ALTERNATIVE TRANSPORTATION ACTION PLAN
EXISTING CONDITIONS AND
NEEDS ASSESSMENT REPORT
January 2009
AGENDA
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CALL AND PLEDGE OF ALLEGIANCE
DAY
Employees:
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City of Emeryville
FINAL
CITY OF EMERYVILLE
Alternative Transportation Plan
Existing Conditions and Needs Assessment Report
F I N A L
January 2009
Nelson\ Nygaard Consulting Associates
785 Market Street, Suite 1300
San Francisco, CA 94103
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Table of Contents
Chapter 1. Introduction ...................................................................................................... 1- 1
Chapter 2. Current Planning Efforts ................................................................................. 2- 1
Alternative Transportation Plan ............................................................................................. 2- 1
General Plan Update ............................................................................................................. 2- 2
Other Relevant Studies and Plans ........................................................................................ 2- 3
Chapter 3. Demographics .................................................................................................. 3- 1
Population, Housing and Employment .................................................................................. 3- 1
Household Income and Auto Ownership ............................................................................... 3- 2
Journey to Work .................................................................................................................... 3- 2
Chapter 4. Land Use ........................................................................................................... 4- 5
Land Use Principles to Support Alternative Transportation ................................................... 4- 5
Existing and Future Development ......................................................................................... 4- 6
Evaluation of Transportation Impacts of Future Land Uses ................................................... 4- 8
Implications, Challenges and Opportunities .......................................................................... 4- 8
Chapter 5. Circulation Network ......................................................................................... 5- 1
Street Network ....................................................................................................................... 5- 1
Street Design and Operations ............................................................................................... 5- 1
Parking ............................................................................................................................... .. 5- 6
Chapter 6. Existing Transit Services ................................................................................ 6- 1
Introduction ............................................................................................................................ 6- 1
Public Fixed- Route Transit .................................................................................................... 6- 1
ADA Paratransit Services .................................................................................................... 6- 10
Private Taxi Service ............................................................................................................. 6- 10
Access to Transit ................................................................................................................. 6- 11
Chapter 7. Transportation Demand Management ............................................................ 7- 1
Emeryville TMA ..................................................................................................................... 7- 1
AC Transit EasyPass ............................................................................................................. 7- 3
NextBus ............................................................................................................................... . 7- 4
Car Sharing ........................................................................................................................... 7- 4
Casual Carpooling ................................................................................................................. 7- 5
511 ............................................................................................................................... ......... 7- 5
Chapter 8. Stakeholder Interviews .................................................................................... 8- 1
Key Issues and Themes ........................................................................................................ 8- 1
Short- Term Priorities for Improving Alternative Transportation ............................................. 8- 5
Chapter 9. Needs Assessment .......................................................................................... 9- 1
Next Steps ............................................................................................................................. 9- 4
Appendix A Proposed Street Typology – General Plan
Appendix B Detailed Description of Transit Routes
Appendix C AC Transit EasyPass
Appendix D Stakeholder Interviews
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Table of Figures
Figure 2- 1 North Hollis Study Area ............................................................................................ 2- 5
Figure 3- 1 Population, Housing and Job Growth ....................................................................... 3- 1
Figure 3- 2 Age Distribution – Percentage of Total Population .................................................. 3- 2
Figure 3- 3 Work Commute Mode - Employed Residents .......................................................... 3- 3
Figure 3- 4 Travel Mode of Commuters in 2000 ......................................................................... 3- 3
Figure 4- 1 Proportional Area of Existing Land Uses ................................................................. 4- 6
Figure 4- 2 General Plan Development Potential at 2030, by Land Use .................................... 4- 7
Figure 4- 3 Emeryville “ Change” Areas per Draft General Plan ............................................... 4- 10
Figure 5- 1 Impact of Vehicle Speed on Pedestrian Injury Severity ........................................... 5- 2
Figure 5- 2 Off- Street Parking Requirements ............................................................................. 5- 7
Figure 6- 1 Summary of Emery Go Round Routes ..................................................................... 6- 3
Figure 6- 2 Summary – Emery Go Round Passenger Surveys .................................................. 6- 4
Figure 6- 3 Summary of AC Transit Bus Routes serving Emeryville .......................................... 6- 6
Figure 6- 4 Fares on AC Transit ................................................................................................. 6- 7
Figure 6- 5 Summary of Existing Transit Services ................................................................... 6- 13
Figure 6- 6 Map of Transit Services ......................................................................................... 6- 14
Figure 8- 1 Stakeholder Suggestions to Enhance Transit Service in Emeryville ........................ 8- 5
Figure 9- 1 Transportation Priorities in Emeryville ...................................................................... 9- 3
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Chapter 1. Introduction
Over the past several decades, the City of Emeryville has undergone a dramatic transformation,
evolving from an industrial past, through decline, to an employment and retail center in the San
Francisco Bay Area, with significant new housing development as well. As the City has grown in
population and jobs, there has been a significant increase in travel to, from and within Emeryville.
With a majority of these trips being made by automobile, traffic volumes and congestion have
increased dramatically, increasing travel times, frustration and transportation costs, and impacting
quality of life for Emeryville residents, employees, and visitors.
Improving transportation is thus a high priority goal for the near and long- term future of
Emeryville. Despite the priority given to travel by private automobile, and the amenities it offers,
the City recognizes that future economic growth and stability, environmental sustainability, public
health and social welfare, are dependent on a shift to a more balanced transportation system
supportive of travel by public transit, walking, and bicycling as well as accommodating the
automobile for select markets and regional trips.
In fact, Emeryville is already recognized for its success and leadership in this endeavor, through
development of a high- quality public transit service that is free to the passenger ( the Emery Go
Round), and support for environmental sustainability and smart growth, through more compact
redevelopment and infill in urban areas offering the opportunity for less dependence on the
automobile to meet various transportation needs.
These goals and achievements provide a foundation for recent planning efforts to further shape
the future of Emeryville to achieve its vision of environmental sustainability, equity, and economic
growth. Two primary planning processes are underway:
 An update to the citywide General Plan, often considered the “ constitution” seeking to
define the future of a City, with broad Guiding Principals and Policy Directives seeking to
provide a framework and clear direction for additional planning efforts.
 An Alternative Transportation Plan, which is the subject of this report. The goal of the
Alternative Transportation Plan is to develop a comprehensive set of strategies and
programs to cost- effectively and equitably implement transportation- related policies to
help achieve the City’s goals for a balanced transportation system, shifting travel toward
transit, walking and biking.
This report represents completion of the first phase of the Alternative Transportation Plan. It
includes a comprehensive review of existing conditions and an assessment of priority
transportation- related issues and needs in the City. Current planning efforts have been reviewed,
and a variety of demographic, land use, transportation and other data has been evaluated to set
the stage for the next phase of this Plan. This report identifies programs and services already in
place that support alternative modes of transportation. A diverse group of stakeholders and
service providers were interviewed to gain their perspective and insight. A summary of these
interviews is presented in Chapter 8 and a list of individuals contacted is included in Appendix
D. The major transportation needs and priority issues that were identified in these interviews and
conversations with City staff, members of the public, and through direct observation helped
identify several priority needs that this Plan will address in the next phase.
The report concludes with a preliminary discussion of potential strategies to address these issues
and accommodate these needs. The information contained in this report will be presented to the
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community in an upcoming public workshop, where potential strategies will be discussed and
feedback provided before they are refined and prioritized for possible inclusion in the Alternative
Transportation Plan.
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Chapter 2. Current Planning Efforts
Several important planning efforts are underway that will have a significant impact on the
transportation system and its relationship with the built environment.
Emeryville is a relatively small city with a residential population of about 9,000 and a day- time
population of nearly 25,000 with a diverse constituency of stakeholders. They consist of private
businesses, and property owners, local residents, employees, and visitors, as well as City
Council, City staff, and government agencies such as BART, AC Transit, Amtrak, and the East
Bay Parks District. Several distinct transportation markets in Emeryville are included in the
planning process including local residents, students, seniors, and workers.
Alternative Transportation Plan
The City is developing this Alternative Transportation Plan, in coordination with the update to the
General Plan ( discussed below), to further define the community vision and goals related to
transportation, and identify specific strategies for short term and long term implementation, to
support achievement of these goals.
Goals and Objectives
The following key goals have been identified for the Alternative Transportation Plan:
1. Walkable Emeryville – Safe, comfortable and convenient access between all potential origins
and destinations in Emeryville. Priority pedestrian access to and from transit stops and hubs
especially. Key “ problem” areas are considered a high priority.
2. High- quality public transit access to all destinations in Emeryville – employment, retail,
commercial, public, residential and other uses, and both existing and future development,
from origins within Emeryville by local transit, and further away by regional transit.
3. Improved bicycle access throughout Emeryville, especially gaps in connectivity.
4. Maintain automobile access, especially to regional retail destinations.
5. Reduce automobile trips and parking demand throughout Emeryville, especially trips easily
made by other modes.
6. Increase infill and redevelopment, at densities and with mixing of uses in targeted locations,
to increase ability to travel locally on foot, and longer distances on bicycle and/ or public
transit.
7. Achieve balance in the planning and design of the transportation system, to ensure access by
all modes. Begin to redress the balance from decades of overemphasis on the automobile—
in Emeryville and elsewhere— by prioritizing non- automotive modes.
8. Ensure goals of Draft General Plan are met, for increased public health, environmental
sustainability, social equity, and economic growth and stability.
9. Identify strategies to increase the role of the City in regional transportation planning.
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Achieving these goals will help to implement the goals of AB32, which mandates reduction of
greenhouse gas emissions, and AB375, which encourages dense, mixed use development near
transit.
