Attachment 4 - Fehr & Peers Non-CEQA Memo — Emeryville City Council, July 5, 2022

Memorandum
Date: April 19, 2022
To: Miroo Desai, City of Emeryville
From: Jordan Brooks and Kathrin Tellez, Fehr & Peers
Subject: EmeryStation Overland – Non-CEQA Transportation Assessment OK21-0443
This memorandum presents the non-CEQA transportation assessment conducted by Fehr & Peers for the proposed EmeryStation Overland development, located at 1550 62nd Street in Emeryville (project). The memorandum provides a review of the project’s safety, access, and circulation for all travel modes and provides a set of recommended improvements to enhance safety and mobility for all travel modes. Sections in this memorandum include:

1. Project Description (page 1)

2. Trip Generation (page 2)

3. Trip Distribution, Assignment, and Study Intersection Selection (page 3)

4. Intersection Operations Analysis (page 5)

5. Collision History Analysis (page 15)

6. Site Access and Circulation Analysis (page 18)

7. Conclusion and Summary of Recommendations (page 28)

1. Project Description
The proposed project would redevelop an approximately 3.9-acre parcel bound by 62nd Street, Overland Avenue, 63rd Street, and Hollis Street in the City of Emeryville. As part of the project, 77,000 square feet of existing warehouses would be demolished, and a 300,000 square foot biotech office/R&D use would be constructed. Forty-one live-work units and about 48,000 square feet of restaurant, warehouse, and office space would remain. The project would also construct a 496- space parking garage with vehicular access from 63rd Street that would serve both the new office/R&D uses and the existing retained uses.

Attachment 4
Miroo Desai, City of Emeryville
April 19, 2022

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The project site is located adjacent to the Overland Avenue-62nd Street-Horton Street Bicycle Boulevard, on which it would provide concrete curb protected bikeways between Powell Street and 63rd Street. The concrete curb protected bikeways would extend on 62nd Street east to Hollis Street. Additionally, the project proposes closing Overland Avenue to automobiles between 63rd Street and 64th Street, providing a linear public park with a bicycle and pedestrian throughway.

The project site is also located adjacent to Hollis Street, which is utilized by Emery Go-Round.

2. Trip Generation
Trip generation refers to the process of estimating the amount of travel by mode a project might generate and add to the local roadway network. For the existing warehouse uses, Fehr & Peers estimated trip generation using data published by the Institute of Transportation Engineers (ITE) in the Trip Generation Manual (11th Edition), which includes land use codes that are similar to the uses proposed by the project and existing uses at the site.

However, the ITE data does not include a land use code that is well-matched to the proposed life sciences office/R&D use, and ITE guidance recommends the application of locally collected data at similar land uses in the region when available. Data collected at several life sciences office/R&D sites in South San Francisco are used to estimate project trip generation because the uses are similar to the proposed project, and workers in the project area are expected to have similar automobile usage.1 Application of those rates correlates well to the proposed parking supply, in that about half of people who would drive and park at the site would arrive during the peak hour, with the remaining trips occurring in the adjacent hours, better matching typical commute trends in Emeryville and the East Bay.

The project land use—a life sciences center with laboratory space—is not expected to result in a high rate of employees working from home in the absence of pandemic-related restrictions. As such, by the time the project is completed and occupied, trip generation rates are expected to be similar to rates observed prior to the Covid-19 pandemic. To the extent that the Covid-19 pandemic might in fact result in long-lasting changes to the travel patterns of the project land uses, basing trip generation rates on pre-Covid-19 data represents a conservative assumption that ensures that the analysis does not underestimate the number of net new automobile trips added to local roadways.

Project net trip generation estimates for the weekday morning and evening peak hours are presented in Table 1. These estimates account for trips generated by existing land uses that would be eliminated with the project. As shown in Table 1, the project is estimated to generate about 236 1 Transportation surveys collected at the South San Francisco sites indicated an automobile mode share of 78 percent. Based on 2012-2016 American Community Survey 5-Year Estimates, workers in the project census tract (Tract 4251.03) have an 81 percent automobile mode share.

Miroo Desai, City of Emeryville
April 19, 2022

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net-new weekday AM peak hour and 262 net-new PM peak hour automobile trips. These added trips will be distributed to the local roadway network.

Table 1: Project Net Automobile Trip Generation
Land Use ITE
Code Size1 Weekday Daily
Weekday AM Peak Hour Weekday PM Peak Hour
In Out Total In Out Total
New Development
R&D/Office2 - 300 KSF 1,460 212 37 249 51 225 276
Removed Existing Uses
Warehousing3 150 77 KSF -130 -10 -3 -13 -4 -10 -14
Project Net New Automobile Trips 1,330 202 34 236 47 215 262 Notes:

1. KSF = 1,000 square feet.

2. Trip generation data collected by Fehr & Peers at life sciences office/R&D uses in South San Francisco:

Daily: 4.88 trips per KSF
AM Peak Hour: 0.83 trips per KSF (85% in, 15% out)
PM Peak Hour: 0.92 trips per KSF (19% in, 81% out)

3. ITE Trip Generation (11th Edition) land use category 150 (Warehousing):

Daily: T = 1.74 * X
AM Peak Hour: T = 0.17 * X (77% in, 23% out)
PM Peak Hour: T = 0.18 * X (28% in, 72% out)
Source: Fehr & Peers, 2022.

3. Trip Distribution, Assignment, and Study Intersection Selection
The trip distribution and assignment process is used to estimate how the vehicle trips generated by the project would be distributed across the roadway network. Trip distribution for the project was based on existing travel patterns, locations of complementary land uses, and travel patterns assumed for other similar uses in the area, including the Emeryville Center of Innovation project.

Figure 1 shows the project trip distribution.

Study intersections were identified based on the following criteria:
 Adjacency to the project site
 Expected effect of traffic volumes added by the project  Potential for operational or safety improvements
 Feedback received from City staff
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OK21_0418_Fig01_Trip_Distribution
Project Trip Distribution
Overland Ave
Miroo Desai, City of Emeryville
April 19, 2022

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Based on the above criteria, the following 27 study intersections were identified:

1. Christie Avenue/Powell Street

2. Shellmound Street-Bay Street/
I-80 EB Off-Ramp

3. Shellmound Street/67th Street

4. Shellmound Street/65th Street

5. Overland Avenue/65th Street

6. Overland Avenue/63rd Street

7. Horton Street/62nd Street

8. Hollis Street/67th Street

9. Hollis Street/65th Street

10. Hollis Street/64th Street

11. Hollis Street/63rd Street

12. Hollis Street/62nd Street

13. Hollis Street/59th Street

14. Hollis Street/Powell Street

15. Hollis Street/Stanford Avenue

16. Hollis Street/53rd Street

17. Hollis Street/45 Street

18. Hollis Street/Park Avenue

19. Hollis Street/40th Street

20. Seventh Street/Ashby Avenue

21. Doyle Street/63rd Street

22. Vallejo Street/63rd Street

23. Marshall Street/63rd Street

24. San Pablo Avenue/Alcatraz Avenue

25. San Pablo Avenue/63rd Street

26. Doyle Street/62nd Street

27. Doyle Street/64th Street
Study intersections are evaluated in the intersection operations and collision history analysis sections of this memorandum. As increases in vehicle delay no longer form the basis of impacts under CEQA, intersection operations analysis is performed for informational purposes only to help identify where operational improvements may be desired with the development of project.

Intersection collision history analysis likewise does not form the basis of an impact under CEQA and is performed for informational purposes only to help identify intersections utilized by project traffic where safety improvements may be desired.

4. Intersection Operations Analysis
Although transportation analysis under CEQA no longer recognizes vehicle delay as an environmental impact, intersection levels of service (LOS) were evaluated to help identify potential transportation system improvements that could be implemented as part of the project. LOS is a qualitative description of traffic operations from the vehicle driver perspective and consists of the delay experienced by the driver at the intersection. It ranges from LOS A, with no congestion and little delay, to LOS F, with excessive congestion and delays.

Recommendations identified from this analysis are strictly informational in nature and could be implemented as part of the project to improve the overall transportation system, but they are not required to mitigate impacts under CEQA. The identified recommendations are designed to enhance mobility for all travel modes, including transit vehicles, without degrading or precluding the provision of planned bicycle, pedestrian, and transit facilities.

Miroo Desai, City of Emeryville
April 19, 2022

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Evaluation Criteria
Intersection or roadway improvements may be recommended under the following circumstances:
 If a signalized intersection is projected to operate at LOS D or better without the project, and the project is expected to cause the facility to operate at LOS E or F.  If an intersection is projected to operate at LOS E or F without the project, and the project is expected to increase the average control delay by more than 5 seconds.  If the addition of project traffic at a study intersection would result in the 95th percentile vehicle queue exceeding the available storage or would increase 95th percentile queue by more than two vehicles where the queue already exceeds the available storage space.  If the addition of project traffic at an unsignalized study intersection would warrant the installation of a traffic signal, based on the Manual on Uniform Traffic Control Devices (MUTCD) Peak Hour Signal Warrant (Warrant 3) or Pedestrian Volume Signal Warrant (Warrant 4).
 If the addition of project traffic would increase daily vehicle traffic by 2 or more percent on bicycle boulevard segments that already exceed the traffic volume guidance outlined in the City of Emeryville Pedestrian and Bicycle Plan.2
 If the project would add peak hour trips to a study intersection or road segment adjacent to the project that has a documented collision frequency higher than predicted by on the Highway Safety Manual.

