DATE: April 27, 2022
TO: Council Infrastructure Committee
FROM: Director of Public Works
SUBJECT: Update on the I-880/Winton Ave and I-880/A Street Interchange Improvement Project
RECOMMENDATION
That Council Infrastructure Committee (CIC) reviews this report and receives an update on the I-880/Winton Ave and I-880/A Street Interchange Improvement Project.
SUMMARY
The City, in partnership with the Alameda County Transportation Commission (ACTC), the implementing agency, and the California Department of Transportation (Caltrans) propose to provide interchange improvements at the Winton Avenue and A Street interchange along the I-880 corridor.
The City prepared a feasibility study for the I-880/Winton Avenue interchange in December 2015. ACTC expanded upon the feasibility study and developed the Project Study Report -Project Development Support (PSR-PDS) for the I-880 Interchange Improvements (Winton Avenue and A Street) Project (Project), which was approved by Caltrans in October 2019. The Project is currently in the Project Approval and Environmental Document (PA&ED) phase.
Several alternatives were identified in the PSR-PDS and evaluated through the PA&ED phase. After stakeholder coordination and a cooperative evaluation with the Project Development Team, Caltrans, ACTC, City staff and recommendation from Council, the alternatives being evaluated in the Draft Environmental Document (DED) and Draft Project Report (DPR) are “Build Alternative 1,” “Build Alternative 2,” and the “No-Build Alternative.” The DED and DPR are currently under Caltrans review for approval and the DED is anticipated to be circulated for public comment in Spring 2022.
Both Build Alternatives propose the same mainline improvements between the I-880/A Street and I-880/Winton Avenue interchanges and I-880/Winton Avenue interchange improvements. The differences between the Build Alternatives are related to the proposed lane configuration of A Street. The following provides a summary of the Mainline, Winton Avenue, and two A Street alternatives:
Mainline Improvements. Mainline improvements would include restriping of the existing outside shoulder of I-880 along the I-880 mainline between the I-880/Winton Avenue and I -880/A Street interchanges to provide one auxiliary lane in each direction.
Winton Avenue Improvements. Both Build Alternatives propose to convert the existing I-880/Winton Avenue Interchange from a full clover leaf to a partial clover leaf configuration. Partial clover leaf (Par-Clove) interchanges provide better traffic operations with minimum impact to right-of-way and environmental.
A Street Improvement Alternatives. The following provides a summary of the two A Street improvement alternatives at the I-880/A Street interchange:
Build Alternative 1 includes removal of the existing sidewalks next to the travel lanes and restriping A Street to provide separate turn lanes for ramp turning movements in both directions. This scenario would provide six lanes under the existing A Street overcrossing.
Build Alternative 2 includes removal of the existing sidewalks next to the travel lanes and widening existing A Street travel lanes while maintaining the existing five lane configuration under the A street overcrossing.
BACKGROUND
The City, in partnership with the ACTC, the implementing agency, and Caltrans, who owns and operates I-880, propose to provide interchange improvements at the Winton Avenue and A Street interchanges along the I-880 corridor. The Project would include:
Reconfiguring the I-880 interchanges at Winton Avenue and A Street to enhance access to the surrounding residential, retail, and commercial land uses; Improving pedestrian and bicycle facilities at both interchanges; Providing northbound and southbound auxiliary lanes along the main line between the A Street interchange and the Winton Avenue interchange; and, Providing new signalized intersections at Winton Avenue ramp terminals and modifying ramp terminal intersections at A Street to improve traffic flow, reduce congestion, and make intersections accessible and safer for pedestrians and cyclists.
The project team developed a PSR-PDS document, which was approved by Caltrans in October 2019. The PSR-PDS document established the purpose and need of the project and developed several conceptual design alternatives for further evaluation during the PA&ED phase. As part of this phase of work, staff and ACTC solicited feedback for the alternatives under consideration to establish a set of preferred alternatives from the PSR-PDS document. These preferred alternatives will be taken forward through the completion of the technical studies and completion of the PA&ED phase.
The City was a part of the project development and was consulted during the preparation of the PSR-PDS document to ensure that Context Sensitive Solutions have been developed and proposed design solutions are consistent with local community values, character, and contextual setting as envisioned by the City. Multiple stakeholder outreach meetings were held since the project’s inception with local advocacy groups, business owners, and local residents. Furthermore, the Project is consistent with the City’s 2040 General Plan and the City’s recently adopted Bicycle and Pedestrian Master Plan.
Council Infrastructure Committee
Design alternatives were first presented to the CIC on January 22, 2020. Following revisions per CIC feedback and comments from Caltrans, staff presented a project update to the CIC on July 22, 2020. Since July 2020, the design team has worked on addressing additional feedback from Caltrans pertaining to safety concerns regarding the A Street alternatives. City staff continued discussions with Southland Mall landowners on the Winton Avenue alternatives. In January 2021, landowners from the Sears parcel provided feedback that they do not support a direct access from the interchange into the Southland Mall property.
