comprised of 22 David Brower Center employee vehicles, 17 visitor vehicles, 24 resident vehicles, and historic utilization of 110 public parking spaces. Employee demand with TDM measures is relatively stable at 22 to 25 spaces during the 9:00am to 4:00pm work period. Residential demand 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.

Table 7.2 summarizes the anticipated daily parking demand with the implementation of TDM measures for employees, residents, and visitors at the OP&DBC. The table includes the expected number of daily users from each category, and the type of parking permit most likely purchased by each user.



Table 7.2 – Total Daily Parking Usage for OP&DBC

Type of User Anticipated Total Daily

Users

Anticipated Maximum Users

per Hour

Average Stay Duration (Hours)

Type of Payment for

Parking Office Employees 14-17 14-18 8 Monthly Office Visitors 22 5-8 2 Hourly

Retail/Restaurant Employees 9-14 4-6 6 Monthly and Hourly

Retail/Restaurant Visitors 160-178 16-21 1 Hourly

Residential Overflow to Public Lot 31 25-31 10 Monthly (Evenings)

Based on these projected parking demand figures, no parking mitigation measures would be required for Parking Concept 2. This concept would provide adequate parking capacity to serve anticipated demand. Parking Concept 1 is not anticipated to provide sufficient parking capacity to meet the estimated demand generated by the OP&DBC and existing public parking. As indicated above, the average daily parking demand generated by the OP&DBC ranges from 22 to 49 spaces for employee parking and 12 to 24 spaces for visitor parking. These average daily parking generation figures are in 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 accommodate anticipated parking demand. One available mitigation measure would be to require employees who commute via automobile to the David Brower Center and the Oxford Plaza retail uses to purchase monthly parking passes at other public parking facilities located in downtown Berkeley. As discussed in Section 5.7 of this report, several other parking facilities in the downtown area do have available capacity 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 ¼ mile of the OP&DBC, which is considered to be a reasonable walking distance.

The other public parking facilities combined would need to accommodate daily employee parking demand of 22 to 49 automobiles, depending on the implementation and success of the proposed TDM measures. As noted in Section 5.7, the Sather Gate Garage has an average peak utilization rate of 62%, resulting in an available capacity of 165 vehicles. Additionally, the Allston Way Garage has an observed available of as many as 97 vehicles. Both of these parking facilities appear to have sufficient capacity to absorb the anticipated OP&DBC employee parking demand.

Under this scenario, visitor parking demand for OP&DBC would be absorbed within the overall public parking 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 facility except at the 12:00pm peak period.



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