For intersections or roadway segments that meet the above criteria, capacity-enhancing measures that would not degrade other modes of travel will be considered, including upgrading or installing signal equipment, extending left-turn pocket storage, providing non-motorized facilities to reduce vehicular demand, enhancing capacity on a parallel route, and/or enhancing transit access to a site.

Scenarios and Parameters
Intersections were evaluated for the weekday AM and PM peak hours under the following scenarios:
 Existing – Existing (pre-pandemic) conditions, based on data collected over the past five years. Includes traffic generated projects completed since 2019, including:
o Public Market Parcels C1/C2 and D
 Existing Plus Project – Existing (pre-pandemic) conditions plus net additional traffic generated by the project, considering vehicle traffic generated by existing uses on the site 2 This criterion could form the basis of an impact under CEQA related to consistency with plans and policies.

As this memorandum presents non-CEQA analysis only, the bicycle boulevard volume analysis can be found in the transportation section of the environmental document.

Miroo Desai, City of Emeryville
April 19, 2022

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that would be removed as a part of the project, and vehicle traffic rerouted due to roadway changes implemented as a part of the project.
 Near-Term – Existing conditions plus traffic generated by approved and pending projects in the immediate project vicinity study area, including:
o Bayview Emeryville Apartments
o 5603 Bay Street Grocery Store
o Public Market Parcels A, B & F
o 5850 Shellmound Life Sciences Tower
o Emeryville Center of Innovation
o Sherwin-Williams
 Near-Term Plus Project – Near-term conditions plus net traffic generated by the project and vehicle traffic rerouted by the project.

The location of projects with trip generation included under Existing and Near-Term conditions is shown in Figure 2.

Traffic patterns and travel behavior have shifted substantially in Emeryville and throughout the Bay Area as a result of the COVID-19 pandemic, and traffic counts collected in Emeryville in November 2021 indicate that current weekday AM and PM peak hour traffic volumes are less than 80 percent of traffic volumes in 2019. This analysis conservatively assumes that post-pandemic intersection activity levels will return to pre-pandemic levels. Thus, this analysis uses pre-pandemic traffic counts to estimate the weekday AM and PM peak hour intersection turning movement, pedestrian, and bicycle volumes at the study intersections under Existing conditions. Table 2 presents the data sources for volumes under Existing conditions. Where pre-pandemic data was not available, new multimodal turning movement counts were collected and factored to represent pre-pandemic conditions.

Figures presenting weekday AM and PM peak hour volumes, lane configurations, and traffic controls at the study intersections under all four scenarios are provided as Attachment A.

Signal Warrant Analysis
To assess the need for signalization of stop-controlled intersections, the California Manual on Uniform Traffic Control Devices (MUTCD) includes eight signal warrants. Generally, meeting one or more of the signal warrants could justify signalization of an intersection. This analysis evaluates the California MUTCD peak hour vehicular volume warrant (Warrant 3B) for urban conditions to determine if the vehicle traffic added by the project would result in the stop-controlled intersections needing to be signalized. None of the unsignalized study intersection met the minimum pedestrian volume threshold for the pedestrian volume signal warrant (Warrant 4) to apply.

Point
Emery Park
Emeryville
Crescent State
Marine Reserve
McLaughlin
Eastshore SP

BERKELEY

EMERYVILLE

OAKLAND
Alcatraz Ave
Powell St
Shellmound
Way
Hollis St
Christie Ave
W Frontage
Rd
Frontage Rd
Shellmound St
Adeline St
Shellmound
St
San Pablo Ave
Powell St
Emery St
Hollis St
Stanford Ave
40th St
W MacArthur Blvd
Hollis St
35th St
65th St
Ashby Ave
Peralta St
MandelaPkwy
Shellmound St
Horton St
45th St
Park Ave
53rd St
Horton St
62nd St
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·13
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Bayview
Emeryville
Apartments
Public Market
Parcels A, B, and F
Emeryville Center
of Innovation
Sherwin-Williams
5850 Shellmound
Life Sciences Tower
Public Market
Parcels C1/C2 and D
Bayview
Emeryville
Apartments
Public Market
Parcels A, B, and F
Emeryville Center
of Innovation
Sherwin-Williams
5850 Shellmound
Life Sciences Tower
Public Market
Parcels C1/C2 and D
Bay Street Grocery
OK21-0418_X_ApproveProj
Existing and Near-Term Approved Projects
Figure 2
Project Site Existing Approved Project Near-Term Approved Project Miroo Desai, City of Emeryville
April 19, 2022

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Table 2: Existing Conditions Volume Data Sources
Study Intersection Data Source

1. Christie Avenue/Powell Street 2017-2018 PASS

2. Shellmound Street-Bay Street/I-80 EB OffRamp Counts collected in May/June 2019

3. Shellmound Street/67th Street Counts collected in May/June 2019

4. Shellmound Street/65th Street Counts collected in May/June 2019

5. Overland Avenue/65th Street Counts collected in May/June 2019

6. Overland Avenue/63rd Street Counts collected in November 20211

7. Horton Street/62nd Street Counts collected in November 20211

8. Hollis Street/67th Street AM: Counts collected in May/June 2019 PM: 2017-2018 PASS

9. Hollis Street/65th Street 2017-2018 PASS

10. Hollis Street/64th Street 2017-2018 PASS

11. Hollis Street/63rd Street Counts collected in November 20211

12. Hollis Street/62nd Street 2017-2018 PASS

13. Hollis Street/59th Street 2017-2018 PASS

14. Hollis Street/Powell Street 2017-2018 PASS

15. Hollis Street/Stanford Avenue 2017-2018 PASS

16. Hollis Street/53rd Street 2017-2018 PASS

17. Hollis Street/45th Street 2017-2018 PASS

18. Hollis Street/Park Avenue 2017-2018 PASS

19. Hollis Street/40th Street Counts collected in May/June 2019

20. Seventh Street/Ashby Avenue Counts collected in May/June 2019

21. Doyle Street/63rd Street Counts collected in November 20211

22. Vallejo Street/63rd Street Counts collected in November 20211

23. Marshall Street/63rd Street Counts collected in November 20211

24. San Pablo Avenue/Alcatraz Avenue Counts collected in November 20211

25. San Pablo Avenue/63rd Street Counts collected in November 20211

26. Doyle Street/62nd Counts collected in November 20211

27. Doyle Street/64th Counts collected in November 20211 Notes:

1. Existing (pre-pandemic) conditions volumes estimated using a 2021-to-pre-pandemic scaling factor based on the 2017-2018 PASS and 2019 data.

Source: Fehr & Peers, 2022.

Miroo Desai, City of Emeryville
April 19, 2022

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The peak hour vehicular volume traffic signal warrant was evaluated for the 12 unsignalized study intersections based on the volumes, intersection controls, and roadway configurations presented in Attachment A. Signal warrant worksheets are provided in Attachment B. As shown in Table 3, three of the unsignalized study intersections meet the California MUTCD peak hour vehicular volume signal warrant.

Table 3: Peak Hour Vehicular Volume Signal Warrant 3B Summary Intersection Control1
Meets Peak Hour Signal Warrant?2
Existing Existing Plus
Project Near-Term Near-Term Plus Project

2. Shellmound Street/Bay Street/I-80 EB
Off-Ramp TWSC No No No No

3. Shellmound Street/67th Street TWSC No No No No

6. Overland Avenue/63rd Street TWSC No No No No

7. Horton Street/62nd Street TWSC No No No No

8. Hollis Street/67th Street TWSC Yes
(PM)
Yes
(AM, PM)
Yes
(AM, PM)
Yes
(AM, PM)

11. Hollis Street/63rd Street TWSC No Yes
(PM) No Yes
(PM)

17. Hollis Street/45th Street AWSC No No Yes
(AM, PM)
Yes
(AM, PM)

21. Doyle Street/63rd Street TWSC No No No No

22. Vallejo Street/63rd Street TWSC No No No No

23. Marshall Street/63rd Street AWSC No No No No

26. Doyle Street/62nd Street TWSC No No No No

27. Doyle Street/64th Street TWSC No No No No
Notes:

1. TWSC = Two-way stop control; AWSC = all-way stop control

2. Based on the application of California MUTCD Warrant 3B.

Source: Fehr & Peers, 2022.

As shown in Table 3, the following intersections meet the peak hour vehicular volume signal warrant without the project under Existing and/or Near-Term conditions and would continue to meet the signal warrant with the project:
 Hollis Street/67th Street (met under Existing and Near-Term conditions)  Hollis Street/45th Street (met under Near-Term conditions) Miroo Desai, City of Emeryville
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The Hollis Street/67th Street intersection is planned to be signalized as part of the implementation of the grant-funded Emeryville Quiet Zone, and the Hollis Street/45th Street intersection is planned to be signalized as part of the Sherwin Williams Planned Unit Development project.

The addition of project traffic would result in the following intersection meeting the peak hour signal warrant under both Existing Plus Project and Near-Term Plus Project conditions:
 Hollis Street/63rd Street
The project would also contribute to the need to signalize the intersections that meet warrants prior to the addition of project traffic. Table 4 presents vehicle traffic volumes expected to be added by the project to each intersection during the weekday evening peak hour, as well as the project’s share of the total volume.

