Staff Report
Date: August 25, 2026
To: City Council
From: Justin Ezell, Assistant City Manager
Prepared by: Justin Ezell, Assistant City Manager
[email protected]
(925) 671-3155
Subject: Considering approval of artwork for six utility boxes as Phase IV of the Utility Box Artwork Program located on Clayton Road, Concord Avenue, Concord Boulevard, Cowell Road, Treat
Boulevard, and Willow Pass Road; and authorizing the City Manager to execute the artist agreements in a form approved by the City Attorney.
CEQA: Exempt/not a project per CEQA Guidelines Sections 15060(c)(2), 15378, 15061(b)(3), and/or 15300.2.
Report in Brief
In partnership with the City, the Concord Art Association (CAA) installed artwork on traffic signal and other utility cabinets across Concord through three prior project phases. Beginning in 2019, the program has completed artwork on nearly three dozen cabinets to date (Attachment 1). CAA has now fundraised and selected artwork for six additional cabinets as part of Phase IV. No funding is being requested from the City except for in-kind city services such as legal documents and site preparation.
Recommended Action
Approve the artwork for six utility boxes as Phase IV of the Utility Box Artwork Program located on Clayton Road, Concord Avenue, Concord Boulevard, Cowell Road, Treat Boulevard, and Willow Pass Road; and authorize the City Manager to execute the artist agreements in a form approved by the City Attorney.
5.a5.a5.a5.a5.a
City Council Agenda Report
Agenda Item No. 5.a
August 25, 2026
Background
In 2019, the City and Concord Art Association (CAA) collaborated to install a combination of vinyl wrapped and directly painted artwork on eleven utility boxes in the downtown. The theme of the 2019 project (Phase I), “Music and Market,” featured artists selected by the CAA through a call for artists. The Recreation, Cultural Affairs and Community Services Committee (RCACS) reviewed artwork before formal approval by the City Council. Project funding was a combination of an $11,600 City contribution from the Art in Public Places Fund, and $5,000 raised by CAA through sponsorships.
CAA completed a Phase II project in 2020. This project consisted of four traffic signal cabinets around the downtown with the theme “Celebrate Concord.” The theme allowed artists to shed a positive light on the many great things around Concord and focus on bringing the community together through art. Similar to Phase I described above, CAA selected artists through a call for artists. RCACS reviewed the artwork and recommended approval to the City Council. Unlike Phase I, CAA funded Phase II through sponsorships, with the exception of in-kind city services such as utility box preparation and legal documents.
Phase III was approved by the City Council in February 2022 and was divided into two subphases. Phase III.a included fourteen traffic signal cabinets, and Phase III.b consisted of six additional locations. The City contributed $10,000 of Art in Public Places funds while CAA fundraised to cover the balance. The Phase III installations were fully completed in 2025. One artwork location was removed and not replaced following the City’s Highway Safety Improvement Program (HSIP) traffic signal upgrade project. Although CAA replaced several artwork locations affected by the HSIP project, the cabinet at Clayton Road and Park Street (in front of the Salmon Run development) was not included in a replacement effort. Today, a total of 34 artwork locations remain citywide.
Analysis
Phase IV includes six locations for which CAA issued a call for artists and presented recommended artwork to staff and funding sponsors for review. Together, the funding sponsors, CAA, and staff selected the final artwork and matched each piece to a specific location. Staff recommends that Council approve these six artwork installations and their associated locations, along with in‑kind City services such as preparation of legal documents and site preparation, consistent with past project phases. The artwork will be installed on traffic signal cabinets on Clayton Road, Concord Avenue, Concord Boulevard, Cowell Road, Treat Boulevard, and Willow Pass Road, as shown in Attachment 2.
Financial Impact
Concord Art Association has raised the necessary funding for the cost of the artwork.
The cost of needed in-kind city services for such things as legal documents and site preparation would be borne by the approved operating budget.
City Council Agenda Report
Agenda Item No. 5.a
August 25, 2026
Environmental Determination
This activity does not constitute a “project” within the meaning of CEQA Guidelines Section 15060 (c)(2) or CEQA Guidelines Section 15378, because there is no potential that it will result in a direct or reasonably foreseeable indirect physical change in the environment. Even if the activity does comprise a project for CEQA analysis, it falls within the “common sense” CEQA exemption set forth in CEQA Guidelines Section 15061(b)(3), excluding projects where “it can be seen with certainty that there is no possibility that the activity in question may have a significant effect on the environment.” No unusual circumstances exist and none of the exceptions under CEQA Guidelines Section 15300.2 apply. This determination reflects the City’s independent judgment and analysis.
Public Contact
The City Council Agenda was posted.
Attachments
1. Existing Artwork Locations
2. Phase IV Artwork and Locations
Ygnacio Valley Rd.
Alberta Way
Treat Blvd.
Treat Blvd.
Coventry
Oakland
Detroit
Mohr
Denkinger
Bailey Rd.
Kirker Pass Road
Clayton Rd.
Clayton Rd.
Cowell Rd.
East St. Colfax St. Grant Rd.
Mt. Diablo St.
Galindo St.
Concord Ave.
Meadow Ln.
Monument Blvd. Oak Grove
Bancroft
Market St.
Olivera Rd.
Port Chicago Hwy
Farm Bureau Rd.
Landana Rd.
Fry Way Concord Blvd.
Concord Blvd.
Willow Pass Rd.
Salvio St.
1 2
3 4
5 67
8 9
10 11
12 13
14 15
16 17
1819
20 21
22 23
24 25
26 27
28 29
30 31
32 33
34 12
3 2
4 57
8 1 0
1 1 1
6 9
CONCORD
TODOS SANTOS PLAZA
1. Salvio near the Clock Tower,
Jennifer Granat & Melissa Claros
2. Salvio near the Clock Tower,
Jennifer Granat & Melissa Claros
3. Salvio near the Clock Tower,
Jennifer Granat & Melissa Claros
4. Corner of Grant & Salvio near the parking garage,
Clarissa Fei
5. Corner of Grant & Salvio across from Todos Santos,
Thea Jue & Renaye Johnson
6. Willow Pass side of Todos Santos (People),
Samineh Perryman
7. Willow Pass side of Todos Santos (Dogs), Janet Brown
8. Willow Pass & Mt. Diablo, Laurie Mansur
9. Corner of Willow Pass & Mt. Diablo across from
Todos Santos, Denise Hillman
10. Mt. Diablo side of Todos Santos, Sharon Petersen
11. Corner of Willow Pass & Grant St.,
Jennifer Granat & Emilie Kirkpatrick
12. Corner of Willow Pass & Colfax St.,
Renaye Johnson, Thea Jue, & Janice Davis
13. Corner of Salvio & Galindo
Janice Davis & Karen Giorgianni
14. Concord Blvd. & Galindo, Thea Jue & Renaye Johnson
15. East & Willow Pass, Karen Giorgianni, Janice Davis, Thea Jue, Renaye Johnson
16. Corner of Willow Pass & Galindo, Fiona Hughes
17. Willow Pass & Farm Bureau, Deena Sharenko & Pat Viera
18. Willow Pass & Fry, Janice Davis & Karen Giorgianni
19. Willow Pass & Market, Susan Weyl
20. Treat & Oak Grove, Deena Sharenko & Pat Viera
21. Alberta & Ygnacio Valley Rd., Jennifer Granat
22. Clayton Rd. & Oakland Ave. near BART, Emilie Kirkpatrick
23. Clayton Rd. & Farm Bureau, Mary Yonekawa
24. Clayton Rd. & Kirker Pass,
Demaris Browne & Lori Rutledge
25. Olivera Rd. & Port Chicago, Laurie Mansur
26. Monument Blvd. & Meadow Lane, Olivia Poggi
27. Monument Blvd. & Detroit, Renaye Johnson & Thea Jue
28. Monument Blvd. & Mohr Lane, Melchia Kutches
29. Clayton Rd. & Denkinger, Emilie Kirkpatrick
30. Clayton Rd. & Coventry, Thea Jue
31. Concord BIvd. & Landana, Rachel Fite
32. Concord Blvd. & Bailey Road,
Cyan Samone & Maria Schopp:
33. Concord Blvd. & Farm Bureau Rd., Victor Sanchez
34. Concord Blvd. & Kirker Pass Rd., Renaye Johnson
LOCATION & ARTISTS
Attachment 1
1. The Hop Grenade
2. Ron Mullin, Former Mayor, Mullin Law Firm
3. Lima Restaurant
4. Tim Grayson, Assemblymember
5. Oceanworks Productions, Jim Ocean
6. Koch CPA Firm, Established 1982
7. GetOutBooks, Illustrated Children's Books, Susan Pace-Koch
8. Councilmember Dominic Aliano
9. The Masonic Family of Concord
10. aRt Cottage
11. Pacific Coast Farmers Market
12. Catherine & Bill Hensiek
13. Susan Pace-Koch, Arts Advocate GetOutBooks, Story Tellers Aliano Family: Dave, Vicki, Dominic, Elisa, Natalie
Edi Ersalesi Birsan, Concord Councilmember
14. Concord Historical Society
15. Catherine & Bill Hensiek
16. Susan Pace-Koch, Arts Advocate
17. VIERAART
John Nakanishi
18. Bank of America
19. CAA & City of Concord
20. Edi Birsan & Trixie
21. Mt. Diablo Self Storage
22. Councilmember Carlyn Obringer
Commissioner Ray Barbour
23. Catherine Hensiek
24. Mayor Timothy McGallian & Family
25. Justin Gerdes
Jason Gerdes
Councilmember Carlyn Obringer
26. CAA & City of Concord
27. CAA & City of Concord
28. Umpqua bank
29. CAA & City of Concord
30. Catherine Hensiek
31. CAA & City of Concord
32. CAA & City of Concord
33. CAA & City of Concord
34. Mayor Timothy McGallian & Family
SPONSORS
A Message from past president
of CAA, Catherine Hensiek
Become a
member of
CAA
Visit these sites to see ongoing, year-round shows
from members of CAA
Walk or drive near Todos Santos Square or along major roadways in Concord and you can spot beautiful artwork on utility boxes. Concord Art Association (CAA) and the City of Concord collaborated on the project to create these small moments of art.
In 2017 several groups of artists and community leaders had been discussing ways to brighten the streets of Concord with art. Various ideas coalesced into a pilot project to paint art on eleven city owned traffic control and electrical boxes in and around Todos Santos Square in 2018. To inspire the artists CAA proposed the theme, "Music and Market." As support for public art grew in the community, the City of Concord again reached out to CAA to promote and manage additional utility box art projects. During the height of the pandemic in 2020, artists painted art with the theme "Celebrate Concord" on four boxes downtown. In 2022, the overall vision of placing art along major roadways was approved by the City of Concord. By the end of this third phase artists had painted twenty more boxes located on Monument Boulevard, Willow Pass Road and Clayton Road and other streets in the city.
Thank you to city staff, especially Justin Ezell and Valerie Barone, for supporting this project from day one and to the members of the Concord City Council from 2018 on who trusted that this project would enhance the community.
Special thanks to the CAA Utility Box Art Committee: Catherine Hensiek, Renaye Johnson, Patti St Denis, Janice Davis, Thea Jue, Susan Pace-Koch, and Janet Brown who promoted and managed the project to completion and to the many local artists who created the amazing art! Visit Concord
2151 Salvio St, Suite T
Concord CA
Centre Concord
5298 Clayton Rd
Concord CA
Untitled
https://qrfy.io/r/UQtOhOSRqI
Concord Utility Box Project
Phase IV, 2026
Attachment 2
Location: Bisso Lane & Concord Ave
Sponsor: Concord Art Association
Location: The Alameda & Clayton Rd
Sponsor: Carlyn Obringer
Location: Concord Blvd & Mendocino Dr
Sponsor: Laura Hoffmeister
Location: Treat Blvd & Turtle Creek Rd
Sponsor: Turtle Creek HOA
Location: Diamond Blvd & Willow Pass Rd
Sponsor: MCE
Location: Cowell Rd & N. Larwin Ave
Sponsor: Catherine Hensiek
Concord Utility Box Project
ALEX DIOSDADO, CITY URBAN FORESTER
8/25/26
1
Location: Bisso Lane & Concord Ave
Sponsor: Concord Art Association
Location: The Alameda & Clayton Rd
Sponsor: Carlyn Obringer
Location: Concord Blvd & Mendocino Dr
Sponsor: Laura Hoffmeister
Location: Treat Blvd & Turtle Creek Rd
Sponsor: Turtle Creek HOA
Location: Diamond Blvd & Willow Pass Rd
Sponsor: MCE
Location: Cowell Rd & N. Larwin Ave
Sponsor: Catherine Hensiek
Location: The Alameda & Clayton Rd
Sponsor: Carlyn Obringer
Benched PowerPoint
Agenda Item No. 5.a, page 5
August 25, 2026
Staff Report
Date: August 25, 2026
To: City Council
From: Kit Jory Sr, Director of Public Works
[email protected]
(925) 671-3385
Prepared by: Abhishek Parikh, Deputy Director of Public Works - Transportation [email protected]
(925) 671-3139
Subject: Considering approval of the I-680 Corridor Ramp Metering Memorandum of Understanding (MOU) and authorizing the
City Manager to execute the MOU in a form acceptable to the City Attorney and directing staff to pursue the outstanding coordination items identified through the I-680 Ramp Metering Technical Committee (RMTC) and Ramp Metering Working
Group (RMWG)
CEQA: Not a project/exempt per CEQA Guidelines Sections 15060(c), 15061(b)(3), 15273, 15301 15378, and/or Public Resources Code Section 21065. Caltrans is the “lead agency” pursuant to CEQA Guidelines Section 15051(a) and (d). Both the Caltrans ARM project and CCTA CARM project have
received CEQA and National Environmental Protection Act (NEPA) clearance.