General Plan Update
The City of Emeryville is currently updating its General Plan, the “ blueprint for the future growth
and development of the City.” 1 The General Plan will be based on a set of guiding principles
expressing a vision for Emeryville that is:
 Comprised of distinct neighborhoods and districts that are connected to each other and
the region by a variety of modes, without need for an automobile for travel
 A diverse and inclusive community providing increased economic opportunity, education,
and support for a variety of individuals, households, and families
 Strongly supportive of public health, environmental sustainability, and economic growth
and stability
Transportation is recognized as fundamental and pivotal to achieve these goals. The Draft Plan
states that “ a confluence of demographic, economic, and environmental trends are converging
toward the necessity of creating a multi- modal transportation network in Emeryville.” 2 Reasons
cited include an aging population, increasing fuel costs, and concerns about climate change, with
a wide range of other motivating factors expressed by stakeholders and the community, including
opportunities to improve public and personal health; reduce environmental impacts of
transportation; reduce housing and business transportation costs, while increasing access to
jobs, education, and markets; and increase social connectivity within the community.
The Draft General Plan, as currently written, represents an assertive shift in the City’s approach
to transportation. An emphasis is placed on not just automobiles and mobility, but rather access
by all modes. Attention is given to the relative costs and benefits of policy decisions impacting
transportation, and their potential to support achievement of the goals of the plan.
Fundamental transportation- related strategies in the Draft General Plan include:
 Investments in transportation infrastructure and services to move towards a more
equitable and efficient multi- modal transportation system
 Land use policies to encourage more compact, mixed- use development providing many
amenities within walking distance and supportive of longer- distance travel by bicycle and
public transit, rather than reliance on an automobile
 Design strategies for streets and public spaces to encourage more walking, by making it
safer, more comfortable and convenient, and universally accessible to all.
Several policy directives are proposed to support these strategies, including a street typology
defining priority mode of access on various city streets, an expanded methodology to measure
the impacts of proposed projects on all modes of transportation, a revised transportation impact
fee providing funding for projects supporting alternative transportation, a commitment to better
accommodate all modes of transportation on city streets through a “ Complete Streets” policy, and
1 City of Emeryville, website for the General Plan Update ( http:// www. ci. emeryville. ca. us/ planning/ general_ plan. html)
2 City of Emeryville Draft General Plan, Transportation Element ( internal draft dated November 4, 2008)
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further exploration of the potential for the City to implement transportation demand management
policies and programs citywide.
Other Relevant Studies and Plans
Climate Action Plan
Emeryville recently adopted a Climate Action Plan. It includes two government operations
measures and five community- scale measures that directly address transit. These measures are
listed below.
 Increase Emery Go Round and AC Transit ridership – 10 daily City employees switch to
bus
 Increase BART and Amtrak ridership – 10 daily City employees switch to rail
 Allow bicycles on trains and buses – 50 additional daily bicycle- transit trips
 Expand Emery Go Round service in range and/ or frequency – 1,000 additional daily
passengers
 Implement bus rapid transit or shuttle programs – 1,000 additional daily passengers
 Increase AC Transit ridership – 500 additional daily passengers
 Increase BART/ Amtrak ridership – 500 additional daily passengers
MacArthur BART Station Safe Routes to Transit
Bicycle Feasibility Study
This study was conducted to “ identify the optimal means for providing bicycle access to the
MacArthur BART Station in the 40th Street/ MacArthur corridor in Oakland, California.” It was
completed in June 2008 and is awaiting action by the City of Oakland.
The goal of the study is to provide improved bicycle and pedestrian access, while maintaining an
acceptable level of vehicle operations, and high- quality service by AC Transit and the Emery Go
Round along this corridor.
Bicycle lanes exist on 40th Street and other streets in the vicinity of MacArthur BART Station, but
do not have connectivity to the station itself. Bicycling is desirable as a significant mode of
access to the station to reduce vehicle trips and increase overall patronage, especially as new
development may occur at the station site and in its vicinity.
The primary conclusions and recommendations of the study were as follows:
 A reduction in number of vehicle lanes would result in unacceptable delays for both
automobiles and transit vehicles
 Dedicated ( Class II) bicycle lanes were recommended along portions of West MacArthur
Boulevard and 40th Street, and 41st Street
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 Other segments of these streets were recommended for designation as Class III Arterial
Bicycle Routes and a segment of 41st Street was recommended for designation as a
Class III Bicycle Boulevard.
Major Developments Study
Formerly referred to as the “ Big 4 Traffic Study,” Fehr & Peers ( F& P) and Kimley Horn Associates
( K- H) performed an evaluation of the expected traffic impacts of four major development
proposals in Emeryville, 3 as well as already- permitted potential expansion of the Novartis site.
These studies were supplemented by an independent evaluation by Nelson\ Nygaard Consulting
Associates, focused especially on opportunities to reduce vehicle trips produced by proposed
developments through transportation demand management strategies such as those currently
proposed for the Marketplace Redevelopment project.
The initial studies by F& P and K- H suggested a significant increase in automobile traffic in
Emeryville over time, but the contribution from these specific projects would be a relatively small
proportion of overall growth in automobile traffic. The K- H study also explored several potential
traffic mitigation strategies, including changes to vehicle circulation patterns, increases in auto
capacity, especially at certain intersections, changes to pedestrian signal activation, a pedestrian
bridge over Powell Street at Christie, and a pedestrian/ bicycle path on the Powell Street Bridge
over the railroad tracks. Of these strategies, the changes to vehicle circulation, increased auto
capacity, and a pedestrian bridge over Powell at Christie were recommended.
The Nelson\ Nygaard evaluation focused on the relative costs and benefits of proposed changes
to the circulation network. The analysis included consideration of the potential for increased
roadway capacity to induce additional vehicle traffic, as well as opportunities for transportation
demand management strategies ( TDM), such as free bus passes and market- rate pricing for
parking, to reduce the total vehicle trips generated by the proposed projects and possible
expansion of Novartis. Overall, they found that the proposed changes would have a highly
detrimental effect on pedestrians, bicyclists and public transit in an area that is already heavily
auto- oriented.
Their final recommendation was for the City to pursue TDM programs and strategies throughout
the City, and identify other opportunities to reduce overall demand to enable existing roadway
capacity to best serve both automobiles and other modes, without any expansion of vehicle
capacity necessary.
After review of these various studies, and subsequent discussion with consultants and City staff,
the City Council determined to proceed with vehicle capacity enhancements to maintain and
increase automobile access to regional retail in the southwest area of the City, the area along
Shellmound and 40th Streets between Powell Street and San Pablo Avenue. Other changes,
such as adding additional lanes for turning vehicles, in areas with a more residential and office
employment uses, were not approved. A commitment, in principle, was made by City Council to
further explore opportunities to reduce vehicle trips from these developments, and citywide, as is
being pursued through the Alternative Transportation Plan.
3 Projects are: Emeryville Marketplace Redevelopment, Transit Center, Bay Street Site B, and Gateway at Emeryville.
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North Hollis Parking Plan
The City of Emeryville, with the support of Wilbur Smith Associates, is currently developing a
parking plan for the North Hollis area of Emeryville. The plan was initiated due to concerns
expressed by the community about a shortage of on- street parking for local residents, and off-street
parking for local employees. The goals of the plan are to reduce solo driving and parking
demand, coordinate and better manage the parking supply, and increase parking efficiency and
maneuverability. A map of the plan area is included here as Figure 2- 1.
The Existing Conditions Report has been completed and a Draft Plan is currently being reviewed
by City staff. The Existing Conditions Report examined parking supply and availability in the
North Hollis area, including both on and off- street facilities, as well as changes to parking demand
expected in the near future, with a focus on weekday parking when employee demand is highest.
Figure 2- 1 North Hollis Study Area
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Key findings of the report:
 On- street parking occupancy peaks in late morning at almost 90% in Areas 1 and 2 and at
71% in the Residential Area ( southwest corner). About 40% of vehicles remained parked
for more than 6 hours.
 There are clusters of parking hotspots in high employment areas, but significantly lower
occupancy a block or two away. Residential area hot spots appear during the midday and
late afternoon.
 There is a perceived and seemingly real lack of public off- street parking in the northern
study area, but there is significant variation in occupancy rates between lots in the full
study area. There is ample off- street parking capacity, but mostly in lots which are
restricted to certain buildings.
 Drivers spent significant time looking for parking while occupancy levels were at their
peaks ( from around11: 00 am until 1: 00 pm). About one- half of drivers surveyed believe
on- street parking is difficult to find.
 More than 75% of those surveyed believe that both cost and availability are important.
41% were willing to pay a small fee per hour for on- street parking.
Powell and Christie Streetscape Design Plan
The City recently approved a contract with a consultant team led by WRT Inc. to explore design
solutions for the segment of Powell Street extending from the bridge over the railroad tracks, the
intersection of Powell with Christie Avenue, and through to the west side of the freeway
interchange. Key issues the plan seeks to address include:
 High volumes of vehicle traffic experiencing significant delay, including turning movements
between Christie Avenue and Powell Street, to and from the freeway
 Pedestrian and bicycle issues – potential conflicts with high traffic volumes, difficulty
crossing wide intersections, especially for people moving more slowly due to age,
disability, strollers or luggage, etc.
 Public transit ( Emery Go Round and AC Transit) vehicles experiencing significant delay
due to mixed- flow travel with automobiles. Poor conditions for pedestrians here also make
it more difficult to access transit stops.
 Proposed development in the vicinity of this segment of Powell and elsewhere is expected
to exacerbate these issues as more vehicle, pedestrian and trips by other modes are
made along or across Powell Street.
 The goal is to develop design concepts for implementation that optimize conditions for all
modes, maintaining or improving automobile traffic flow, while also improving conditions
for pedestrians, bicyclists and public transit.
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Next Steps
The City of Emeryville, through the Alternative Transportation Plan, update to the General Plan
and other planning efforts, is seeking strategies to maintain automobile access while improving –
significantly – safety and access for pedestrians, bicyclists and public transit.
This report documents existing conditions throughout the City and discusses their impact on
alternative transportation, both now and in the future as Emeryville grows and develops further.
Various strategies will then be explored, with significant input pursued through community
outreach efforts, to improve transportation by modes other than single- occupant vehicle, while still
maintaining access by automobile for certain trips that are considered invaluable by this mode.
Access to regional retail, the economic foundation of the City, will be a high priority, but so will
pedestrian safety and access, improvements to public transit services and connectivity, and
bicycle access.