Table 4: Project Trips at Study Intersections Meeting Signal Warrant 3B Location Project Net
Volumes1
Existing Plus Project Near-Term Plus Project
Total
Volume1
Portion from
Project
Total
Volume1
Portion from
Project

8. Hollis Street/67th Street 72 1,640 4% 1,850 4%

11. Hollis Street/63rd Street 262 1,630 16% 1,750 15%

17. Hollis Street/45th Street 14 -2 -2 1,610 <1%
Notes:

1. Weekday evening peak hour trips

2. Warrant not met under Existing Plus Project conditions Source: Fehr & Peers, 2022.

As shown in Table 4, under Near-Term Plus Project conditions, the project would represent about 14 percent of peak hour traffic at the Hollis Street/63rd Street intersection.

Recommendation 1: Install a traffic signal at the Hollis Street/63rd Street intersection that is interconnected with adjacent traffic signals and includes bicycle detection.

The project would represent less than one percent of peak hour vehicle traffic at the Hollis Street/45th Street intersection. As that signal warrant is triggered by the Sherwin Williams Planned Unit Development project, and the project would add a minimal amount of traffic to the intersection, no project contribution is required. As described previously, implementation of a traffic signal at the Hollis Street/67th Street intersection is fully funded by grants.

Level of Service Analysis
Intersection operations were evaluated using methods provided in the Highway Capacity Manual, 6th Edition (HCM 6) using the Synchro 11 software. Intersection operations are described using the term “Level of Service” (LOS). LOS is a qualitative description of traffic operations from the vehicle Miroo Desai, City of Emeryville
April 19, 2022

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driver perspective and consists of the delay experienced by the driver at the intersection. It ranges from LOS A, with no congestion and little delay, to LOS F, with excessive congestion and delays.

Based on the volumes, intersection controls, and roadway configurations presented in Attachment A, Fehr & Peers calculated the weekday morning and evening peak hour LOS at the study intersections. Table 5 summarizes the peak hour intersection LOS analysis results under Existing, Existing Plus Project, Near-Term, and Near-Term Plus Project conditions. Attachment C provides the detailed LOS calculation worksheets.

Table 5: Intersection Peak Hour LOS Summary
Intersection Control1 Peak
Hour
Existing Existing Plus
Project Near-Term Near-Term Plus Project
Delay
(Sec)2 LOS 3 Delay (Sec)2 LOS3 Delay (Sec)2 LOS3 Delay (Sec)2 LOS3

1. Christie Avenue/Powell
Street Signal AM PM
29 49
C
D
29 50
C
D
34 85
C
F
34 >90
C
F

2. Shellmound Street-Bay
Street/I-80 EB Off-Ramp SSSC AM
PM
8 (11)
1 (9)
A (B)
A (A)
9 (12)
1 (9)
A (B)
A (A)
8 (11)
1 (9)
A (B)
A (A)
9 (12)
1 (9)
A (B)
A (A)

3. Shellmound Street/67th
Street
SSSC/
Signal5
AM
PM
4 (18)
2 (15)
A (C)
A (B)
5 (22)
3 (16)
A (C)
A (B)
8 8
A
A
9 10
A
A

4. Shellmound Street/65th
Street Signal AM
PM
42 29
D
C
42 34
D
C
44 33
D
C
45 37
D
D

5. Overland Avenue/65th
Street Signal AM PM
36 29
D
C
40 36
D
D
44 33
D
C
52 45
D
D

6. Overland Avenue/63rd
Street SSSC AM
PM
2 (9)
3 (9)
A (A)
A (A)
<1 (<1)
<1 (<1)
A (A)
A (A)
2 (9)
3 (9)
A (A)
A (A)
<1 (<1)
<1 (<1)
A (A)
A (A)

7. Horton Street/62nd Street SSSC/
AWSC4
AM
PM
4 (9)
7 (11)
A (A)
A (B)
8 8
A
A
4 (9)
7 (11)
A (A)
A (B)
8 8
A
A

8. Hollis Street/67th Street SSSC/
Signal5
AM
PM
15 (65)
>90
(>90)
B (F)
F (F)
27 (>90)
67 (>90)
C (F)
F (F)
11 8
B
A
14 8
B
A

9. Hollis Street/65th Street Signal AM
PM
15 26
B
C
18 29
B
C
16 30
B
C
11 31
B
C

10. Hollis Street/64th Street Signal AM
PM
4 16
A
B
4 18
A
B
4 17
A
B
5 18
A
B

11. Hollis Street/63rd Street SSSC AM
PM
4 (23)
5 (36)
A (C)
A (E)
18 (>90)
>90
(>90)
B (F)
E (F)
4 (29)
7 (54)
A (D)
A (F)
27 (>90)
>90
(>90)
D (F)
F (F)

12. Hollis Street/62nd Street Signal AM
PM
9 6
A
A
9 7
A
A
9 5
A
A
7 7
A
A

13. Hollis Street/59th Street Signal AM
PM
20 20
B
C
20 22
B
C
21 21
C
C
21 23
C
C

14. Hollis Street/Powell Street Signal AM
PM
36 43
D
D
37 42
D
D
39 >90
D
F
40 >90
D
F
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April 19, 2022

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15. Hollis Street/Stanford
Avenue Signal AM PM
11 13
B
B
11 13
B
B
13 15
B
B
13 15
B
B

16. Hollis Street/53rd Street Signal AM
PM
10 9
B
B
10 9
B
A
14 29
B
C
13 24
B
C

17. Hollis Street/45th Street SSSC/
Signal5
AM
PM
14 32
B
D
14 34
B
D
12 7
B
A
14 7
B
A

18. Hollis Street/Park Avenue Signal AM
PM
10 11
B
B
10 11
B
B
14 13
B
B
14 13
B
B

19. Hollis Street/40th Street Signal AM
PM
30 40
C
D
30 40
C
D
34 48
C
D
34 49
C
D

20. Seventh Street/Ashby
Avenue Signal AM
PM
35 43
D
E
35 43
D
D
39 49
D
D
39 49
D
D

21. Doyle Street/63rd Street SSSC AM
PM
8 (10)
9 (10)
A (A)
A (A)
9 (10)
9 (10)
A (B)
A (B)
8 (10)
9 (10)
A (A)
A (A)
9 (10)
9 (10)
A (B)
A (B)

22. Vallejo Street/63rd Street SSSC AM
PM
7 (10)
7 (10)
A (B)
A (B)
8 (11)
8 (10)
A (B)
A (B)
7 (10)
7 (10)
A (B)
A (B)
8 (11)
8 (11)
A (B)
A (B)

23. Marshall Street/63rd Street AWSC AM
PM
8 8
A
A
8 8
A
A
8 8
A
A
8 8
A
A

24. San Pablo Avenue/
Alcatraz Avenue Signal AM
PM
48 85
D
F
51 >90
D
F
49 >90
D
F
53 >90
D
F

25. San Pablo Avenue/63rd
Street Signal AM PM
5 7
A
A
5 7
A
A
5 8
A
A
5 8
A
A

26. Doyle Street/62nd Street TWSC AM
PM
<1 (<1)
<1 (<1)
A (A)
A (A)
<1 (<1)
<1 (<1)
A (A)
A (A)
<1 (<1)
<1 (<1)
A (A)
A (A)
<1 (<1)
<1 (<1)
A (A)
A (A)

27. Doyle Street/64th Street TWSC AM
PM
8 (9)
8 (9)
A (A)
A (A)
9 (9)
9 (9)
A (A)
A (A)
9 (9)
8 (9)
A (A)
A (A)
8 (9)
8 (10)
A (A)
A (A)
Notes:

1. 3WSC = Three-way stop control; AWSC = all-way stop control

2. Average intersection delay and LOS based on the HCM 6 method. Average delay is reported for signalized and all-way stop-controlled intersections. Average intersection and worst-movement delays, respectively, are reported for side-street stop-controlled intersections.

3. Based on HCM 6 delay thresholds.

4. The project would provide all-way stop control

5. Intersection signalization would be provided by under-construction or fully-funded projects under Near-Term conditions.

Source: Fehr & Peers, 2022.

As shown in Table 5, the addition of project traffic would result in the following intersections operating at LOS E or F during weekday peak hours with the project, compared to LOS D or better without the project:

Miroo Desai, City of Emeryville
April 19, 2022

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 Hollis Street/63rd Street (Existing Plus Project and Near-Term Plus Project conditions) The addition of project traffic would increase average delay by more than five seconds at the following intersections that would operate at LOS E or F without the project:
 Christie Avenue/Powell Street (Near-Term Plus Project conditions)  Hollis Street/67th Street (Existing Plus Project conditions; improves with planned signalization under Near-Term conditions)
 San Pablo Avenue/Alcatraz Avenue (Existing Plus Project and Near-Term Plus Project conditions)
Project trips at the two Hollis Street study intersections are shown in Table 4, and planned improvements and recommendations related to those intersections are described as part of the signal warrant analysis. No additional improvements would be required to achieve LOS D operations for people driving. The planned signalization of these intersections would also provide protected crossing locations for pedestrians and bicyclists.

