CITY OF PACIFICA
COUNCIL AGENDA SUMMARY REPORT
11/28/2022
1 SUBJECT:
Update on Highway1/Manor Drive Overcrossing Improvement Project RECOMMENDED ACTION:
Accept Update Report on Highway 1/Manor Drive Overcrossing Improvement Project STAFF CONTACT:
Lisa Petersen, P.E., Director of Public Works
(650) 738-3770
[email protected]
SUMMARY:
AECOM was awarded the first phase of the Highway1/Manor Drive Overcrossing Improvement Project in August of 2018 to review traffic congestion at the Manor Overcrossing. The first phase looked conceptually at the project and provided some preliminary assessments of the project feasibility. This initial phase also included various design options, including not building the project and impacts related to this action, as well as building a project with the greatest relief to congestion that included widening the overcrossing at Highway 1/Manor Drive and building an on-ramp at Milagra Drive. This project also included two community meetings. At the May 2019 meeting 75% of the attendees favored dropping the on-ramp at Milagra.
The second phase of the Highway 1/Manor Drive Overcrossing Improvement Project was also awarded to AECOM in April of 2022. In order to thoroughly vet possible congestion solutions, this phase will look at two projects: widening the overcrossing at Manor without the Milaga onramp and widening the overcrossing at Manor with the Milgra on ramp. This phase will look at the traffic impacts related to building these two options versus not building the project and the project environmental impacts. This report provides an update of the project and details regarding the background and the next phase of work.
BACKGROUND:
On August 12, 2018, the City Council approved a Consultant Services Agreement with AECOM engineering consulting group to complete a Preliminary Planning Study (PPS) related to the congestion the City was experiencing at the Manor Drive Highway 1 overcrossing. The PPS was completed in June 2019 and included the review of existing technical reports and studies, new topographic mapping, project alternative development, preliminary traffic assessment, right of way and utility impacts, assessment of needed bridge work and a preliminary environmental review and cost estimate.
The PPS considered a no-build alternative and a build alternative with a total of four design options. The build alternative consisted of widening or replacing the Manor Drive overcrossing and replacing the four-way stop signs at the intersections of Manor Drive with Palmetto Avenue and Oceana Boulevard with traffic signals. Two design options were considered for bikeway travel on the overcrossing. In addition, the PPS also evaluated two separate design options for converting a former bus pullout/bus stop located immediately north of the northbound off-ramp Pacifica City Council 2
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to Manor Drive and Monterey Road to a northbound Highway 1 on-ramp at Milagra Drive as a potential separate project.
The PPS traffic analysis showed that the build alternative would improve the intersection level of service and queue lengths compared to the no-build alternative, both with and without the northbound Highway 1 on-ramp at Milagra Drive. The greatest congestion improvement was identified with the inclusion of the on-ramp at Milagra Drive; however, Caltrans would need to agree to any impacts this new on-ramp may create to Highway 1.
As part of the PPS process, the City held meetings with the local community, the California Department of Transportation (Caltrans), and the San Mateo Transit District (SamTrans). ● Two community information meetings were held for the project on November 27, 2018, and May 8, 2019. The purpose of these meetings was to share information about the proposed project and to solicit community input about their priorities and concerns.
Approximately 45 community members (primarily residents) attended each meeting. The majority of the concerns raised by the community were about traffic (congestion and speeding) and bicyclist and pedestrian safety, including for children accessing Ocean Shore School (K thru 8). To respond to these concerns and to evaluate the features supported by the community, the preliminary design was revised to add new crosswalks, lighting, and bridge width to accommodate sidewalks and bike lanes.
The next most prevalent topic raised during the community meetings was the concern about the proposed northbound on-ramp from Milagra Drive. At the May 2019 meeting, approximately 75 percent of meeting attendees favored dropping the on-ramp at Milagra Drive, and some suggested modifying the northbound on-ramp at Oceana Boulevard/Paloma Avenue to accommodate access from southbound Oceana Boulevard.
The project study area was expanded, and additional traffic counts were conducted to assess the need for signals at the intersections of Manor Drive with Oceana Boulevard and Palmetto Avenue, and to further analyze the Milagra Drive on-ramp. Roundabout options were considered to allow both southbound and northbound Oceana Boulevard to access northbound SR 1 at the existing ramp just north of Paloma Avenue. A roundabout and other potential intersection improvements in this area were not advanced for further consideration since the improvements at Paloma would not reduce the congestion at Manor Drive.
