Executive Summary Purpose and Background of Study The Regional Transportation Plan (RTP) for the San Diego area—MOBILITY 2030—envisions a regional transit system that would be the first choice for many trips. This vision calls for a network of fast and convenient transit services to connect residential neighborhoods to major employment and activity centers. The implementing strategy, known as Transit First, focuses on four key elements: (1) service concepts; (2) transit priority measures; (3) customer experience; and (4) community design. Bus rapid transit (BRT) will be the key to advancing Transit First and implementing MOBILITY 2030. The Transit First Showcase Bus Rapid Transit Project extends from downtown San Diego to San Diego State University (SDSU) via Park Boulevard, El Cajon Boulevard, and College Avenue, terminating at the new SDSU Transit Center. The proposed route would traverse several communities, including Balboa Park, Hillcrest, North Park, Normal Heights, City Heights, and SDSU. Between four and eight BRT vehicles per hour per direction are expected, although higher frequencies are possible, depending on the budget and operating plan selected. This first phase of the preliminary engineering (PE) study was limited to the segments between Park/University and Fairmount/El Cajon Boulevard. Exhibits 1A and 1B give an overview of the project. The Showcase Project will include median transit lanes on Park Boulevard between University Avenue and El Cajon Boulevard. From Park/El Cajon to Fairmount Avenue, the BRT will generally use a side-running transit lane, although some gaps in the transit lane are proposed to accommodate other traffic, especially near freeway interchanges. East of Fairmount Avenue and on College Avenue, the BRT will operate in mixed-flow conditions with general traffic. Public Involvement A transit project depends on public support, and also requires coordination among different agencies—in this case, the City of San Diego, the Centre City Development Corporation (CCDC), the California Department of Transportation (Caltrans), and the San Diego Association of Governments (SANDAG). Through SB 1703, SANDAG has assumed responsibility for the Transit First Showcase Project, but coordination with other agencies is still required. A project review committee (PRC) was established to solicit input on the Showcase Project planning process and to lead the public involvement program. The PRC included representatives of the Downtown San Diego Partnership; Uptown Partnership, Inc.; City Heights Area Planning Committee; San Diego Zoological Society; San Diego State University; Hillcrest Association/ Uptown Planners; El Cajon Boulevard Business Improvement Association; Eastern Area Planning Committee; College Area Community Council; Kensington-Talmadge Planning Committee; Centre City Advisory Committee; Greater North Park Planning Committee; and the College Area Business Improvement District. The PRC was staffed by MTDB, SANDAG, the City of San Diego, Kimley-Horn and Associates, Inc. i April 2005 and the project team. During the course of the project, the PRC met eight times, reviewed presentations made by the project team, and made decisions about the various aspects and elements of the project. In addition, two public open houses were held, on June 9, 2003, and May 13, 2004, to inform the public about the Showcase Project and solicit input from the community. Traffic Five traffic scenarios were analyzed during the course of this study: (1) existing traffic conditions; (2) year 2006 traffic conditions without the Showcase Project; (3) year 2006 traffic conditions with the Showcase Project; (4) year 2025 traffic conditions without the Showcase Project; and (5) year 2025 traffic conditions with the Showcase Project. The traffic analysis indicated that all roadway segments and intersections in the study corridor currently operate at a good level of service. Under future conditions (2006) without the BRT project, all roadway segments and intersections in the project corridor will operate at acceptable levels. Under future 2006 conditions with the BRT project, all roadway segments and study area intersections in the project corridor will operate at acceptable levels. For year 2025 traffic conditions, the traffic study indicated that with or without the Showcase Project, all study area intersections would operate at acceptable levels, except the intersections of El Cajon Boulevard/College Avenue and El Cajon Boulevard/54th Street. The poor level of service at these two intersections is due to the increase in traffic and did not result from the project; therefore, no mitigation was required. The traffic study indicated that the eastbound segment between 30th Street and I-805 would have inadequate capacity in 2025 with conversion of one lane to a transit lane, therefore the project design was modified to eliminate the transit lane in that segment. Parking The Showcase Project will result in the loss of about parking 25 spaces, mostly on El Cajon Boulevard. However, even this minimal loss of parking can be mitigated by consolidating driveways, moving local bus stops, and providing parking on side streets. In one scenario, the parking loss could be reduced to approximately 13 spaces. The PRC recognized the seriousness of parking loss, but also noted that the benefits of the Showcase Project would greatly outweigh the loss of parking. Park Boulevard Alignment The Showcase Project alignment follows Park Boulevard north from downtown San Diego to El Cajon Boulevard. The current preliminary engineering study focused on a four-block segment in the Hillcrest community, from University Avenue to El