Table 6 presents the vehicle traffic volumes expected to be added by the project to the Christie Avenue/Powell Street and San Pablo Avenue/Alcatraz Avenue intersections during the weekday evening peak hour, as well as the project’s share of the total volume.

Table 6: Project Trips at Study Intersections Meeting LOS Criteria Location Net Project
Volumes1
Existing Plus Project Near-Term Plus Project
Total
Volume1
Portion from
Project
Total
Volume1
Portion from
Project

1. Christie Avenue/Powell
Street 90 -2 -2 5,070 2%

24. San Pablo Avenue/
Alcatraz Avenue 51 2,970 2% 3,030 2%
Notes:

1. Weekday evening peak hour trips

2. LOS criteria not met under Existing Plus Project conditions Source: Fehr & Peers, 2022.

The Powell Street Urban Design Plan and the City of Emeryville’s Transportation Impact Fee program identify the construction of a second westbound left-turn lane on Powell Street to Christie Avenue.

The project would pay the City’s transportation impact fee, which the City may use to implement this intersection improvement. However, the City does not have current plans to implement the second westbound left-turn lane at this intersection, as the City has chosen to prioritize bicycle and pedestrian improvement projects rather than vehicle operations projects with transportation impact fee funds.

Miroo Desai, City of Emeryville
April 19, 2022

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Improvements on the San Pablo Avenue corridor are currently being studied, with a focus on bicycle, pedestrian, and transit rider safety and transit priority infrastructure rather than vehicle operations. As the project is required to pay local transportation impact fees that would fund citywide improvements with a focus on multimodal infrastructure, those improvements have the potential to shift some of the potential vehicle trips that could be generated by the project to other travel modes.

5. Collision History Analysis
A five-year history (January 1, 2016 to December 31, 2020) of collision data in the study area was obtained from the Statewide Integrated Traffic Records System (SWITRS) and was evaluated for this collision analysis. Summaries of the type and severity of collisions by study intersection are provided as Attachment D.

During this time period, there was one severe injury collision involving a bicyclist at the Hollis Street/63rd Street intersection and one fatal pedestrian collision at the Christie Avenue/Powell Street intersection. The project is recommended to implement a traffic signal at the Hollis Street/63rd Street intersection in Recommendation 1, which would increase safety at that intersection.

The Highway Safety Manual (HSM, Predictive Method – Volume 2, Part C) provides a methodology to predict the number of collisions for intersections and street segments based on their specific characteristics, such as vehicle and pedestrian volumes, number of lanes, signal phasing, on-street parking, and number of driveways. Table 7 compares the predicted collision frequencies based on the HSM Predictive Method to the reported collision frequencies for the 27 study intersections and four segments along the project frontage. Attachment E provides the detailed predicted collision frequency calculation sheets based on the HSM methodology.

Table 7: Predicted and Actual Crash Frequencies at Intersections Location
Predicted
Crash
Frequency1
(per year)
Actual
Crash
Frequency2
(per year)
Difference
Higher
Than
Predicted?
Study Intersections

1. Christie Avenue/Powell Street 4.0 6.4 +2.4 Yes

2. Shellmound Street-Bay Street/I-80 EB Off-Ramp 0.3 0.0 -0.3 No

3. Shellmound Street/67th Street 0.7 0.8 +0.1 Yes

4. Shellmound Street/65th Street 1.1 0.4 -0.7 No

5. Overland Avenue/65th Street 0.5 0.4 -0.1 No

6. Overland Avenue/63rd Street 0.2 0.0 -0.2 No

7. Horton Street/62nd Street 0.4 0.2 -0.2 No
Miroo Desai, City of Emeryville
April 19, 2022

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Location
Predicted
Crash
Frequency1
(per year)
Actual
Crash
Frequency2
(per year)
Difference
Higher
Than
Predicted?

8. Hollis Street/67th Street 2.0 2.4 +0.4 Yes

9. Hollis Street/65th Street 2.4 0.6 -1.8 No

10. Hollis Street/64th Street 1.9 0.2 -1.7 No

11. Hollis Street/63rd Street 1.9 0.8 -1.1 No

12. Hollis Street/62nd Street 1.9 0.8 -1.1 No

13. Hollis Street/59th Street 1.8 0.4 -1.4 No

14. Hollis Street/Powell Street 2.8 1.0 -1.8 No

15. Hollis Street/Stanford Avenue 2.3 1.6 -0.7 No

16. Hollis Street/53rd Street 1.6 0.4 -1.2 No

17. Hollis Street/45th Street 2.0 0.8 -1.2 No

18. Hollis Street/Park Avenue 1.6 0.6 -1.0 No

19. Hollis Street/40th Street 2.1 1.0 -1.1 No

20. Seventh Street/Ashby Avenue 2.8 3.0 +0.2 Yes

21. Doyle Street/63rd Street 0.3 0 -0.3 No

22. Vallejo Street/63rd Street 0.4 0 -0.4 No

23. Marshall Street/63rd Street 0.5 0 -0.5 No

24. San Pablo Avenue/Alcatraz Avenue 3.1 1.8 -1.3 No

25. San Pablo Avenue/63rd Street 2.0 1.0 -1.0 No

26. Doyle Street/62nd Street 0.2 0.2 0.0 No

27. Doyle Street/64th Street 0.1 0.2 +0.1 Yes
Study Segments
63rd Street b/t Hollis Street and Overland Avenue 0.2 0 -0.2 No 62nd Street b/t Hollis Street and Overland Avenue 0.1 0.2 -0.1 No Overland Avenue b/t 62nd Street and 63rd Street 0.0 0.0 0 No Hollis Street b/t 62nd Street and 63rd Street 0.1 0 -0.1 No Notes:

1. Based on the Highway Safety Manual Predictive Method (Volume 2, Part C).

2. Based on SWITRS five-year collision data reported from January 1, 2016 to December 31, 2020.

Source: Fehr & Peers, 2022.

As shown in Table 7, the following intersections had a higher reported collision frequency than predicted by the HSM between the years 2016 and 2020:
 Christie Avenue/Powell Street
 Shellmound Street/67th Street
Miroo Desai, City of Emeryville
April 19, 2022

Page 17 of 31 ends

 Hollis Street/67th Street
 Seventh Street/Ashby Avenue
 Doyle Street/64th Street
Results from the collision history analysis describe existing conditions, and the project would not be expected to worsen collision frequencies at intersections simply by generating additional traffic, as it would not modify the geometries or operations of these intersections. Although the project would not modify the identified intersections with higher-than-predicted collision rates, the project may be expected to make fair-share contributions to any planned safety improvements at these intersections.

Table 8 presents the vehicle traffic volumes expected to be added by the project to each intersection during the weekday evening peak hour, as well as the project’s share of the total volume.

Table 8: Project Trips at Study Intersections Exceeding the HSM Predictive Rate Location Project Net
Volumes1
Existing Plus Project Near-Term Plus Project
Total
Volume1
Portion from
Project
Total
Volume1
Portion from
Project

1. Christie Avenue/Powell Street 90 4,010 2% 5,070 2%

3. Shellmound Street/67th Street 57 760 7% 930 6%

8. Hollis Street/67th Street 72 1,640 4% 1,850 4%

20. Seventh Street/Ashby Avenue 9 3,010 <1% 3,220 <1%

27. Doyle Street/64th 17 80 22% 100 17%
Notes:

1. Weekday evening peak hour trips
Source: Fehr & Peers, 2022.

Improvements to the Christie Avenue/Powell Street intersection are included in the City’s Transportation Impact Fee program. The Shellmound Street/67th Street and Hollis Street/67th Street intersections will be signalized as part of the fully funded Emeryville Quiet Zone implementation. Safety improvements at the Doyle Street/64th Street intersection were recently implemented as part of the Shared Doyle Street Quick Build project, and no additional improvements are planned. The Seventh Street/Ashby Avenue intersection is operated by the City of Berkeley, and the project would represent less than one percent of peak hour vehicle traffic.

Miroo Desai, City of Emeryville
April 19, 2022

Page 18 of 31 ends

6. Site Access and Circulation Analysis
Fehr & Peers reviewed the project site plan dated March 4, 2022, the proposed public improvements dated March 21, 2022, and the existing street network adjacent to the project site to evaluate site access and circulation for all travel modes. Recommendations to improve project site access and circulation are presented in Figure 3 and described in detail below. Project access and circulation can be improved if the recommendations included in this analysis are implemented by the project, but a significant environmental impact under CEQA would not result from the project if these recommendations are not implemented.

Automobile Access and Circulation
The project would provide an eight-level parking structure, including two basement levels, accommodating 496 parking spaces that would serve the new lab/office uses as well as the retained existing uses at the project site. Automobiles would access the garage via a full-access driveway on 63rd Street about 200 feet west of Hollis Street.

The garage driveway would provide adequate sight distance between exiting motorists and pedestrians on the adjacent sidewalk. Adequate sight distance is defined as a clear line-of-sight between a motorist ten feet back from the sidewalk and a pedestrian 10 feet away on each side of the driveway. However, automobiles parked along 63rd Street on either side of the driveway may limit the sight lines between exiting motorists and cyclists or motorists on 63rd Street.

Recommendation 2: Designate 20 feet of red curb on the east and west sides of the garage driveway to ensure adequate sight distance between exiting motorists and cyclists or motorists on 63rd Street.