Report in Brief
The California Department of Transportation (Caltrans) and the Contra Costa Transportation Authority (CCTA) are partnering to implement ramp metering on Interstate 680 (I-680). The main goals of ramp metering are to manage recurrent and non-recurrent congestion to improve operational efficiency for the I-680 corridor without adversely affecting the adjacent local arterials, and to improve traffic and incident detection to enhance corridor operations.
5.b5.b5.b
City Council Agenda Report
Agenda Item. 5.b
August 25, 2026
To formalize the collaborative framework for ramp metering operations along the I-680 corridor, CCTA has led the development of the I-680 Corridor Ramp Metering Memorandum of Understanding (MOU). The MOU establishes the goals, policies, governance structure, performance metrics, and responsibilities of all signatory parties, including Caltrans, CCTA, Contra Costa County, and the cities and towns along the corridor.
Recommended Action
Approve the I-680 Corridor Ramp Metering Memorandum of Understanding (MOU) and authorize the City Manager to execute the MOU in a form acceptable to the City Attorney, and direct staff to pursue the outstanding coordination items identified in this report through the I-680 Ramp Metering Technical Committee (RMTC) and Ramp Metering Working Group (RMWG) and make the CEQA determinations as provided in this staff report.
Background
The Interstate 680 (I-680) corridor is a critical north-south transportation artery traversing approximately 25 miles through Contra Costa County, serving the City of Concord and neighboring communities. Recurring peak-hour congestion along this corridor results in travel times approximately double those of off-peak periods, with projections indicating continued degradation without active management intervention.
Caltrans and CCTA are partnering to implement ramp metering on I-680. The main goals of ramp metering are to manage recurrent and non-recurrent congestion to improve operational efficiency for the I-680 corridor without adversely affecting the adjacent local arterials, and to improve traffic and incident detection to enhance corridor operations.
CCTA developed the Innovate 680 Program over six years ago in partnership with the local agencies along the I-680 Corridor in Contra Costa County to address congestion through an integrated suite of improvements. A central component of that program is the Coordinated Adaptive Ramp Metering (CARM) Project, which will deploy the STREAMS advanced traffic management platform to operate ramp meters along northbound I-680 from Alcosta Boulevard to Willow Pass Road as a three-year demonstration project. The CARM project will supplement ramp metering improvements being constructed by Caltrans under State Highway Operation and Protection Program (SHOPP).
Caltrans had programmed SHOPP funds to install fiber-optic cable communication trunk lines along I-680 and I-780, install/upgrade Traffic Operation Systems (TOS), and install/upgrade ramp metering along the I-680 corridor in Contra Costa County (with the exceptions of the State Route 24 and State Route 242 ramps), including widening and/or creating high-occupancy vehicle (HOV) bypass lanes where feasible in selected locations. Caltrans utilizes an Adaptive Ramp Metering (ARM) system with an algorithm called Fuzzy Logic. Per Section 4.1 of the MOU, the Caltrans SHOPP ramp metering
City Council Agenda Report
Agenda Item. 5.b
August 25, 2026
project limits extend from Alcosta Boulevard to Marina Vista/Waterfront Road in both directions, excepting those ramps implemented under the CCTA CARM and Northbound Express Lane Completion projects. Because the CARM demonstration corridor terminates at Willow Pass Road, Concord’s northbound ramps north of Willow Pass Road, and all of Concord’s southbound ramps, are located outside the CARM demonstration corridor and will be operated by Caltrans using ARM.
Analysis
Ramp meters are used at freeway on-ramps to regulate and manage traffic entering the freeway. Key benefits of ramp metering include the ability to smooth out traffic flow; discourage off-ramp to on-ramp cut through traffic; reduce crashes caused by vehicles merging onto freeway; and provide reliable and efficient travel on freeways thereby reducing need to cut through city streets.
The planning process for the proposed ramp metering on I-680 included the Ramp Metering Development Plans (RMDP) by Caltrans and I-680 CARM Corridor Evaluation by CCTA. These planning studies and subsequent design efforts include evaluation of existing freeway traffic operations, determination of freeway mainline and ramp traffic volumes and considerations to minimize impacts to the environment, right-of-way and local traffic operations.
To formalize the collaborative framework for ramp metering operations along the corridor, CCTA has led the development of the I-680 Corridor Ramp Metering MOU with active participation with Caltrans and local agency partners. The MOU establishes the goals, policies, governance structure, performance metrics, and responsibilities of all signatory parties, including Caltrans, CCTA, Contra Costa County, and the cities and towns along the corridor.
The following agencies are parties to this MOU: Caltrans, CCTA, Contra Costa County, and the cities of Concord, Martinez, Pleasant Hill, San Ramon, Walnut Creek, and the Town of Danville.
Considerations for Continued Coordination
Staff supports the MOU and recommends its approval. The MOU is a non-binding framework document, and it establishes the governance venues through which operational matters will be resolved as design and implementation advance.
Participation as a signatory provides Concord with representation on both the Ramp Metering Technical Committee (RMTC) and the Ramp Metering Working Group (RMWG). Staff has identified the following items that warrant continued coordination with Caltrans and CCTA and intends to pursue each through those venues and through the forthcoming Ramp Metering Operation and Maintenance Procedures (RMOMP):
1. Queue management approach on ARM-operated ramps. Six I-680 ramps are located within Concord. One of these, the northbound Willow Pass Road on-ramp, is
City Council Agenda Report
Agenda Item. 5.b
August 25, 2026
included in the CARM demonstration corridor. The remaining five will operate under the Caltrans ARM system. The MOU describes several queue management features that apply to CARM operations, including preemptive Queue Control beginning at approximately 60 to 70 percent of ramp storage (available vehicle storage length between the ramp meter and upstream intersection), a nominal maximum wait time parameter, coordinated release across multiple ramps, and mid-ramp queue detection.
Under ARM, the MOU indicates that meter signals rest on green once detection confirms a queue has reached the end of the ramp. Staff will work through the RMTC and the RMOMP to establish location-specific queue response protocols for ARM- operated ramps in Concord.
2. Ramp storage at constrained Concord locations. Appendix A of the MOU identifies several Concord ramps with limited storage and no geometric modification currently programmed, including the I-680 northbound Burnett Avenue on-ramp at 250 feet, the I-680 southbound Concord Avenue/Chilpancingo Parkway ramp at 510 feet (Concord/Pleasant Hill Border), and the I-680 southbound Willow Pass Road on-ramp at 560 feet. The I-680 southbound Willow Pass Road on-ramp is identified at 744 feet under similar conditions. Each of these locations is a single lane. The only civil improvement for widening of ramps is proposed for I-680 northbound Willow Pass Road on-ramp to 1520 feet under the CCTA CARM project. Staff will request confirmation from Caltrans and CCTA that storage at these locations is adequate for the proposed metering operations, and will seek discussion of mitigation measures where it is not, in advance of activation.
3. Measurement of arterial performance. Section 10.2 of the MOU establishes performance metrics reporting for arterial travel time, arterial travel delay, and arterial impacts. Each of these three metrics is qualified as being dependent on the availability of commercial third-party data sources or other information from agency partners.
These are metrics most directly relevant to Concord’s local street network. Staff will seek confirmation that acquisition and reporting of arterial performance data will be performed and funded by the operating agencies as part of the established reporting program.
4. Data access and independent verification. Section 12.1 of the MOU provides stakeholder agencies with read-only access to the CARM Dashboard and notes that the Dashboard does not offer direct export of ramp metering parameters or metering rates.
Section 12 further notes that certain CARM data may be considered proprietary. Section
12.2 indicates that detector data may be provided to local agency systems at regular intervals where the receiving agency has appropriate infrastructure in place. Staff will request a raw detector data feed for the Concord ramps under this provision so that the City can independently review conditions at its ramp terminal intersections.
5. Governance cadence and interim response. Under Sections 9.2 and 9.3, the RMTC meets approximately every six months and the RMWG approximately every
City Council Agenda Report
Agenda Item. 5.b
August 25, 2026
twelve months. Section 11.4 directs non-emergency local agency change requests to designated Caltrans and CCTA points of contact but does not establish a timeframe for response. Ramp metering operations adjust continuously, and operational concerns may arise between scheduled meetings. Staff will seek inclusion of a defined response timeframe for local agency operational requests in the RMOMP.
None of the items above are viewed by staff as impediments to approval of the MOU.
The MOU is expressly a living document, and Section 14 provides that any party may propose changes. Staff intends to report back to the City Council on the status of these items prior to or concurrent with activation of ramp metering within Concord.
Financial Impact
There is no direct fiscal impact on the City as a result of approving this MOU. The MOU explicitly states that it imposes no direct financial obligation on local jurisdictions. Capital costs and operating costs for ramp metering infrastructure are funded by Caltrans (via SHOPP) and CCTA (via federal, state, and local funds managed by CCTA).
Environmental Determination
Pursuant to the California Environmental Quality Act of 1970, Public Resources Code Section 21000, et seq., as amended and implementing State CEQA Guidelines, Title 14, Chapter 3 of the California Code of Regulations (collectively, “CEQA”) these activities do not constitute a “project” within the meaning of Public Resources Code Section 21065, 14 Cal Code Regs. Sections 15060(c), 15273 and/or 15378, because they have no potential for resulting in either a direct physical change in the environment, or a reasonably foreseeable indirect physical change in the environment, and/or the activities consist of the creation of government funding mechanisms or other governmental fiscal activities which do not constitute a “project”. Even if the activities did constitute a project under CEQA, they fall within the “common sense” exemption set forth in 14 Cal. Code Regs. Section 15061(b)(3) excluding projects where “it can be seen with certainty that there is no possibility that the activity in question may have a significant effect on the environment” and they activities are categorically exempt pursuant to 14 Cal. Code Regs. Section 15301 (Existing Facilities). No unusual circumstances exist and none of the exceptions under CEQA Guidelines Section 15300.2 apply. Accordingly, no further environmental review is necessary. This determination reflects the City’s independent judgment and analysis.
Caltrans is the “lead agency” in connection with the Project. Caltrans ARM project and CCTA CARM project have received California Environmental Quality Act (CEQA) and National Environmental Protection Act (NEPA) clearances. For the Caltrans ARM Project, Categorical Exemption and Categorical Exclusion (CE/CE) was signed on April 24, 2023. For CCTA CARM Project, the CE/CE was approved on April 16, 2024 for Segment 1 (Northbound I-680 from Alcosta Boulevard to Olympic Boulevard).
Revalidation of the NEPA/CEQA CE/CE to add the segment on Northbound I-680 from Olympic Boulevard to Burnell Avenue was completed on November 13, 2025.
City Council Agenda Report
Agenda Item. 5.b
August 25, 2026
Accordingly, Concord is not responsible for conducting any further environmental review of the Project (CEQA Guidelines Section 15051(a) and (d)).
Public Contact
The City Council Agenda was posted.
Attachment
1. I-680 Corridor Ramp Metering Memorandum of Understanding (MOU)
I-680 Corridor, Contra Costa County, Memorandum of Understanding on Ramp Metering Operations Page | i
I-680 CORRIDOR RAMP METERING
MEMORANDUM OF UNDERSTANDING
May 2026
Attachment 1
I-680 Corridor, Contra Costa County, Memorandum of Understanding on Ramp Metering Operations Page | i
This page intentionally left blank.
I-680 Corridor, Contra Costa County, Memorandum of Understanding on Ramp Metering Operations Page | i
Table of Contents
1. SUMMARY ............................................................................................................................ 1
2. GOALS ................................................................................................................................. 1
3. PROJECT BACKGROUND & DESCRIPTION ............................................................................. 2
3.1 Project Background ............................................................................................................. 2
3.2 Ramp Metering Goals .......................................................................................................... 3
4. PROJECT SCOPE ................................................................................................................... 4
4.1 Funded Projects .................................................................................................................. 5
4.2 Unfunded CARM Segment ................................................................................................... 5
5. OPERATION TECHNOLOGIES ................................................................................................ 5
5.1 Metering Operations ........................................................................................................... 5
5.2 Traffic Detection ................................................................................................................. 6
5.3 Traffic Management Centers ............................................................................................... 6
5.4 Interface with other Systems and Projects ........................................................................... 6
5.4.1 Project Interface ........................................................................................................... 6
5.4.2 System Interface .......................................................................................................... 7
5.5 Demonstration Period and Evaluation .................................................................................. 8
6. ROLES AND RESPONSIBILITIES ............................................................................................. 8
6.1 Ownership .......................................................................................................................... 9
6.2 Project Implementation ...................................................................................................... 9
6.3 Ramp Meter Operation ...................................................................................................... 10
7. OPERATION POLICIES ......................................................................................................... 11
7.1 Operation Principles ......................................................................................................... 11
7.2 Daily Operations ............................................................................................................... 13
8. INCIDENT RESPONSE ......................................................................................................... 13
9. MANAGEMENT AND GOVERNANCE .................................................................................... 14
9.1 Technical Staff .................................................................................................................. 15
9.2 I-680 Ramp Metering Technical Committee (RMTC) ............................................................ 15
9.3 I-680 Ramp Metering Working Group (RMWG) .................................................................... 15
10. PERFORMANCE METRICS AND REPORTING .................................................................... 16
10.1 Mainline Traffic Performance ........................................................................................... 17
I-680 Corridor, Contra Costa County, Memorandum of Understanding on Ramp Metering Operations Page | ii
10.2 Entrance Ramp Performance ........................................................................................... 17
10.3 Other Considerations ...................................................................................................... 18
10.4 Functional Performance Reporting .................................................................................. 19
11. PUBLIC OUTREACH ........................................................................................................ 19
11.1 Public Education ............................................................................................................. 19
11.2 Emergency Communications and Requests ..................................................................... 20
11.3 Responses to Public Queries and Comments ................................................................... 20
11.4 Stakeholder Agency Change Request (non-emergency) .................................................... 20
12. DATA SHARING .............................................................................................................. 20
12.1 CARM Dashboard ........................................................................................................... 21
12.2 Caltrans PeMS or Similar System ..................................................................................... 21
12.3 Information Request ....................................................................................................... 22
13. COST AND FUNDING ...................................................................................................... 22
14. MOU UPDATES ............................................................................................................... 22 Appendix A – Proposed I-680 Ramp Metering on I-680 in Contra Costa County .......................... 25 Appendix B – Related ITS Projects ........................................................................................... 28 Appendix C – Overview of ARM and CARM Systems .................................................................. 30 Appendix D – Glossary of Terms and Acronyms ........................................................................ 33
I-680 Corridor, Contra Costa County, Memorandum of Understanding on Ramp Metering Operations Page | iii
DOCUMENT HISTORY
Version Description Date Initials Approval
0.1 Initial draft for internal review 4/1/25 FL
0.2 Draft for CCTA review 4/14/25 FL
0.3 Draft for Caltrans and CCTA review 4/21/25 FL
0.4 Revised Draft for Caltrans and CCTA
review 6/9/25 FL/SP
0.5 Draft for Caltrans, CCTA and Local Agency
review 7/21/25 FL/SP
0.6 Revised Draft for Caltrans, CCTA and
Local Agency review 10/29/25 FL/SP
0.7 Revised Draft for Caltrans, CCTA and
Local Agency review 11/10/25 FL
0.8 Revised Draft for Caltrans and CCTA
review 1/2/26 FL
0.9 Draft for Caltrans, CCTA and Local Agency
for technical and legal reviews 1/26/26 FL
0.95a Draft for Caltrans legal review 2/23/26 FL
0.96a Draft for CCTA and Local Agencies 4/21/26 FL
1.0 Released for approval and concurrence 5/13/26 FL
I-680 Corridor, Contra Costa County, Memorandum of Understanding on Ramp Metering Operations Page | iv
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I-680 Corridor, Contra Costa County, Memorandum of Understanding on Ramp Metering Operations Page | 1
1. SUMMARY
This Memorandum of Understanding (MOU) summarizes the goals, policies, processes, and procedures intended to be followed by all parties working together in a coordinated manner to enhance traffic operations through the implementation of ramp metering (RM) along the Interstate 680 (I-680) corridor in Contra Costa County. This MOU is intended to identify the overall commitment and responsibilities regarding ownership, operations, and maintenance of the various equipment installed as part of both the Innovate 680 Coordinated Adaptive Ramp Metering (CARM) Pilot Project and the Caltrans I-680 Ramp Metering - State Highway Operations and Protection Program (SHOPP) Project. This MOU also serves as a foundation of how future ramp meters will be operated in the corridor. This MOU is a non-legally binding document.
