Salem Lutheran Church and School Specific Plan Draft EIR
Environmental Impact Analysis Transportation and Traffic
4.8 - Transportation and Traffic 4.8.1 - Introduction Purpose
The purpose of this section is to identify the existing setting regarding transportation/traffic and potential effects from project implementation. This section also identifies mitigation measures to reduce any potentially significant transportation/traffic impacts and describes the residual impact, if any, after imposition of the mitigation. The traffic study for the proposed project analyzed three key intersections for detailed weekday AM and Sunday AM peak hour level of service analysis: 1. Orange Park Boulevard and Santiago Canyon Road 2. Orange Park Boulevard and Frank Lane 3. Proposed Entry Driveway and Santiago Canyon Road The existing 2010 conditions were analyzed for both the Orange Park Boulevard/Santiago Canyon Road intersection and the Orange Park Boulevard and Frank Lane intersection. Since the entry driveway and Santiago Canyon Road intersection is proposed, it was not analyzed under existing conditions. A SimTraffic evaluation was conducted for the proposed entry driveway on Santiago Canyon Road. The evaluation worksheets are appended to the Traffic Impact and Parking Demand Analysis Report (refer to Appendix H). Sources
Information in this section is based on the following sources: • Linscott, Law and Greenspan, Traffic Impact and Parking Demand Analysis Report for the Proposed Salem Lutheran Church and School Project, August 20, 2010 (Appendix H). • 2010 General Plan, Circulation Mobility Element, City of Orange March 9, 2010. • Salem Lutheran Church and School Specific Plan, Michael Madden Associates, April 30, 2011 (Appendix I). • City of Orange, Bikeways Master Plan, January 2010. • Comments received during the public comment period. These comments are contained in Appendix A. 4.8.2 - Environmental Setting The project site is located within the Orange Park Acres Specific Plan (OPA Plan). Access to the project site is provided via Frank Lane, a private street, which intersects with Orange Park Boulevard, East Santiago Canyon Road intersects with Orange Park Boulevard at the northeast corner of the project site.
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4.8-1
Transportation and Traffic
Salem Lutheran Church and School Specific Plan Draft EIR
Regional
A network of federal and State freeways, toll roads, and local jurisdictional major arterials provides vehicular transportation in the Southern California region. Freeways and toll roads in the general vicinity of the site include the Orange Freeway (State Route [SR] 57) and Costa Mesa Freeway (SR55) west of the site, the Riverside Freeway (SR-91) north of the site, the Eastern Transportation Corridor Toll Road (SR-241) east of the site, the Santa Ana Freeway (Interstate 5) south of the site, and the Garden Grove Freeway (SR-22) to the southwest of the site. Major arterials include Santiago Canyon Road, adjacent to the northern portion of the project site, Chapman Avenue south of the site, and both Hewes and Cannon Street west of the site. John Wayne Airport is located approximately 10 miles to the southwest. The Southern California Regional Rail Authority (Metrolink) commuter train operates two corridors near the project site: the 91 Line and the Orange County Line. The 91 Line runs parallel to the SR-91 freeway and is located approximately four miles north of the project site and the Orange County Line approximately five miles west of the site. The BNSF freight railroad shares track rights with Metrolink’s 91 Line. Vicinity
Orange Park Boulevard, classified by the City General Plan as a Collector, runs along the eastern boundary of the project site and does not provide direct access into the Salem Lutheran Church and School site. A paved sidewalk and equestrian trail are located between the project site and Orange Park Boulevard. The asphalt-paved sidewalk begins at Santiago Canyon Road and ends at Frank Lane, which also serves as the entrance to the project site. The non-paved (i.e., dirt) equestrian trail is separated from the roadway by a white split rail style fence. Santiago Canyon Road, classified by the City General Plan as a Major Collector, runs along the northern boundary of the project site. A paved sidewalk and equestrian trail are located between the project site and Santiago Canyon Road. The concrete-paved sidewalk begins at North Meads Avenue east of the site and ends approximately 400 feet west of Orange Park Boulevard. The non-paved (i.e., dirt) equestrian trail directly connects the trail along the eastern boundary of the site described above to the Sully-Miller Equestrian Arena adjacent to the northwest corner of the site. Striped crosswalks and pedestrian pushbuttons are provided only on the west side of the intersection of Santiago Canyon Road at Orange Park Boulevard, and only on the east side of the intersection of Santiago Canyon Road at North Meads Avenue. An equestrian crossing pushbutton, separate from the pedestrian crosswalk pushbutton, is provided at the Orange Park Boulevard and Santiago Canyon Road intersection adjacent to the site. The City General Plan identifies the equestrian trails adjacent to the project site as Recreational Trails. The OPA Plan identifies the trails adjacent to the project site as combined equestrian and bicycle trails.