Internal vehicular circulation in the garage would be provided by a two-way drive aisle with perpendicular parking spaces on both sides. The drive aisle would be about 24 feet wide, providing adequate space for vehicles to circulate and maneuver into and out of parking spaces.

The project proposes closing Overland Avenue between 63rd Street and 64th Street to automobile travel and converting the roadway between the Overland Avenue/63rd Street and Horton Street/62nd Street intersections to one-way southbound/eastbound. The one-way conversion would require vehicles seeking to use on-street parking and loading spaces on the south side of 63rd Street to turn around in the middle of the street.

DN
UP
T
B
B
B
XX
XX
XX
XX
XX
XX
XX
XX
XX
XX
XX
XX

COVERED LOADING

OHLONE WAY
RAMP

GROCERY

BAY STREET

SHELLMOUND ST

SHELLMOUND AND

TEMESCAL CREEK

SEATING

BAY STREET VEHICLE FREE AREA

SHELLMOUND ST

TEMESCAL CREEK
GRAND

STAIROUTDOOR

SEATING
(UPPER LEVEL)

EMPLOYEE

PARKING
(EXISTING

STRUCTURE)

BUILDING A

BUILDING A WEST ELM
L
RY)

MIXED USE BUILDING

APARTMENT BUILDING
(4 STORY)

MIXED USE

APARTMENT

BUILDING
(6 STORY)

PARKING ACCESS
BRIDGE
ACCESS

PEDESTRIAN/BIK

E BRIDGE

RESTAURANT

ABOVE RETAIL
K
Signalize the Bay Street/Ohlone Way intersection, implementing a signal design that reduces queue spillback to Shellmound Street while minimizing pedestrian wait times.

Provide access control gates or another mechanism to ensure people pay to park on the rooftop deck.

Design the protected bikeways as a shared-use path adjacent to the plaza, with signage alerting bicyclists to watch for pedestrians. Provide green conict striping where the bikeways cross driveways, with signage instructing vehicles to yield to bicycles.

Provide the code-required amount of bicycle parking and include bicycle parking that can accommodate bicycle trailers.

Provide directional curb ramps with truncated domes.

Locate the bus stop as close as feasible to Ohlone Way. Use railing to direct pedestrians to the crosswalk. Provide a bus shelter and pedestrian-scale lighting.

Restrict truck delivery times to o
-peak. Designate the west loading space as the primary space for WB-67 trucks. 18 17
17 17
17 17
17 17
14 Site Plan Recommendations — Proposed Site Plan
1 14
15 4
19 Figure 3a
RECOMMENDATIONS:
1 4
14 15
17 18
19 
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Install a tra
c signal at Hollis Street/63rd Street that is interconnected and includes bike detection.

Designate 20 feet of red curb on either side of the driveway.

Retain two-way auto travel on Overland Avenue between 63rd Street and 62nd Street while providing minimum widths of a 10-foot two-way protected bikeway, 1.5-foot bu
er, and 7.5-foot sidewalk. If infeasible, change direction to one-way northbound and provide a "No Outlet" sign on 63rd Street at Hollis Street.

Restrict use of the parking structure to project site employees/visitors, do not o er employees parking in other facilities, and
implement a Travel Demand Management (TDM) plan that restricts the use of valet parking.

Provide a minimum of 20% EV charging spaces and all other spaces as EV-capable.

Provide signage next to the on-street loading spaces indicating active passenger loading/unloading in addition to commercial vehicle loading/unloading.

Provide intersection markings and signage directing bicycles into and out of the two-way protected bikeway on 62nd Street at Hollis Street and at Horton Street.

Provide the two-way protected bikeway on the west side of Overland Avenue. Provide stop control on both approaches of Overland Avenue/62nd Street.

Provide short-term bicycle parking visible from the street, near building entrances that are utilized by visitors.

Ensure clear paths of travel between the bicycle/pedestrian throughway and connecting sidewalks.

Provide concrete curb extensions and directional curb ramps with truncated domes on the northeast and southeast corners of Overland Avenue/63rd Street, and mark the crosswalk across 63rd Street.

Provide directional curb ramps with truncated domes at Horton Street/62nd Street.

Provide concrete curb extensions and directional curb ramps with truncated domes at Hollis Street/62nd Street and Hollis Street/63rd Street.

Provide pedestrian-scale lighting between building exits and the bus stop on Hollis Street south of 63rd Street, and ensure the stop provides adequate night lighting.

Ensure the off-street loading spaces meet code required loading space dimensions.

If Recommendation 3 is not implemented, provide a turnaround space on 63rd Street that does not conict with bicycle or pedestrian paths of travel.
3 11a
9 1
13 10
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8 11
Site Plan Recommendations — Proposed Site Plan
Figure 3
RECOMMENDATIONS:
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1 8
9 9
11b
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11a
11c
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11c

1. Signalize the Bay Street/Ohlone Way intersection

2. Provide stop control and signage instructing vehicles to yield to eastbound tra c

2. Restrict to right-turn only

3. Provide stop bar 5 feet north of the crosswalk

3. Remove or maintain landscaping so that it does not create a sight obstruction

4. Provide access control gates or another mechanism to ensure paying for parking

8. Provide a larger space for vehicles to turn around

9. Enforce the curbside pick-up only restriction

10. Provide wheel stops

11. Provide a stop bar

11. Restrict to employee use only, utilizing the Bay Street driveway only

12. Provide a minimum of
ve accessible spaces, including one van accessible space, throughout the project parking facilities.

Include a minimum of one van accessible space in either the surface parking or covered loading area.

13. Provide a minimum of 26 Level 2 EV charging spaces, and ensure all other spaces are EV-capable

14. Provide green conict striping and signage instructing vehicles to yield to bicycles and pedestrians

14. Design as a Class I shared-use path

15. Provide code required bicycle parking and include bicycle parking that can accommodate bicycle trailers

16. Expand the curb extension to include the curb ramp crossing Bay Street

17. Provide directional curb ramps with truncated domes at all crossings

17. Provide directional curb ramps with truncated domes

17. Provide directional curb ramp with truncated domes

17. Provide directional curb ramps with truncated domes

18. Locate bus stop as close as feasible to Ohlone Way. Use railing to direct pedestrians to the crosswalk.

Provide a bus shelter and pedestrian-scale lighting.

19. Reduce Bay Street lane width to 15 feet. Provide mountable median.

19. Restrict truck delivery times to o
-peak. Designate the west loading space as primary.

OK21-0443_X_SitePlanRecs
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Recommendation 3: Assess the feasibility of, and if determined feasible by City of Emeryville staff, retain two-way travel between the Overland Avenue/63rd Street and Horton Street/62nd Street intersections, while providing a two-way protected bikeway with minimum bikeway width of 10 feet and minimum buffer width of 1.5 feet and a sidewalk on the east side of Overland Avenue with minimum width of 7.5 feet. If retaining two-way travel on this segment is determined not to be feasible, change the direction of the oneway travel to westbound/northbound to allow vehicles to access the on-street loading zones from the correct direction, and provide a “No Outlet” sign on 63rd Street at Hollis Street. Conceptual cross-sections for this roadway segment are provided in Attachment F.

Automobile Parking
The City of Emeryville Municipal Code does not require new developments to provide automobile parking and instead establishes a maximum allowable number of automobile parking spaces.

Section 9-4.404 provides estimated parking demand based on land use and defines the maximum allowable number of parking spaces as 10 percent more than estimated demand.

The project lab/office land use would include space for both office and research and development uses, and the City has applied a half-and-half calculation for parking demand on similar projects, including the recently approved BMR Emeryville Center of Innovation project. As the project lies in the Transit Hub Overlay zone, parking demand estimates are reduced by half, per city code.

There are 68 surface parking spaces currently serving the retained existing uses at the project site.

These surface parking spaces would be eliminated by the project, and parking for the retained existing uses would be provided in the project garage. Although parking would be unbundled, per City standard, and specific allocation of spaces will therefore be determined through lease agreements, it is assumed that 68 spaces in the garage would be replacement parking serving the retained existing uses and 428 spaces would serve the project land uses.

Table 9 presents the estimated parking demand and maximum allowable parking supply, as established by code. The project would be allowed to provide a maximum of 319 automobile parking spaces for the project land uses, and the project would provide 428 spaces for those uses, which is more than the maximum allowed by code.

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Table 9: Automobile Parking Maximum Calculation
Land Use Size1 Rate Spaces
Office 150 KSF 2.4 spaces per KSF
(excluding the first 1.5 KSF) 356
Research & Development 150 KSF 1.5 spaces per KSF
(excluding the first 1.5 KSF) 223
Transit Hub Overlay (-50%) -289
Total Estimated Parking Demand 290
Maximum Allowed Spaces (Demand +10%) 319
Project Parking Supply for Office/R&D Uses 428
Requirement Met? No
Notes:

1. KSF = 1,000 square feet

2. Based on City of Emeryville Municipal Code Section 9-4.404

3. The project parking garage would provide 496 parking spaces, 68 of which would be replacement parking for retained existing uses and 428 of which would serve the project land uses.

Source: Fehr & Peers, 2022.