Successful implementation of this plan will help Emeryville maintain its commitment to public
health, environmental sustainability, social equity and economic growth.
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Chapter 3. Demographics
Emeryville has experienced dramatic growth in population, housing and jobs over the past
several decades, as industrial uses gave way to retail, employment, and housing development.
Demographics such as age distribution, auto ownership, and the travel behavior of residents,
employees, and visitors is important information to support the design of a transportation system
that best meets the needs of residents, employees and visitors, especially one that enables and
encourages use of alternative modes.
Population, Housing and Employment
As of 2008, the City of Emeryville is estimated to have a population of 9,727, a 41 percent
increase since 2000. Employment grew fourteen percent during the same time period, from
17,955 jobs in 2000 to 20,552 jobs in 2008.4 Population, housing and jobs are all expected to
continue to grow steadily in the future as shown in Figure 3- 2 below. This is in a city that covers
1.2 square miles of land.
Currently, Emeryville has one of the highest jobs to employed resident ratios in the Bay Area, with
4.2 jobs per employed resident in 2005. The City is planning to focus more development on
housing compared to job growth, and as a result is expected to have 2.6 jobs per employed
resident by the year 2030.5 The percentage of households renting versus owning did not change
significantly between 1990 and 2000, with 37 percent of housing units being owner- occupied and
62% being renter- occupied.
Figure 3- 1 Population, Housing and Job Growth
Existing Build- out Percent Change
2000 2008 2030 2000- 2008 2008- 2030
Population 6,882 9,727 16,500 41% 70%
Housing Units 4,274 5,988 9,755 40% 63%
Jobs6 17,955 20,552 30,000 14% 46%
Source: Department of Finance 2008, ABAG Projections 2005, City of Emeryville, Dyett & Bhatia 2008.
Age Distribution
In 1990, thirteen percent of the total population was 18 years or under and just under nine
percent of the population was 65 years or over. In 2000, the number people age 18 or younger
dropped to eleven percent, whereas the number of people age 65 and over increased to ten
percent. These trends continue in ABAG’s age projections for years 2010 and 2030. While there
is projected to be a substantial increase in the number of people 19 years and under in 2010
( 23% of the total population), this number drops in the 2030 projections to twenty percent of the
population. The number of people who are 65 years and over continued to increase according to
4 The sources for all data in this chapter, except as otherwise indicated, are the 2000 US Census, 2000 Census
Transportation Planning Package ( CTPP), and Association of Bay Area Governments ( ABAG), “ Projections 2007.”
More recent data from the American Community Survey not available for Emeryville due its relatively small population.
5 Department of Finance 2008, ABAG Projections 2005, City of Emeryville, Dyett & Bhatia 2008
6 Existing 2008 jobs calculated from annual growth rate assumed by ABAG for 2005- 2010: 1.5%
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ABAG’s predictions, from eleven percent in 2010 to twenty- one percent in 2030. Expectations
that nearly one quarter of the population will be over the age of 65 by 2030 indicate that a re-evaluation
of transportation needs and services in the longer term will be necessary. Figure 3- 3
summarizes the age distribution in 1990 and 2000, and projected by ABAG in 2010 and 2030.
Figure 3- 2 Age Distribution – Percentage of Total Population
US Census ABAG Projections
Age Distribution 1990 2000 2010 2030
18 years old and under* 13% 11% 23% 20%
65 years and over 8.7% 9.8% 11% 21%
Total: 22% 21% 34% 41%
* ABAG Projections for youth are defined as 19 years and under
Disability Status
In 2000, 21 percent of the civilian non- institutionalized population five years and over in
Emeryville indicated having a disability ( including temporary disability). Comparatively, 18
percent of the non- institutionalized population fiver years and over in the San Francisco- Oakland-
San Jose, CA Metropolitan Area indicated having a disability. 7
Household Income and Auto Ownership
In 2000, the median household income in the City of Emeryville was $ 45,359 with 28% of
households having income less than $ 25,000/ year. Eleven percent of the households in
Emeryville did not have access to a vehicle in 2000, similar to the nine- county San Francisco Bay
Area, of which 10% of households did not have access to a vehicle in 2000.
Journey to Work
Employed residents of the city of Emeryville have a lower drive- alone rate ( 57%) compared to the
San Francisco Bay Area ( 68%), especially if they also work in Emeryville ( see Figures 3- 3 and
3- 4 below), whereas employees in Emeryville who live elsewhere have a higher- drive alone rate
than the Bay Area average. The percent of resident commuters using public transit rose from
13% to 19% between 1990 and 2000, and is expected to increase further between 2000 and the
2010 US Census, primarily because of the successful Emery Go Round shuttle service. 8 More
recent Census data is not yet available for the City, but since Emery Go Round ridership rose by
approximately 70% during that time period, a significant shift to transit will probably be found in
the 2010 US Census. At the same time, the number of residents who commute to work in a
carpool decreased from 17% to 9%, a drop of 8 percentage points between 2000 and 2010.9
7 US Census Bureau, Census 2000, Table P119: Imputation of Disability Items for the Civilian Non- institutionalized
Population 5- years and over.
8 US Census Bureau, Census 1990, Table P049: Means of Transportation to Work: Workers 16 years and over ( STF-
3); Census 2000, Table P30: Means of Transportation to Work: Workers 16 years and over ( SF- 3)
9 The most recent journey- to- work data for the City of Emeryville is from the 2000 Census Transportation Planning
Package ( CTPP).
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Commute times for Emeryville residents increased by almost 20 percent between 1990 and
2000. The average travel time to work in 1990 was 22 minutes; by 2000 it had increased to 26
minutes.
Figure 3- 3 Work Commute Mode - Employed Residents
Emeryville SF Bay Area
Mode 1990 2000 2000
Drove alone 58% 57% 68%
Carpooled 17% 9.1% 13%
Public transportation 13% 19% 9.5%
Walked 3.9% 6.3% 3.6%
Other means 3.3% 3.3% 2.3%
Worked at home 4.8% 5.5% 3.4%
In 2000, 22 percent of Emeryville residents also worked in Emeryville, but the most common
location for employed residents was the City of San Francisco ( 26%), and another seventeen
percent worked in Oakland. The most common residential locations of Emeryville employees
were San Francisco ( 27%) and Contra Costa County ( 24%). Overall, of all jobs in Emeryville,
95% are occupied by employees living elsewhere.
A large proportion – 28 percent – of residents who worked in Emeryville walked to work in 2000
( as compared to only 3.2% of all Bay Area commuters) and another four percent rode a bicycle.
Only 37 percent of Emeryville residents who worked in Emeryville drove alone, compared to 60
percent of residents who worked outside Emeryville. A significant number of Emeryville residents
working elsewhere carpooled ( 10%) or used public transit ( 28%). Of Emeryville workers living
elsewhere, 77 percent drove alone and 13 percent carpooled.
In 2000, six percent of workers in Emeryville who lived elsewhere rode transit to work. However,
in the last eight years, Emery Go Round ridership has increased significantly, with almost half of
MacArthur BART patrons transferring to or from the Emery Go Round ( see Chapter 6 – Transit
Services), suggesting that a larger proportion of workers are using transit to come from other
locations to work in Emeryville. The 2008 BART Access Survey, when released, will provide
additional information about these travel patterns, as will the 2010 Census Transportation
Planning Package. Figure 3- 6 summarizes the travel mode of commuters working or living in
Emeryville.
Figure 3- 4 Travel Mode of Commuters in 2000
Emeryville Residents
Travel Mode of Commuters Work
at
Home
Total
Population
Drive
Alone Carpool Transit Bicycle Walk Other
Work in Emeryville 37% 5.3% 25% 3.8% 28% 1.1% 25% 1,000
Work Elsewhere 60% 10% 28% 0.7% 0.1% 2.0% n/ a 4,000
Emeryville Workers
Live Elsewhere 77% 13% 6.4% 1.3% 1.4% 0.7% n/ a 17,000
Source: 2000 US Census Transportation Planning Package
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Chapter 4. Land Use
This chapter summarizes current and planned land uses in Emeryville and their relationship to
transportation. The City, through the Update to the General Plan, has evaluated which areas are
expected to redevelop and which are expected to remain the same, between now and 2030.
Emeryville is already “ built out,” with minimal vacant land. Older residential areas and historic
properties will be protected, but most former industrial land is now considered underutilized and
presents prime opportunities for redevelopment. The General Plan projects significant increases
in the number of residents, new households and jobs in the next 20 years. How the existing and
new residents and employees will get from home to work, or to child care, or buy groceries, will
be highly dependent on the way the City rebuilds itself.
Land Use Principles to Support Alternative
Transportation
Several factors related to land use can have a dramatic influence on travel behavior. Often
referred to as the “ 3Ds”, these principles will be important to ensure the urban environment in
Emeryville evolves to be highly walkable, bicycle- friendly and supportive of public transit as an
alternative to longer- distance travel by automobile. More than forty percent of all trips in the U. S.
are less than two miles – an ideal distance for biking, or taking public transit – and approximately
50% of commuters travel less than 5 miles to work. 10 A brief description of the “ 3Ds follows:
1. Density – Locate as many potential riders within close proximity of a transit station as
possible. Most people will not be willing or able to walk more than a half mile, some even a
quarter mile. Structures should be built at relatively high densities, but with attentive design
and construction that maintains privacy and reduces their perceived mass. Though not the
only factor, the number of people within walking or biking distance of a transit station, or
having direct access via transit, is a primary determinant of its patronage.
2. Design – Pedestrians should be given highest priority in the station area, especially along
primary paths of travel and in areas of potential conflict with automobiles, transit vehicles, and
even bicyclists. Walkways should be wide and well taken care of and all crosswalks,
especially at major intersections, should be designed following principles of universal access.
Waiting areas should provide shelter and places to sit, and maps and information about
transit services should be available. Sensitive and creative design will help place bus stops
and rail stations within the community, and ensure that patrons feel welcome, comfortable,
and safe. Providing these amenities is critical to developing and maintaining a strong
ridership base and relationship with the surrounding community.