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Michael Brandman Associates H:\Client (PN-JN)\3771\37710001\EIR\9 - DEIR\37710001 Sec04-08 Transpo.doc
Salem Lutheran Church and School Specific Plan Draft EIR
Environmental Impact Analysis Transportation and Traffic
Existing bicycle lanes are located in Santiago Canyon Road and Orange Park Boulevard. The City General Plan classifies these as Class II On-Street lanes. Transit routes that serve the proposed project vicinity include Route 57 (which runs north-south on State College Boulevard/The City Drive), Route 54 (which runs east-west along Chapman Avenue), Route 454 (which runs east-west along Chapman Avenue serving The Block at Orange and the Orange Transportation Center), and Route 757 (which runs south on The City Drive and Bristol Street, east on Chapman Avenue, and north on State Route 57 [SR-57]). Onsite Conditions Frank Lane
Frank Lane is a private access easement serving the church and adjacent residential properties to the south and west. Orange Park Boulevard and Frank Lane intersect at the southeast corner of the project site, adjacent to the existing multipurpose field. 4.8.3 - Offsite Improvements Land will be required from the adjacent property owner west of the project site to accommodate the proposed right-turn deceleration lane. Refer to Figure 11 in the Traffic Impact and Parking Demand Analysis Report for a visual representation of the geometrics regarding the required right-of-way (ROW) easement fro the right-turn deceleration lane. Figure 11 presents the concept design of the 315-foot deceleration lane with the required ROW easement/dedication area, construction impact easement area, and ultimate ROW line shown. The design of the proposed declaration lane is based on the standards contained in the California Department of Transportation Highway Design Manual (5th Edition) for deceleration lanes, which requires a 315-foot deceleration lane for a 40 mile per hour design speed. The ROW easement/dedication area consists of approximately 1,035 square feet. The ultimate ROW line is based on the City’s Major Arterial roadway standard, which consists of a 120foot ROW standard or 60-foot half-width standard. 4.8.4 - Regulatory Setting Federal
No federal regulations are associated with this topical environmental issue. State
The State Department of Transportation (Caltrans) established performance standards for all State highway facilities are the transition between LOS C and D. If a State highway facility operates below the transition between LOS C and D, the Caltrans’ thresholds is to maintain the lower level of service.
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Salem Lutheran Church and School Specific Plan Draft EIR
Transportation and Traffic
Local County of Orange Congestion Management Program
The Orange County Congestion Management Program (CMP) administered by OCTA is a requirement of the Proposition 111 gas tax increase passed in 1990. The CMP requires that designated intersections throughout the county be maintained at a specified level of service. Guidelines with respect to CMP traffic studies require that the potential impacts at CMP intersections be analyzed for any significant land use proposals. Growth Management Plan
The Orange County Measure M Growth Management Plan (GMP) was developed to assess and mitigate the impacts of local land use decisions on the county’s transportation system. Central to the program is the requirement that each jurisdiction in the county adopt a Growth Management Element of its General Plan to be applied in the development review process in order to receive transportation revenues generated from the Measure M half-cent sales tax increase. The GMP includes specific guidelines for traffic impact studies, establishing LOS thresholds and requirements for mitigation. The information contained in this report satisfies the requirements of those guidelines. City of Orange
A traffic study area for the proposed project was developed based on discussions with City staff and the requirements of the City of Orange (City) Traffic Impact Analysis (TIA) guidelines. The study area requirement was based on the amount of new traffic distributed throughout the roadway system. Because the proposed does not generate any new vehicular trips only the signalized intersection of Orange Park Boulevard and Santiago Canyon Road was analyzed. The TIA analyzed the arterial highways in the traffic study area based on the peak hour level of service (LOS) and intersection capacity utilization (ICU) methodology at the signalized intersections and the Highway Capacity Manual (HCM) methodology at unsignalized intersections. Local roadway capacities were analyzed based on volume to capacity ratios. Table 4.8-1 summarizes level of service definitions for signalized intersections. Table 4.8-2 below shows the level of service definitions for unsignalized intersections. Table 4.8-1: Level of Service Descriptions - Signalized Intersections
4.8-4
Level of Service
Intersection Capacity Utilization
A
≤ 0.60
B
> 0.60 - 0.70
Rural Design
C
> 0.70 - 0.80
Urban Design
D
> 0.80 - 0.90
Maximum Urban Design
E
> 0.90 -1.00
Capacity
Description
Free Flow
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Salem Lutheran Church and School Specific Plan Draft EIR
Environmental Impact Analysis Transportation and Traffic
Table 4.8-1 (cont.): Level of Service Descriptions - Signalized Intersections Level of Service
Intersection Capacity Utilization
F
> 1.00
Description
Forced Flow
Source: Linscott Law & Greenspan Traffic Impact and Parking Demand Analysis Report for the Proposed Salem Lutheran Church and School Project Table 1.