The following entities are parties to this MOU:
California Department of Transportation (Caltrans), Contra Costa Transportation Authority (CCTA), Contra Costa County (County), the cities of Concord, Martinez, Pleasant Hill, San Ramon and Walnut Creek, and the Town of Danville.
In addition, Caltrans and CCTA will prepare a Ramp Metering Operation and Maintenance Procedures (RMOMP). The RMOMP is intended to be a living document and includes provisions that are often referred to as Standard Operating Procedures (SOPs). It will also provide the foundation for an Operation and Maintenance (O&M) Agreement between Caltrans and CCTA,
2. GOALS
The goals of the MOU are to document the common understanding of all parties regarding the goals, planning, policies, procedures, implementation, ownership and operation of RM along the I- 680 corridor in Contra Costa County.
The MOU covers the following areas:
• Decision Process and Governance- this defines the decision-making process and framework for ramp metering operations on both policy and technical matters;
• Performance Metrics- this defines the Freeway Mainline, Entrance Ramp, and Local Arterials performance metrics that will be used as the basis for determining the effectiveness of RM operational strategies;
• Operation Strategies- this provides guidance and protocol to optimize and balance freeway mainline and ramp operations to improve mainline productivity and avoid impacts to local arterials;
• Communications Protocol- this provides the communications protocol amongst Caltrans, CCTA, and local jurisdiction partners;
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• Data Sharing- this identifies traffic data that will be shared amongst CCTA, Caltrans and local jurisdiction partners. It also describes how such data will be transmitted and secured, including online access to the CARM Dashboard. In addition, this includes a policy on data privacy protection;
• Public Outreach- this covers protocol and processes on public outreach and messaging, tracking social media, and responses to queries and complaints from the public and elected officials; and
• Performance Reporting- this discusses the contents and metrics in the reporting of the RM performance for the corridor, and the frequency of the reporting.
The capital costs for the Caltrans SHOPP and initial phase of the Innovate 680 CARM projects are the responsibilities of Caltrans and CCTA, respectively. Both agencies will coordinate and continue to seek additional funding to accomplish the ultimate goal of full CARM implementation and operation along the I-680 corridor within Contra Costa County.
The daily operations and maintenance (O&M) of all RM equipment, mainline and ramp traffic detection, and RM and traffic management systems will primarily be the responsibilities of Caltrans and CCTA. This is further discussed in Section 6.4.
3. PROJECT BACKGROUND & DESCRIPTION
3.1 Project Background
The I-680 Corridor is a major transportation feature of Contra Costa County. I-680 provides a six- to ten-lane major north-south freeway for approximately 25 miles through Contra Costa County. I-680 is functionally classified as an Urban Principal Arterial-Interstate Freeway and is considered a Lifeline Highway route along the entire length of the interstate freeway. The segment of I-680 within Contra Costa County includes 24 local service interchanges and 3 major State Route (SR) system interchanges with SR24 in Walnut Creek, SR 242 in Pleasant Hill, and SR 4 in Pacheco. Congestion during the peak hours results in travel times approximately double those of the non-peak times.
Future projections indicate travel times to traverse the corridor during peak hours will continue to increase significantly.
CCTA’s Innovate 680 Program was developed to alleviate congestion along the corridor. The Program consists of the following six projects:
• Northbound (NB) I-680 Express Lane Completion;
• Transit Bus on Shoulder (TBOS);
• Shared Mobility Hubs (SMH);
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• Advanced Technologies: CARM and Coordinated Adaptive Traffic Signals (CATS);
• Automated Driving System (ADS); and
• Mobility as a Service/Mobility on Demand (MOD).
Each of the 6 projects plays an important role in an integrated approach and, when operating together, will maximize the efficiency of the I-680 Corridor with secondary operational benefits to connecting State highways and local arterials.
Environmental considerations, as well as physical and financial constraints, do not allow for further significant capacity increase to accommodate the increase in traffic demand. As such, Caltrans, CCTA, and the jurisdictions along the corridor are collaborating as part of the Innovate 680 Program to improve operations through an integrated suite of strategic corridor improvements.
Additional information is provided at: https://ccta.net/projects/innovate-680/.
Caltrans had programmed SHOPP funds to install fiber-optic cable communication trunk lines along I-680 and I-780, install/upgrade Traffic Operation Systems (TOS), and install/upgrade RM along the I-680 corridor in Contra Costa County (with the exceptions of the Route 24 and 242 ramps), including widening and/or creating high-occupancy vehicle (HOV) bypass lanes where feasible in selected locations.
In 2022, CCTA completed the I-680 Advanced Technology Project Coordinated Adaptive Ramp Metering (AT-CARM) Concept Corridor Evaluation. The Evaluation recommended the implementation of CARM along the corridor to supplement the Caltrans SHOPP ramp meter installations to maximize the benefits of ramp metering. In addition, it identifies a possible phased implementation approach based on benefits, costs, physical and environmental considerations.
Construction of the Caltrans SHOPP project (EA 04-1Q721) began in November 2025 and CCTA expects the initial CARM enhancement project construction, from Alcosta Boulevard to Willow Pass Road in the northbound direction, to begin in 2027.
A summary of the ramp meters proposed to be used in this efforts listed is in Table 1 in Appendix A.
3.2 Ramp Metering Goals
The RM implementation along the I-680 corridor in Contra Costa County is intended to:
.
• Manage both recurrent and non-recurrent congestion to improve operational efficiency and reliability of the I-680 corridor without adversely affecting local arterials. This is expected to
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result in more uniform travel speed along the mainline and reduce rearend accidents due to sudden speed changes;
• Improve traffic and incident detection to support ramp metering and CARM implementation;
• Promote ridesharing by providing HOV-priority lane where ramp configuration allows; and
• Encourage collaboration with local agencies for further implementation of ITS elements including advanced traffic management system. The details will be identified as those Intelligent Transportation Systems (ITS) projects proceed. A list of related ITS projects is provided in Appendix B.
4. PROJECT SCOPE
Figure 1: Contra Costa County I-680 Funded Ramp Metering Projects
(ARM Operation)
(CARM Operation)
(CARM Operation)
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The initial RM implementation along the I-680 corridor will be constructed in phases as described below:
4.1 Funded Projects
Figure 1 shows the three funded projects that will implement ramp metering in the corridor. This includes:
1. SHOPP RM/TOS Project (EA 04-1Q721) – Project Number 0423000277 – PPNO 2020W; Ramp Limits: Alcosta Boulevard to Marina Vista/Waterfront Road (both directions) except for ramps implemented by the two projects listed below; Sponsor: Caltrans
2. CARM Project Segments 1 and 3A (EA 04-0Q960) - Project Number 0418000188 – PPNO 0521L: Ramp Limits: Alcosta Boulevard to Willow Pass Road except for North Main Street (northbound only); Sponsor: CCTA; and
3. Northbound I-680 Express Lane Completion (Phase 1) (EA 04-0Q3100) - Project Number 0418000070 – PPNO 2311B; Ramp Limits: North Main Street (northbound only); Sponsor: CCTA
These projects are discussed in detail in Appendix A.
4.2 Unfunded CARM Segment
In the long-term, Caltrans and CCTA anticipate that CARM will be implemented along the entire I- 680 corridor within Contra Costa County, dependent on actual CARM performance and evaluation.
However, certain segments of I-680 shown below are currently only funded to implement fuzzy logic based Adaptive Ramp Metering (ARM).
• Northbound from Burnett Avenue to Contra Costa/Solano County line; and
• Southbound along the entire corridor within Contra Costa County.
Caltrans and CCTA agree to collaborate to seek and obtain additional funds to implement CARM for these segments in the future. Information on fuzzy logic based ARM is provided in Appendix C.
5. OPERATION TECHNOLOGIES
It is intended that the best ramp metering and supporting technologies, subject to available funding, environmental and right-of-way constraints, will be implemented along the I-680 corridor.
This MOU covers the range of CCTA and Caltrans sponsored RM projects that will deploy a combination of ramp metering technologies.
5.1 Metering Operations
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Ramp metering along the corridor will be deployed using a combination of ARM systems including the ARM system utilizing fuzzy logic by Caltrans system and the CARM system utilizing the STREAMS® traffic management platform by CCTA. An overview of the two systems is given in Appendix C.
5.2 Traffic Detection
The Caltrans ARM system utilizes existing mainline count stations and proposed loop detection at the ramps to inform the ramp metering system.
The proposed CARM system requires a robust deployment of advanced vehicle detection devices and other ITS devices, such as field processors, to provide the needed data to manage the ramp meters based on real-time traffic conditions. Traffic detection and monitoring will be provided through a combination of detector loops, mainline The Infra-Red Traffic Logger (TIRTL) devices, and Closed Circuit Television (CCTV) cameras. These devices will be connected to a Caltrans trunk fiber-optic line that runs along the I-680 corridor. The devices necessary to support ramp metering on CARM ramps will be integrated with the STREAMS® platform compatible with standard Caltrans ramp metering equipment with minimal interfacing with local arterial signal systems.
5.3 Traffic Management Centers
The day-to-day ramp metering operations will be managed through Caltrans and CCTA Traffic Management Centers (TMCs). The Caltrans TMC is located at the District 4 office in Oakland and is staffed by Caltrans, California Highway Patrol (CHP) and Freeway Service Patrol (FSP) personnel.
The CCTA TMC is intended to primarily reside virtually with operations personnel working remotely.
This includes traffic management specialists as well as the technical support staff for the STREAMS® freeway management system and underlying ITS components. In addition, they have direct access to field maintenance and repair personnel to troubleshoot, maintain and repair or replace field devices.
Communication links and protocol between the Caltrans and CCTA TMCs will be discussed in the RMOMP.
5.4 Interface with other Systems and Projects
Caltrans and CCTA utilize multiple strategies along the I-680 corridor to improve safety and productivity, reduce congestion and promote the use of transit and carpooling. Some of these strategies and potential interfaces with the I-680 ramp metering projects are discussed below.
5.4.1 Project Interface
Related Innovate 680 projects include Coordinated Adaptive Traffic Signal (CATS), Northbound Express Lane Completion (ELC) Phase 1, and Transit Bus on Shoulder (TBOS). Additional information is given below.
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• CATS - The CATS project includes management of arterial roadway traffic signal systems to optimize traffic flow on selected local arterial corridors that either parallel the I-680 corridor or interact with corridor ramps. One of the goals is to modulate arterial traffic flow in response to congestion or incidents on I-680. Such work will only occur with the consent of the jurisdiction that operates the arterial. The CATS arterial traffic management systems will potentially receive traffic data from the CARM systems traffic detection devices. This project is expected to be implemented in the future, after the CARM initial implementation project (northbound from Alcosta Boulevard to Willow Pass Road) is operational;
• Northbound I-680 ELC Phase 1 – The NB ELC Phase 1 project will construct a new Express Lane from just south of North Main Street to State Route 242 and will convert the existing HOV lane to express lane from SR242 to Arthur Road. It will also reconstruct the northbound Lawrence Way/North Main Street braided entrance ramp. Construction of the NB ELC Phase 1 project will be coordinated and will interface with the SHOPP RM and CARM project construction, including highway and electrical installations in the braided ramp area. The NB ELC Phase 1 construction is expected to start in 2027; and
• TBOS- The TBOS project covers NB I-680 from the Bollinger Canyon Road entrance ramp to the Ygnacio Valley Road exit ramp, within the segment of I-680 with CARM operation. It allows transit buses to utilize the freeway shoulder when mainline speed drops below 35 mph. The TBOS system will interface with the CARM STREAMS® system to hold ramp signals on red as buses pass the ramp using the shoulder to avoid conflict between the transit bus and ramp traffic. Additional information may be communicated to the transit bus driver through an on-board display. If sufficient funding is secured, this project will be implemented in the future, after the CARM project (northbound from Alcosta Boulevard to Willow Pass Road) is operational.