City Council
Three design alternatives for the A Street interchange improvements were presented to Council on February 23, 2021 in order to select a preferred alternative to move forward to the environmental document project phase. The Council supported to move forward with the two A Street Build Alternatives that are presented in the DED, with Build Alternatives 1 and 2 as the first and second preferred alternatives, respectively.
Initials and Acronym Key
Winton Avenue & A Street Project (Project)
Alameda County Transportation Commission (ACTC)
Draft Environmental Document (DED)
Draft Project Report (DPR)
Project Study Report – Project Development Support (PSR-PDS) Project Approval & Environmental Document (PA&ED)
Project Initiation Document (PID)
Roundabouts (RAB)
Partial Clover Leaf (Par-Clove)
High Occupancy Vehicle (HOV)
High Intensity Activated Crosswalk (HAWK)
DISCUSSION
Several alternatives were identified in the PSR-PDS and evaluated through the PA&ED phase. After stakeholder coordination and a cooperative evaluation with the Project Development Team, Caltrans, ACTC, City staff and recommendation from Council, the alternatives being evaluated in the DED and DPR are “Build Alternative 1,” “Build Alternative 2,” and the “No-Build Alternative.” The DED and DPR are currently under Caltrans review for approval and the DED is anticipated to be circulated for public comment in Spring 2022. Both Build Alternatives propose the same mainline improvements between the I-880/A Street and I-880/Winton Avenue interchanges and I-880/Winton Avenue interchange improvements. The differences between the Build Alternatives are related to the proposed lane configuration of A Street.
The alternatives are described as follows:
Mainline Improvements
Mainline improvements would include restriping of the I-880 mainline between the I-880/A Street and I-880/Winton Avenue interchanges to provide one auxiliary lane in each direction. The new auxiliary lanes would be approximately 1,500 feet long, would not require right of way acquisitions to construct, and do not extend beyond the two interchanges. The restriping is limited to general purpose lanes only and does not change the recently built express lane configuration. Signage will be updated for the new configuration. New overhead sign structures for the auxiliary lanes will be provided. All mainline roadside signs in front of the soundwall would need to be updated to current standards and mounted on top of the soundwalk. Bridge mounted signs on the Winton Ave overcrossing would be updated to current standards.
Winton Avenue Interchange
With the current interchange configuration, major weaving occurs between the local and mainline locations during the AM and PM peak periods. To eliminate the weaving and improve the interchange operations, various interchange concepts were developed and evaluated based on the peak period volumes and intersection spacings. The original interchange alternatives included a direct access ramp from the southbound off ramp to Southland Mall, providing triple left turn lanes on Winton Avenue at Southland Mall Drive, dual RABs and a Par-Clove. However, based on the design year future forecast volumes, right-of-way and environmental impacts, the direct access ramp, triple left turn, and RAB alternatives were eliminated.
At this location, a Par-Clove interchange provides better traffic operations and minimum impact to right-of-way and environmental aspects. The existing I-880/Winton Avenue Interchange will be converted from a full clover leaf to a partial clover leaf configuration as shown in Attachment II.
Improvements to the I-880/Winton Avenue interchange include:
Removal of the existing southbound loop off-ramp to eastbound Winton Ave, the existing northbound loop off-ramp to westbound Winton Ave, and the existing C-D road Widen southbound diagonal off-ramp to provide additional left turn storage and to provide a 2-lane off-ramp to accommodate added traffic being diverted from the removal of the southbound loop off-ramp Widen northbound diagonal off-ramp to provide a 2-lane off-ramp to accommodate added traffic being diverted from the removal of the northbound loop off-ramp Lengthen the southbound diagonal on-ramp to provide more GP storage Widen southbound loop on-ramp to add one High Occupancy Vehicle (HOV) bypass lane and one GP lane for more GP storage Widen northbound loop on-ramp to add one HOV bypass lane Widen northbound diagonal on-ramp to add one GP lane and one HOV bypass lane Reconfiguration of ramp terminals and installation of new traffic signals Replacement of bridge barrier railings with Type 732SW concrete barrier and sidewalk. Replacement of median and longitudinal expansion joint on bridge deck with a closure pour Construction of additional vehicle storage by lengthening the existing two left-turn lanes at Southland Drive in the westbound direction Construction of Americans with Disabilities Act (ADA) compliant sidewalks and Class IV bikeways in both directions of Winton Avenue between Southland Drive and Santa Clara Street A Street Interchange
Currently, both I-880 southbound and northbound ramp intersections are controlled by one controller with split phases for all movements at the intersections. The westbound left/through movement at the southbound ramps has an overlap phase and eastbound left/through movement has an overlap phase at the northbound ramps. The interchange alternatives that were presented to Council in February 2021 included double roundabouts, a six-lane configuration and a five-lane configuration. However, due to traffic analysis results showing the roundabout alternative did not meet the project purpose and need of improving traffic operations, the roundabout alternative was eliminated.
