1.0 EXECUTIVE SUMMARY
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1 1.0 EXECUTIVE SUMMARY FEASIBILITY REPORT In November 2008, Measure R was approved by a significant two-thirds majority, committing a projected $40 billion to traffic relief and transportation upgrades throughout Los Angeles County over the next 30 years. Metro has committed to the delivery of $7.2 billion in highway improvements as a significant component of the Measure R program, with $590 million specifically identified for improvements within the Gateway Cities SR-91/I-605/I-405 area. The Feasibility Report (Feasibility Report) has been prepared to achieve four principle objectives: 1. Identify freeway and arterial transportation projects that most effectively reduce existing and forecast congestion in the SR-91/I-605/I-405 corridor (See Figure 1); 2. Develop a recommended hybrid master plan of proposed freeway improvement concepts to identify congestion hot spots freeway improvement projects that can deliver the maximum benefit with a good cost/benefit assessment; 3. Recommend freeway transportation improvement projects for immediate advancement to the first phase of the formal Caltrans project development process, the Project Initiation Document (PID) phase; and 4. Provide Metro and the Gateway Cities Council of Governments (GCCOG) a long-range transportation planning and project development management tool. To achieve these objectives, the Feasibility Report executed the following analytical steps: 1. Use of Geometric Plan Concepts: The direction (guiding principles) of the Corridor Cities Committee of elected officials with respect to the freeway was to improve the freeways but stay within the existing State R/W. Therefore, as a starting point geometric plans for the freeways in the study area were developed as follows. Concept A: Conceptual geometric improvements plans were developed that added (1) general purpose lane in each direction for each study corridor. Concept A geometry was analyzed using Highway Capacity Manual (HCM) methodology providing 2035 Level of Service (LOS) results. No-Build and Concept A 2035 HCM LOS results were analyzed and compared; existing accident areas assessed; existing speed profiles from PeMS reviewed; and geometric deficiencies evaluated to formulate ideas on further refinement for Concept B Concept B: Freeway corridor locations that resulted in limited congestion relief with the Concept A improvements were further evaluated for congestion relief strategies. Concept B conceptual geometric improvement plans were developed building upon the Concept A geometry. Concept B geometry was analyzed using Page 1
2 HCM methodology providing 2035 LOS results. No-Build, Concept A and Concept B 2035 HCM LOS results were analyzed and compared; existing accident areas assessed; existing speed profiles from PeMS reviewed; and geometric deficiencies evaluated to formulate ideas on further refinement for Concept C. Concept C: Freeway corridor locations that continued to show opportunities for further congestion relief were further evaluated. Concept C conceptual geometric improvement plans were developed building upon both Concept A and Concept B geometry effectively creating a hybrid of all recommended geometric improvement concepts. Concept C geometry was analyzed using HCM methodology providing 2035 LOS results. No-Build, Concept A, Concept B and Concept C 2035 HCM LOS results were analyzed and compared; existing accident areas assessed; and existing speed profiles from PeMS reviewed. In select locations where studied freeway improvements were determined to be of limited value to congestion relief, Concept A and/or Concept B freeway improvements were removed from Concept C, thereby reflecting the existing freeway facility or no-build condition. Traffic models were prepared and run to analyze the effectiveness of these proposed concept improvements. Meetings were then held with the TAC members to review, provide input and comments and to finalize these concepts. These geometric plan concept improvements were used to systematically assess traffic operations improvements and reduction in the levels of congestion compared to 2035 No-Build results. 2. Confirmation of the Congestion Hot Spots & Root Cause Analysis: Each of the congestion hot spots for the existing and no-build alternative were identified, located and quantified using all of the congestion and accident analyses contained in the SR-91/I-605/I-405 Freeway Congestion Analysis Report (Congestion Analysis Report). The magnitude and specific congestion characteristics of these hot spots were quantified through a comprehensive comparison and contrast of all the traffic analysis results contained in the Congestion Analysis Report (Highway Capacity Manual Level of Service (LOS), volume to capacity, Caltrans PeMS data, and accident data). For each congestion hot spot location, a map and congestion explanation was prepared outlining the following: Type, characteristic, root cause and specific details of the congestion problem; Limits and logical terminus of the congestion problem area; and Contribution (exacerbation) of adjacent congestion problem areas on the congestion area being examined. Page 2