Table 4.8-2: Level of Service Descriptions – Stop-Controlled Intersections
Level of Service
Delay (Seconds/Vehicle)
A
≤ 10.0
B
> 10.0 and ≤ 15.0
Short Traffic Delays
C
> 15.0 and ≤ 25.0
Average Traffic Delays
D
> 25.0 and ≤ 35.0
Long Traffic Delays
E
> 35.0 and ≤ 50.0
Very Long Traffic Delays
F
≥ 50.0
Description
Little or No Delay
Severe Congestion
Source: Linscott Law & Greenspan Traffic Impact and Parking Demand Analysis Report for the Proposed Salem Lutheran Church and School Project Table 2.
4.8.5 - Significance Thresholds According to Appendix G of the State CEQA Guidelines and Local CEQA Guidelines, a project would normally have a significant effect on the environment if it would result in the following: a) Conflict with an applicable plan, ordinance or policy establishing measures of effectiveness for the performance of the circulation system, taking into account all modes of transportation including mass transit and non-motorized travel and relevant components of the circulation system including but not limited to intersections, streets, highways and freeways, pedestrian and bicycle paths, and mass transit? b) Conflict with an applicable congestion management program, including, but not limited to level of service standards and travel demand measures, or other standards established by the county congestion management agency for designated roads or highways? c) Result in a change in air traffic patterns, including either an increase in traffic levels or a change in location that results in substantial safety risks? d) Substantially increase hazards due to a design feature (e.g., sharp curves or dangerous intersections) or incompatible uses (e.g., farm equipment)?
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Transportation and Traffic
Salem Lutheran Church and School Specific Plan Draft EIR
e) Result in inadequate emergency access? f) Conflict with adopted policies, plans, or programs regarding public transit, bicycle, or pedestrian facilities, or otherwise decrease the performance or safety of such facilities supporting alternative transportation (e.g. bus turnouts, bicycle racks)? 4.8.6 - Project Impacts Impacts Not Found To Be Significant
The Initial Study determined that either no impacts or less than significant impacts would result from the following significance threshold listed previously in Section 4.8.4: c) Result in a change in air traffic patterns, including either an increase in traffic levels or a change in location that results in substantial safety risks? Refer to the Initial Study in Appendix A for a complete discussion. Regional Transportation Plan
The proposed project would be consistent with the applicable policies of the Regional Transportation Plan (RTP) and no impact would occur. The project site has been previously developed and existing uses are served by regional and local transportation facilities. Potentially Significant Impacts
Significance thresholds deemed to be potentially significant are evaluated individually. The list below restates the significance threshold and gives the corresponding Draft EIR Impact Number: Table 4.8-3: Transportation and Traffic Significance Threshold and Corresponding Draft EIR Impact Number EIR Impact Number
Significance Threshold - Transportation and Traffic
a) Conflict with an applicable plan, ordinance or policy establishing measures of effectiveness for the performance of the circulation system, taking into account all modes of transportation including mass transit and non-motorized travel and relevant components of the circulation system including but not limited to intersections, streets, highways and freeways, pedestrian and bicycle paths, and mass transit?
Impact 4.8-1
b) Conflict with an applicable congestion management program, including, but not limited to level of service standards and travel demand measures, or other standards established by the county congestion management agency for designated roads or highways?