5.4.2 System Interface
CCTA has developed an Innovate 680 AT-CARM Concept of Operations (ConOps)1 document that outlines the proposed CARM system deployment and operations during the initial three-year CARM demonstration period. The AT-CARM ConOps includes details on the proposed CARM system architecture and system integration. The CARM system is anticipated to be delivered in a cloud- based configuration. CARM operators would access the STREAMS® platform server via a secure firewalled virtual private network (VPN) connection.
The STREAMS® server would be integrated with the Caltrans ITS network to allow communications with individual vehicle detectors, field processors, and ramp meter signal controllers to facilitate CARM operations. It is also anticipated that STREAMS® would have some level of integration with the Caltrans District 4 TMC. The details and level of that integration are still being coordinated at the time this MOU is executed and will be finalized during the CARM Design phase. At a minimum,
1 DRAFT CCTA Innovate 680 – I-680 Advanced Technology Project – Coordinated Adaptive Ramp Metering (CARM) Concept of Operations (ConOps), November 2024
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STREAMS® would be required to provide ramp and mainline vehicle detection data to the Caltrans Performance Measurement System (PeMS), or other similar systems.
The final details of the system interface will be included in the RMOMP.
5.5 Demonstration Period and Evaluation
It is anticipated that initially CARM operations will be deployed for a period of three years as a demonstration project on northbound I-680 from Alcosta Boulevard to Willow Pass Road. CCTA, in collaboration with Caltrans and local agency partners, will monitor and utilize a set of key performance indicators (KPIs) to evaluate the performance of all metered ramps against the pre- metered condition. The same KPIs, or equivalent, would be used for both ARM and CARM operations. This is further discussed in Section 10.
Throughout the demonstration period, Caltrans and CCTA, with support of and input from local stakeholders, will jointly assess the performance of both ramp metering systems. If either the ARM or CARM system does not perform as anticipated, CCTA and Caltrans will work collaboratively to resolve any performance issues. Similarly, towards the end of the demonstration period, Caltrans and CCTA, with support of and input from local stakeholders, will jointly assess the operations and performance of both systems against the pre-metered condition, based on the performance and available funding. If either the ARM or CARM system does not perform as anticipated, CCTA and Caltrans will work collaboratively to resolve any operations and performance issues. This is further discussed in Section 10.
If CARM operations are to continue (or be expanded), CCTA will coordinate with Caltrans and other local stakeholders to secure sufficient funding to support ongoing operations of the initial CARM segment. Upon successful demonstration of CARM, CCTA, with support from Caltrans, will seek funding to implement CARM in the remaining segments. These improvements may include the installation of additional mainline and ramp vehicle detection, CCTV and other supporting ITS devices, and additional ramp storage and/or discharge capacity.
If CARM operations do not continue and ramp meters in the initial CARM segment are to be reverted to ARM operations, CCTA will fund and coordinate with Caltrans and other local stakeholders to reconfigure the entrance ramp metering equipment per Caltrans Ramp Metering Design Manual (RMDM) requirements and remove any equipment supporting CARM operation. The potential conversion to Caltrans ARM operations would also include a re-evaluation of the feasibility of implementing HOV Preferential Lane (HOVPL) on entrance ramps along the corridor.
6. ROLES AND RESPONSIBILITIES
The I-680 corridor in Contra Costa County traverses through multiple cities, towns, and the unincorporated areas of the County. The primary sponsors and operators of ramp metering are Caltrans and CCTA. Their roles and responsibilities are discussed below.
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6.1 Ownership
Caltrans is the owner and operator of the I-680 corridor, including all vehicle detection devices, ramp metering equipment, CCTV and associated ITS. CCTA will install devices along the corridor for vehicle detection and to incorporate the STREAMS® freeway management platform to operate ramp meters using CARM algorithms at selected ramp locations with an initial three year demonstration period. If CARM operations continue beyond the initial 3-year period, it is anticipated that ownership of all CARM equipment will rest with Caltrans. This will be addressed as part of a Caltrans-CCTA Operation and Maintenance Agreement.
If CARM operations do not continue and ramp meters in the initial CARM segment are to be converted to ARM operations, any equipment supporting CARM operation that is removed by CCTA during such conversion will become the property of CCTA. All vehicle detection devices and ramp metering equipment will remain the properties of Caltrans.
6.2 Project Implementation
Caltrans plans to implement ramp metering operations in both directions for the entire I-680 corridor within the County. CCTA will supplement the metering operations by incorporating CARM technology and related improvements. Such improvements will be constructed under a Caltrans Encroachment Permit.
In 2022, CCTA prepared and published a feasibility report that recommended implementing CARM in both directions along the full length of I-680 in the County. The report recommended that CARM enhancement be implemented by segments with the following geographical limits:
• Segment 1- northbound from Alcosta Boulevard to Olympic Boulevard;
• Segment 2- southbound from Olympic Boulevard to Alcosta Boulevard; and
• Segment 3- northbound and southbound from SR24 to Marina Vista/Waterfront Road.
Section 4.1 discussed the ramp metering projects along the I-680 corridor that will be implemented by Caltrans and CCTA. It is the intention of both agencies to utilize the best available technology to operate the ramp meters, based on available funding, geometric and other constraints.
The projects will include civil improvements at selected ramps to increase ramp storage and/or discharge capacity, installation of additional Vehicle Detection Station (VDS), ramp metering equipment, and other associated ITS devices.
As of July 2025, funding had been secured for CCTA to implement CARM metering operation, using the STREAMS® freeway management system, in the northbound direction from Alcosta Boulevard to Willow Pass Road. Ramp metering for other ramps in the corridor will be implemented and operated by Caltrans using ARM technology.
CCTA and Caltrans will collaborate to seek additional funding to implement CARM on the other remaining segments.
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6.3 Ramp Meter Operation
Ramp meters along the corridor will be operated by Caltrans and CCTA utilizing ARM and CARM technologies. The detailed operation parameters will be included in the RMOMP. • Initial Start up- The SHOPP ramp metering project is expected to be completed and operational before the CARM project. All the northbound SHOPP meter signals will rest on green during initial activation. When the CARM project also becomes operational, northbound ramp metering operations for both projects will begin simultaneously.
• Hours of Operations- The Caltrans ARM system typically operates during commute hours and on weekdays, if traffic conditions so require. The CCTA CARM system may operate 24/7, based on real-time freeway traffic conditions. STREAMS® activation of ramp meters would typically be expected to occur during periods of increased travel demand including during weekday and weekend peak periods and in response to congestion and incidents;
• Traffic Management Centers- Caltrans will manage ARM ramp metering operations from their TMC in Oakland, where they are co-located with the CHP and FSP. The Caltrans TMC will also have access to the data from the CARM VDS and the CARM-managed signals.
CCTA will manage the CARM ramp meters initially from a virtual TMC and ultimately in hybrid manner that includes the potential for a physical TMC to be co-located in their office.
The Caltrans and CCTA TMCs will have voice and data links. Communication links and protocol between the two TMCs will be included in the RMOMP; and
• Emergency Override- The RM systems will need to accommodate emergency vehicle access as part of operations during ramp metering operations. Caltrans District 4 TMC staff will have the ability to temporarily override ARM system control and deactivate ramp meter signals on an entrance ramp, especially where shoulders are inadequate to allow emergency vehicle access. Similarly, CCTA Operations staff will have the ability to temporarily override CARM system control and deactivate ramp meter signals on an entrance ramp, if needed to allow emergency vehicle access. This manual override ability will assist incident or emergency response efforts by allowing emergency vehicles to enter the I-680 mainline without waiting through a queue during normal ramp metering. The Emergency Override Procedure, including communications protocol between staff of the Caltrans and CCTA TMCs, will be included in the RMOMP.
6.4 Maintenance
The maintenance of all ramp metering equipment and systems will be covered by an O&M agreement between Caltrans and CCTA. CCTA may enter into additional O&M agreement (s) to cover any local arterial intersections that directly interface with the CARM system. It is anticipated that the day-to-day operations and maintenance of ARM operations will be funded by Caltrans.
CARM operation will be funded by CCTA during the demonstration period. CCTA, with support from
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Caltrans, will seek funding for CARM operations beyond the demonstration period. This MOU will not impose any direct financial obligation on any local jurisdictions along the I-680 corridor.
7. OPERATION POLICIES
Ramp metering operation is intended to improve freeway operations and where possible, encourage ridesharing, without jeopardizing traffic operation or creating additional congestion on the local arterial network by adhering to a set of operation policies and the RMOMP.
7.1 Operation Principles
The ramp meters will be operated through a combination of the following strategies and policies, as applicable:
• Increase ramp storage- where possible, this includes increasing the storage on the ramp, either by increasing the number of lanes or lengthening the ramp, or utilizing dedicated ramp turn lanes on local arterials such as on northbound Oak Road and southbound Buskirk Avenue at the Elena Court ramp;
• Increase number of lanes at selected ramps- this includes increasing the number of lanes at the ramps to provide General Purpose (GP) and/or HOVPL in accordance with the Caltrans RMDM for ARM operations, or to provide sufficient storage and discharge capacity at the ramp meter stop bar to meet CARM requirements for CARM operations;
• Improve real time traffic detection on the mainline and ramp queues to provide the necessary data need for metering operations. This includes the following:
➢ Mainline VDS placement at critical locations along the corridor (e.g. merge and diverge points, lane drops and lane adds, known bottleneck locations) at a nominal 1/3 mile spacing to support CARM operation. This provides more detailed and lower latency data to detect changes in traffic conditions such as volume, speed and lane occupancy (as a measure of traffic density). The more granular traffic data allows the metering operation to more quickly respond to changes in mainline traffic conditions;
➢ Ramp detection - the standard Caltrans ramp metering design includes detection at the limit line and the nominal end of the on ramp (actual location is typically the “three-quarter point” of the ARM ramps), as well as the end of ramp of the complementary off ramp. The ramps to be operated under CARM will include an additional detection station at the mid-queue of the on ramp. This allows STREAMS® to more accurately estimate queue length and wait times (time between when vehicle enters ramp and discharged at the meter) allowing the system to
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better manage ramp queues to minimize potential spillback to the local arterials.
Ramps operated under CARM will also utilize detector loops at all ramps; and ➢ CCTV- CCTV will be placed at strategic locations for operation staff to visually monitor mainline and ramp operation condition and operation
• Modulate throughput and metering rates across multiple CARM ramps in real-time – exclusively for ramps operated using STREAMS®, the metering rates can be coordinated across all ramps along the corridor to optimize mainline traffic flows and balance ramp queues. This allows ramps at congested segments of the freeway to maintain acceptable metering rates while minimizing impacts to mainline operation;
• Manage maximum ramp wait time - the ramp wait time influences driver experience and long wait time may result in elevated ramp meter violation rates. Currently, ramps with ARM focus on managing queue length and do not have specific measures to manage maximum ramp wait time. For ramp with CARM operations, the maximum wait time is one of several ramp metering parameters assessed using the CARM suite of algorithms in STREAMS®. STREAMS® utilizes a nominal maximum wait time of 4 minutes. The actual typical average wait time is expected to be much lower.
When the CARM system detects a wait time approaching 4 minutes at a ramp meter, it can speed up the ramp release rate, refreshed every twenty seconds, to maintain the wait time under the 4-minute threshold. The system will coordinate with other upstream and downstream ramps to prevent the increase of the metering rate at one ramp from causing a mainline bottleneck; and
• Avoid ramp spillback onto the local arterials - the data from the combination of traffic detectors on the ramp informs the RM system of ramp queuing. For ARM, the system can detect when a queue has reached the back of the ramp prompting the system to adjust metering rates. The ARM operated ramp signals will hold green to release the vehicles in the queue though this has the potential to create a bottleneck on the mainline.
For CARM, the system continuously estimates ramp storage utilization and, as needed, preemptively adjusts the metering rate at the impacted ramps to avoid any spillback to local arterials. STREAMS® has various stages of Queue Control (QC), where it will begin to accelerate the ramp metering rate at a ramp to prevent spillback if the queue gets to nominally 60% to 70% of the ramp storage capacity. The QC parameter would then continue to accelerate the ramp metering rate if the ramp queue continues to grow. If STREAMS® determines the ramp has reached its storage capacity, then the ramp meter would go into Queue Override (QO), where the ramp meter will release vehicles at the fastest rate possible to prevent a back-up. In both cases, STREAMS® would coordinate the release of vehicles across multiple ramps to manage ramp queues. This may occur throughout the entire corridor at different times when all ramps are either under QC, QO, or
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assisting other ramps under those conditions to manage ramp queues, while still preventing the breakdown of the mainline.
7.2 Daily Operations
A RMOMP will be prepared to document the protocols, processes and procedures of the day-to- day operations. The RMOMP will cover the following areas:
• Operational Policies and Procedures
➢ Ramp Metering Operations including specific performance metrics criteria ➢ Ramp Closure Operations
➢ Emergency and incident response and override
➢ Communications protocol and process
➢ Data collection and sharing
➢ Operational support tools and procedures
➢ Training
• Ramp Meter Maintenance
➢ Maintenance needs and resources
➢ Maintenance procedures
➢ Emergency repair procedures
➢ Spare/backup equipment
➢ Asset management
➢ Training
8. INCIDENT RESPONSE
The improved TOS and additional VDS will improve incident and response time. As a general rule, incident management will be coordinated at the Caltrans TMC. If necessary, CHP or local emergency services can request the Caltrans TMC operators to temporarily override system control and/or deactivate ramps managed by ARM, especially where shoulders are inadequate to allow emergency vehicles to pass. Similarly, Caltrans TMC, CHP or local emergency services can request the CCTA system operator to temporarily override system control and/or deactivate ramps managed by STREAMS®, if needed to allow emergency vehicle access. This manual override ability will assist incident or emergency response efforts by allowing emergency vehicles to enter the I- 680 mainline without waiting through a queue during normal ramp metering. The override protocol and process will be included in the RMOMP.