3. Diversity – Perhaps the biggest factor in reducing automobile trips is a diversity of key
amenities locally, within walking distance of an individual’s home, especially if they are able to
stop by on their way to or from work. Amenities may include a corner store or larger grocer,
child- care, post office, restaurants and cafes, etc. Programming diversity into the landscape
also reduces the geographic impact if a particular market sector is not financially strong.
10 Schiedeman, Jake ( October 4, 2007), “ Take it out for a ride,” Napa Valley Register:
http:// www. napavalleyregister. com/ articles/ 2007/ 10/ 04/ go_ green/ doc470592efb06d3928890672. txt
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Parks and Open
Space
7%
Mixed Use
8%
Vacant/
Unassigned
7%
Industrial
14%
Residential
21%
Commercial
36%
Public
7%
Examples of Potential Achievement of 3D’s Land Use Principles
The commitments being made for the proposed Emeryville Marketplace Redevelopment exhibit a
commitment to these principles, including:
 Enhanced pedestrian connectivity to the site, from surrounding streets and across the
railroad tracks from the Emeryville Amtrak Station, as well as within the site
 Short- term bicycle parking near retail and other amenities and long- term bicycle parking
for employees and residents
 Attractive bus shelter and other public transit amenities
 Reduced parking supply through shared parking, unbundled and market- price parking,
and additional support for travel by other modes
 High- density development to support increased use of public transit for local and regional
travel
 Mixing of uses on site and in combination with other proposed developments nearby to
develop synergy and an urban “ core” district providing many daily needs within walking
distance
Existing and Future Development
The City of Emeryville was once
primarily an industrial city, especially
adjacent to the railroad tracks. The City
has evolved over time with increasing
employment in other sectors, including
research and development and general
office. It has also become a major
regional retail destination, with stores
such as IKEA and Home Depot, and the
Bay Street Center. Significant new
housing development continues to occur
– In 1980 there were 3,714 people living
in Emeryville, whereas in 2008 the
population is estimated to be 9,727.
Nonetheless, compared to most Bay
Area cities, the proportion of land in
Emeryville used for residences is quite
small.
Figure 4- 1 shows the relative amounts of
land in Emeryville dedicated to various
primary land uses. 11
The draft General Plan defines land use primarily by two categories: its use ( e. g. residential,
office, retail, industrial) and intensity ( amount of building per unit of land area, e. g. how many
dwelling units per acre will there be, or what floor area ratio non- residential development will
have). A third variable is whether – and to what extent – mixing of uses is allowed or encouraged
in a particular area. For example, a few corner markets are considered acceptable in the draft
11 Draft Update to the Emeryville General Plan, Chapter 2: Land Use ( November 2008).
Figure 4- 1 Proportional Area of
Existing Land Uses
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General Plan in older residential neighborhoods, but new residential complexes have many
stories and may be able to support a stronger retail base.
These variables help define the physical form and massing of new development, and to a certain
extent their ambient impacts ( noise, vehicle traffic, etc.). Additional key information will be
necessary, however, to better understand differences between travel needs and travel behavior
of residents and employees. An online survey is planned during the development of this
alternative transportation plan. It will seek to gather information on transportation needs and
preferences. This information will also be an important topic to be discussed at planned
community workshops. Travel behavior and experience at similar developments in the Bay Area
and elsewhere will also provide valuable insight. As shown in Figure 4- 2 below, the City expects a
dramatic increase in housing, significant increases in hotel and office development, and a decline
in land dedicated to industrial uses. Since the City is already “ built out,” change will occur
through the redevelopment of existing land uses considered underutilized. More redevelopment
is expected to occur over time, as land values rise. Through the General Plan process, areas
which are expected to change in the next General Plan period have been identified and mapped,
in Figure 4- 3 on page 4- 6. The development potential of these areas was then combined with
existing development in other areas to estimate the development potential for the City by 2030,
under the Draft General Plan.
Figure 4- 2 General Plan Development Potential at 2030, by Land Use
Residential Non- Residential ( square feet)
( dwelling
units) Retail Hotel Office* Industrial
A. Approved Development 907 34,461 0 1,313,000 0
B. Gross New Development 2,930 1,075,400 324,600 1,569,700 76,200
C. Existing Lost Due to Redevelopment - 70 - 468,598 - 14,375 - 509,740 - 855,377
D. Net New Development ( A+ B- C) 3,767 641,263 310,225 2,372,960 - 779,177
E. Existing Development 5,988 2,441,660 464,500 4,852,118 4,132,675
F. City at 2030 ( D+ E) 9,755 3,082,923 774,725 7,225,078 3,353,499
G. Percent change 63% 26% 67% 49% - 19%
* Office includes R& D development.
Source: Draft Land Use Element – General Plan ( November 2008)
A preliminary analysis of expected development intensities, mix of uses and multi- modal access
strategies at “ build- out” in 2030 suggests significantly increased support for local and regional
travel by alternative transportation ( walking, bicycling, and public transit). It will be important to
ensure that proposed development is firm in its commitments and contributes its fair share of
funding to invest in alternative modes of transportation.
The City of Emeryville appears to be developing land use policies and strategies through the
General Plan process and its review of proposals for individual development projects that will
support these principles for a more balanced transportation network in Emeryville. Increased
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density centralized around key transit hubs, such as the Emeryville Amtrak Station and the San
Pablo Avenue/ 40th Street bus hub, will have the most effective impact on travel behavior.
An additional challenge is to identify opportunities to enhance existing and already- approved
development ( such as at the Novartis site) so that it also enhances and encourages access by
other modes. Existing development is at a relatively low density, compared to proposed
development, and if considered a “ non- change” area, is currently expected to remain at these
densities.
Significant parking is dedicated to existing development, and required of new development
( currently almost one per employee and a high level for retail development, especially regional
retail). Although this maintains sufficient availability of parking to ensure support for these vital
economic contributions to the City, parking costs are high, especially for multi- level garages.
Evaluation of Transportation Impacts of Future
Land Uses
An evaluation of the transportation impacts of future land uses in Emeryville is currently
underway. The “ build- out” horizon year for this evaluation is 2030. A summary of this evaluation
will be included in the strategies report. Important considerations for this evaluation include:
 Land uses in Emeryville in 2030, compared to existing and planned land uses
 Transportation infrastructure, services, and programs established by 2030
 Quantitative relationships between density, mixing of uses and travel behavior
 Local and Regional Travel demand in 2030 – trip generation, distribution, mode choice,
and route
 Additional opportunities to incentivize alternative modes
Implications, Challenges and Opportunities
The Draft General Plan includes as one of its guiding principles a commitment to foster and
provide “ incentives for alternative transportation modes, including transit, car/ vanpooling,
bicycling, and walking. Residents will be able to access stores, offices, the waterfront, or regional
transit network without needing a car.”
An important question, therefore, is whether this increase in development and expected density
will be sufficient and located in the appropriate locations to support use of public transportation as
an alternative to the automobile. Furthermore, as discussed in Chapter 5 - Transportation, the
design of adjacent streets and public space will influence the level of pedestrian and bicycle
travel.
Pending a more detailed analysis of land use impacts on transportation, the following estimates of
future land use intensity are currently available:
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 The expected citywide density of residential uses is expected to increase dramatically,
from 7.8 dwelling units per acre in 2008 to 13 dwelling units per acre in 2030, as
measured by the gross residential density for all land in the city, a 63 percent increase.
 The expected citywide density of employment is expected to increase from 27 jobs per
acre in 2008 to 39 jobs per acre in 2030, a 46 percent increase. 12
This represents a dramatic increase in the intensity of urban development in Emeryville, as
industrial uses convert to residential and commercial uses. The mixing of uses and location of
focused efforts to increase density around transit nodes suggests that this will strongly support
the provision of high- quality transit service both locally and regionally, as well as provide funding
for additional infrastructure, programs and services to support alternative modes of transportation.
Developing and implementing these programs and services, through city policies and funding
strategies, will be critical to achieve desired travel behavior in Emeryville.
12 Calculated from data provided by Dyett & Bhatia Consulting Associates, December2008.
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Figure 4- 3 Emeryville “ Change” Areas per Draft General Plan
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Chapter 5. Circulation Network
This chapter reviews the design, operation and performance of streets in Emeryville. It reviews
current city policies and proposed new policies in the Draft Update to the General Plan.
Conditions and performance of city streets for each primary mode are also reviewed. At the
conclusion of this chapter is a discussion on parking.
Street Network
The network of streets in Emeryville is based somewhat on an orthogonal grid, with several
strongly defined corridors meeting at large intersections. With the exception of older residential
development in the North Hollis and Triangle areas of the City, blocks tend to be long and wide
with limited connectivity, especially east- west ( see Figure 5- 3 on page 5- 10). The following are
the primary travel corridors for automobiles and transit vehicles:
 North- South: San Pablo Avenue, Hollis Street, Horton Street, Shellmound Street and the
I- 80 freeway
 East- West: 40th Street, Powell Street, and 65th Street
The railroad tracks and freeway limit east- west travel – only a few streets cross the railroad
tracks, and Powell is the only street providing direct access to the freeway. The next freeway
access point to the north is Ashby Avenue in Berkeley. South of Powell Street, the next access
point is MacArthur Boulevard in Oakland.
Street Design and Operations
The streets of a city serve multiple purposes. They allow local property access, accommodate
public utilities, and allow for people to move throughout the city and region. In addition, they are
part of the neighborhoods and districts through which they pass, and provide open space for
social interactions, recreation, sunlight and fresh air. Travel can be via a variety of modes,
including private automobiles, public transit, bicycles, and on foot.
Current Practice
Historically in Emeryville, as in most other locales in the United States, the design and operation
of streets has been defined primarily by their role and function in the circulation of automobiles.
This street classification scheme, based on guidelines published in the AASHTO “ Green Book, 13”
includes the following categories, with guidelines for the effective implementation of each:
 Arterial – Provides the highest level of service at the greatest speed for the longest
uninterrupted distance, with some degree of access control.
 Collector – Provides a less highly developed level of service at a lower speed for shorter
distances by collecting traffic from local roads and connecting them with arterials.