Impact 4.8-2
d) Substantially increase hazards due to a design feature (e.g., sharp curves or dangerous intersections) or incompatible uses (e.g., farm equipment)?
Impact 4.8-3
e) Result in inadequate emergency access?
Impact 4.8-4
f) Conflict with adopted policies, plans, or programs regarding public transit, bicycle, or pedestrian facilities, or otherwise decrease the performance or safety of such facilities supporting alternative transportation (e.g. bus turnouts, bicycle racks)?
Impact 4.8-5
4.8-6
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Salem Lutheran Church and School Specific Plan Draft EIR
Environmental Impact Analysis Transportation and Traffic
Conflict with Circulation System Effectiveness Impact 4.8-1
The project will not conflict with an applicable plan, ordinance or policy establishing measures of effectiveness for the performance of the circulation system, taking into account all modes of transportation including mass transit and non-motorized travel and relevant components of the circulation system including but not limited to intersections, streets, highways and freeways, pedestrian and bicycle paths, and mass transit.
Traffic and Circulation - Impact Analysis
The potential to impact the circulation system is directly related to church and school activities on the site. Note that, as detailed in the Traffic Impact and Parking Demand Analysis Report for the project, the existing preschool will be relocated to an existing vacant building within the site, and as a result, the traffic analysis only reflects the rerouting of existing traffic, based on typical school and church activities on weekdays and varying church attendance on Sundays, as a result of the proposed site access improvements. Sunday Church Services and Activities
On a typical Sunday, the Church currently has one-hour worship services that start at 8:00 AM, 9:15 AM, and 10:45 AM, with Sunday school/bible classes and adult bible study between 9:15 AM and 10:15 AM, and children’s church between 10:45 AM and 11:45 AM. The 10:45 AM worship service has typically had the greatest attendance. No changes to the Sunday worship and activity schedule are proposed as part of the project. Weekday Elementary School and Preschool
The existing preschool will be relocated to the existing 5,981 square foot onsite vacant structure. While there is no increase in preschool enrolment anticipated at this time the occupancy cap is proposed to increase nominally from 101 preschool students to 105 preschool students, which is well within the campus enrollment limitations set by the Restrictive Covenant recorded against Salem’s property. Preschool drop-off is between 9:00 AM to 9:15 AM and pick-up is between 11:55 AM and 12:15 PM. For the preschool, parents currently park their vehicles in the parking lot and pickup/drop-off their children. (Ventura, pers. comm.) The elementary school has a current enrollment of 410 students in kindergarten through Grade 8. Classes start at 8:30 AM (doors open at 8:10 AM), and end at 3:00 PM (student drop-off is between 8:00 AM and 8:30 AM and pick-up is staggered from 2:55 PM to 3:20 PM) (Ventura, pers. comm.) Half-day kindergarten (with 17 students) also starts at 8:30 AM, but ends at 11:30 AM. After-school activities primarily involve sports and small art/dance/chess/golf classes that start at 3:15 PM, with all activities and student pick-up ending before 4:30 PM. There are 90 students currently enrolled in the preschool. Preschool begins at 8:45AM. Half-day programs ends at 11:45 AM and full-day programs end at 3:30 PM. Two-day (Tuesday and Thursday) and three-day (Monday, Wednesday, and Friday) programs are also offered.
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Salem Lutheran Church and School Specific Plan Draft EIR
Transportation and Traffic
The total number of teachers, faculty, and staff is 50. These individuals arrive between 7:30-8:00 AM and leave around 4:00 PM. Some part time staff arrive and leave at different times throughout the day. Four of the 50 faculty, staff and teachers walk to work. Table 4.8-4: Existing (2010) AM Peak Hour Levels of Service
Control Type
ICU or Average Delay (sec/veh)
Key Intersection
Peak Hour
LOS
Orange Park Boulevard at Santiago Canyon Road
Weekday AM Sunday AM
Six-Phase Signal
0.772 0.326
C A
Orange Park Boulevard at Frank Lane (Existing Church Entrance)
Weekday AM Sunday AM
Two-Way Stop
13.5 9.8
B A
Source: Linscott Law & Greenspan Traffic Impact and Parking Demand Analysis Report for the Proposed Salem Lutheran Church and School Project Table 3.