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9. MANAGEMENT AND GOVERNANCE
The day-to-day operations of the corridor ramp meters will be managed by Caltrans and CCTA technical staff, including the use of consultants, with oversight and direction provided by a governance structure as shown in Figure 2 and further discussed below.
Figure 2: Governance Structure
Table 1: Membership of RMTC and RMWG
Agency RMTC RMWG
Caltrans System Operations Chief Deputy Director- Traffic Operations CCTA Director, Projects Deputy Executive Director, Projects and Operations
Contra Costa
County TBD TBD
Concord Traffic Engineer Deputy Public Works Director
Danville TBD TBD
Martinez Assistant City Engineer Public Works Director
Pleasant Hill Associate Engineer (Traffic) Public Works Director San Ramon Senior Engineer (Traffic) Public work Director and/or City Engineer Walnut Creek Traffic Engineer Traffic Engineer
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In general, all technical and operational matters and issues that may arise should be resolved amongst the partnering agencies at the lowest working level. Issues that may arise would first be referred to the I-680 Ramp Metering Technical Committee (RMTC). The RMTC consists of the technical staff of the local jurisdictions along the corridor, including the cities of Concord, Martinez, Pleasant Hill, Walnut Creek, and San Ramon, the town of Danville, and Contra Costa County, as well staff from Caltrans and CCTA. Items that cannot be resolved can then be elevated to the I-680 Ramp Metering Working Group (RMWG). The RMWG includes senior or executive staff from the same agencies as the RMTC. The detailed makeup of the RMTC and RMWG is shown in Table 1. In the event that no consensus is reached by the RMWG, then the issue can be referred to the Caltrans District 4 Director and the Executive Director of CCTA for final resolution.
A more detailed discussion on the roles of the technical staff, RMTC and RMWG is given below.
9.1 Technical Staff
Daily corridor ramp metering operations will be managed by a team of technical staff at the Caltrans (TMC) and the CCTA TMC. Staff from the two TMCs will be connected virtually. The CCTA TMC will manage ramps operating under the CARM system and the Caltrans TMC will manage all other ramp meters in the corridor. Technical staff on the local jurisdictions can communicate and prepare requests as discussed in Section 11.
9.2 I-680 Ramp Metering Technical Committee (RMTC)
The RMTC consists of technical staff from the local jurisdictions along the corridor, including the cities of Concord, Martinez, Pleasant Hill, Walnut Creek, San Ramon, town of Danville, and Contra Costa County, and staff from Caltrans and CCTA. CCTA will provide administrative support for the RMTC.
The RMTC will meet regularly (normally once every six months), and within 30 days of the release of a semi-annual Ramp Metering Performance Report to review such Reports and/or discuss operational issues, as needed. If necessary and upon request, additional meetings may be scheduled to discuss or provide directions on technical or operational matters or issues. If the RMTC cannot reach consensus on an issue, it may forward the issue to the RMWG.
9.3 I-680 Ramp Metering Working Group (RMWG)
The RMWG consists of senior or executive staff from the local jurisdictions along the corridor, including the cities of Concord, Martinez, Pleasant Hill, Walnut Creek, San Ramon, Town of Danville, Contra Costa County, and from Caltrans and CCTA. CCTA will provide administrative support for the RMWG.
The RMWG will nominally meet once every twelve months, or within 30 days of every second regular RMTAC meeting to review Ramp Metering Performance Reports and/or discuss operational issues, as needed. If necessary and upon request by the RMTC, additional meetings may be
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scheduled to discuss and provide directions on technical or operational matters or issues. If the RMWG cannot reach consensus on any issue, it may forward the issue to the Caltrans District 4 Director and the Executive Director of CCTA for final resolution.
10. PERFORMANCE METRICS AND REPORTING
Regular performance monitoring and reporting will be conducted for ramp metering operations along the I-680 corridor, for both ARM and CARM segments. At the conclusion of the first three months of operations of the northbound CARM demonstration corridor, a preliminary assessment memorandum will be prepared to summarize the performance of both the ARM and CARM segments and comparing conditions in the I-680 corridor before and after the activation of the ramp meters. Thereafter, a Functional Ramp Metering Performance Report will be prepared every six months during the three-year demonstration period to document and evaluate conditions in the I-680 CARM corridor.
The ability of ramp metering to produce corridor improvements to meet performance goals needs to be measured against the metrics used to assess corridor operations. The following subsection shows the list of measures that were developed in coordination with Innovate 680 CARM stakeholder agencies. They will be used to gauge the effectiveness of ramp metering operations to improve existing deficiencies and to deliver benefits to system users and stakeholders. Additional measures may be added based on request and discussion with stakeholders.
The analysis will utilize data from the existing and new vehicle detectors planned for installation along the corridor mainline, as well as existing and new vehicle detectors installed on corridor entrance and exit ramps. Data from these devices will be used to assess traffic conditions both with and without ramp metering operations, to provide an appropriate comparison. Where necessary, commercially available data may also be used. Additionally, most measures will be assessed for before and during performance of ramp metering at peak periods, when ramp meters are anticipated to be active. An initial review of performance data from existing and new traffic detectors will be necessary before the extent of the AM and PM peak periods can be defined for further analysis.
As further discussed below, the metrics are categorized for mainline, ramp, and other performance. Each metric will be presented by segment along the I-680 corridor. The level of detail in the reporting may vary from segment to segment due to the varying density of the VDS. However, it is important to establish a common set of KPIs to compare the effectiveness of both RM systems, and against the existing condition. Therefore, CCTA and Caltrans will work collaboratively to obtain the necessary data to conduct the assessments. The KPIs are intended to cover mainline and ramp performance as well as other considerations, as further discussed below.
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10.1 Mainline Traffic Performance
• Safety and Crashes - Number of total mainline crashes (including serious injuries, fatalities, and property damage only) reported during ramp metering operation. This total value, and reported locations, will then be compared to the same period from previous years.
Although the number of crashes will be reported as part of regular performance assessments, it should be recognized that it will be difficult to draw statistically relevant conclusions based on early samples of data, as crashes are typically reported over 3- to 5- year periods;
• Mainline traffic volume- Recorded values during peak periods (weekdays AM/PM), reported as vehicles per hour per lane. This measure is an indication of the efficiency of the freeway corridor. The measure will be used to assess corridor wide efficiency. However, particular attention will be paid to the change in volumes at and downstream of existing bottleneck locations;
• Average travel time- A comparison of average travel times during peak periods (weekdays AM/PM) for before and during ramp metering operations to indicate the ability for the metering systems to better manage traffic flows and reduce congestion. In mainline segments where the data is available, the report may include travel time by traffic lane;
• Average travel delay- A comparison of changes to mainline travel delay throughout the day, based on overall mainline travel at below optimum speeds;
• Travel time reliability- A calculation of Planning Time Index (PTI), or the 95th percentile travel time during peak periods (weekdays AM/PM), divided by the free-flow travel time;
• Productivity- A measure of the relationship between speed and traffic flow during peak periods (weekdays AM/PM). The measure is calculated by multiplying average speed by hourly lane flow in order to gauge the level of freeway optimization; and
• Bottleneck formation- A measure of how ramp metering impacts the Maximum Sustainable Flow Rate (MSFR) of known bottleneck locations prior to traffic breakdown, indicating the level of resiliency of those locations due to ramp metering.
10.2 Entrance Ramp Performance
• Safety and Crashes - Number of total crashes at on ramps and ramp intersections (including serious injuries, fatalities, and property damage only) reported during ramp metering operation. This total value, and reported locations, will then be compared to the same period from previous years. Although the number of crashes will be reported as part of regular performance assessments, it should be recognized that it will be difficult to draw
I-680 Corridor, Contra Costa County, Memorandum of Understanding on Ramp Metering Operations Page | 18
statistically relevant conclusions based on early samples of data, as crashes are typically reported over 3- to 5-year periods;
• Average ramp meter wait times – Average wait times at ramp meters during peak periods;
• Extended ramp meter wait times – 95th percentile ramp meter wait times, intended to gauge the wait times at the peak of peak periods during long queue conditions;
• Maximum ramp meter wait times – Frequency of maximum ramp meter wait times being utilized by the system during peak periods;
• Average meter queue lengths – Average queue length on ramps during peak periods, expressed as a percentage of ramp length;
• Ramp queue impacts – Occurrences of queue spill back onto adjacent arterials;
• Ramp metering violation rates – Number of ramp meter violations during peak periods;
• Arterial Travel Time – Measure of average travel time along arterial segments adjacent to ramp meters during peak periods. This calculation will be dependent on the availability of commercial 3rd party data sources, or other information from agency partners;
• Arterial Travel Delay – Measure of average travel delay along arterial segments adjacent to ramp meters during peak periods. This calculation will be dependent on the availability of 3rd party data sources, or other information from agency partners; and
• Arterial Impacts – Occurrences of queue spill back from ramp meters blocking through- traffic on adjacent arterials. Impacts to ramp arterial intersections may also be reported, dependent on the availability of 3rd party data sources, or other information from agency partners.
10.3 Other Considerations
• Parallel Corridor Volumes – A comparison of traffic volumes on corridors that parallel I-680, including San Ramon Valley Boulevard, Danville Boulevard, Main Street, Contra Costa Boulevard and Pacheco Boulevard, against general background traffic growth;
• Transit Travel Time – A comparison of transit bus route travel times for routes that travel along the I-680 corridor, that may be changed by ramp meter operations;
• Transit Travel Time Reliability – A comparison of bus route on-time performance for routes that travel along the I-680 corridor, that may be changed by ramp meter operations;
I-680 Corridor, Contra Costa County, Memorandum of Understanding on Ramp Metering Operations Page | 19
• Total Trip Travel Time – A comparison of total travel time for a set of representative trips that takes into account total travel time on the freeway mainline, entrance ramp, and sections of the adjacent arterials; and
• Performance Trending and Field Observations – There will be a discussion on performance trending and any observed operation abnormalities, deficiencies and issues of concern or significance that are not captured by other performance metrics. This may include operational issues on local arterials that may not be directly related to, but could be exacerbated by, meter operations as observed or reported by local agency partners.
10.4 Functional Performance Reporting
In addition to the traffic and safety performance metrics discussed earlier in this section, Caltrans, in conjunction with CCTA, will prepare a Functional Ramp Metering Performance Report on a semi- annual basis. The report, as a minimum, will cover the following:
• System and operation deficiencies- Occurrences of system outages or operational issues reported by operators, or agency stakeholders;
• Equipment condition - Occurrences of device faults and outage time;
• Recommendations- this will include recommendations to either address deficiencies identified or to improve system performance. It will include separate discussions on:
➢ Operations- Including day-to-day operations and monitoring; and ➢ Infrastructure- Reports on functionality of overall infrastructure including management systems, communications equipment, and individual devices.
11. PUBLIC OUTREACH
The ramp metering implementation and operation will include a robust public information and education program primarily managed by CCTA and supported by the Caltrans Public Information Office. As the ARM and CARM ramp meters operate differently, outreach and education efforts are needed to prepare the public for the different types of ramp metering operations.
11.1 Public Education
Innovate 680 Program websites and social media will be utilized to educate the public on the proposed ramp metering operations before metering activation. Public education campaigns will help inform the public about the purpose and basics of ramp metering as well as the differences in how meters are operated using ARM and those operated using CARM technologies. This will cover simultaneous discharge, part-time lanes, and different hours of operations, etc.
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As the ramp metering activation implementation date approaches, there will be press releases and targeted social media messaging to advise and educate the public of the implementation of ramp metering. In addition, the outreach may include presentations to local jurisdiction governing bodies and public events such as farmers’ markets. In addition, the CHP and public transit operators will be provided with project updates as part of the Innovate 680 suite of stakeholder meetings.
11.2 Emergency Communications and Requests
Any communications and requests that are related to emergencies or public safety should be directed to the CHP and to the Caltrans TMC. Where necessary, Caltrans TMC staff can communicate with the CARM TMC. The communication protocol and process will be included in the RMOMP.
11.3 Responses to Public Queries and Comments
Public queries and comments should be anticipated during the initial phase of implementation, and also during the ongoing ramp metering operation. As the public would not be able to distinguish whether a ramp is operated under ARM or CARM and the majority of ramps are operated by Caltrans, they should be encouraged to utilize the Caltrans Customer Service Request portal.
CCTA will also monitor news and social media, information received by staff and elected officials at CCTA and local jurisdictions. Additional feedback may be received from the CHP or public transit operators.
Caltrans and CCTA will identify their public information points of contact and collaborate to respond to queries and comments. Any public queries, concerns, issues, or requests that pertains to CARM operations will be forwarded to CCTA for response, action and tracking. Non-CARM related requests will be handled by Caltrans. The names, phone numbers and emails of the Caltrans and CCTA points of contact will be included in the RMOMP. The RMOMP will include protocols on information sharing between agencies about the public’s concerns and feedback on ramp metering implementation.
11.4 Stakeholder Agency Change Request (non-emergency)
If a local jurisdiction has a concern, question or request for any changes in the ramp metering operation, they should be sent to both the System Operations Chief, Caltrans District 4 ([email protected]) and to Director of Projects, CCTA ([email protected]).
12. DATA SHARING
The ramp metering operation produces and relies on traffic data. Such data can also be used to support traffic planning and arterial operations. The collection, storing and sharing of any and all data need to comply with the Caltrans Privacy Policy (https://dot.ca.gov/-/media/dot- media/documents/privacy-policy.pdf) and applicable local, state and federal ordinances and/or regulations. It should be noted that CARM operations may generate data that is considered proprietary in nature and therefore cannot be shared or made publicly available
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The ownership of data developed from ramp metering rests with Caltrans except that CCTA also has unlimited access to the data developed through the CARM management system and infrastructure. Any party to this MOU can submit a data request to Caltrans. All data provided should only be used for the direct benefit for the requesting party. The data should not be shared with third parties for commercial purposes. That notwithstanding, the recipient of the data may seek a written exception to the limitation on sharing from Caltrans.