Parking Demand and Supply
The project applicant is seeking a Conditional Use Permit to provide more parking than the maximum parking supply established by code. According to City of Emeryville Municipal Code Section 9-4.404, to grant such a conditional use permit, the following findings must be made:

1. That the applicant has convincingly demonstrated that the additional parking is required to meet the anticipated parking demand of the proposed uses.

2. That the provision of the additional parking will not result in an overdependence on automobiles and will not adversely affect transit, bicycle, or pedestrian access to the site or other adjacent uses.

The project applicant retained CHS Consulting to conduct a parking demand study for the project.

This study concluded that the project would generate more parking demand than the proposed parking supply and that the implementation of a transportation demand management (TDM) plan could reduce parking demand to the level of the proposed parking supply. Fehr & Peers conducted a peer review assessing the data sources, methodology, and findings of this analysis and generally concurred that parking demand would be greater than the proposed parking supply, with the potential for TDM measures to reduce parking demand.

Based on data provided in the Census Transportation Planning Product (CTPP, 2012-2016) collected by the United States Census Bureau, approximately 73 percent of existing workers in the project Miroo Desai, City of Emeryville
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area3 drive alone to work and eight percent carpool, which results in an estimated parking demand of 0.77 spaces per worker. According to the project applicant, the project is expected to contain between 900 and 1,200 employees. Therefore, the project would be expected to generate parking demand of 690 to 930 spaces, which is greater than the 428 parking spaces provided by the project to serve the new lab/office land uses.

Expected parking demand can be reduced with the implementation of transportation demand management (TDM) strategies, such as providing a limited parking supply, that discourage driving alone and encourage travel by walking, bicycling, and transit. However, the utilization of nearby parking garages can limit the effectiveness of a TDM strategy to provide less parking than demanded.

Recommendation 4: Restrict parking in the structure to those who work/visit the project site, and do not offer parking spaces in other parking facilities to employees of this new EmeryStation building. Implement a TDM plan that restricts the use of valet parking using either the project parking garage or near-by parking garages to no more than six days per year related to special events. More information related to recommended performance standards, monitoring, and potential measures to include in the TDM plan can be found in the CEQA transportation assessment for the project.

A detailed assessment of the applicant’s parking study is provided as Attachment G.

Accessible Parking
The California Building Code (CBC) requires accessible parking spaces to be provided when parking is provided for new buildings. According to the CBC, parking facilities with 401 to 500 spaces are required to provide 9 accessible parking spaces, including two van accessible spaces. The project parking garage would provide nine accessible parking spaces, including two van accessible parking spaces, meeting code requirements. All accessible parking spaces would be located on the shortest accessible route to an accessible entrance and are arranged so that people with disabilities are not forced to wheel or walk behind parked vehicles other than their own.

Electric Vehicle Parking
The City of Emeryville Municipal Code Section 9-4.406 requires Level 2 electric vehicle (EV) charging stations and EV-capable parking spaces when parking is provided for new construction. EV parking requirements are based on the Tier 2 voluntary measures of the California Green Building Standards Code. Based on the California Green Building Standards Code, new non-residential construction that provides 201 or more total parking spaces is required to provide 20 percent of total parking 3 Alameda County Census Tract 4251.03
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spaces as EV charging spaces. The City of Emeryville Municipal Code requires that all other spaces be EV-capable.

The project parking garage would provide 48 EV charging spaces, which represents about 10 percent of the total parking spaces. No information is provided about the EV-capability of other spaces.

Recommendation 5: Provide a minimum of 20 percent of all automobile parking spaces as Level 2 EV charging spaces and ensure that all other spaces are EV-capable.

On-Street Parking and Passenger Loading
Along the project frontages, 63rd Street currently provides unrestricted perpendicular parking, Overland Avenue provides unrestricted parallel parking, and 62nd Street provides permit parking east of Horton Street and two-hour parking west of Horton Street. The project would provide parallel parking along the 63rd Street frontage. On-street parking would not be provided along the 62nd Street and Overland Avenue frontages, as the project would provide concrete curb protected bikeways on those segments.

The project site plan does not designate an area specifically for passenger pick-ups and drop-offs.

However, 55-foot-wide on-street loading zones would be provided on either side of the driveway serving off-street truck loading spaces on the south side of 63rd Street near the north project entrance.

Recommendation 6: Provide signage next to the on-street loading spaces indicating that they may be used for active passenger loading/unloading in addition to commercial vehicle loading/unloading.

Bicycle Access, Circulation, and Parking
Primary bicycle access for the project would be provided via the Horton Street bicycle boulevard to the south, the Overland Avenue bicycle boulevard along the west project frontage and to the north, and the 62nd Street bicycle boulevard along the south project frontage. Bicycles may also utilize 63rd Street to access the west project entrance and bicycle storage room.

The project would provide one-way concrete curb protected bikeways on either side of Horton Street between Powell Street and 62nd Street, two-way concrete curb protected bikeways on the north side of 62nd Street between Hollis Street and Overland Avenue, and two-way concrete curb protected bikeways on the east side of Overland Avenue. The project would provide all-way stop control at the Horton Street/62nd Street intersection to improve bicyclist safety and convenience.

Bicycles traveling eastbound on 62nd Street in the two-way protected bikeway would be required to cross to the other side of the roadway to travel east of Hollis Street, and bicycles traveling Miroo Desai, City of Emeryville
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between Horton Street and 62nd Street would be required to transfer between one-way and twoway bikeways.

Recommendation 7: Provide intersection markings and signage directing bicycles into and out of the two-way protected bikeway on 62nd Street at the Hollis Street/62nd Street and Horton Street/62nd Street intersections.

The project also proposes closing Overland Avenue to automobiles between 63rd Street and 64th Street, providing a linear public park with a bicycle and pedestrian throughway. The bicycle and pedestrian throughway would be provided on the west side of the street, which would require bicycles to switch sides of the street when traveling northbound or southbound through the Overland Avenue/63rd Street intersection and would result in conflicts between bicycles and turning vehicles.

Recommendation 8: Provide the two-way protected bikeway on the west side of Overland Avenue between 62nd Street and 63rd Street to align with the bicycle and pedestrian throughway between 63rd Street and 64th Street. Provide stop control on both approaches of the Overland Avenue/62nd Street intersection, including retaining the existing stop sign, to better allocate right-of-way between all intersection users and facilitate a safer crossing of vehicle lanes on Overland Avenue for bicyclists traveling between the protected bikeways on 62nd Street and Overland Avenue.

The closure of a segment of Overland Avenue to automobile traffic would reduce automobile travel on the Horton Street-62nd Street-Overland Avenue bicycle boulevard, as it would discourage people driving to/from the project site from using Overland Avenue as the primary route to/from I-80 and would divert some existing vehicle traffic from Overland Boulevard. Closure of Overland Avenue between 62nd Street and 63rd Street could also be considered instead of the segment proposed by the project if unknown conditions emerge during the design of the project that make the closure of Overland between 63rd Street and 64th Street infeasible. Closing the portion of Overland between 62nd Street and 63rd Street would similarly displace through travel along Overland Avenue and would resolve some of the access issues to the loading spaces on the south side of 63rd Street with the current proposal.

Bicycle Parking
The City of Emeryville Municipal Code requires short-term and long-term bicycle parking for commercial developments. Short-term bicycle parking includes bicycle racks, and long-term bicycle parking includes lockers or locked enclosures. For non-residential uses, Section 9-4.408 requires one short-term bicycle parking space and one long-term bicycle parking space for every ten automobile parking spaces indicated as the estimated parking demand in Section 9-4.404, with a minimum requirement of two short-term and two long-term spaces.

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Table 10 presents the bicycle parking requirements for the project. The project is required to provide a minimum of 58 short-term and 58 long-term bicycle parking spaces. The project would provide 58 short-term and 58 long-term bicycle parking spaces, meeting code requirements.

Table 10: Bicycle Parking Requirements
Use Automobile
Parking Demand1
Short-Term Long-Term
Rate2 Spaces Rate2 Spaces
Commercial 579 1 per 10 spaces of
automobile demand 58 1 per 10 spaces of automobile demand 58 Total Bicycle Spaces Required 58 58
Total Bicycle Spaces Provided 58 58
Bicycle Parking Met? Yes Yes
Notes:

1. See Table 9. Calculation does not include reduction due to location in Transit Hub Overlay

2. Based on City of Emeryville Municipal Code Section 9-4.408.

Source: Fehr & Peers, 2022.

City of Emeryville Municipal Code Section 9-4.408 requires short-term bicycle parking to be provided within a convenient distance of, and clearly visible from, the main entrance to the building.

The project would provide short-term bicycle parking in the courtyard leading to the main building entrance and on the ground level in the parking garage. The short-term bicycle parking located in the parking garage would not be visible from the street. Short-term bicycle parking is not provided near the west or north entrances.

Recommendation 9: Provide short-term bicycle parking in the courtyard near the main entrance and near any other building entrances that may be utilized by visitors. Ensure that all short-term bicycle parking is visible from the street.

Long-term bicycle parking is required to be in an enclosed, covered, locked area, surrounded by a fence or wall at least seven feet tall, and restricted to bicycle parking users; they may also be provided in bicycle lockers that are either weather-proof or covered. The project would provide long-term bicycle parking in an internal bicycle storage room accessed via the east building entrance. The bicycle storage room would connect to employee shower facilities.