● The City met with Caltrans and San Mateo Transit District (SamTrans). In March 2019, Caltrans provided input on the widening of Manor Drive overcrossing versus a replacement of the bridge, parking, transit, bicycle, and pedestrian facility configurations.
In February 2019, SamTrans confirmed their bus routes, the types, and sizes of buses that they plan to use within the project area, provided input on driver issues such as bus turning movements, and requested the relocation of some of the bus stops to the Manor Drive overcrossing. The recommendations provided by Caltrans and SamTrans have been incorporated into the project design.
Some of the conceptual design exhibits for the Manor Drive overcrossing included parking on the bridge itself. Parking was shown in some of the conceptual design exhibits as a way to use potential extra space on the overcrossing and replace existing on-street parking spaces that may need to be removed as part of the project. Attendees at the March 2019 Caltrans meeting and the May 2019 community meeting expressed concern about traffic conflicts with the proposed parking, and Caltrans noted that parking on the Manor Drive overcrossing may not be allowed.
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The City applied for and was awarded $2.7M of Measure W grant funding to complete the next phase of the Highway 1/Manor Drive Overcrossing project in December of 2021 by the San Mateo County Transportation Authority (TA). The TA agreed, as part of the next phase, the City could study the widening of the Manor Drive overcrossing as a standalone project along with a project for the Manor Drive overcrossing widening with an on-ramp at Milagra. The next phases of work needed for the project development are called the Project Initiation Document (PID) and Project Approval and Environmental Documentation (PA&ED). These work phases were awarded to AECOM by the City Council on April 11, 2022. The award of the contract, including a 5% contingency, was $2,937,892.
DISCUSSION:
Project Initiation Phase (PID)
The project is currently in the Project Initiation Document (PID) phase. The PID phase is the first formal project phase in developing a solution for a specific transportation problem in the Caltrans project development process. For a State Highway System project, a PID is usually the minimum qualification required to compete for funding. The PID is a record of the purpose and need for the project and the approach that will be taken to meet or reduce structural or operational transportation deficiencies. The most important function of the PID is to establish a project as a viable candidate for Federal, State, regional and local funds.
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During the PID phase, a Project Study Report - Project Development Study (PSR-PDS) is developed to initiate the project. The PSR-PDS documents the project scope and purpose and need for the project; alternatives to address that purpose and need; traffic performance of the build alternatives compared with the No Build alternative; anticipated design exceptions, right of way needs, and utility relocations; structural issues and needs; environmental studies required for the environmental document type; permitting needs; risks and risk management; and estimated project costs. Required attachments of the PSR-PDS include the Traffic Engineering Performance Assessment (TEPA), Preliminary Environmental Analysis Report (PEAR), Initial Site Assessment, and Storm Water Data Report. Caltrans’ approval of the PSR-PDS allows the project to move into the Project Approval and Environmental Document (PA&ED) phase.
Additionally, the initial Preliminary Planning Study (PPS) alternative and options were further evaluated, and other feasible options, design variations, or alternatives were considered. The PSR-PDS considers two build alternatives: Build Alternative 1, Manor Drive Improvements without the Milagra Drive On-Ramp, and Build Alternative 2, Manor Drive Improvements with the Milagra Drive On-Ramp. Impacts and traffic performance are being addressed for both build alternatives and the No Build Alternative. Options or design variations for project elements such as pedestrian and bicycle facilities or intersection control types are being considered.
The conceptual design was presented to Caltrans on August 19, 2022. The project development team (PDT), that includes Caltrans staff, recommended considering the removal of the proposed parking and the bus stops from the overcrossing. The removal of the parking and the transit from the current design will reduce the proposed bridge width and will reduce the estimated project cost by approximately $2M. A meeting was held with SamTrans on October 21, 2022 and they agreed with the elimination of the proposed bus stop from the overcrossing.
The new conceptual plans for both alternatives and the project area map are included as Attachment 1.
During the current phase of the project, the City will be conducting up to two community update meetings, which may be part of City Council meetings. The meetings will be used to update the public on project status, provide a project overview, invite input on the project alternatives, project purpose and need, and share information about PID studies.
The current schedule and proposed meeting dates are as follows.
Task Name Date
First community meeting* Jan. 2023
Traffic Engineering Performance Assessment
Approval by Caltrans
Late Jan, 2023
Preliminary Environmental Analysis Report
Approval by Caltrans
Late Feb 2023
Second community meeting* Feb 2023
PSR-PDS Approved Late Feb 2023/Early March
* Public meetings should ideally be on Tuesdays, Wednesdays, or Thursdays, and dates can be selected to avoid conflict with other City events.