Both Build Alternatives involve improvements to A Street, which are described below. The lane configurations for each Build Alternative may differ; however, the same improvements are proposed to accommodate the bicycle and pedestrian path as it approaches and proceeds under I-880. These improvements include:
The existing sidewalk at the undercrossing would be removed, and that width would be used to widen A Street pavement between the existing ramp terminals Ground anchor retaining walls would be constructed to cut into the existing embankment slopes as necessary to accommodate the 12-foot wide path between the I-880 abutment and support columns beneath the bridge approach spans. Walls would have a maximum design height of nine feet for the wall at the south abutment and ten feet for the wall at the north abutment.
Two 12-foot-wide shared pedestrian and bicycle paths (eastbound and westbound) would be provided between the I-880 overpass abutment and support columns Addition of Class IV bikeway on A Street to the east and west of the I-880/A Street Interchange within the project limits Improve pedestrian and bicycle crossings at I-880 ramp intersections by eliminating free-right turning movements and removing the porkchop islands Modification to the intersection of South Garden Avenue and A Street to an exclusive right turn in/right turn out intersection Improvements to the pedestrian crossing at the intersection of Happyland Avenue and A Street with the installation of High Intensity Activated Crosswalk (HAWK) signal Build Alternative 1 (six-lane configuration) would include the following improvements:
Extend left-turn pockets past the ramp intersections into the approach legs to allow for additional vehicle storage Six ten-foot-wide lanes at the A Street undercrossing between the ramp intersections to provide for dedicated left-turn lanes on A Street in both eastbound and westbound directions, for left-turn movements into I-880 ramps Build Alternative 2 (five-lane configuration) would include the following improvements:
Increase the width of the existing lanes on A Street in both eastbound and westbound directions while keeping the 5-lane configuration Restriping to adjust to widened lanes.
ECONOMIC IMPACT
Both interchanges serve vital commercial and retail areas of the City. The Project would improve access and reduce congestion-related delays both on I-880 and local streets and address on-going concerns related to access to Southland Mall. By improving access and reducing delay, the Project is expected to have positive impacts on local businesses and retail areas.
FISCAL IMPACT
The Project is its initial stage and cost estimates are preliminary. The Project is currently not expected to have a direct fiscal impact on the City. The project utilizes Measure BB funding through ACTC’s Transportation Expenditure Plan.
Preliminary cost estimates for the project as a whole are as follows:
Planning/Scoping $1 million
Preliminary Engineering/Environmental $4.3 million
Final Design $7.0 million
Right of Way $0.8 million
Construction $54.9 million
Total Project Cost $68 million
The ACTC’s Transportation Expenditure Plan shows Measure BB funding as a line item for these projects. Approximately $5.3 million in Measure BB funds were allocated for the pre- scoping, PID, Project Approval, and the Environmental Document phase. There is currently a shortfall of $62.7 million. Funding sources to cover the shortfall have not been identified and will need to be determined before starting the detailed design and right-of-way process.
STRATEGIC ROADMAP
This agenda item supports the Strategic Priority of Improve Infrastructure. Specifically, this item relates to the implementation of the following projects(s):
Project 5, Part 5a:
Maintain and Improve Pavement; Maintain Pavement Condition Index (PCI) at 70.
Project 8, Part 8a:
Implement the Bike & Ped Master Plan; Add 2 miles of sidewalks per year.
Project 8, Part 8b:
Implement the Bike & Ped Master Plan; Add 10 miles of bike lanes per year.
SUSTAINABILITY FEATURES
The Project will reduce regional traffic diversions to City streets and therefore reduce carbon and greenhouse gas emissions and vehicle miles travelled within the City. The Project will also improve bicycle and pedestrian facilities and connections through both interchanges and is consistent with the City’s Bicycle and Pedestrian Master Plan.
Due to the lack of bike lanes and incomplete sidewalks, gaps currently exist along both Winton Avenue and A Street at I-880. The project will fill these gaps by improving bicycle facilities and sidewalks along both sides of the freeway at both interchanges and connect them to existing bicycle and pedestrian facilities. These improvements will be consistent with the goals and objectives of the 2020 Bicycle and Pedestrian Master Plan.
PUBLIC CONTACT
ACTC and City staff held multiple stakeholder meetings comprised of business owners, Southland Mall management, residents, interested community members, and bicycle advocates throughout the development of the PSR-PDS document.
ACTC and City staff have also met with Southland Mall landowners several times to discuss the alternatives at Winton Avenue and their impacts to the mall property.
NEXT STEPS
The Project is currently in the PA&ED phase. The Draft Project Report & Draft Environmental Document are currently under Caltrans review for approval. A tentative project schedule is shown below. Please note that the project schedule is subject to funding availability.
Draft Environmental Document & Draft Project Report Spring 2022 DED Circulation Spring 2022
Public Meeting Spring 2022
Final Environmental Document & Project Report Fall 2019 – Fall 2022 Plans, Specs & Estimate Fall 2022 - Fall 2024
Right-of-Way Spring 2023 - Fall 2024
Construction 2025 - 2027
Prepared by: Shabnam Yari, Acting Senior Transportation Engineer Recommended by: Alex Ameri, Director of Public Works Approved by:
________________________________________
Kelly McAdoo, City Manager
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