Cajon Boulevard. The existing roadway in this segment consists of four lanes plus a raised median. In this segment, median running transit lanes were found to be more advantageous than side running. The study area includes two stations on Park Boulevard, located at both ends of the median transit lanes, which will be configured as center platform stations with boarding capability on both sides. A two-foot-wide paved median strip will separate the transit lanes from general traffic within the station area. Beyond the station areas, the transit lanes merge together until the separation strip becomes wide enough for landscape planting. Kimley-Horn and Associates, Inc. ii April 2005 Park Boulevard Roadway and Signal Improvements Under existing conditions, there is one signalized intersection between University Avenue and El Cajon Boulevard, at Polk Street. Initially, the proposed design included a modification of the signal at Polk Street and closure of the remaining two intersections (Lincoln Avenue and Howard Avenue) to cross traffic. However, at the request of the community, the plan was revised to relocate the signal to Lincoln Avenue. The intersection of Polk Avenue will be closed to cross traffic except for a relocated pedestrian crosswalk, and the existing traffic signal will be modified to serve as a pedestrian-activated signal only. The traffic signals at Polk and Lincoln Avenue will enhance BRT operating speeds because the controllers will be programmed not to allow cross traffic or left turns whenever a BRT vehicle is approaching. Detector loops will be installed sufficiently in advance of the intersection to ensure that the BRT vehicle will always encounter a green light and will not need to stop in this segment except at the two stations. El Cajon Boulevard Alignment The Showcase BRT alignment follows El Cajon Boulevard from Park Boulevard to College Avenue, where it turns north to follow College Avenue to San Diego State University. The current preliminary engineering study focused on a portion of the alignment from Park Boulevard to Fairmount Avenue. Eight stations are planned along El Cajon Boulevard. Five of the stations are within the segment that was studied in detail in the current planning effort—Texas Street, 30th Street, 35th Street, I-15, and 43rd Street/Fairmount Avenue. The remaining stations—49th Street/Euclid, 54th Street, and College Avenue—are beyond the current study area and will be designed as part of a subsequent study. All of the El Cajon Boulevard stations are planned as side-running platforms (on the right side of the roadway as opposed to median stations). All of the stations along the El Cajon Boulevard segment, with the exception of I-15, feature a similar design. A curb pop-out, or bulb, will be extended outward into the street about 8 feet from the existing curb line. Each station will include a shelter and other amenities. El Cajon Roadway Improvements Within the study area, El Cajon Boulevard consists of a six-lane street with a curb-to-curb width of 110 feet, a raised landscaped median, and left-turn pockets. On-street parking is permitted along most of the street. The project will retain the existing roadway improvements and lane configurations, except that some lane modifications would occur at approaches to intersections. The only location proposed for roadway widening is the eastbound lanes approaching I-805. The traffic study indicated that the project would have an unacceptable impact on traffic flow in the eastbound direction beginning at 30th Street. To reduce this impact, the project proposes widening the road to provide two dedicated turning lanes for traffic entering the freeway for a length of one block between Iowa Street and the I-805 entrance. Fairmount Avenue Modifications The existing configuration of 43rd Street and Fairmount Avenue is similar to a one-way couplet, except that Fairmount Avenue includes a single southbound lane south of El Cajon Boulevard. The project proposes to convert the two-way block of Fairmount Avenue to one-way northbound. Kimley-Horn and Associates, Inc. iii April 2005 Transit Signal Priority Transit signal priority (TSP) is a modification of traffic signal timing that expedites transit by providing a few extra seconds of green time if a bus is approaching an intersection where the signal is about to turn red or adjusting the side street timing to provide an early green for the approaching bus. TSP has been proposed for the Showcase Project, and a study was undertaken to determine the best method for implementing TSP in the Showcase corridor. Urban Design Objectives In an established and historic city such as San Diego, the concepts of urban design must be applied to ensure that the transit stations are welcome visual elements in the panorama of the corridor. The existing character of both the El Cajon Boulevard (“The Boulevard”) and Park Boulevard segments of this project have their character and image in the 1940s through the late 1950s and early 1960s. A distinct streamline moderne and auto-oriented design character is displayed, often with austere open metal structures or simple geometric forms. The design of the BRT stations has incorporated urban design goals by providing a modern interpretation of these classic and simple forms. Station Program Requirements and Layout Early in the development of this project, it became clear that the standard 10- to 12-foot sidewalk environment was not capable of supporting the proposed Showcase Project shelters and station amenities. For this reason, as well as to improve the movement of the BRT in traffic, it was proposed that the sidewalks are “bulbed out” to the edge of the