12.1 CARM Dashboard
To facilitate real-time system performance data sharing to CARM corridor stakeholders, the web- based STREAMS® Smart Motorways Dashboard monitoring tool will be made available to stakeholder agency staff. The Dashboard will allow stakeholders to observe real-time conditions and display historic performance data, by generating a robust set of charts, heat-maps, performance schematics, etc. It will highlight both mainline and ramp conditions, including volumes, speed, occupancy, ramp wait times, and queue information. In addition, stakeholders will be able to view real-time and historic ramp metering parameters and ramp metering rates at all ramp meter locations along the CARM corridor. The Dashboard would be available to corridor stakeholders with an assigned log-in on a read-only web interface. Group training will be provided to stakeholder agencies prior to CARM implementation and periodically thereafter. In order to protect proprietary information, the Dashboard does not offer direct data export capabilities of ramp metering parameters and ramp metering rates.
12.2 Caltrans PeMS or Similar System
As discussed previously, the CARM project will result in a substantial deployment of VDS on I-680 entrance ramps, exit ramps, and at regular intervals along the I-680 freeway mainline. Vehicle detector data will be readily available on the Caltrans ITS network, and will be made publicly available on the Caltrans Performance Measurement System (PeMS) or a similar system. Reports, summaries, and spreadsheets could be generated on an as-needed basis.
The systems engineering process for the initial Innovate 680 CARM demonstration corridor is ongoing at the time of this writing. Although the CARM system is proposed to have a cloud-based configuration for initial operations during the three-year demonstration period, vehicle detection and ramp metering data will still be made available to Caltrans. This data will be in a raw format with minimal or no processing. Hence, no proprietary information related to system algorithms will be provided. This data feed is proposed to flow from the STREAMS® field processor or cloud environment to the Caltrans District 4 TMC data center for provision to PeMS or other Caltrans systems.
If desired, CARM detector data could also be provided at regular intervals to local stakeholder agency systems, subject to the local agency having the appropriate communications and database infrastructure in place to accommodate this data feed.
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12.3 Information Request
Additional ramp metering information beyond what is anticipated to be made available through the CARM Dashboard and Caltrans PeMS, or similar, could be provided by either Caltrans or CCTA upon request. However, both CARM and ARM operations may include proprietary information that cannot be made publicly available. Such requests should be sent to both System Operations Chief, Caltrans District 4 ([email protected]) and to Director of Projects, CCTA ([email protected]).
13. COST AND FUNDING
Ramp metering on I-680 will be implemented and managed by Caltrans and CCTA. Funding for the Caltrans implemented segment is provided by the SHOPP Program. For the CARM segments currently being implemented, the capital construction, ramp meter system and the initial 3-years of initialization costs are being funded by federal, state, and local funds managed by CCTA. CCTA and Caltrans are coordinating to seek additional funding to complete CARM enhancement for the remaining segments and future CARM operations.
Future ongoing operation of the ramp meters using ARM fuzzy logic algorithms are funded by Caltrans.
The CARM ramps will be funded and operated by CCTA for an initial three years as a demonstration project. Subsequent operating methodology will be determined based on an evaluation of CARM performance and available funding. Funds for operating the meters using CARM beyond the 3-year initialization will be identified by CCTA during the final year of the demonstration period. If it is determined that such ramps will revert to ARM operations, CCTA will be responsible for converting these ramps for ARM operations. These converted ramp meters will be operated by Caltrans using its own funds.
14. MOU UPDATES
This MOU is not a legally binding document. Given the changes in traffic management and vehicle connectivity technologies, traffic pattern and volume, the MOU should be considered a living document, subject to regular review and update.
Members of the RMTC, RMWG or any party to this MOU can request and propose changes to the MOU. Any proposed changes will be reviewed and have to be approved by both the RMTC and RMWG. Revisions to this MOU will require approval, either administratively or by the agency governing body as determined by the party, of all parties to this MOU and to be formalized by a written amendment by all the signatories of this MOU.
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Terms for future enforceable contracts or agreements between the PARTIES may be amended or modified as necessary to comply with applicable law(s), even if such amendments or modifications are inconsistent with the terms of this MOU.
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APPENDIX
Appendix A – Proposed I-680 Ramp Metering on I-680 in Contra Costa County Appendix B – Related ITS Projects
Appendix C – Comparison of ARM and CARM Functionalities Appendix D – Glossary of Terms and Acronyms
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Appendix A – Proposed I-680 Ramp Metering on I-680 in Contra Costa County
Caltrans and CCTA are jointly implementing ramp metering along I-680 within Contra Costa County. This includes metering of all ramps with the exception of freeway-to-freeway ramps. The implementation will utilize both ARM and CARM operations. The CARM operations will initially cover the northbound ramps from Alcosta Boulevard to Willow Pass Road as a three-year demonstration project. It is intended that CARM will be implemented in additional segments of I- 680 if the initial segment performs as anticipated and additional funding becomes available, Figure 1 shows the three currently funded projects that will implement ramp metering in the corridor. They are further discussed below.
1. SUOPP RM/TOS Project (EA 04-1Q721) – Project Number 0423000277 – PPNO 2020W; Sponsor: Caltrans
Ramp Limits: Alcosta Boulevard to Marina Vista/Waterfront Road (both directions)
This project installs/upgrades Traffic Operation Systems (TOS), fiber optics line and ramp metering elements along I-680 in both directions from the I-580/I-680 interchange in Alameda County, along Contra Costa County and through to the I-680/I-780 interchange in Solano County. This includes widening and/or creating High-Occupancy Vehicle (HOV) preferential lanes along I-680 at selected ramps in both directions in Contra Costa County. There are a total of 55 ramp metering locations, and 6 monitoring stations proposed within the project limits. The project also includes fiber-optic cable communication trunk lines along the I-680 corridor. The project is funded under the SHOPP program. Caltrans intends to use the Adaptive Ramp Metering (ARM) and fuzzy logic to operate the ramp meters associated with this project unless funding is secured to implement CARM at the ramp metering locations in Contra Costa County.
2. CARM Project Segments 1 and 3 (EA 04-0Q960) - Project Number 0418000188 – PPNO 0521L: Sponsor: CCTA
Ramp Limits: Alcosta Boulevard to Willow Pass Road (northbound)
This Innovate 680 CARM project is intended to supplement and enhance the RM operations of the EA 04-1Q720 project for select ramp locations in Contra Costa County. As an initial deployment, CARM will be implemented in the northbound direction on I-680 from Alcosta Boulevard to Willow Pass Road (with the exception of the North Main Street on-ramp) within the following municipalities: Dublin, San Ramon, Danville, Walnut Creek, Pleasant Hill, Concord, and the unincorporated areas of Alamo and Pacheco. Within the project limits, seven ramps will be geometrically modified and the local arterials at one ramp location will be re-striped. Additional real-time information on traffic conditions on I-680 in the northbound direction would be collected using 71 The Infra-Red Traffic Logger (TIRTL) vehicle detection stations (VDS) installed along the freeway mainline. CARM will involve the use of the STREAMS® advanced traffic management
I-680 Corridor, Contra Costa County, Memorandum of Understanding on Ramp Metering Operations Page | 26
platform to operate the CARM ramp metering system. This initial phase of the Innovate 680 CARM project will operate as a three-year pilot project to gauge the performance of CARM on I-680 as a proof of concept, prior to the development of CARM on other freeway segments.
3. Northbound I-680 Express Lane Completion Phase 1 (EA 04-0Q3100) - Project Number 0418000070 – PPNO 2311B; Sponsor: CCTA
Ramp Limits: North Main Street/Lawrence Way (northbound)
This project is the initial phase to complete the express lane on northbound I-680 within Contra Costa County. Proposed improvements include a new express lane from just south of North Main Street to State Route 242, converting existing HOV lane from SR-242 to Arthur Road, and the construction of braided ramps between Lawrence Way and Treat Boulevard. The braided ramps construction will include CARM elements at the North Main Street entrance ramp to NB I-680. The project aims to address the existing express lanes gap, relieve congestion, reduce travel delays, and improve operations.
A summary of the current funded ramp improvements and configurations is summarized in Table 1.
Table 1: Summary of I-680 Ramps in Contra Costa County
Northbound Ramps
Postmile Arterial and Direction
Operation General Purpose HOV Priority Geometrically
Modified ARM CARM No. of
Lanes
Storage
(ft.)
No. of
Lanes
Storage
(ft.)
R0.1 Alcosta X 3 1,520 0 0 Yes
R3.0 Bollinger Canyon EB X 1 1,340 0 0 Yes
R3.1 Bollinger Canyon WB X 3 2,480 0 0 Yes
R4.3 Crow Canyon EB X 2 2,170 0 0 Yes
R4.4 Crow Canyon WB X 3 1,820 0 0 Yes
R6.9 Sycamore Valley X 4 1,680 0 0 Yes
R7.520 Diablo EB X 1 730 0 0 No
R7.719 Diablo WB X 1 585 0 0 No
R8.3 El Cerro X 2 1,100 0 0 Yes
R8.844 El Pintado X 1 370 0 0 No
15.734 Stone Valley X 2 1,360 0 0 Yes
16.848 Livorna X 2 780 0 0 Yes
12.717 Rudgear X 2 1,040 0 0 Yes
14.1 Olympic X 3 1,580 0 0 Yes
15.734 Lawrence/North Main X 2 1,081 0 0 Yes
16.695 Buskirk/Treat X 2 935 0 0 Yes
16.848 Buskirk/Oak/Elena X 2 360 0 0 Yes
R17.865 Monument X 2 890 0 0 Yes
19.2 Willow Pass X 3 1,520 0 0 Yes
19.836 Burnett X 1 250 0 0 No
20.040 Concord WB X 1 1,080 0 0 No
22.830 Arthur X 1 425 0 0 No
24.253 Waterfront/Marina
Vista X 1 330 0 0 No
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Southbound Ramps
Postmile Arterial and Direction
Operation General Purpose HOV Priority Geometrically
Modified ARM CARM No. of
Lanes
Storage
(ft.)
No. of
Lanes
Storage
(ft.)
R0.1 Alcosta X 1 350 1 350 No
R0.2 San Ramon Valley X 2 1,300 1 630 No
R2.9 Bollinger Canyon EB X 1 810 1 420 Yes
R3.0 Bollinger Canyon WB X 1 340 1 510 Yes
R4.2 Crow Canyon EB X 1 610 1 930 No
R4.3 Crow Canyon WB X 1 550 1 510 No
R6.9 Sycamore Valley X 1 550 1 510 No
XR7.428 Diablo X 1 745 0 0 No
R8.060 El Cerro X 1 725 0 0 No
X15.7 Stone Valley X 1 840 1 840 Yes
16.8 Livorna X 1 830 0 0 No
12.416 Rudgear X 2 1,600 1 650 No
13.2 South Main X 1 530 1 730 No
13.809 Olympic EB X 1 1,150 0 0 No
13.810 Olympic WB X 1 2,080 0 0 No
14.858 Ygnacio Valley/Hillside X 2 1,780 0 0 No
15.501 North Main X 2 1,440 0 0 Yes
16.287 Geary/Treat X 1 255 0 0 No
16.549 North Main/Geary X 2 254 0 0 Yes
XR17.358 Boyd/Contra Costa SB X 1 1,185 0 0 No
R17.513 Monument X 2 1,746 0 0 Yes
19.094 Willow Pass WB X 1 560 0 0 No
R19.095 Willow Pass EB X 1 744 0 0 No
19.702 Concord/Chilpancingo X 1 510 0 0 No
19.889 Contra Costa X 1 685 0 0 No
22.363 Pacheco X 1 1,280 0 0 No
24.256 Marina
Vista/Waterfront X 1 1,305 0 0 No
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Appendix B – Related ITS Projects
This Appendix provides information on planned local arterial ITS projects that will interface with I- 680 ramps.
Project Name: Countywide Smart Signal Project
Project Sponsor(s): CCTA
Project Description and I-680 Interface: This project will modernize traffic signal infrastructure at 365 intersections throughout Contra Costa County. Improvements include upgrading signal controllers, video detection systems, battery backup systems, and communications networks at signalized intersections along Routes of Regional Significance and other key parallel and intersecting arterial routes along the I-680 corridor. The project will also provide upgrades to local Advanced Traffic Management Systems (ATMS) as as well as implement a central “Center- to-Center” ATMS system that will provide inter-agency and Countywide connectivity. Other project components include implementation of cloud-based Transit Signal Priority (TSP) and Emergency Vehicle Pre-emption (EVP) hardware upgrades.
These upgrades will enhance multimodal traffic operations, improve system reliability and resilience during power disruptions, and enable real-time data sharing with coordinated signal timing. Collectively, the project will reduce congestion, improve travel time reliability, enhance safety for all roadway users, and support more efficient regional mobility.
Current Status: In Design with Construction schedule to begin in late July 2026.
Project Name: Danville Townwide Traffic Signal Modernization Project Sponsor(s): Danville/CCTA
Project Description and I-680 Interface: The project will modernize traffic signal infrastructure at 26 signalized intersections along the Sycamore Valley Road, Camino Tassajara, and Crow Canyon Road corridor—designated as a Route of Regional Significance that provides key access to the I-680 corridor. Improvements include upgrades to video detection systems and signal cabinets to enhance traffic operations and reliability. The project will also deploy a cloud-based Advanced Traffic Management System (ATMS) and implement communication infrastructure upgrades to support real-time monitoring, coordination, safety, and systemwide efficiency.