Project Traffic Distribution
The directional traffic distribution pattern for the proposed project was developed based upon the existing traffic volumes during Sunday morning conditions. The following summarizes the general distribution pattern applied to the project: • 73 percent inbound from the west on Santiago Canyon • 5 percent inbound from the east on Santiago Canyon • 22 percent inbound from the south on Orange Park Boulevard • 53 percent outbound to the west on Santiago Canyon • 7 percent outbound to the east on Santiago Canyon • 40 percent outbound to the south on Orange Park Boulevard Approximately 40 percent of Church traffic is estimated to use the proposed access off Santiago Canyon Road, which will be designed to facilitate eastbound right-turn movements directly into and out of the site by the addition of an exclusive right-turn lane on eastbound Santiago Canyon Road at the proposed driveway. Additionally, during weekday AM peak hours future conditions with the proposed access off Santiago Canyon Road are expected to result in better levels of service at Orange Park Boulevard /Santiago Canyon Road and Orange Park Boulevard/Frank Lane and reduce the traffic volumes using Frank Lane. A “pork chop” shaped traffic island will direct traffic flow, accommodate fire truck movement and allow for pedestrian and equestrian crossing. Exhibits 4.8-1 through 4.8-5 below show roadway characteristics, circulation plans, the proposed Santiago Canyon Road Entry as well as the proposed improvements to Frank Lane.
4.8-8
Michael Brandman Associates H:\Client (PN-JN)\3771\37710001\EIR\9 - DEIR\37710001 Sec04-08 Transpo.doc
NORTH
Source: Michael Madden Associates, December 2011 (as prepared by Linscott, Law & Greenspan, March 2011).
Michael Brandman Associates 37710001 • 12/2011 | 4.8-2_weekday_school_circulation_plan.cdr
Exhibit 4.8-2 Weekday School Circulation Plan CITY OF ORANGE • SALEM LUTHERAN CHURCH AND SCHOOL SPECIFIC PLAN ENVIRONMENTAL IMPACT REPORT
NORTH
Source: Michael Madden Associates, Decmber 2011 (as prepared by Linscott, Law & Greenspan, March 2011).
Michael Brandman Associates 37710001 • 12/2011 | 4.8-3_sunday_church_circulation_plan.cdr
Exhibit 4.8-3 Sunday Church Circulation Plan CITY OF ORANGE • SALEM LUTHERAN CHURCH AND SCHOOL SPECIFIC PLAN ENVIRONMENTAL IMPACT REPORT
NORTH
Source: Michael Madden Associates, December 2011 (as prepared by Fuscoe Engineers, July 2010).
Michael Brandman Associates 37710001 • 12/2011 | 4.8-5_frank_lane.cdr
Exhibit 4.8-5 Frank Lane CITY OF ORANGE • SALEM LUTHERAN CHURCH AND SCHOOL SPECIFIC PLAN ENVIRONMENTAL IMPACT REPORT
Salem Lutheran Church and School Specific Plan Draft EIR
Environmental Impact Analysis Transportation and Traffic
Significant Traffic Impact Criteria
To provide a quantitative basis for determining the significant traffic impact at a specific location, criteria were established to be used in the analysis of intersections for the Traffic Impact Analysis. The project is considered to have a significant impact if the following criteria are met: For Signalized Intersections: the ICU value under “with project” conditions is 0.91 or greater (LOS E or F), and the ICU increase attributable to the project is 0.01 or greater. For Stop-Controlled Intersections: the Total Intersection Delay value under “with project” conditions is 35.00 sec/veh or greater (LOS E or F), and the Total Intersection Delay increase attributable to the project is 2.00 sec/veh or greater. Refer to Table 4.8-5 below, which shows the peak hour levels of service for the weekday AM intersection analysis. Table 4.8-5: Weekday AM Year 2010 Existing + Project Intersection Peak Hour Levels of Service Year 2010 Existing and Proposed Project (with Driveway)
Existing Key Intersections
Peak Hour
ICU or Average Delay (sec/veh)
LOS
ICU or Average Delay (sec/veh)
LOS
Orange Park Boulevard at Santiago Canyon Road
Weekday AM
0.772
C
0.746
C
Orange Park Boulevard at Frank Lane (Existing Church Entrance)
Weekday AM
13.5
B
12.1
B
Proposed Driveway at Santiago Canyon Road
Weekday AM
-na-
-na-
19.0
C
-na- not applicable Source: Linscott Law & Greenspan Traffic Impact and Parking Demand Analysis Report for the Proposed Salem Lutheran Church and School Project Table 5.