The PID phase of the project is anticipated to be completed in late February 2023 or Early March.
Project Approval and Environmental Document Phase
The PA&ED phase of the project is the next step in the Caltrans project development process.
During this phase, build alternatives will be refined, the purpose and need discussion will be Pacifica City Council 5
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refined and expanded, additional engineering design will be developed, and the environmental and engineering studies identified during the PID phase will be completed. These studies include a detailed analysis of traffic operations under existing, opening year, and design year conditions for the no-build and build alternatives. Other studies will be performed to address noise, air quality and greenhouse gases, visual and aesthetics, and cultural resources, to name a few.
Additional alternatives, options, or variations may be considered. Caltrans may reject an alternative or option that is not consistent with state or federal design standards. All alternatives must be documented, including eliminated alternatives.
The “project approval” part of PA&ED involves preparation of a Project Report in accordance with the Caltrans Project Development Procedures Manual. The Project Report will describe the project’s engineering features, utility involvement, structure work, construction and right-of-way cost estimates, and technical study findings. A Draft Project Report will be prepared to obtain approval to publicly circulate the project’s draft environmental document. The Final Project Report is used to recommend approval of a preferred alternative and that the project proceed to the final design phase. Caltrans must approve both the Draft and Final Project Reports.
For the environmental document part of the PA&ED phase of the project, a combined California Environmental Quality Act (CEQA) and National Environmental Policy Act (NEPA) document will be prepared to inform the Project Development Team (PDT), the public, stakeholders, and agencies about the project’s impacts and mitigation. A combined CEQA Environmental Impact Report (EIR) and NEPA Environmental Assessment (EA) is currently proposed for this project. It is anticipated that Caltrans will be the CEQA and NEPA lead agency, as the project is on the State Highway System. Caltrans must approve both the Draft and Final Environmental Documents.
The key decision to be made during the PA&ED phase is which build alternative will be selected to advance into the detailed design phase (Plans, Specifications, and Estimates [PS&E]). That decision will be based on each alternative’s ability to satisfy the project’s purpose and need, in consideration of public comments on the Draft Environmental Document. If only one build alternative is identified in the Draft Project Report and Draft Environmental Document, the final versions of those documents must provide justification for advancing the build alternative rather than choosing the no-build alternative.
Community meetings will be held at two points during PA&ED phase:
● The first, during the 30-day CEQA public scoping period, will be an opportunity for the community to provide input on the scope of work and potential environmental effects to be addressed in the Draft Environmental Document.
● The second, during the 45-day public review period for the Draft Environmental Document, will be an opportunity for the community to provide input on the alternatives, impacts, and mitigation measures analyzed in the document.
In addition, during the PA&ED phase of the project, the City will be conducting up to five stakeholder meetings with local business and community groups and/or individuals.
The current schedule and proposed meeting dates are below.
Task Name Date
Public Scoping Meeting* April 2023
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First Administrative Draft Project Report and
Environmental Document
Nov 2023
Circulate Draft Environmental Document Mar 2024
Public Meeting for Draft Environmental Document* Apr 2024 Final Environmental Document Approval Jul 2024
Final Project Report Approval Aug 2024
* Public meetings should ideally be on Tuesdays, Wednesdays, or Thursdays, and dates can be selected to avoid conflict with other City events.
The PA&ED phase is anticipated to be completed in August 2024.
FISCAL IMPACT:
There is no fiscal impact related to this update. The previous award of this work to AECOM at the 4/11/22 Council meeting authorized a budget authority in the amount of $2,797,892, to be paid through grant funds.
Acronyms
PPS - Preliminary Planning Study (previous phase of work to study feasibility completed in June of 2019)
PID - Project Initiation Document (current phase of work required by Caltrans for project to move forward. Goal is to establish project as viable for funding) PSR-PDS- Project Study Report-Project Development Study (part of PID used to develop scope, purpose and need for the project)
TEPA - Traffic Engineering Performance Assessment (part of the PSR-PDS) PEAR - Preliminary Environmental Analysis Report (part of the PSR-PDS) PA&ED - Project Approval and Environmental Document Phase (next phase of work that will refine build alternatives and environmental studies included in PID will be completed) ORIGINATED BY:
Public Works
ATTACHMENT LIST:
Attachment 1 - SR 1-Manor Dr - Project Build Alternatives_10-31-22 (PDF)