 Local – Consists of all roads not defined as arterials or collectors; primarily provides
access to land with little or no through movement.
13 American Association of State Highway and Transportation Officials. A Policy on Geometric Design of Highways and
Streets, 5th Edition.
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The emphasis on the efficient movement of automobiles leads to the design and operation of
streets optimized for travel by automobile not necessarily people, often with significant
consequences for pedestrians and bicyclists. Speed limits are high to minimize travel times for
automobiles, and lane widths are designed for travel at these higher speeds. Figure 5- 1
demonstrates that the risk of fatality for a pedestrian hit by a car increases dramatically with the
speed of the car. 14 In addition to these safety considerations, the focus on vehicle throughput
also reduces the overall efficiency of the circulation network with increased travel time and cost,
and decreased safety and comfort levels.
Figure 5- 1 Impact of Vehicle Speed on Pedestrian Injury Severity
0
10
20
30
40
50
60
70
80
90
100
20 30 40 50
Vehicle Speed Percent Likelihood of Fa
We see the impact of this approach in Emeryville, with wide streets able to carry large volumes of
traffic but considered hazardous for pedestrians to cross or bicyclists to ride along. Street
corners have wide turn radii to facilitate high speed right- turn movements by vehicles, leading to
long crossing distances and reducing the visibility of pedestrians. Signals are timed for the
movement of vehicles, often at the expense of public transit vehicles, which also become stuck in
traffic though they are much more efficient at carrying people along the same corridor.
Alternative Approach
The current draft update to the General Plan seeks to address this issue by defining a street
typology more inclusive of other modes of transportation. Streets, or segments thereof, would be
designated based on which mode will receive priority treatment. Most streets would allow all
modes, but they would each be designed and operated to optimize performance for the priority
mode ( or modes). For example, for a transit priority street, the following description is given:
14 Leaf, W. and Preusser, D. Literature Review on Vehicle Travel Speeds and Pedestrian Injuries, US DOT NHTSA
( DOT HS 809 021), 1999, p. 4. Pedestrian Likelihood of Fatality
Vehicle Speed ( mph)
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“ Transit Street – These are primary routes for AC Transit, Emery Go- Round, and
other public transit providers. Signal preemption for transit vehicles, bus stops,
and, where appropriate, bus lanes, are provided. Other travel modes, including
automobiles, bicycles, and trucks, are accommodated in the roadway, but if there
are conflicts, transit has priority. These streets accommodate moderate to high
volumes of through traffic within and beyond the city. Pedestrians are
accommodated with ample sidewalks on both sides of the street, and pedestrian
amenities are enhanced around bus stops ( e. g. shelters, benches, lighting, etc).”
The Draft General Plan also includes a commitment to “ complete streets,” whereby streets would
always be designed in consideration of all modes that will use them. The proposed street
typology and complete streets policy would represent important first steps towards the design and
evaluation of city streets from a multi- modal perspective that focuses on movement of people –
and how it impacts them individually and the community – not just movement of vehicles and how
quickly. This approach would more firmly support the goals of the Alternative Transportation Plan
as well as the broader goals of the General Plan. Appendix A provides a summary of each
street type and the current language of the Complete Streets policy, as proposed in the Draft
General Plan ( November 2008). Opportunities presented by a multi- modal street typology will be
explored further as strategies are developed for inclusion in the Alternative Transportation Plan.
Street Performance
Overall, the streets of Emeryville are designed well for the movement of motor vehicles, but at a
cost to pedestrians, bicycles, and public transit. Long blocks and ample right- of- way dedicated to
vehicles result in relatively high vehicle speeds, long crossing distances for pedestrians, and
minimal space reserved for bicyclists, who must travel in mixed- flow traffic on most city streets.
Streets have minimal amenities for pedestrians such as lack of shelters and other amenities at
bus stops. Long blocks and barriers such as the railroad tracks and freeway place strong limits
on connectivity for all modes, especially for pedestrians who are less able to travel longer
distances to crossing points. Compliance with the Americans with Disabilities Act ( ADA) and
applicable sections of Title 2415 is limited – some street segments do not have complete
sidewalks on both sides, curb ramps at crosswalks, or other basic elements of street design for
universal access. The impact of these conditions on pedestrians, and therefore, connectivity to
transit, is discussed in detail later in this chapter.
High levels of vehicle traffic on major travel corridors limit the functionality of these streets for
automobiles and public transit alike. Currently, the Emery Go Round experiences variations in
travel times of up to 30% due to traffic congestion during peak travel periods. 16 Three
intersections currently operate at a level considered substandard by the City, and conditions are
expected to worsen if housing and job growth continues to generate new vehicle trips at a rate
comparable to existing development.
Methodology for Analysis
There are various ways to analyze the performance of the transportation system for automobiles.
The methodology currently in use in Emeryville is based primarily on an estimate of the delay
15 Title 24 of the California Code, also titled The Energy Efficiency Standards for Residential and Nonresidential
Buildings, were established in 1978 in response to a legislative mandate to reduce California's energy consumption.
The standards are updated periodically to allow consideration and possible incorporation of new energy efficiency
technologies and methods.
16 Presentation by Emeryville Transportation Management Association in October 2008.
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experienced at an intersection. The LOS grading system ranges from LOS A, indicating free- flow
conditions with little or no delay, to LOS F where traffic flows exceed design capacity, resulting in
long queues and delays. LOS E represents the point where traffic volumes are at or near design
capacity and where substantial delays begin to occur. LOS D or better is considered acceptable
according to the standard methodology used by the City. The Major Developments Traffic Study
found that current traffic conditions meet or exceed the City standard of LOS D, except for three
intersections. Anticipated future growth in the City and region is expected to lead to substandard
traffic conditions along significantly more corridors and at intersections. This analysis determined
that these conditions would exist even if Emeryville does not approve the major development
proposals. It also, however, did not fully consider the potential to reduce vehicle trips from
existing and proposed development by increasing levels of transit service and various
transportation demand management strategies.
The Draft General Plan recommends that the City develop an updated methodology that would
evaluate the performance of streets for multiple modes of transportation, including automobiles,
transit, bicycles, and pedestrians. Instead of LOS, Quality of Service ( QOS) would be
determined, based on both a quantitative and qualitative analysis. For example, automobile
quality of service might not include intersection delay, but instead include average travel speed
point- to- point and variation in travel speed, to indicate how often a car must stop and go.
Likewise, pedestrian quality of service might include presence of sidewalks on both sides of
streets, accessibility to transit stops and key amenities desirable within a neighborhood, and the
design of crosswalks and intersections to increase pedestrian safety. Thus, a multi- modal
methodology would enable the City to consider the appropriate balance between modes, and
identify opportunities to achieve mutual benefits for all modes of travel.
Bicycles
According to the U. S. Department of Transportation, one quarter of all trips are less than one mile
in length, and forty percent are less than two miles. Especially with the flat topography in
Emeryville, bicycles could be a convenient, healthy, and enjoyable alternative to driving.
Furthermore, bicycles offer faster access to regional transit at locations such as MacArthur BART
Station and the Emeryville Amtrak Station, compared to walking. In addition to the need for
secure parking and other amenities, a well- connected network of streets designed to
accommodate bicycles is needed, especially to provide access to jobs, schools, and transit hubs.
The current General Plan and Bicycle and Pedestrian Master Plan for the City of Emeryville
include an overarching goal to establish a network of continuous north- south and east- west
bikeways to provide access to the major features and attractions of the City, provide recreational
benefits and reduce dependence on automobiles. The draft update to the General Plan affirms
this commitment, and includes an update to the bicycle network, shown in Figure 5- 2.
Class II bicycle lanes are currently provided on Mandela Parkway, 40th Street, Shellmound Street,
Adeline Street and 47th Street and portions of Horton Street, 59th Street, Stanford Avenue and
65th Street. Regional bike facilities include the San Francisco Bay Trail, included in the 2006
Alameda Countywide Bicycle Plan. The Bay Trail turns east at Powell Street, and cyclists must
travel inland through busy intersections to reach Shellmound Street before traveling south to
Mandela Parkway in Oakland. Access to the Bay Trail is constrained and compromises safety
conditions due to heavy traffic on Powell Street .
A key issue to address for bicycle circulation is increased connectivity across the railroad tracks
and freeway. Currently there is only one crossing of the freeway, on Powell Street, which is
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considered an unsafe route for bicyclists due to high volumes of traffic making turns on and off
the freeway. A second crossing is indicated in the draft General Plan at 65th Street. The City
Council recently confirmed this location, and is working with Caltrans to complete studies required
for funding. There are five crossings over the railroad tracks – the 40th Street Bridge, the
AMTRAK pedestrian- bicycle elevator crossing, and at- grade crossings at 65th, 66th and 67th
streets. A pedestrian- bicycle bridge over the railroad tracks between Bay Street Center and
Hollis Street is funded and in the design stage.
Connections to regional transit are also important. The Draft General Plan does not distinguish
between Class II dedicated bike lanes and Class III bike routes, but it indicates routes to
MacArthur BART Station, West Oakland BART Station, and the Emeryville Amtrak Station. The
updated bicycle plan will need to determine which streets are appropriate for dedicated bicycle
lanes. On high- volume or high- speed streets, bicycle lanes are safer and attract more cyclists
than streets simply designated as bicycle routes. Bicycle routes without lanes that are designed
as bicycle boulevards, however, are also attractive if carrying relatively low traffic volumes and
having limited stops along their route. Horton Street is currently designated as a bicycle
boulevard, improving access to the Emeryville Amtrak Station, but several blocks are also
planned as a primary transit route, connecting to the proposed Transit Center. Addressing
potential conflicts between buses and bicycles will therefore be important along these segments
of Horton Street.
Public Transit
Public transit vehicles currently travel in mixed- flow traffic with other vehicles. Though primary
corridors in Emeryville have significant capacity, transit vehicles are impeded by the high volumes
of automobile traffic, especially during peak travel times. As noted earlier, the Emery Go Round
experiences variations in travel time of up to 30% during peak hours. Transit ridership is
diminished when walking to bus stops or seems to be difficult and dangerous on wide or fast
streets. Transit services and their operations are discussed in detail in Chapter 6 – Existing
Transit Services.