Based upon the application of the significance criteria described previously, Table 4.8-5 indicates that the project is not expected to cause significant traffic impacts at any of the key study intersections during the weekday AM peak hour. Therefore, impacts are less than significant and no mitigation measures will be necessary under weekday AM peak hour conditions. Future conditions with the proposed driveway off Santiago Canyon Road are expected to result in better levels of service (i.e., lower ICU or delay values) at the Orange Park Boulevard/Santiago Canyon Road and Orange Park Boulevard/Frank Lane intersections compared to existing conditions without the Santiago Canyon Road driveway.
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Salem Lutheran Church and School Specific Plan Draft EIR
Transportation and Traffic
Refer to Table 4.8-6 below, which shows the peak hour levels of service for the Sunday AM intersection analysis. Table 4.8-6: Sunday AM Year 2010 Existing + Project Intersection Peak Hour Levels of Service Year 2010 Existing and Proposed Project
Existing Peak Hour
ICU or Average Delay (sec/veh)
LOS
ICU or Average Delay (sec/veh)
LOS
Orange Park Boulevard at Santiago Canyon Road
Sunday AM
0.326
A
0.362
A
Orange Park Boulevard at Frank Lane (Existing Church Entrance)
Sunday AM
9.8
A
11.4
B
Proposed Driveway at Santiago Canyon Road
Sunday AM
-na-
-na-
10.4
B
Key Intersections
Notes: -na- not applicable The proposed project condition represents a 712-person attendance. Source: Linscott Law & Greenspan Traffic Impact and Parking Demand Analysis Report for the Proposed Salem Lutheran Church and School Project Table 6.
During the Sunday AM peak hour, Table 4.8-6 indicates that the project is not expected to cause significant traffic impacts at any of the key study intersections based upon the application of the significance criteria described previously. Thus, impacts are less than significant and no mitigation measures will be necessary under Sunday AM peak hour conditions. Level of Significance Before Mitigation
Less than significant. Mitigation Measures
No mitigation measures are required. Level of Significance After Mitigation
Impacts were determined to be less than significant before mitigation. Parking - Impact Analysis
The latest revision to the State CEQA Guidelines (effective March 18, 2010) eliminated from Appendix G of the Guidelines the significance threshold related to parking in conformance with the provisions of SB 97 (California 2009). In 2010, the City revised its environmental factors checklist to match the revised State Guidelines; therefore, the City does not have an adopted significance threshold for parking. However, inadequate onsite parking capacity could have the potential to affect the offsite circulation system resulting in potential conflicts with the circulation system effectiveness. For this reason, a parking analysis is included in this section and specifically under Impact 4-8-1.
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Salem Lutheran Church and School Specific Plan Draft EIR
Environmental Impact Analysis Transportation and Traffic
Refer to Exhibit 4.8-2 or Exhibit 4.8-3, which graphically depicts the proposed circulation and parking plan for the project. Currently, 153 spaces are provided onsite and are located in the following areas: • 28 spaces in the staff parking lot located west of the school buildings. • 24 spaces on Frank Lane, south of the school building. These spaces are primarily used for preschool drop-off and pick-up on weekdays. • 77 spaces in the main parking lot located east of the school buildings (of which 27 spaces adjoining the school buildings are used for curbside staging of passenger unloading/loading during school pick-up and drop-off times on weekdays. • 24 spaces on Frank Lane, south of the existing field/grass play area, with parking restricted during school drop-off and pick-up times on weekdays. Currently there are 153 parking spaces on site and the proposed parking supply would total 180 spaces, constituting an increase of 27 spaces compared to existing supply. Parking demand counts were performed on Sunday, March 28, 2010 between 7:30 AM and 12:30 PM, in 15-minute intervals. Based on attendance counts conducted by Church staff during the March 28, 2010 surveys, the peak attendance occurred during the 10:45 AM service, with 310 seats occupied in the sanctuary. Dividing the peak demand of 136 spaces by the 310 seats yields an empirical parking ratio of 0.439 spaces per seat or 1 space per 2.28 seats. If the ratio of 1 space per 2.28 seats were considered to represent an Average Vehicle Occupancy (AVO) of 2.28 persons per vehicle, it would be consistent with the AVO of 2.24 persons per vehicle determined from the actual AVO counts performed. Therefore, the application of the empirical parking ratio of 1 space per 2.28 seats in estimating the Church’s parking needs is a reasonable approach, and would reflect the unique parking characteristics of the Church. Parking demand was also calculated using the City Municipal Code, which specifies a parking ratio of “1 space/4 seats, or 1 space/ 30 sq ft of gross assembly area, whichever is greater” for churches. The ratio of 1 space per 4 seats was used in the parking calculations because it is interpreted to be applicable to “fixed” seating, consistent with what now exists and is proposed for the Church. Table 4.8-7 summarizes the application of this ratio per City Code, and compares the Code-based parking requirements against the empirical estimates.
