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Report regarding the El Camino Real Complete Streets Demonstration Project and Corridor Study and a resolution authorizing the acceptance of $161,922 in grant funding from the San Mateo County Transportation Authority and amending the Economic and Community Development Department’s FY 23-24 Operating Budget via Budget Amendment Number 24.042. (Christopher Espiritu, Senior Transportation Planner)
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RECOMMENDATION
Recommendation
Staff recommends that City Council receive a presentation on the El Camino Real Complete Streets Demonstration Project and Corridor Study and adopt a resolution authorizing the acceptance of $161,922 in Measure W Bicycle and Pedestrian Planning grant funding from the San Mateo County Transportation Authority (TA) to support the City’s evaluation of bicycle and pedestrian improvements on El Camino Real and amending the Economic and Community Development Department’s fiscal year (FY) 2023-24 Operating Budget via Budget Amendment Number 24.042.
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BACKGROUND/DISCUSSION
In July 2022, Caltrans District 4 staff approached the City of South San Francisco for support on their application to Smart Growth America’s Complete Streets Leadership Academies Program. The Program is a technical assistance and peer learning program with virtual and in-person workshops funded by a Cooperative Agreement from the Centers for Disease Control and Prevention’s (CDC) Division of Nutrition, Physical Activity, and Obesity.
After a successful application, the City and its partners in the Academy (California Department of Transportation (Caltrans), San Mateo County Transit District (SamTrans), San Mateo County Transportation Authority (SMCTA), San Mateo County Office of Education (SMCOE), and Silicon Valley Bicycle Coalition (SVBC)) attended workshops and collaborated with other cities to obtain a better understanding of the challenges and potential for implementing Complete Streets concepts on South San Francisco streets.
In late-April 2023, City Council authorized staff to implement the Complete Streets Demonstration Project on El Camino Real (SR-82). The temporary demonstration project would introduce quick-build treatments on segments of El Camino Real to facilitate safer travel for bicycles, pedestrians, people using mobility devices, and those using transit, thereby transforming the roadway into a Complete Street.
With feedback from the City’s BPAC and guidance from City Council, the selected segment for the demonstration project was El Camino Real, between South Spruce Avenue and Country Club Drive. This project established the first protected bicycle lane (Class IV facility) on El Camino Real within San Mateo County, and included high-visibility crosswalks, and the testing of a new concept for a bus boarding platform and bicycle lane hybrid. City staff continued their participation in the Academy and began mobilizing on the necessary permits and coordination with Caltrans and SamTrans. The City, with assistance from Alta Planning, was successful in navigating an often-difficult process with Caltrans, and the encroachment permit for the demonstration project was issued in less than three weeks-a record timeframe for the State permitting process.
El Camino Real (ECR) Demonstration Project Highlights:
• Protected bicycle lanes
• Bus/bike hybrid platforms
• High visibility crosswalks on Country Club Drive and ECR (SR 82)
• Existing driveway access to be maintained for ECR businesses
• Project approved by Caltrans for up to 10 weeks (August through early October)
By July 2023, installation of the project was completed by Bayside Stripe and Seal, Inc. over two days with minimal interruptions to traffic and transit operations on ECR. SamTrans operations were notified and informed of the changes in bus boardings at two locations on ECR, within the Demonstration Site. Then, on August 16, 2023, the City officially launched the ECR Demonstration Project and celebrated with its partners in establishing a Complete Streets Demonstration on ECR.
Throughout the duration of the Project, City staff and Alta Planning conducted physical observations of traffic operations, usage counts, and documented any previously unknown issues. Existing bicycle traffic was sparse and no more than eight to 12 bicycle riders on ECR were observed on any weekday during the Demonstration. A one-segment protected bicycle lane would not be enough to drive an increase in the bicycle riding population, as there were not supportive facilities on ECR from Colma through South San Francisco and towards San Bruno. However, other traffic operations observations were made that highlighted the need for a better commercial loading situation for businesses on ECR, especially those without the benefit of a private parking lot.
In a parallel effort, SMCOE and SVBC worked with City staff on conducting surveys in-person and online to receive feedback from residents, businesses, and people using the roadway. The ECR Complete Streets Demonstration Project was considered a success for the City and its partners in the Project. Specifically:
- The City’s Demonstration Project allowed SamTrans to evaluate innovative concepts to mix bikes and buses. Now, SamTrans includes hybrid bus boarding/bike lane concepts in its Bus Stop Design Guidelines (2023).
- The Demonstration Project resulted in a significant bus operations improvement by reducing the typical boarding time of about 1 minute and 45 seconds to approximately 15 seconds between pick-up and drop-off.
- Caltrans’ participation resulted in the largest quick-build project on a state-owned road.
- Caltrans installed permanent High-Visibility crosswalks at ECR and Country Club in May.