Pedestrian Access and Circulation
Primary pedestrian access for the project would be provided via the main building entrance on 62nd Street and via an entrance on the east side of the building across from the parking garage.

Pedestrian access would also be provided via an entrance on the west side of the building from Overland Avenue.

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Adjacent to the project site, existing sidewalks on Overland Avenue and 62nd Street are approximately five feet wide, and sidewalks are not currently provided on 63rd Street or on Overland Avenue for about 60 feet south of 63rd Street. The project would provide eight-foot-wide sidewalks on 62nd Street and 63rd Street and a 7.5-foot-wide sidewalk on Overland Avenue. These sidewalk widths meet the City of Emeryville Design Guidelines requirement for minimum sidewalk widths of 7.5 feet.

The project would also provide a 20-foot-wide bicycle/pedestrian throughway on Overland Avenue between 63rd Street and 64th Street, filling an existing gap in the sidewalk network. An eight-footwide enhanced planting buffer zone and an eight-foot-wide activity zone would be provided east of the throughway.

Recommendation 10: Ensure clear paths of travel between the bicycle/pedestrian throughway and the connecting sidewalks on the north side of 63rd Street and south side of 64th Street.

Existing pedestrian facilities at the intersections nearest to the site include:
 The side-street stop-controlled Overland Avenue/63rd Street intersection provides a diagonal curb ramp with truncated domes at the northeast corner of the intersection.

Painted curb extensions are provided at the southeast corner of the intersection.  The stop-controlled Overland Avenue/62nd Street intersection provides a diagonal curb ramp at the northeast corner of the intersection. Painted curb extensions are provided on Overland Avenue just north of the northeast corner of the intersection.  The side-street stop-controlled Horton Street/62nd Street intersection provides a highvisibility crosswalk across the south leg of the intersection, and diagonal curb ramps with truncated domes are provided at the southeast and southwest corners of the intersection.  The all-way stop-controlled Hollis Street/63rd Street intersection provides high-visibility crosswalks across all legs of the intersection and diagonal curb ramps with truncated domes on all four corners. Painted curb extensions are provided on both sides of the street on the east and west legs of the intersection.
 The signalized Hollis Street/62nd Street intersection provides high-visibility crosswalks across the north and south legs of the intersection and diagonal curb ramps with truncated domes on all four corners. Painted curb extensions are provided on both side of the street on all four legs of the intersection, except for the east side of the south leg of the intersection.

The project would provide high-visibility crosswalk markings across the east approach of 62nd Street at the Horton Street/62nd Street intersection.

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Recommendation 11: Explore the feasibility of and, if determined feasible by City of Emeryville Staff, implement the following:
o Provide concrete curb extensions and directional curb ramps with truncated domes on the northeast and southeast corners of the Overland Avenue/63rd Street intersection and mark the crosswalk across 63rd Street. o Provide directional curb ramps with truncated domes at the Horton Street/62nd Street intersection.
o Provide concrete curb extensions and directional curb ramps with truncated domes at the Hollis Street/62nd Street and Hollis Street/63rd Street intersections.

Transit Access
Transit service providers in the vicinity of the project include Alameda Contra Costa Transit District (AC Transit), Emery Go-Round, Amtrak, and Bay Area Rapid Transit (BART). The Emeryville Amtrak Station is about 0.2 miles southwest of the project, the MacArthur BART Station is about 1.5 miles southeast of the project, and the Ashby BART station is about 1.5 miles northeast of the project. AC Transit and the Emery Go-Round operate the following routes in the vicinity of the project:
 AC Transit Line 29 and the Emery Go-Round Hollis line have a southbound stop on Hollis Street just south of 63rd Street and northbound stops on Hollis Street just north of 59th Street and just north of 64th Street. The southbound stop is located about 0.1 miles east of the project, the northbound stop at 59th Street is located about 0.2 miles south of the project, and the northbound stop at 64th Street is located about 0.2 miles north of the project.
 AC Transit Lines 36 and J have stops at the Hollis Street/65th Street intersection about 0.3 miles north of the project.

Hollis Street is designated as a Transit Street in the Emeryville General Plan. According to the Citywide Design Guidelines, Transit Streets should provide ample sidewalks on both sides of the street and amenities around bus stops, such as shelters, benches, and lighting. The Emeryville Sustainable Transportation Plan further includes an accessible loading area, signs, a system map, schedules, and trash receptacles, among other amenities that should be considered at bus stops.

The closest bus stops to the project are located on Hollis Street at 59th Street, 63rd Street, and 64th Street. The bus stop at 63rd Street provides a bus shelter, a covered bench, and a trash can. A pedestrian pathway would connect the project and the bus stop at 63rd Street, and sidewalks would connect the project with other nearby bus stops. Access to bus stops north of the project site would be improved with the signalization of the Hollis Street/63rd Street intersection described in Miroo Desai, City of Emeryville
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Recommendation 1, and access to the bus stops north and south of the project site would be improved with the implementation of crosswalk enhancements described in Recommendation 11.

Providing pedestrian scale lighting to transit stops encourages the use of transit by providing a comfortable environment for people at night. The bus stop at 63rd Street is expected to have high ridership in the evening, as departing employees utilize the free Emery Go-Round service to MacArthur BART.

Recommendation 12: Provide pedestrian-scale lighting between the building exits and the bus stop on Hollis Street south of 63rd Street and ensure that that stop provides adequate lighting for riders waiting at night.

Truck Access and Circulation
The City of Emeryville Municipal Code (Section 9-4.409) establishes off-street loading space requirements for new developments based on land use and square footage. The project would be required to provide two medium off-street loading spaces and one large off-street loading space.

Large loading spaces are required to provide minimum dimensions of 12 feet wide, 50 feet long, and 14 feet of vertical clearance. Medium loading spaces are required to provide minimum dimensions of 12 feet wide, 35 feet long, and 14 feet of vertical clearance. The project would provide two medium off-street loading spaces and one large off-street loading space.

Recommendation 13: Ensure that the off-street loading spaces meet code requirements for loading space dimensions.

Truck access to the off-street loading spaces would be provided via a driveway on 63rd Street.

Trucks would approach on 63rd Street, back into the loading spaces, and leave head-first. Trucks would have adequate space to maneuver into and out of the loading spaces.

The project would also provide 55-foot on-street loading zones on either side of the driveway providing access to the off-street loading spaces. As described previously, the conversion of Overland Avenue between 63rd Street and 62nd Street to one-way southbound would require trucks to turn around in the middle of 63rd Street to access the on-street loading spaces.

Implementation of Recommendation 3 would address this issue.

Recommendation 14: If Recommendation 3 is not implemented, provide a turnaround space for vehicles on 63rd Street that does not conflict with bicycle or pedestrian paths of travel at the Overland Avenue/63rd Street intersection.

7. Conclusion and Summary of Recommendations
Per the site plan review, the project would have adequate automobile, bicycle, pedestrian, and transit access and circulation with the inclusion of the following recommendations:

Miroo Desai, City of Emeryville
April 19, 2022

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Recommendation 1: Install a traffic signal at the Hollis Street/63rd Street intersection that is interconnected with adjacent traffic signals and includes bicycle detection.

Recommendation 2: Designate 20 feet of red curb on the east and west sides of the garage driveway to ensure adequate sight distance between exiting motorists and cyclists or motorists on 63rd Street.

Recommendation 5: Provide a minimum of 20 percent of all automobile parking spaces as Level 2 EV charging spaces and ensure that all other spaces are EV-capable.

Recommendation 6: Provide signage next to the on-street loading spaces indicating that they may be used for active passenger loading/unloading in addition to commercial vehicle loading/unloading.

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of vehicle lanes on Overland Avenue for bicyclists traveling between the protected bikeways on 62nd Street and Overland Avenue.

Recommendation 10: Ensure clear paths of travel between the bicycle/pedestrian throughway and the connecting sidewalks on the north side of 63rd Street and south side of 64th Street.

Recommendation 13: Ensure that the off-street loading spaces meet code requirements for loading space dimensions.

Please contact Jordan Brooks ([email protected] or 510-587-9429) with questions or comments.

Miroo Desai, City of Emeryville
April 19, 2022

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ATTACHMENTS
Attachment A – Intersection Volumes, Lane Configurations, and Traffic Controls Attachment B – Signal Warrant Analysis Worksheets
Attachment C – Intersection Operations Analysis Worksheets Attachment D – Collision History Reports
Attachment E – Predicted Crash Frequency Calculation Sheets Attachment F – Recommendation 3 Conceptual Cross-Sections Attachment G – Parking Study Peer Review Memorandum
Attachment F: Recommendation 3 Conceptual
Cross-Sections
Two‐way concept
One‐way northbound concept
Attachment G: Parking Study Peer Review
Memorandum
2201 Broadway | Suite 602 | Oakland, CA 94612 | (510) 834-3200 | Fax (510) 253-0059 www.fehrandpeers.com
Memorandum
Date: March 18, 2022
To: Miroo Desai, City of Emeryville
From: Jordan Brooks and Kathrin Tellez, Fehr & Peers
Subject: EmeryStation Overland Parking Demand Study Peer Review OK21-0418.00
This memorandum presents the results of Fehr & Peers’ peer review of a parking demand study prepared by CHS Consulting Group (CHS) and submitted by the project applicant for the proposed EmeryStation Overland development, located at 1550 62nd Street in the City of Emeryville (project).