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Salem Lutheran Church and School Specific Plan Draft EIR
Transportation and Traffic
Table 4.8-7: Parking Requirements Required Spaces Per City Code at 1 Space / 4 Seats
Required Spaces Per Empirical Ratio at 1 Space / 2.28 Seats
400 Person Attendance (Design-Level 85th Percentile Demand)
100
175
556 Person Attendance (Design-Level 90th Percentile Demand)
139
Implement PMP (Allow up to 222 vehicles)
660 Person-Attendance (10:30 AM Service on 09-16-07)
165
Implement PMP (Allow up to 264 vehicles)
712 Person Attendance (Design-Level 95th Percentile Demand)
178
Implement PMP (Allow up to 285 vehicles)
Church Attendance Scenarios
Note: PMP = Parking Management Plan With the implementation of a Parking Management Plan (PMP) during larger services/events, an Average Vehicle Ridership (AVR) of 2.5 persons per vehicle is presumed. This AVR, which is considered to be typical of greater attendance levels during key worship services, corresponds to a greater number of persons in each vehicle compared to the AVR of 2.28 persons per vehicle derived from field study. Source: Linscott Law & Greenspan Traffic Impact and Parking Demand Analysis Report for the Proposed Salem Lutheran Church and School Project Table 8.
As indicated on Table 4.8-7, based on a proposed supply of 180 spaces, adequate parking will be provided 100 percent of the time according to City Code, and 85 percent of the time based on empirical/actual demand. For the remaining 15 percent of the time under empirical conditions, implementation of the recommended Parking Management Plan (PMP) would address residual parking needs. It should be noted that there will be no concurrent use of the sanctuary, and the multipurpose building for assembly purposes if the total attendance for the assembly will exceed 712 persons. The PMP would generally consist of occasional overflow parking on the multipurpose field on the eastern portion of the site, which would add 113 parking spaces, for a total parking supply of 293 spaces. The need for overflow parking is intended to be anticipated based upon past attendance records of events including holiday church services (Easter, Christmas, etc.), school graduations, special school-related events and services (such as opening school year church service, Christmas programs, grandparents day, etc.), occasional funerals and occasional weddings. Overflow parking on the multipurpose field will be set-up prior to the event and is anticipated to fulfill the parking need. Based on these considerations, it is concluded that adequate parking will be provided on site to accommodate parking needs on weekdays and Sundays. Therefore, impacts to the circulation system effectiveness that would not arise from the proposed parking.
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Salem Lutheran Church and School Specific Plan Draft EIR
Environmental Impact Analysis Transportation and Traffic
Conflict with Congestion Management System Impact 4.8-2
The project will not conflict with an applicable congestion management program, including, but not limited to level of service standards and travel demand measures, or other standards established by the county congestion management agency for designated roads or highways.
Impact Analysis
The Circulation and Mobility Element identifies only two Congestion Management Program intersections in the City: the Katella Avenue northbound and southbound ramps to the Costa Mesa Freeway (SR-55). This intersection is not one of the study area intersections. Moreover, this intersection is not located near the project site. Therefore, project implementation would not result in any impacts to or conflict with an adopted Congestion Management Program. Level of Significance Before Mitigation
Less than significant. Mitigation Measures
No mitigation measures are required. Level of Significance After Mitigation
Impacts were determined to be less than significant before mitigation. Transportation or Traffic Hazards Due to Design Features Impact 4.8-3
The project will not substantially increase hazards due to a design feature (e.g., sharp curves or dangerous intersections) or incompatible uses (e.g., farm equipment).