Automobile Traffic
Congested- related delays on the streets and highways in Emeryville impact public transit and
automobiles, reducing the overall functionality of the transportation system. The City of
Emeryville is perceived to have significant traffic congestion issues along primary transportation
corridors and at key intersections, especially the western section of Powell Street including the
intersection with Christie Avenue and the freeway interchange. As noted earlier, the current
methodology to evaluate traffic conditions indicates that future conditions will be significantly
worse, independent of the level of infill and redevelopment that occurs, due to overall population
and job growth in the Bay Area. Opportunities to support this growth in travel demand, through
increased transit service and other transportation demand management strategies, are not yet
fully included in the evaluation. The proposal for a multi- modal transportation impact analysis is
expected to help the city do this more effectively.
Congestion accumulates in Emeryville in predictable ways and locations throughout the City.
Each area is described below:
 Freeway on- ramps. Much of Emeryville’s local congestion originates with the freeway.
 Freeway off- ramps. Even when the freeways are free- flowing, congestion also
accumulates at the freeway off- ramps, as the one large pipe of a freeway ramp meets the
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many small pipes of city streets, and motorists make many turning movements to sort
themselves out into the grid.
 North- south through streets. While Emeryville generally has a fine grid of inter-connected
streets, the grid breaks down in several places, particularly in the north- south
direction.
 East- west boulevards. Emeryville’s east- west boulevards were better designed to carry
traffic flows than the north- south streets, but these get congested, too, largely due to
motorists trying to get over the Bay Bridge.
 Employment. Emeryville is a significant regional employment center, with many
commute trips, coming from outside the City, being made by automobile.
Traffic Origins and Destinations
Limited information exists about the origins of vehicle traffic in Emeryville, currently. The most
recent U. S. Census journey- to- work data is from 2000, and is discussed in Chapter 3 –
Demographics. In addition, the Major Investments Transportation Study included an analysis
of the percentage of traffic that is local or regional ( the latter defined as being carried by major
freeways away from the city). The study estimated that only 30% of traffic is local, with the
remaining being regional. It did not distinguish, however, regional “ pass- thru” trips not having a
local origin or destination.
Parking
Though automobile parking supports an important mode of transportation, it is itself a type of land
use, occupying space whether or not the space itself is occupied by a vehicle. Parking lots
sometimes are built upon but often remain for long periods of time, just like a structure. Multi-level
parking garages have a lifespan of several decades and then are often replaced with a new
garage.
There is a significant opportunity cost for the use of land for parking, especially with real estate as
valuable as in Emeryville ( more than $ 4.2 million an acre). Even as Emeryville attempts to
densify and increase travel by alternative modes of transportation, there is a perceived necessity
to provide parking – free to the user - to enable employees to go to work, shoppers to go to the
store, students to get an education. Current city policy requires at least one space per dwelling
unit, plus guest spaces, and approximately one for every teacher, office or industrial worker at
their place of employment, and even more for retail uses.
These policies enforce a development pattern that is heavily auto- oriented, since most employees
have access to a free or heavily subsidized parking space. A typical office worker occupies about
the same amount of space in the building as does his or her car in the lot outside. This will
double the land rent for a business and can increase housing prices dramatically. Furthermore,
the dedication of so much space to the automobile can result in population densities too low to
support high quality public transit, even if employees want to opt out of their parking space and
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choose transit. 17 In addition, large areas of parking (“ seas of parking”) create an urban form
which is inhospitable for pedestrians to use.
About 75% of employees in Emeryville who live outside of the City drove alone to work in 2000,
the most recent year for which this data is available. This is higher than the Bay Area average of
less than 70%. Free parking is cited as one of the primary reasons for the high drive- alone rate
cited in the Opportunities & Challenges Report for the General Plan Update.
Parking Requirements
As noted earlier and shown in Figure 5- 2, the City’s off- street parking requirements for new
development result in approximately one parking space per employee and somewhat less per
resident, though multi- unit residential developments must also provide shared guest parking.
These requirements are much higher than some other cities. For example, Portland, Oregon has
set the maximums for new office and retail development to 1 space per 1000 square feet.
Berkeley has lower parking requirements in most if not all categories, and Oakland has lower
requirements in high density zones.
Figure 5- 2 Off- Street Parking Requirements
Land Use Parking Requirement
Residential: Single dwelling unit ( detached)  Two covered parking spaces per unit
Residential: Multi- unit buildings ( studios and one
bedroom units)
 One space per unit, plus one guest space for each
four dwelling units for buildings with five or more units
for a total of 1.2 per unit
Residential: Multi- unit buildings ( two or more bedrooms
per unit)
 One and one half spaces per unit
Commercial: Administrative, business and professional
offices ( including offices within a mixed- use complex)
 Three spaces for every 1,000 square feet
Commercial: Financial institutions  Four spaces for every 1,000 square feet
Commercial: Retail serving primarily local customers  Three spaces for every 1,000 square feet
Commercial: Retail serving primarily regional customers  Four spaces for every 1,000 square feet
Commercial: Multiple tenant structure  Four spaces for every 1,000 square feet
Commercial: Lodging: Hotels & motels  One space for each guest unit, plus two for a
manager’s unit and one- half space for each employee
Commercial: Eating/ drinking establishment18  One space for every 125 square feet
17 Donald Shoup, " The High Cost of Free Parking," American Planning Association ( March 2005)
18 For commercial uses, “ fronting on San Pablo Avenue with existing building coverage of at least fifty percent ( 50%),
the Planning Commission may waive a like percentage of the required off- street parking spaces for a commercial use if
the proposed commercial use will not in the Commission’s determination, significantly increase the demand for parking
over the previous use. If that part of the lot not covered by a building or structure is less than two thousand ( 2,000)
square feet, then, regardless of building coverage, the commission may waive all or a portion of the required off- street
parking spaces.” ( Emeryville Code: Commercial Use Types, Section 9- 4.55.5)
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Schools  One space for each classroom; plus one space for
every 35 square feet of non- fixed seating in the
auditorium
Libraries/ cultural facilities  One space for every 300 square feet
Industrial: All types, except those listed below  One space for every 1,000 square feet
Industrial: Warehouses/ storage facilities  One space for every 1,000 square, plus one space for
every 333 square feet of office or sales area
Industrial: Wholesaling/ distribution facilities  Three spaces for every 1,000 square feet of gross
floor area
Emeryville’s parking code identifies the potential for a reduction in parking requirements, based
on land use, proximity to public transit or public parking, availability of parking in nearby areas, or
potential shared parking arrangements. However, these are alluded to only as potential in a case-by-
case basis, rather than specific reductions automatically granted, and they do not account for
the many other factors that affect parking demand.
In- Lieu Fees
In- lieu fees offer one opportunity to increase revenue for the construction of new facilities and
direct the expansion of supply in a manner that meets the City’s long- term goals. An in- lieu fee
may be paid by a developer instead of providing on- site parking for the development project. The
City’s existing in- lieu fees are set at $ 7,300, which is similar to that of other neighboring cities in
the Bay Area. The program is undermined, however, by the issuance of many parking variances.
It is far less expensive and therefore more attractive to developers to obtain a variance than to
pay in- lieu fees. To date, a developer has yet to pay an in lieu fee for parking. The requirement
for parking or an in lieu fee is based on the assumption that more parking is needed and the only
question is where, rather than whether the added parking is needed at all. The fact that parking
variances have been granted leads to the question of whether parking requirements are too high
or too rigid. Variances have generally been granted when the use is changing in an existing
building, the business moving in has fewer employees than assumed in trip generation manuals,
and there is ample on- street parking.
Parking Supply vs. Availability
Currently, much of Emeryville’s existing parking supply exists in off- street parking facilities. Most
facilities operate under private ownership and are inaccessible to the general public. Moreover,
the few public facilities that do exist ( Amtrak and Glashaus) are located within the same area.
This spatial arrangement is problematic because it makes access for many patrons difficult.
Occupancy data collected for the North Hollis Parking Study found significant variation in
occupancy of off- street facilities, with some being significantly underutilized throughout much of
the day. Anecdotal information suggests that employees are not aware of parking availability
somewhat further from their place of work, or are concerned about personal safety walking the
further distance, especially after dark.
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Figure 5- 3 City Blocks in Emeryville
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Chapter 6. Existing Transit Services
Introduction
This chapter provides an overview of existing transit services in the City of Emeryville and the
surrounding area. A description of each service follows. Existing transit services are
summarized in Figure 6- 5 at the end of this chapter, on page 6- 10. A map of the transit services
in the City of Emeryville is provided as Figure 6- 6.
Although there is not a BART station in Emeryville, there is frequent local and regional bus
service, with service to six BART stations. Many Transbay buses go through Emeryville,
including the AC Transit’s only reverse commute line. Transit thus connects to the three largest
employment centers in the area— Downtown San Francisco, Downtown Oakland and
UC/ Downtown Berkeley, although these connections could be more direct between downtowns.
Almost every address in Emeryville is within ¼ mile of a bus stop, and improvements to
pedestrian connectivity could expand this level of access. Emery Go Round and AC Transit in
combination provide an unusually high level of local transit service, especially on weekdays. One
bus corridor runs 24 hours a day, seven days a week and another ( line 57) runs 20 hours a day.
Amtrak provides a direct connection to Sacramento and San Jose.
Public Fixed- Route Transit
Emery Go Round
The Emery Go Round is a free fixed- route shuttle service funded by commercial property owners
in Emeryville. The service is administered by the Emeryville Transportation Management
Association ( TMA), a non- profit organization whose purpose is to increase access and mobility to
and from Emeryville businesses. The TMA is funded through a property- based business
improvement district, with all commercial and industrial property owners in the City paying a fee to
the TMA to support services ( see Chapter 7 for more information about the Emeryville TMA).
The Emery Go Round ( EGR) is free to all passengers and provides service throughout
Emeryville, with stops at the Emeryville Amtrak Station, Bay Street Center, and major employers
such as Pixar and Novartis. The MacArthur BART Station in Oakland is a key transfer point for
connections to regional transit, with all EGR routes but one having a stop at this BART station.