through transit lane. Where feasible, a location on the far side of an intersection is the best arrangement for a station because it allows buses to proceed through an intersection using the advantage of TSP prior to making a stop. The buses can then board and alight with passengers and continue on the route before main street traffic has a green. Far side locations also minimize conflicts with turning vehicles at the station location. For these reasons, far side station locations have been proposed except where local conditions dictate otherwise. The configuration allowing buses to stop directly in the travel lane rather than having to use a pullout was selected as the typical station design because it eliminates the need for buses to weave in and out of traffic flow. The most critical site furnishings were identified based on community input. Some of these include a shade structure, a place to sit and/or lean, an information kiosk, a ticket vending machine and LED displays providing route information and next bus arrival information. All stations include the enhancement of current crosswalks, and some include pedestrian bulb-outs. The overall design concept for the transit shelter is to provide the functional aspects of the transit facility in a form that is reminiscent of “The Boulevard” characterized by the 1950s streamline moderne style. The shelter is designed to be relatively transparent so that businesses can be seen behind the structure. The shelter designs on Park Boulevard north of University were also designed with this modern style. The transit shelters proposed for the Balboa Park segment should not be the same as the rest of the route. The transit shelters need to fit into the context of Balboa Park and its historic Spanish Colonial and turn-of-the-century arbor designs. Several design alternatives are provided in this report, which should be reviewed by the various Balboa Park committees, boards, and city staff during the next phase of the project. Kimley-Horn and Associates, Inc. iv April 2005 To enhance the pedestrian environment surrounding the stations, each transit station will include two new street trees (unless this requires the removal of existing mature trees). Station Lighting and Signage Lighting intensity will be based on design criteria for LRT stations, unless SANDAG chooses to establish a separate standard for BRT stations. Station signs will need to relate to the architecture of the structure and be highly visible to both pedestrians and drivers. The next phase of the Showcase Project should include coordination with a graphic artist in order to devise the final project name and image, and to adapt into the design a neighborhood-specific image, name, or artwork. Public art has not been specifically included in the current design of the transit shelter/stations. A panel on the information kiosk or on the ends of the transit shelter or on a clear panel or perforated metal wall of the shelter could be used to display public art of some kind. Station Materials and Colors Based on public input and analysis by the design team, the materials recommended for the structure include glass and steel. Perforated metal or Acrylite panels can be used in areas where semi-transparency is required. The steel structure would be painted with shades of red, orange, and yellow to emphasize movement. The dominant color will be a rust-red. Other areas of the structure should have relatively neutral gray, silver, and black. Findings and Conclusions The Showcase BRT can be constructed within the detailed study area without unacceptable impacts to general traffic or parking, while enhancing the quality of transit service as well as the overall pedestrian environment of the corridor. Project Recommendations The Showcase project will need to complete the following improvements: ƒ Construct the median transit lanes on Park Boulevard between University Avenue and El Cajon Boulevard and intersection improvements at Park and University. ƒ Install striping and signage for the transit lane for the segment along El Cajon Boulevard. At a minimum, the transit lane will need to be striped in order to notify drivers of the intended use for that lane. Installation of colored asphalt or concrete will further distinguish the intended use for the lane, but is not necessarily required for operation. ƒ Construct the BRT stations, including the bulb outs, shelters, concrete bus pads, and other amenities. ƒ Install new traffic signal interconnection cable and retime the traffic signals on El Cajon Boulevard to provide for better coordination and progression of general traffic on El Cajon Boulevard. Modify traffic signals at locations where queue jumpers and transit signal priority treatments are proposed. ƒ Construct dual right-turn lanes and a transit queue bypass for the eastbound direction at the El Cajon Boulevard/I-805 southbound entrance ramp intersection. Kimley-Horn and Associates, Inc. v April 2005 Next Steps The Showcase Project was the second phase in a multi-phase project. The next steps to be undertaken include developing an operating plan, examining the Mid-City Transit Plan, conducting a peer review and value engineering, completing preliminary engineering for remaining segments, determining maintenance responsibilities, coordinating with other planning efforts in the corridor, and environmental documentation. In addition, scheduling and funding need to be identified, TSP needs to be coordinated with the San Diego Traffic Engineer’s Council (SANTEC), final design needs to be completed, and a logo/graphics/name need to be established for the system. 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