Impact Analysis
No existing hazardous design features existing onsite. During the peak drop-off and pick-up periods, staff members/adult volunteers help with implementing the school’s traffic control plan for managing the staging area, directing traffic to move forward, opening vehicle doors to help children get into or out of their vehicles (when necessary) to expedite the drop-off or pick-up, and controlling the vehicular and pedestrian conflicts on site. Based on the queuing observations performed during student drop-off and pick-up peak times on Thursday, March 25, 2010, all vehicle queues were accommodated on site. During school arrivals/dismissals, the project proposes a total of four lanes on Frank Lane (two entry lanes and two exit lanes) by utilizing the full paved surface area on the church property, combining the Frank Lane private road easement area with the onsite paved area immediately adjacent and parallel to the northern boundary of the easement. Access to Frank Lane will be enhanced with a raised median with decorative split rail fence or pavement markers (Botts' Dots) placed on the roadway in the same location that will facilitate traffic flow.
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Transportation and Traffic
Salem Lutheran Church and School Specific Plan Draft EIR
In conjunction with the new Santiago Canyon Road driveway, providing adequate internal circulation and loop movements within the site will ensure that queuing does not extend onto either Santiago Canyon Road or Orange Park Drive during school drop-off and pick-up periods on a typical weekday. Level of Significance Before Mitigation
Less than significant. Mitigation Measures
No mitigation measures are required. Level of Significance After Mitigation
Impacts were determined to be less than significant before mitigation. Emergency Access Impact 4.8-4
The project will not result in inadequate emergency access.
Impact Analysis
Currently all access, including emergency access, is limited to the single entry via Frank Lane. This access will be retained and improved, which includes a raised median with decorative split rail fence or pavement markers (Botts’ Dots) placed on the roadway in the same location that separates church and school traffic from residents south and west of the site. The redesign of Frank Lane will provide a more efficient emergency vehicle access to the interior of the site adjacent to the west side of Classroom Building B by including a proposed “hammerhead turn-around” for emergency vehicles (Exhibit 3-9 in the Project Description section). The redesign will retain emergency vehicle access to the residences west of the project site. This access would be provided by a “knockdown bollard” and security chain, allowing emergency access to transition from the church and school travel lanes to the dedicated residents’ travel lane. The addition of the proposed driveway off Santiago Canyon Road would provide an additional emergency access point resulting in two emergency vehicular access points providing access along the southern site perimeter and adjacent to the eastern side of the existing Multipurpose Building and proposed worship center. This new access point would result in a beneficial impact. Therefore, no negative impacts to emergency access would result from project implementation. Level of Significance Before Mitigation
Less than significant. Mitigation Measures
No mitigation measures are required. Level of Significance After Mitigation
Impacts were determined to be less than significant before mitigation.
4.8-24
Michael Brandman Associates H:\Client (PN-JN)\3771\37710001\EIR\9 - DEIR\37710001 Sec04-08 Transpo.doc
Salem Lutheran Church and School Specific Plan Draft EIR
Environmental Impact Analysis Transportation and Traffic
Public Transit, Bicycle, or Pedestrian Facilities Impact 4.8-5
The project will not conflict with adopted policies, plans, or programs regarding public transit, bicycle, or pedestrian facilities, or otherwise decrease the performance or safety of such facilities supporting alternative transportation (e.g. bus turnouts, bicycle racks).
Impact Analysis
Class II bicycle lanes (on-roadway) are adjacent to the south side of Santiago Canyon Road and west side of Orange Park Boulevard, adjacent to the church property. In addition, off-roadway equestrian trails are located adjacent to the church property along both roadways. The addition of the proposed access point off Santiago Canyon Road would require a “break” in the equestrian trail adjacent to Santiago Canyon Road. The project proposes a crosswalk at the “break” in the equestrian trail. The addition of the second vehicle access point would reduce the existing traffic volumes at Frank Lane, which would correspondingly reduce vehicle – equestrian conflicts resulting in a beneficial impact at this location. Level of Significance Before Mitigation
Less than significant. Mitigation Measures
No mitigation measures are required. Level of Significance After Mitigation
Impacts were determined to be less than significant before mitigation.
Michael Brandman Associates H:\Client (PN-JN)\3771\37710001\EIR\9 - DEIR\37710001 Sec04-08 Transpo.doc
4.8-25