The Emery Go Round routes are summarized in Figure 6- 1 on page 6- 3.
Weekday service runs from 5: 45 am to 10: 00 pm, Saturday service is provided from 9: 30 am to
9: 30 pm and Sunday service is available from 10: 30 am to 6: 00 pm. Headways range from 12
minutes during weekday peak hours to 45 minutes on weekends. Real time arrival information for
all routes is provided by NextBus. Riders can get arrival times either online or by calling a phone
number and entering a code for a particular bus stop.
The Emery Go Round has 12 buses in its fleet that have between 24 and 36 seats, and one van
with nine seats. The TMA owns seven of these buses and leases the other six. Labor for the
shuttle is provided through a contract with SFO Shuttle Bus Company. Maintenance is provided
through full operating leases and contract maintenance with Idealease and Penske Truck
Leasing. During the peak hour ten buses are in operation. Operating expenses in 2007 were
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$ 1.6 million, and the cost per passenger trip was $ 1.51. Operating revenue for 2008 ( as of
November) was $ 2.3 million, with operating expenses yet to be determined. 19
Ridership on the Emery Go Round has grown steadily since service began in 1997. Ridership in
2003 was 775,392, with an anticipated 1.3 million passenger trips in FY 2008. The largest
percent increase occurred between 2007 and 2008, with an 18% growth in ridership. In 2008,
through September, the shuttle has carried about 5,000 passengers a day, with an additional
1,000 passengers each Saturday and 500 each Sunday. Approximately 80% of all Emery Go
Round trips begin or end at MacArthur BART Station, supporting a significant increase in
patronage at the station and a shift in primary mode of access. 20
19 Emeryville Transportation Management Association, 2007 Annual Report; as well as communication with the
Executive Director in October and November 2008.
20 2005 BayCap BART Shuttle Rider Survey, Bay Area Air Quality Management District ( 2005).
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Figure 6- 1 Summary of Emery Go Round Routes
Route Days and Hours of Operation PeFarekq Huoeunrc y of MSeidr- vDicaey Key Stops
Mon- Fri: 7: 00 am - 7: 00 pm 12- 13 min. 15 min.
Sat: 9: 30 am - 9: 30 pm - 30- 40 min.
BART Shopper
Sun: 10: 30 am - 6: 00 pm - 40 min.
Bay Street
East Bay Bridge
Emeryville Public Market
MacArthur BART
Powell Street Plaza
Woodfin and Sheraton Hotels
City Shopper Mon - Sat: 10: 15 am - 5: 00 pm - 45 min. Bay Street Emeryville
Emeryville Amtrak
Hollis St and 40th St
Hollis St and 63rd St
Powell Street Plaza
San Pablo Ave and 45th St
Hollis South Mon - Fri: 7: 00 am - 7: 00 pm 12 min. 22 min. MacArthur BART
Emery Station
Novartis
Emeryville Amtrak
Pixar
Hollis North Mon - Fri 7: 00 am - 7: 00 pm 12 min. 22 min. MacArthur BART
Courtyards at 65th Apts.
Emery Station
Emeryville Amtrak
Glashaus
Heritage Square
Hollis Business Center
Hollis Street and 65th Street
National Holistic Institute
Watergate
Express
Mon - Fri 7: 00 am - 7: 00 pm 12 min. 20 min. MacArthur BART
Hilton Garden Inn
Watergate Office Towers
Watergate Residential Condominiums
Powell & Hollis
Mon - Fri Early morning and
evenings:
5: 47 am - 7: 00 am
7: 00 pm - 10: 00 pm
20- 40 min. Powell route travels to all destinations
along 40th St, Shellmound, Christie and
Powell west of Christie.
Hollis route travels to all destinations
along Park, Horton between 53rd and
59th, and Hollis.
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2006 and 2008 Passenger Surveys
The Emery Go Round conducted a survey of its passengers in 2006 and again in 2008, providing
insight into trip purpose and the frequency individuals use the service. A summary of the data is
provided in Figure 6- 2. Caution should be exercised when interpreting the data, because not all
passengers were surveyed when the shuttle is in operation. Data was collected over the course
of one week, sampling passengers at BART during one or two time periods each day. One
particularly interesting finding is the large percentage of riders going to work. During the peak
hours, a majority of passengers are going to or from work. Mid- day travel still carries a significant
percentage of commuters, but half of the passengers have other trip purposes including shopping
and school.
Most passengers who use the shuttle during the peak hours use it at least once a week, with
many using it daily. Mid- day travelers do not use it quite as frequently, but most still are frequent
passengers.
During the AM peak, in 2006, most passengers came from either San Francisco or Contra Costa
County ( 32% each). Depending on time of day, a significant number of passengers also live in
Oakland, Berkeley, El Cerrito and Richmond. The 2008 survey indicated changes in where most
passengers came from, with more passengers living closer to Emeryville than in 2006. It is also
worth noting, however, that the surveys were only conducted of passengers getting on the shuttle
at MacArthur BART Station in morning or mid- day. Passengers traveling the opposite direction
were not surveyed in 2006.
Additional information about rider satisfaction with the service is difficult to interpret, but the
surveys report that the vast majority of passengers find it easy to use, appreciate courteous
drivers and overall are very or extremely satisfied with the service.
Figure 6- 2 Summary – Emery Go Round Passenger Surveys
Destination
2006
Peak Hours Mid- Day 2008
Work 90% or more 51% 65%
Shopping Less than 1% 23% 12%
School 6% ( AM only) 15% 9%
Frequency of Use
Daily 53- 61% 41% 51%
Up to 4 times per week 27- 34% 33% 31%
Occasional n/ a n/ a 11%
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AC Transit
AC Transit is the public transit system providing fixed route bus service throughout western
Alameda and Contra Costa Counties, and Transbay service to downtown San Francisco. Some
level of service is available 24 hours a day seven days a week, ranging from eight minutes to one
hour. Annual ridership in FY 2007 was about 67 million passengers.
AC Transit Routes serving Emeryville
Five of AC Transit’s local bus routes run through Emeryville, connecting the City to Oakland,
Berkeley, Alameda and Richmond. A bus connects Shellmound and 40th Streets to downtown
Berkeley via Market Street one block east of Adeline Street. In addition, four AC Transit
Transbay routes connect Emeryville to San Francisco. There are 56 trips per weekday between
Emeryville and San Francisco. Key transfer points within Emeryville include the Amtrak station,
and the intersection of 40th Street and San Pablo Avenue. The nine AC Transit routes that
directly serve Emeryville are summarized in Figure 6- 3 on the following page. Detailed
descriptions are provided in Appendix B. Transbay lines cross the San Francisco – Oakland
Bay Bridge, the San Mateo Bridge, or the Dumbarton Bridge connecting the East Bay with San
Francisco, San Mateo, and Palo Alto, respectively. There are several Transbay routes that pass
through on the I- 80 or I- 580 freeways but do not stop in Emeryville, including lines B, G, H, L., P
and V. These lines originate in nearby cities, such as Piedmont, El Cerrito, and Berkeley, and
take the I- 80 to the Transbay Terminal in San Francisco.
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Figure 6- 3 Summary of AC Transit Bus Routes serving Emeryville
Line Service Area Key Connections / Destinations Service Hours Headways Key Emeryville Stops
Local Service
72R
San Pablo Ave
72 / 72M
San Pablo Ave
Oakland
Emeryville
Berkeley
El Cerrito
Richmond
12th, 19th St BART Stations, Jack London Sq
40th St, Powell/ Stanford
Ashby Ave, University Ave, Marin ( Albany)
El Cerrito, El Cerrito Del Norte BART
Richmond BART
72R
Mon- Fri: 6: 00 am - 8: 00 pm
72 / 72M21
Sun- Sat: 5: 00 am - 1: 00 am
Peak & Off- Peak:
72R 12 min
72 / 72M 15 min
combined
40th St.
Powell/ Stanford
Alcatraz Ave
57
Shellmound, 40th St,
Christie
Emeryville Public Market, Amtrak, Bay St Shopping Center Mon- Fri: 5: 00 am - 1: 00 am
Sat- Sun: 6: 00 am - 12: 30 am
12 minutes
( 30 min after 9 pm)
Emeryville City Hall
Oakland MacArthur BART, 40th St at San Pablo,
Piedmont and Broadway, Grand Ave
19
Hollis Street
Alameda
Oakland
Emeryville
Berkeley
Buena Vista Ave, College of Alameda
12th St, West Oakland & Fruitvale BART
40th St, Powell St, Emeryville Amtrak
University Ave, 4th St, N Berkeley BART
Mon- Fri: 6: 00 am - 10: 30 pm
Sat- Sun: 6: 00 am - 10: 30 pm
30 min Hollis St & 40th St, 45th & Powell
14
40th Street
Emeryville
Oakland
San Pablo Ave at 40th
MacArthur BART Station
Mon- Fri: 5: 00 am - 8: 30 pm
Sat- Sun: 7: 30 am - 9: 00 pm
Peak: 15 min
Off- Peak: 30 min
40th St from MacArthur to Hollis
Transbay Service to San Francisco
C
40th St, Shellmound,
Powell, I- 80
San Francisco,
Emeryville,
Oakland, Piedmont
Transbay Terminal in San Francisco for Muni,
SamTrans, Golden Gate Transit services
Mon- Fri:
6: 00 am - 9: 00 am ( to SF)
3: 00 pm - 8: 30 pm ( from SF)
30 min 40th St & San Pablo, 40th & Hollis,
Powell Plaza, MacArthur BART
F
40th St, Shellmound,
Powell, I- 80
Berkeley, Oakland,
Emeryville, San
Francisco
Transbay Terminal in San Francisco for Muni,
SamTrans, Golden Gate Transit services,
Ashby BART
Mon- Fri: 5: 00 am - 1: 00 am
Sat- Sun: 6: 00 am - 1: 00 am
30 min 40th & San Pablo, 40th & Hollis St and
Shellmound & Bay St ( westbound)
J
40th St, Shellmound,
Powell, I- 80
Berkeley,
Emeryville, San
Francisco
Transbay Terminal in San Francisco for Muni,
SamTrans, Golden Gate Transit services
Mon- Fri:
6: 00 am- 9: 00 am ( to SF)
4: 00 pm- 8: 00 pm ( from SF)
20 min 40th St & Hollis, Powell Plaza, 65th St &
Hollis
Z
Christie, 65th, Hollis
San Francisco,
Emeryville,
Berkeley, Albany
Weekday Reverse Commute: Transbay
Terminal for Muni, SamTrans, Golden Gate
Transit
Eastbound: 7: 00 am- 9: 00 am,
Westbound: 4: 30 pm- 7: 00 pm
25- 40 min
( Peak to Off- Peak)
Emeryville Public Market ( 64th & Christie),
65th St. and Hollis St.