Current Status: In Construction
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Project Name: City of Concord ITS/ Signal Modernization Project Sponsor(s): Concord/CCTA
Project Description and I-680 Interface: The Project will upgrade and modernize 32 signalized intersections along Concord Boulevard, Concord Avenue, and Oak Road.
Project components include installation of video detection systems, ADA-accessible pedestrian push buttons, PTZ cameras, signal controller upgrades, communications hardware (ethernet switches), ATC cabinets, and battery backups systems.
Current Status: In Construction
Project Name: Innovate 680 Coordinated Adaptive Traffic Signals (CATS) Danville Blvd-Hartz Ave-San Ramon Valley Blvd (SRVB) Demonstration Project
Project Sponsor(s): CCTA
Project Description and I-680 Interface: CATS is the primary arterial management system for the Innovate 680 Program. CATS will operate across jurisdictions in traffic adaptive mode on specified corridors based on real time traffic demand. CATS will also enable multi-jurisdictional signal timing coordination, TSP, and other traffic management functions across the Program area, including key arterial corridors currently operated by local agencies, as well as ramp terminal intersection signals currently operated by Caltrans. The CATS Demonstration Project will focus on signalized intersections along the Danville Blvd/Hartz Ave/San Ramon Valley Blvd corridor, a key Route of Regional Significance that runs parallel to the I-680 corridor in southern Contra Costa.
Current Status: Systems Engineering in-progress. Design and Construction is currently unfunded.
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Appendix C – Overview of ARM and CARM Systems
The ramp meters on I-680 will use two different systems:
• ARM on Caltrans-operated segments- this includes northbound ramps north of Willow Pass Road and all southbound ramps; and
• CARM on CCTA operated segment- this includes northbound ramps from Alcosta Boulevard to Willow Pass Road.
Caltrans ARM System
Caltrans ARM manages traffic volumes at the freeway on-ramps during recurring congestion, likely between 5AM and 8 PM on weekdays, and freeway incidents. The operation relies on mainline and ramp traffic detection devices (typically loops) to provide real-time traffic data. All ramp signal controllers are connected to a central server at the Caltrans TMC. The ARM utilizes fuzzy logic algorithms to adjust metering rates at each on-ramp based on the prevailing or real-time corridor traffic conditions on the I-680 mainline. The system includes loop at the end of entrance ramp to detect potential spillback to local arterials. Under spillback conditions, the meter signals will rest on green to avoid impacts to the local arterials. Incident-related congestion will be managed through the use of more restrictive metering upstream and less restrictive metering downstream of the incident. Metering rates are determined based on the traffic conditions in the vicinity of the ramp and are not coordinated with other ramps.
CCTA CARM System
CCTA plans on utilizing the STREAMS® platform to operate the northbound ramps from Alcosta Boulevard to Willow Pass Road for the initial CARM segment.
The operation relies on a dense network of mainline and ramp traffic detection devices which include The Infra-Red Traffic Logger (TIRTL) and detector loops to provide real-time traffic data. The TIRTLs are placed on the freeway mainline at approximately 1/3-mile interval and at specific locations specific to each entrance ramps. The detector loops are placed at similar locations as the Caltrans ARM system except that additional loops are placed at the mid-point of an entrance ramp to detect lengthening queues at the ramps.
CARM uses the STREAMS® traffic management platform that will monitor freeway and ramp traffic conditions 24/7. Though it is expected to operate at peak commute hours, similar to AM, It has the capability to activate or deactivate ramp meters at any location along the corridor at any time of the day or night based on real-time traffic conditions to optimize traffic flows along the freeway mainline and/or to manage ramp queues.
The system includes the use of a STREAMS® field/edge processor installed in the standard Caltrans ramp meter signal controller cabinet to enhance network security and provide a level of autonomy in case of communications or power disruptions. The STREAMS® server will be hosted in a cloud-
I-680 Corridor, Contra Costa County, Memorandum of Understanding on Ramp Metering Operations Page | 31
based configuration, and will communicate with vehicle detectors, ramp meter controllers, and other devices through a secure firewalled connection to the Caltrans trunk fiber-optic communication line that runs along the I-680 corridor.
STREAMS® facilitates optimization and coordination of the metering rates at the ramps along the corridor, allowing metering rates to be adjusted every 20 seconds based on real-time traffic conditions along the mainline and ramps. In the rare event of a communications outage, the STREAMS® field processor will continue to modulate the metering rate locally, with no noticeable disruption for drivers.
The STREAMS® platform utilizes the Asservissement Linéaire d’Entrée Autoroutière/Heuristic Ramp Metering Coordination (ALINEA/HERO) suite of control algorithms to assess a range of freeway mainline and ramp performance parameters simultaneously allowing all ramps along a corridor (or across a network) to work together to cooperatively manage the number of vehicles waiting at ramp meters corridor-wide enabling the system to minimize the breakdown of freeway traffic flow, while simultaneously preventing impacts to adjacent arterials and keeping wait times at ramp meters at an acceptable level. The operational intent of CARM is to manage flow along the freeway mainline to minimize the probability of breakdown of freeway traffic flow into a congested state.
Functionally, individual ramp meters, or groups of ramp meters working cooperatively, will activate once elevated lane occupancy (as a measure of traffic density) is detected anywhere along the corridor to prevent lane occupancy from increasing further and to reduce the risk of traffic flow from breaking down. This means that drivers may wait temporarily at a ramp meter while traffic on the freeway adjacent to the ramp is flowing without congestion because the system is managing a location experiencing elevated lane occupancy elsewhere in the corridor. Additionally, the ramp metering rates on one entrance ramp may be adjusted to manage growing ramp queues at another ramp location to prevent impacts to adjacent arterials and better manage ramp wait times.
CARM requires operational flexibility to increase or decrease ramp metering rates based on real- time traffic conditions on the mainline and ramps, which emphasizes the need for adequate entrance ramp storage and discharge capacity. As such, ramp capacity was assessed, and modifications will be included at selected locations to maximize available storage and discharge capacity. It requires a high discharge rate and the ramps are designed for simultaneous release operations.
The uneven queue across the ramp lanes, due to the lower relative volumes in the HOVPL, will limit the ability of the system to manage traffic flows and prevent back-ups onto the adjacent city street.
As such, all entrance ramp lanes along CARM corridors will operate as GP lanes. The Riverside County Transportation Commission is implementing a CARM project on northbound I-15 in Temecula.
A comparison of selected features of the two systems are given in Table B1 below.
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Table B1 – Comparison of Selected Features of ARM and CARM Systems
Features ARM CARM
Respond to real-time traffic
condition
Metering rates adjust every thirty
seconds based on real-time traffic
data.
Metering rates adjust every twenty
seconds based on real-time traffic
data.
Predictive response capability System is reactive based on current real-time traffic condition only.
System able to predict and respond
based on anticipated change in
traffic conditions.
Coordinate across multiple ramps Not supported.
Supports coordination to optimize
metering rates across multiple ramps
for improved mainline management.
Compatibility with HOVPL System is compatible with HOVPL.
System is currently not optimized for
HOVPL though that capability may be
developed in the future.
Need for Simultaneous Release System does not release vehicles simultaneously.
System requires simultaneous
release to achieve the operational
flexibility.
Capital Cost
Lower- does not require separate
field processor, Dynamic Message
Signs, etc.
Higher- requires higher density of
traffic detection, CCTVs, STREAMS
platform licenses, etc.
Operating Costs Lower- operation managed as part of
the Caltrans TMC operation.
Higher- ongoing software licensing
costs, dedicated CCTA TMC staff.
I-680 Corridor, Contra Costa County, Memorandum of Understanding on Ramp Metering Operations Page | 33
Appendix D – Glossary of Terms and Acronyms
• ADS – Automated Driving Systems is designed to collectively tackle corridor-wide congestion, travel delays, and ongoing operational challenges along Interstate 680 to deliver greater mobility access and opportunity to underserved communities with limited transportation options, while preparing for the future of mobility for everyone who lives or works along the corridor
• ARM – Adaptive Ramp Metering – Caltrans ramp metering system that will be implemented as part of the Caltrans SHOPP project on portions of I-680. The system uses a “fuzzy logic” approach, where individual ramp meters activate based on mainline traffic conditions. • Caltrans – State Department of Transportation – California State agency with ultimate responsibility for the operations and maintenance of the State highway system, including I- 680.
• CARM – Coordinated Adaptive Ramp Metering – Innovate 680 ramp metering system that will be deployed on northbound I-680 from Alcosta Blvd to Willow Pass Rd. CARM coordinates ramp signals throughout the entire corridor using CARM algorithms such as ALINEA (Asservissement Linéaire d’Entrée Autoroutière in French; or “Freeway Entrance Linear Control” in English), HERO (Heuristic Ramp Metering Coordination), and other parameters to manage mainline and ramp conditions. The corridor-wide direct coordination of ramps to manage mainline traffic flow, while preventing back-ups onto adjacent arterials, is what differentiates CARM from other ramp metering systems. CARM will operate as a three-year demonstration project. CCTA and Caltrans will coordinate on next steps for Innovate 680 CARM based on the results of the demonstration project. • CATS – Coordinated Adaptive Traffic Signals – Innovate 680 project to optimize arterial traffic flow on select arterials through the coordination of traffic signals, transit vehicles, and pedestrian and bicycle priority. The CATS system is not anticipated to be operational until after the CARM system begins operations. However, CATS system components may coordinate with the CARM system and use data from CARM vehicle detection. • CCTA – Contra Costa Transportation Authority – Transportation agency for Contra Costa County, responsible for managing the Innovate 680 program and projects including CATS, CARM, and ELC. Innovate 680 is managed in close coordination with Caltrans, MTC, transit operators, and local jurisdictions.
• CCTV – Closed circuit television – Pole-mounted cameras strategically placed throughout the I-680 corridor for the purpose of monitoring freeway conditions, and assisting in incident detection and response. CCTV cameras are operated by Caltrans and its partners through the Caltrans District 4 Traffic Management Center (TMC). • CHP – California Highway Patrol – CHP is responsible for the enforcement of traffic violations and response to traffic incidents on the California state highway system, including the I-680 mainline and ramps. CHP officers will enforce ramp meter violations for both the CARM and Caltrans SHOPP projects.
I-680 Corridor, Contra Costa County, Memorandum of Understanding on Ramp Metering Operations Page | 34
• Con Ops – Concept of Operations – The Con Ops is a key document within the systems engineering process for complex ITS projects, that is intended to confirm the user needs and operational practices of projects. CCTA is currently developing the CARM Con Ops in coordination with Caltrans and other stakeholders. The CARM Con Ops describes the purpose of the CARM project, how the system will be configured and operated, how the demonstration project will be evaluated, and stakeholder roles and responsibilities. • ELC – Express Lane Completion – An Innovate 680 project involving the installation of an Express Lane from Livorna Rd to Will Pass Rd, including the reconstruction of the north Main St entrance ramp. ELC project design and construction will be closely coordinated with both the CARM and CATS projects.
• FSP – Freeway Service Patrol – FSP is a service managed by MTC, Caltrans, and CHP, where staff patrol regional freeways, including I-680, during congested periods to assist in the detection and response to incidents. FSP staff operations are coordinated through the Caltrans TMC.
• GP – General Purpose – A regular travel lane on the I-680 freeway mainline or ramps that is open to all vehicles, and not restricted to HOV, transit, toll payers, etc. • HOV – High Occupancy Vehicle – A vehicle with a driver and a certain number of passengers to be eligible to use HOV facilities on the freeway mainline and ramps. • HOVPL – HOV Preferential Lane – A lane on entrance ramps with a Caltrans ramp meter that is restricted to vehicles with two or more occupants. The ramp meter signals for HOVPLs are operated with a faster metering rate than adjacent general purpose lanes. The Caltrans SHOPP project will implement HOVPLs on several ramps. The CARM project will not include HOVPLs.
• ITS – Intelligent Transportation System – ITS refers to any transportation project or system that uses technology and communication networks to improve traffic flow, safety, security, and access. All Innovate 680 projects, and the Caltrans SHOPP project, can be considered ITS.
• KPI – Key Performance Indicator – Performance metric related to traffic congestion, safety, or system functionality that will be used to gauge the performance of both the CARM and Caltrans SHOPP ramp metering projects.
• MOD - Mobility On Demand is an app that provides real-time, personalized trip planning.
This, along with Mobility as a Service (MaaS), integrates public and private transportation with features like on-demand data on traffic, mode availability, and rewards for green travel.
• MOU – Memorandum of Understanding – This document, which describes the scope, operations, roles and responsibilities, and data assumptions of both the Innovate 680 CARM project and the Caltrans SHOPP ramp metering projects along I-680 in Contra Costa County.
I-680 Corridor, Contra Costa County, Memorandum of Understanding on Ramp Metering Operations Page | 35
• O&M – Operation and Maintenance – The phase of a project following construction and testing involving the day to day functionality of a system, and the maintenance of the underlying infrastructure, software, devices, and related systems. • PeMS - Performance Measurement System – Online platform operated by Caltrans, where select users are able to access real-time and historical traffic performance and safety information for the state highway system, including I-680. • PTI - Planning Time Index – A traffic performance metric or KPI used to measure travel time reliability, specifically defined as the 95th percentile travel time. PTI is intended to represent a particularly poor travel time that may be experienced from time to time throughout a month, that a driver may use to plan a high-value trip such as driving to the airport or an important appointment.
• Queue length – The total length of the line of vehicles waiting at a ramp meter within each lane of an entrance ramp.
• Queue spill back – The occurrence of the ramp queue, or line of vehicles attempting to enter the freeway, backing up onto the adjacent city street and blocking traffic. • QC – Queue Control – A parameter of the CARM system, where the ramp metering rate on an entrance ramp will begin to speed-up the release of vehicles to proactively manage the ramp queue and prevent the entrance ramp from filling with vehicles. This is an adjustable setting specific to each entrance ramp location. However, queue control will typically begin when the ramp queue exceeds 60-70% of the available ramp storage. When this occurs, the CARM system will coordinate with upstream ramp meter signals to prevent the increased release of vehicles from one ramp from causing the flow of the freeway from breaking down.