The applicant parking study is provided as Attachment A.

The project applicant is seeking a Conditional Use Permit to provide more parking for the project than the maximum parking supply established by code. According to City of Emeryville Municipal Code Section 9-4.404, to grant such a conditional use permit, the following findings must be made:

1. That the applicant has convincingly demonstrated that the additional parking is required to meet the anticipated parking demand of the proposed uses.

A parking study was submitted to the City to provide a basis for demonstrating the need to exceed the maximum parking supply established by code. As the resulting parking demand estimates presented in the study exceed the proposed project parking supply, the parking study also assessed the potential for a transportation demand management (TDM) plan to reduce parking demand to the level of the proposed parking supply.

Fehr & Peer’s review assessed the estimated project parking demand provided in the CHS parking study. Based on this review, Fehr & Peers concluded that parking demand for the project would be greater than both the maximum allowed by code and the amount provided by the project. To reduce parking demand to the amount supplied by the project and ensure that the project would not result in an overdependence on automobiles, the project should implement a transportation Miroo Desai
March 18, 2022

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demand management (TDM) plan to further reduce driving alone and encourage the use of transit, walking, and bicycling.

Project Description
The proposed project would redevelop an approximately 3.9-acre parcel bound by 62nd Street, Overland Avenue, 63rd Street, and Hollis Street in the City of Emeryville. As part of the project, 77,000 square feet of existing warehouses would be demolished, and a 300,000 square foot biotech office/R&D use would be constructed. Forty-one live-work units and about 48,000 square feet of restaurant/warehouse and office space would remain. The project would also construct a 496-space parking garage with vehicular access from 63rd Street that would serve both the new office/R&D uses and the existing retained uses.

According to the project applicant, the project is expected to house between 900 and 1,200 employees.

Automobile Parking Code Requirements
The City of Emeryville Municipal Code does not require new developments to provide automobile parking and instead establishes a maximum allowable number of automobile parking spaces.

Section 9-4.404 provides estimated parking demand based on land use and defines the maximum allowable number of parking spaces as 10 percent more than estimated demand.

There are 68 surface parking spaces currently serving the retained existing uses at the project site.

These surface parking spaces would be eliminated by the project, and parking for the retained existing uses would be provided in the project garage. Although parking will be unbundled, per City standard, and specific allocation of spaces will therefore be determined through lease agreements, it is assumed that 68 spaces in the garage would be replacement parking serving the retained existing uses and 428 spaces would serve the project office/R&D land uses.

Table 1 presents the estimated parking demand and maximum allowable parking supply, as established by code. The project would be allowed to provide a maximum of 319 automobile parking spaces for the project land uses, and the project would provide 428 spaces for those uses, which is more than the maximum allowed by code.

Miroo Desai
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Table 1: Automobile Parking Maximum Calculation
Land Use Size1 Rate2 Spaces
Office 150 KSF 2.4 spaces per KSF
(excluding the first 1.5 KSF) 356
Research & Development 150 KSF 1.5 spaces per KSF
(excluding the first 1.5 KSF) 223
Transit Hub Overlay (-50%) -289
Total Estimated Parking Demand 290
Maximum Allowed Spaces (Demand +10%) 319
Project Parking Supply for Office/R&D Uses3 428
Requirement Met? No
Notes:

1. KSF = 1,000 square feet

2. Based on City of Emeryville Municipal Code Section 9-4.404

3. The project parking garage would provide 496 parking spaces, 68 of which would be replacement parking for retained existing uses and 428 of which would serve the project land uses.

Source: Fehr & Peers, 2022.

Project Parking Demand Analysis
The CHS study provides three separate methodologies to estimate project parking demand:
 Based on parking demand data collected at the existing EmeryStation campus  Based on commute travel mode data collected in an employee survey at the existing EmeryStation campus
 Based national parking demand data collected in dense, multi-use urban settings for the project land uses by the Institute of Transportation Engineers (ITE) Each of these methodologies represents a reasonable approach to estimating parking demand for the project. Project employees are expected to have similar travel patterns as those at the existing EmeryStation campus, given the similar land use and transportation context and employment type.

Additionally, using data from the existing EmeryStation campus to estimate parking demand represents a conservative approach that provides an estimate of demand that includes the transportation demand management (TDM) strategies currently implemented at the campus. Using national data from dense, multi-use urban settings is also an appropriate approach that takes into consideration the reduced need for parking due to the project’s land use and transportation context and has a larger sample size.

The CHS study found that the application of each methodology resulted in an estimated project parking demand that exceeds both the maximum parking allowed by code and the parking supply provided by the project. To test the robustness of the findings of the CHS study, Fehr & Peers Miroo Desai
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performed a sensitivity analysis that modified assumptions of the CHS methodologies to provide a more conservative estimate.

For the two methodologies utilizing data related to the existing EmeryStation campus, the CHS study assumed that the project would host 1,200 employees at an employment density of four employees per 1,000 square feet. The CHS study used that employment density based on the existing EmeryStation campus’ employment density of 4.15 employees per 1,000 square feet.

However, the project applicant has represented that the project would have an employment density of between three and four employees per 1,000 square feet, representing between 900 and 1,200 employees. Fehr & Peers re-estimated parking demand using these two methodologies assuming the project would have only 900 employees.

For the methodology using ITE data, the CHS study assumed project land uses that match those in the existing EmeryStation campus. However, this mix of uses includes some land uses with relatively high parking demand, such as clinic and retail uses, that would not be provided by the project. Fehr & Peers re-estimated parking demand using this methodology assuming the project land use of half office use and half R&D use.

Table 2 summarizes the parking demand estimates using the three methodologies as they were conducted in the CHS study as well as using the more conservative assumptions described above.

Table 2: Estimates of Parking Demand for Proposed Project Land Uses Existing EmeryStation
Parking Demand Data1
EmeryStation
Employee Commute
Mode Survey2
ITE Data3
Using CHS Study Assumptions4
Estimated Parking Demand 636 804 546
Parking Demand +10% 700 884 601
Using More Conservative Assumptions5
Estimated Parking Demand 477 603 507
Parking Demand +10% 525 663 558
Notes:

1. Observed parking demand at the existing EmeryStation campus is 0.53 spaces per employee.

2. An employee survey at the existing EmeryStation campus found that 67% of employees stated they drove alone to work, for an estimated parking demand of 0.67 spaces per employee.

3. Parking demand average rates from the ITE Parking Generation Manual, 5th Edition for a Dense, Multi-Use Urban setting are 1.63 spaces per 1,000 square feet for Office uses, 2.65 spaces per 1,000 square feet for Clinic uses, 1.95 spaces per 1,000 square feet for Retail uses, and were estimated to be 1.76 spaces per 1,000 square feet for R&D uses.

4. The CHS study assumed 1,200 employees, with land use mix of 49% Office, 36% R&D, 14% Clinic, and 1% Retail.

5. The more conservative assumptions included 900 employees, with a land use mix of 50% Office and 50% R&D.

Source: Fehr & Peers, 2022.

Miroo Desai
March 18, 2022

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As shown in Table 2, estimated parking demand for the proposed project uses exceeds the 428 parking spaces provided by the project to serve the new lab/office land uses using all three methodologies under both sets of assumptions.

Additionally, Fehr & Peers conducted a separate estimate of parking demand based on data collected by the United States Census Bureau in the Census Transportation Planning Product (CTPP, 2012-2016). According to this data, approximately 73 percent of existing workers in the project area1 drive alone to work and eight percent carpool, which results in an estimated parking demand of 0.77 spaces per worker. With this level of parking demand, the between 900 and 1,200 employees at the project would be expected to generate demand for 690 to 930 spaces.

Estimated employee parking demand derived from the existing EmeryStation campus is lower than data from the entire project area due in part to TDM strategies implemented at the campus, including providing a limited parking supply with preferential carpool parking and offering ridematching and guaranteed ride home services. Implementation of TDM strategies that discourage driving alone and encourage travel by walking, bicycling, and transit would reduce project parking demand, and the project would be required to implement a TDM plan to mitigate a significant impact related to VMT. Potential measures of the TDM plan should include:
 Information related to transit in the area
 Subsidized transit passes
 Subsidized rides to MacArthur BART outside the operating hours of the Emery Go-Round shuttle
 Charging for parking
 Restricting the use of valet parking that parks vehicles outside the garage  Encouraging carpool/vanpool through carpool matching, preferential parking, and a guaranteed ride home
 Include information on nearby bicycle facilities and project bicycle parking in new-hire orientation packets
Conclusion
Based on the results of the peer review, Fehr & Peers concurs that the anticipated parking demand of the proposed project uses is greater than both the maximum allowed by code and the parking supply proposed by the project. To reduce parking demand to the amount supplied by the project and ensure that the project would not result in an overdependence on automobiles, the project should implement a transportation demand management (TDM) plan to reduce driving alone and encourage the use of transit, walking, and bicycling.
1 Alameda County Census Tract 4251.03
Miroo Desai
March 18, 2022

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Please contact Jordan Brooks ([email protected] or 510-587-9429) with questions or comments.

Attachments
Attachment A – 1550 EmeryStation Biotech Campus Project – Parking Study Methodology Memorandum

Emeryville City CouncilJuly 5, 2022

Emeryville City Council
July 5, 2022