- New guidance for Quick-Build (DS-92) will follow the successes and marked improvements in permitting process timelines based on their experience with the City.
- Based on community input, the City learned that there is desire for east-west connections to provide safer connections to the Centennial Trail and neighborhoods west of ECR.
The City has proven that a protected bike lane on El Camino Real is possible and it can fulfill its vision for a protected bike facility as set forth in the General Plan and Active South City Bicycle and Pedestrian Master Plan. Further, the launch event and community ride events highlighted the needs to safely accommodate the growing number of bicycle riding people, especially young children.
The Demonstration Project was not exempt from criticism, and this was anticipated. The following summarizes unfavorable to negative survey responses and complaints received by the Project Team through various means (Project Survey, Engage SSF, Direct calls to Economic & Community Development, In person):
- Lack of communication regarding project prior to construction/installation
- “Overflow parking is removed for businesses which will hurt operations”
- “We noticed delivery trucks using the bicycle lane to quickly stop and make a delivery, driving over the lane dividers. Often the lane dividers spring back, but we notice one already has been permanently bent.”
- “Reducing parking will lower property values and reduce the types of business that can operate with less onsite parking, which may put pressure on property tax revenue from those sources.”
- “If you take away a lane for bikes then you will make side street more congested- don’t become SF!!!! I prefer to ride my bike on side streets feel safer”
- “Bicycles do not belong on El Camino Real in any type of lane. Drivers are preoccupied and encouraging bikes on the road with cars/trucks is just asking for someone to get hurt.”
The concept of sharing the roadway and a main driver of complete streets programs include changes to the comfort and behavior of people driving. Despite an influx of negative comments and general lack of support from a segment of the community, the project still achieved its intended goals: Establish a protected bike lane on El Camino Real (SR-82), introduce new concepts to accommodate everyone, and provide pedestrian safety improvements where people walk.
On September 30, 2023, the City, along with SMCOE and SVBC, hosted a Community Ride, which allowed the Project Team to collect feedback from different events in the City (SSF Farmers Market), and to allow members of the public to test out the Demonstration Project from the Centennial Trail as part of a group. This event was hailed as a success with the Police Department and other City staff helping the community. The Community Ride Event highlighted the vast number of young children and new bicycle riders that want these types of projects. This Event also highlighted the need for adequate east/west access to neighborhoods and the Centennial Trail.
The City’s Demonstration Project was not short of challenges. However, by working with multiple partners for support and help, staying in consistent communication to achieve regulatory approvals, and through the commitment from representatives of the community, that the City met those challenges and made this project a success.
The Project Team ultimately identified the following items that require further analysis for future evaluation of ECR as a Complete Street, specifically:
- Speeds on ECR are too fast (frequently observed to run up to 45-50 mph).
- No restrictions on turning movements onto El Camino Real, leaving pedestrians vulnerable at right turns on the red phase.
- Business loading needs to be addressed as trucks are willing to damage City property.
- Bicycle lane signage needs improvement to better highlight the mixing zones.
- Spacing between posts/delineators need to be closer to provide a stronger visual separation.
- Built environment needs to be accounted for at bus stop locations (grade changes which may affect ADA access).
- Pursue the evaluation of a two-travel-lane ECR through South San Francisco. Which would slow speeds, accommodate parking and loading for businesses, and establish bicycle lanes, or a Class I shared use path on ECR.
The Measure W Bicycle and Pedestrian Planning grant funding from the San Mateo County Transportation Authority will be used to continue to evaluate these follow-up items, to improve pedestrian and bicycle conditions on El Camino Real.
FISCAL IMPACT
Grant funds will be used to amend the Economic and Community Development Department’s FY 2023-24 Operating Budget per Budget Amendment Number 24.042. Receipt of these funds does not commit the City to ongoing funding.
RELATIONSHIP TO STRATEGIC PLAN
Grant funding to support the City’s continued evaluation of bicycle and pedestrian treatments for ECR explore possible multi-modal safety improvements and conduct outreach on the vision for ECR, thus advancing the goals of the General Plan’s Mobility and Safety elements, and the City’s Active Transportation Plan (Active South City). The evaluation of improved Bicycle and Pedestrian facilities is an action item in the City’s Strategic Plan under Priority #2: Quality of Life.
CONCLUSION
Receipt of these funds would reimburse the City for the bus boarding platforms and provide funding to continue the City’s evaluation of Complete Streets on the El Camino Real Corridor. It is recommended that the City Council accept $161,922 in grant funding and amend the Economic and Community Development Department’s FY 2023-24 Operating Budget via Budget Amendment Number 24.042.
Attachments:
A) Summary of Survey Results
B) Open Ended Survey Data
C) Scope of Work for El Camino Real Corridor Study
D) Staff Presentation