• QO – Queue Override – A parameter of both the CARM and Caltrans ARM ramp metering systems, where a ramp meter releases vehicles as quickly as possible to prevent impacts to the adjacent city street. This occurs when traffic detection devices at the ramp entrance confirm that the ramp queue has filled the entire length of the ramp. During queue override, the Caltrans ARM system may hold the ramp meter signals on green to completely clear the ramp.
• RM – Ramp Metering – ITS system and traffic management practice where vehicles entering a freeway are released individually by traffic signals installed on the entrance ramp. Ramp meters are intended to improve congestion and safety, by limiting the number of vehicles attempting to merge onto the freeway at once. There are several different ramp metering system with unique goals, practices, and requirements.
• Ramp Meter Storage – The amount of space available on an entrance ramp with a ramp meter, where vehicles will wait to be released by the ramp meter. • Ramp Meter Discharge Capacity – The number of lanes on a freeway entrance ramp at the ramp meter. The greater the number of lanes at the ramp meter, the faster the ramp meter can release vehicles to increase throughput and control the ramp queue.
I-680 Corridor, Contra Costa County, Memorandum of Understanding on Ramp Metering Operations Page | 36
• Ramp Meter Wait time – The time that a vehicle must wait on an entrance ramp when a ramp meter is activated, from the time the vehicle enters the ramp until it is released by the ramp meter. The maximum ramp meter wait time is another parameter in the CARM system. If the wait time is calculated as being above the maximum wait time assigned to a particular ramp, the CARM system will speed-up the metering rate in order to bring the wait time back to an acceptable level.
• RMDM – Ramp Metering Design Manual – Caltrans document that details design standards, requirements, and options for entrance ramps with ramp meters on the state highway system including lane striping, equipment, and signage. • RMOMP – Ramp Metering Operations and Maintenance Procedures – Document detailing the specific policies and procedures for day-to-day ramp metering operations and maintenance as part of the CARM and Caltrans SHOPP projects along I-680. The RMOMP will be developed as a follow-up to this MOU document, in coordination with Caltrans and Innovate 680 stakeholders. It includes provisions commonly referred to as Standard Operating Procedures.
• RMTC – I-680 Ramp Metering Technical Committee – Committee of I-680 stakeholders that will oversee technical and operational matters as part of CARM and Caltrans SHOPP ramp metering. The RMTC will be made up of technical staff from CCTA, Caltrans, and local jurisdictions along the corridor. Issues and questions that cannot be resolved by the RMTC will be elevated to the RMWG.
• RMWG – I-680 Ramp Metering Working Group – The RMWG will oversee the RCTC and high- level decisions as part of I-680 ramp metering operations. The RMWG will be made up of senior or executive staff from CCTA, Caltrans, and local jurisdictions along I-680. The RMWG will address any questions or issues that cannot be resolved through the RMTC. • SHOPP – State Highway Operations and Protection Program – The Caltrans program that funds traffic operations improvements on the state highway system. The Caltrans SHOPP project referenced in this document will involve the installation of ramp meters and HOVPL along I-680, outside of the CARM demonstration corridor. • Simultaneous release – The ramp metering practice where ramp meter signals above all lanes turn from red to green and vice versa at the same time. This practice releases all vehicles at the ramp meter simultaneously, allowing individual drivers to merge and reposition themselves. This practice allows for greater control of the ramp meter as part of CARM operations.
• SMH - Shared Mobility Hubs bring together biking, walking, transit, carpooling, ride-hailing, and more in one convenient place, with potential upgrades like improved transit station access, enhanced waiting areas, and electric bike charging. • Staggered release – The ramp metering practice where ramp meter signals release vehicles from one lane at a time. This is a standard Caltrans practice and will be part of Caltrans ARM operations.
I-680 Corridor, Contra Costa County, Memorandum of Understanding on Ramp Metering Operations Page | 37
• STREAMS® - Surface Traffic Enhancement and Automation Support System – The freeway management software that operates the CARM system. STREAMS® is an automated web- based platform, where an operator can monitor corridor and system conditions, including device functionality. A read-only version of STREAMS® will be made available to corridor stakeholders in order to monitor conditions and performance of the CARM system. Since CARM will operate as a demonstration project, STREAMS® will be configured in a cloud- based environment, and will not have a physical server integrated into the Caltrans TMC. • TBD – To be determined.
• TBOS – Transit Bus on Shoulder – Innovate 680 project that facilitates transit buses operating on I-680 to use the right-hand shoulder when the mainline speed drops below 35 mph. TBOS is currently in the testing and planning stages, but will be integrated with both CARM and the Caltrans ARM systems, to prevent vehicles from entrance ramps from merging into the bus while operating on the freeway shoulder. • TIRTL – The InfraRed Traffic Logger – Light-based vehicle detection system that operates with a transmitter and receiver installed on opposite sides of the freeway mainline. The device detects vehicles when a vehicle’s tires break the light-beam. TIRTLs will be used to provide real-time data to the CARM system, and will also feed data to PeMs. • TMC – Traffic Management Center – A physical location that operates CCTV cameras, vehicle detection, and other tools to monitor urban freeway operations, and to detect and coordinate response to crashes or other incidents. Current I-680 operations are managed through the Caltrans District 4 TMC in Oakland, CA. CCTA staff (or consultants) will supplement the Caltrans TMC to operate the CARM system during the demonstration period.
• TOS – Traffic Operations System – Program used by Caltrans to operate Bay Area freeways through the TMC. This program will be used operate the Caltrans SHOPP project. • VDS - Vehicle Detection Stations – Vehicle detection locations installed along the I-680 mainline and ramps. Vehicle detection installed as part of the CARM and Caltrans SHOPP projects will include a combination of inductive loops and TIRTL devices.
MOU No. __________
The City of Concord hereby approves the goals, responsibilities and procedures defined in the Memorandum of Understanding for ramp metering along the Interstate 680 (I -680) corridor. This Memorandum of Understanding is between the California Department of Transportation (Caltrans) , Contra Costa Transportation Authority (CCTA) and the local agencies along the I -680 corridor.
Dated: _______________________ City of Concord
Signed by: ________________________________
Jerome C. Wilverding
City Manager
Approved as to form: Attest:
_____________________________ ____________________________ Susanne Brown Joelle Fockler, MMC
City Attorney City Clerk
City of Concord
Ramp Metering Memorandum of Understanding
Presentation
August 25, 2026
I-680 – The Problem
Source: San Francisco Chronicle, April 20, 2026, from Caltrans Data Source: Google Maps, retrieved April 20, 2026
Why Ramp Metering?
• Regulates the flow of traffic entering the freeway
• Smooths out traffic flows
• Discourages off-ramp to on-ramp cut through traffic
• Reduces crashes caused by traffic merging onto freeway • Reliable and efficient travel on freeways will reduce need to cut through city streets
• Improve system efficiency without widening freeway - consistent with new SB 743 policy of reducing Vehicles Miles Traveled (VMT)
I-680 Ramp Metering Projects
• Caltrans Adaptive Ramp Metering
(ARM)
- SB I-680 & NB I -680 from Burnett Avenue to
I-780 & other ITS elements
- Funded by State Highway Operations and
Protection Program (SHOPP)
Cost and scope sharing for
efficient delivery
Performance Evaluation
• CCTA – Innovate 680 Coordinated
Adaptive Ramp Metering (CARM)
- Partner with Caltrans for Demonstration
- Initial Phase NB I-680 from Alcosta Blvd to
Burnett Avenue
- Funded by local, state and federal funds
CCTA Innovate 680 Projects
Express Lane Completion
P art-time T ra ns it L a ne s
A utoma te d D riving S ys te ms
Advanced Technologies
• Coordinated Adaptive
Ramp Metering (CARM)
• C oordinated Adaptive Traffic
Si g n a l s ( CA TS)
S hared Mobility Hubs
Mobility-as -a- S ervice
Innovate 680 Advanced Technologies - CARM
• Achieves several Innovate 680 system management strategies:
• Primary network/corridor optimization tool in Managed Freeways • Avoids costly capacity expansion
• High operational benefits at lower costs
• Consistent with current state policy for reducing induced VMT https://youtu.be/dvLWB01BM8I?si=uTZD1tR8dMWUaQCs
Complete
Express
Lanes
TDM Using
Innovative
Tools
Prepare
Corridor for
the Future
First- and
Last-mile
Connections
Innovative
Operational
Strategies
Bus on
Shoulder
Cool Corridor
“Hot Spots”
Caltrans I-680 ARM Project
• MTC and Caltrans have implemented ARM on around 300 freeway on- ramps (I-80, I
-880, and SM/SCL-101) and SFOBB in Bay Area
• MTC and Caltrans are expanding the ARM coverage for major corridors, including I-680, SCL-237, SR-4, SCL-85, MRN
-101, and SOL-80
- Does NOT activate based on Time of Day
- Proactively changes ramp metering rates upon potential traffic bottleneck forming - Turns on and off automatically for handling crashes
- Optimizes ramp metering rates based on mainline traffic conditions on the freeway https://mtc.ca.gov/operations/programs-
projects/freeways/adaptive-ramp-
metering
Caltrans ARM: US-101 and I-880
Caltrans ARM: US-101 Performance Evaluation
Whipple Ave (Redwood) to Harney Way (Brisbane)
Caltrans ARM: I-880 Performance Evaluation
I-280/I-880 Interchange (San Jose) to West Grand Ave (Oakland)
Innovate 680 CARM Project
• CCTA - Caltrans partnership to implement CARM along a 20-mile portion of NB I
-680
• 3-year demonstration of CARM at 16 on -ramps
• Next generation of ramp metering
- Expands the adaptive capabilities of ARM with more real-time vehicle detection and system monitoring along the corridor
- Coordinates across all ramp meters to control the traffic entering the freeway to optimize flows and reduce congestion
- Ability to coordinate with adaptive traffic signals systems • I-680 will be the second use of CARM in CA after I-15 in Riverside County (Went live at
End of May)
I-15 CARM Project Website:
https://smartfreeway.org/virtual-room/index.html
12 Real Time Detection – On Ramps and Mainline
Innovate 680 CARM – STREAMS® Platform
STREAMS Freeway Operations Dashboard for RCTC I-15 Smart Freeways
Willow Pass Road Northbound
NO SCALE
I-680 Ramp Metering MOU - Purpose
• Collaborative Approach on Ramp Metering Implementation • MOU requested by CCTA and local agencies
• Multiple reviews and 1:1 Meetings with local agency technical staff • Foundation of ramp metering implementation, policy and roles/responsibilities • Framework for Selection of Key Performance Indicators and Communication • Stakeholder Coordination/Governance Structure
I-680 Ramp Metering Governance Structure Page 65 of 68
I-680 Ramp Metering O&M Procedures (RMOMP)
• After MOU RMOMP Development
- A “Users Manual”
- CCTA, Caltrans & local agency staff with multiple review cycles - Outlines ramp metering operations, including incident management, maintenance responsibilities
- Ramp metering performance and reporting requirements
- Protocols for stakeholder communications
- RMOMP to be completed by early 2028, to be updated as needed - Informs Caltrans/CCTA O&M COOP Agreement
I-680 Ramp Metering Implementation Schedule
• Caltrans ARM
- Construction: November 2025 to Late 2028
• Innovate 680 CARM
- Currently in Final Design
- Construction anticipated: Early 2027 to Late 2028
• Both ramp metering systems are expected to be fully operational by early 2029 - Some signals may initially rest on green until the entire corridor is ready for metering Caltrans ARM
CCTA Innovate 680 CARM
2027 203020282026 2029 2031
CONSTRUCTION
CONSTRUCTION
OPERATION
DESIGN OPERATION
Questions
I-680 Ramp Metering MOU Approval
• Requested Action: CCTA and Caltrans request City Council to approve the I-680 Ramp Metering MOU and to direct the document to be signed accordingly
August 10, 2026
The Honorable Buffy Wicks, Chair
Senate Committee on Appropriations
California State Senate
1021 O Street, Suite 8510
Sacramento, CA 95814
RE: Support for AB 2296 (Papan) – Planning and Zoning: Housing Element: Regional Housing Needs Allocation
Dear Chair Wicks and Members of the Senate Committee on Appropriations:
On behalf of the City of Concord, I am writing to express our strong support for Assembly Bill 2296 (Papan).
California's Regional Housing Needs Allocation (RHNA) process is one of the state's most important tools for planning for future housing needs. However, the timelines governing the determination of regional housing need, allocation of that need to local jurisdictions, and preparation and certification of housing elements are highly compressed and have become increasingly difficult for councils of governments, local agencies, and the California Department of Housing and Community Development to administer effectively.
AB 2296 provides a thoughtful and practical adjustment to these timelines, allowing for a more deliberate, transparent, and coordinated planning process. By providing additional time for the development of regional housing need determinations and allocations, the bill will improve data quality, strengthen public engagement, and reduce the likelihood of procedural challenges that can delay housing planning efforts.
For cities such as Concord, predictable and well-coordinated housing planning is essential to ensuring that housing elements are based on sound analysis and meaningful community engagement while remaining consistent with state housing objectives. More workable timelines will enable local governments to focus resources on planning for and facilitating housing production rather than responding to compressed administrative deadlines.
The City of Concord remains committed to doing its part to address California's housing needs and believes AB 2296 will strengthen the state's housing planning framework by improving the effectiveness and reliability of the RHNA process.
6.a
For these reasons, the City of Concord respectfully urges your "AYE" vote on AB 2296.
Thank you for your consideration.
Sincerely,
Laura M. Nakamura
City of Concord Mayor
cc: Concord City Council
City Manager Jay Wilverding
Assistant City Manager Justin Ezell
Community Relations Manager Colleen Awad
Concord City Clerk Joelle Fockler
League of CA Cities, East Bay Division Sam Brightman
Meg Desmond, League of California Cities, [email protected]