3 3. Effectiveness Analysis of Improvement Concepts: An effectiveness analysis of the freeway improvement concepts (Concepts A, B and C) was performed to determine how each concept improves (or provides a solution for) the specific congestion problem area, and the magnitude (or extent) of the congestion improvement. The magnitude (or extent) of the improvement will be based upon the following elements: 1) the effectiveness (as specific as possible) of the solutions, 2) the volume of traffic that benefits from the improvement, 3) improvement of a high accident location, 4) complete or partial improvement of the congestion problem, 5) interaction of this congestion problem with those of adjacent congestion problem areas, 6) cost of congestion problem solution, and 7) qualitative cost/benefit analysis. 4. Preparation of Preliminary Cost Estimates: Preliminary cost estimates were prepared for Concepts A, B, and C, which provide a breakdown of cost data in terms of roadway, bridge structures and right of way. The preliminary cost estimates were developed by freeway corridor and by segment within each freeway corridor to estimate rough order of magnitude cost estimates of individual component parts of the freeway corridors. A general assessment of costs (qualitative costs/benefits) was performed in relation to congestion improvement benefit for the specific congestion problem areas described in Section Application of Other Traffic Model Run Scenarios: Model runs and HCM analyses have been performed for 2035 No-Build, and Concepts A, B and C within the Congestion Analysis Report. Model runs without detailed HCM studies have also been completed for other scenarios which combine the geometric improvements with a series of multimodal improvements. A comprehensive summary of these analyses is provided in the SR-91/I-605/I-405 Freeway Congestion Hot Spots Traffic Model Summary Notebook. Those model run results provide quantitative data available for comparative analysis of the corridor improvement Concepts assuming other transportation programs and projects within; through or adjacent to the project study area. The other model runs and associated data compiled as part of the Congestion Analysis Report were used to support qualitative assessments of future congestion hot spots in specific locations. In many locations, the choice of the geometric improvement will not necessarily be affected by the results of the other model runs the geometric improvement is mostly needed with or without the other multi-modal improvements. However, in other locations the other model runs were consulted as needed to assess the need for specific improvements. The information for the other transportation programs and projects that were used in the traffic models was obtained from the Gateway Cities Transportation Strategic Plan - Phase I. This is a compilation of all the planned or known transportation projects that are in or go through Gateway Cities. Page 3
4 6. Recommended PID Project Development Packages: The previous steps were analyzed to determine the effectiveness of the proposed improvements from each concept and determine which "portions" of each concept to recommend for the "hybrid" improvement master plan for review by the 605 Technical Advisory Committee (TAC) and 605 Corridor Cities Committee (CCC). From this "hybrid" geometric plan for all three corridors, individual congestion hot spot "relief" projects were developed and then analyzed together. This analysis was then used to develop a list of recommended projects for PID project development packages based upon the following key elements: Specific congestion hot spots locations; Root causes for congestion problem areas; Effectiveness of improvements concepts (from Concepts A, B and C); Magnitude of the problem that is improved; General qualitative cost to improvement benefit assessment; Qualitative assessment of affects of other available traffic model runs; and Overall freeway concept (hybrid) The recommended PID-phase project development packages include: SR-91/I-605 (Congestion PSR No. 1 on Figure 22); and I-605/I-105/I-5 (north to the Gateway Cities boundary) (Congestion PSR No. 2 on Figure 22). The PID for each of these packages will be a Project Study Report-Project Development Support (PSR-PDS) as defined by Appendix S of the Caltrans Project Development Procedures Manual. The estimated total project cost to improve the three freeway concepts and the combined hybrid concept are as follows: Concept A: $1.9 billion Concept B: $2.8 billion Concept C: $ 2.7 billion Hybrid: $ billion Measure R only provides $590M for these improvements, which is well short of the total project costs. Also, these costs do not include the 33 initial arterial intersection improvements, which have a total estimated project cost for all these intersections of $77.1 million. Page 4
5 The Transportation Strategic Plan- Phase I - includes a list of, and analysis of, potential funding sources. A financing plan to access these funding sources (and any subsequent ones) will be developed from the forthcoming Transportation Strategic Plan - Phase II. For now, the TAC and the CCC will be requested to select the initial list of congestion relief "hot spots" projects (both freeway and arterial highway intersections) to move forward with into the PID project development process for more detailed planning, environmental analysis and/or initial design. 7. Additional Studies: In addition to the freeway corridor, additional studies and traffic analysis were conducted for HOV carpool lane connections as follows: I-605 SB to SR-91 EB SR-91 WB to I-605 NB I-605 NB to I-105 WB I-105 EB to I-605 SB I-605 NB to SR-60 EB SR-60 WB to I-605 SB Based on traffic modeling results for the preceding HOV carpool lane connections, geometric plans were prepared for the following HOV connectors with the most significant volume (See Appendix F): SR-91/I-605/I-105 (from east of I-605 on SR-91) I-605/I-105 (from south of I-105 on I-605) Conceptual geometric plans were prepared to illustrate right of way (R/W) impacts for these HOV carpool lane connections relative to creating a wider geometric footprint for accommodating these potential HOV carpool lane connectors. These HOV carpool lane connectors are not included in the Concept A, B or C plans, but will be evaluated for incorporation at a later date. Page 5
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