21 Line 802 runs 1: 00 am - 5: 00 am along San Pablo Ave from 14th St and Broadway in Oakland, through Emeryville, to Third St and University Ave in Berkeley.
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Fares
The local cash fare on AC Transit is $ 1.75, and a transfer can be purchased for $ 0.25. A
discount fare of $ 0.85 is provided for youth ( 5- 17), seniors ( 65+), and people with disabilities. AC
Transit offers a 10- ride ticket, as a convenience though without a discount compared to cash
fares. A 31- day rolling pass provides unlimited rides and is available for $ 70.00. Youth can get a
31- day rolling pass for $ 15.00, and a similar pass is available for seniors for $ 20.00.
The adult cash fare for a Transbay ticket is $ 3.50, with a 50% discount available for youth,
seniors, and people with disabilities ($ 1.70). A 10- ride ticket is available for $ 35.00, with no
discounts available. A 31- day rolling pass is also available for $ 116.00, with no discounted
passes available. Transfers from Transbay buses to local buses are free. With a transfer ticket
obtained inside a BART station, the local AC Transit adult cash fare is $ 1.50 ($ 0.25 discount) and
$ 0.65 for youth, seniors, and people with disabilities. Figure 6- 4 summarizes fares on AC Transit.
AC Transit recently began offering an annual transit pass at a steep discount if purchased in bulk
quantities by a sponsoring organization such as an employer, school, housing complex,
government agency, etc. The cost per annual pass ranges from $ 36 to $ 101, depending on the
number of passes purchased by the organization and the level of service AC Transit provides the
recipients. Please refer to Chapter 3 and Appendix B of this report for additional information.
Figure 6- 4 Fares on AC Transit
Cash 10- Ride Ticket 31- Day Ticket
Local Service to all locations in East Bay
Adult ( 18- 64) $ 1.75 $ 17.50 $ 70.00
Youth ( 5- 17) $ 0.85 $ 8.50 $ 15.00
Senior ( 65+) & Disabled $ 0.85 $ 8.50 $ 20.00 calendar- month sticker
for RTC discount card
Transbay Service to Downtown San Francisco
Adult ( 18- 64) $ 3.50 $ 35.00 $ 116.00
Youth ( 5- 17) $ 1.70 Not Offered Not Offered
Senior ( 65+) & Disabled $ 1.70 Not Offered Not Offered
Transfers*
Local Bus- to- Bus $ 0.25 $ 0.25 $ 0.25
Local BART- to- Bus
( with transfer issued at
BART)
Add $ 1.50 Add $ 0.65 Add $ 0.65
Transbay- to- Local
Bus- to- Bus**
Free Free Free
* All transfers are issued at the time a fare is paid. Good for one use and 1 ½ hours.
** Also good for local- to- Transbay transfers with payment of Transbay fare on the first bus.
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BART
Bay Area Rapid Transit ( BART) is a regional rail service that spans Alameda, Contra Costa, San
Francisco, and San Mateo Counties. In the East Bay, BART service extends south to Fremont,
southeast to Dublin/ Pleasanton, northeast to Pittsburg/ Bay Point and north to Richmond. BART
also runs to San Francisco and then south to Millbrae and San Francisco International Airport.
BART has five lines, with three running through MacArthur station and four running through West
Oakland. All five lines are summarized in Appendix B. The only stations requiring a transfer
from MacArthur BART are Castro Valley and Dublin/ Pleasanton. One- seat service is available
from West Oakland BART to all stations. The West Oakland BART station has more frequent
service to San Francisco than the MacArthur BART station, because more lines go through the
West Oakland station. In FY 2007 the annual ridership for BART was over 100 million
passengers. MacArthur BART has about 7,000 weekday boardings and West Oakland has about
5,000 weekday boardings.
On weekdays BART trains run from 4: 00 am to 12: 00 am. Weekend service begins between 6: 00
am and 8: 00 am and runs through 12: 00 am. Headways range from 5 to 20 minutes. While there
are no BART stations in Emeryville, MacArthur and West Oakland stations are nearby.
MacArthur Station is 0.70 mile east of Adeline Street ( the eastern border of Emeryville) along 40th
Street, and West Oakland BART is two miles south of Emeryville along Mandela Parkway.
MacArthur Station has connections to Emeryville via both AC Transit and the Emery Go Round.
The AC Transit Line 57 and Line 14 buses both provide service between Emeryville and
MacArthur BART Station, with peak service having headways of 12 and 15 minutes. All Emery
Go Round routes except the City Shopper serve MacArthur BART, with most having 12 minute
peak hour headways. In 2006 intercept survey found that 39% percent of BART patrons entering
or exiting at MacArthur Station used transit to access the station, with about half of those patrons
using the Emery Go Round. 22
Comparatively, there are few transit connections between Emeryville and the West Oakland
BART station. Only the AC Transit Line 19 travels there from Emeryville, with 30 minute
headways from 6: 00 am to 10: 30 pm seven days a week.
BART fares are distance- based with one- way fares out of MacArthur ranging from $ 1.40 to $ 7.65.
Transfer coupons can be obtained at BART stations providing a $ 0.25 discount on AC Transit.
Amtrak
Amtrak is a nationwide passenger rail service. In FY 2007 annual ridership for Amtrak was 25.8
million passengers. The Amtrak station in Emeryville serves nationwide and California- based
routes. California routes include the Zephyr, Coast Starlight, San Joaquin, and Capitol Corridor.
The Capitol Corridor, running from Sacramento to San Jose, has the third highest ridership of all
lines in the Amtrak system. Since August 28, 2006, the Capitol Corridor route has run 32 trains
per day ( 16 in each direction) on weekdays, reflecting a substantial increase over the prior
service frequency. Ridership on the Capitol Corridor trains tripled between 1998 and 2005.
Emeryville is the 5th most trafficked Amtrak station in California, with more than 482,777
22 Draft MacArthur BART Access Feasibility Study, March 2008 ( available online at
http:// www. bart. gov/ docs/ planning/ MacArthur_ BART_ Access_ Feasibility_ Study. pdf)
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passengers for FY 2007.23 Most passengers at Emeryville originate from San Francisco, taking
an Amtrak bus to or from the city.
Fares vary based on distance and date purchased. Fares out of the Emeryville station can range
from $ 7.50 to $ 300 for a one- way ticket. The typical cost for a patron traveling between
Emeryville and Sacramento is $ 23.00 for a one- way ticket. Monthly passes and discounted trip
tickets are available. Routes passing through the Emeryville station vary from one train per day
up to 16 trains per day, arriving as early as 4: 40 am and departing as late as 10: 50 pm.
Emeryville is the transfer point for passengers going to San Francisco. Amtrak buses transport
passengers between San Francisco and Emeryville. Passengers must be connecting to or from
an Amtrak train in order to use the Amtrak bus. Tickets for just the bus portion between
Emeryville and San Francisco are not available.
The Emeryville station is one of three links between the Capital Corridor trains and BART; the
other two are at Richmond and San Jose.
Shuttle Services
Senior Shuttle
A new Senior Shuttle service will commence in December 2008, funded by a LIFT grant from the
Alameda County Transportation Improvement Authority ( ACTIA). This pilot service will provide
group trips for seniors and disabled persons traveling within the cities of Albany, Berkeley,
Emeryville, Oakland and Alameda. Funding for this service is through ACTIA's Paratransit
Measure B Gap Grant Funds.
The Senior Shuttle will operate 6.5 hours a day five days a week, with specific service hours
based on customer demand. Customers will be approved by the Senior Centers, and will use a
cell- based phone service allowing them to request service as late as 4: 00 pm the day prior. This
service will also have standing orders ( subscriptions) for certain types of trips ( weekly minimums
required) with common destinations such as the Senior Center, grocery shopping and religious
services. Funding is for one van for an 18- month period. The van can carry four passengers at a
time or three with one wheelchair.
Medical Shuttles
Kaiser and Alta Bates operate two shuttles between the MacArthur BART Station and Kaiser
Hospital in Oakland and the Alta Bates Summit Medical Center – Summit Campus in Oakland.
However, neither shuttle serves Emeryville.
ADA Paratransit Services
East Bay Paratransit
East Bay Paratransit is a demand- response service for people who are unable to use AC Transit
buses or BART trains because of a disability. East Bay Paratransit is sponsored by AC Transit
and BART to meet the requirements of the Americans with Disabilities Act ( ADA). Service is
23 Amtrak Fact Sheet, Fiscal Year 2007. State of California.
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ADA Paratransit Services
East Bay Paratransit
East Bay Paratransit is a demand- response service for people who are unable to use AC Transit
buses or BART trains because of a disability. East Bay Paratransit is sponsored by AC Transit
and BART to meet the requirements of the Americans with Disabilities Act ( ADA). Service is
available within a 1 ½ mile corridor of all AC Transit routes in the East Bay, as well as to San
Francisco. Sedans and wheelchair accessible vans are used to provide shared- ride service from
a passenger’s origin to their destination. Service is available during the hours when AC Transit
buses or BART trains are running in each particular area. Fares are distance- based and range
from $ 3.00 to $ 7.00 per one- way trip. Passengers must be certified as eligible for paratransit
under the rules of the ADA before using the service.
Private Taxi Service
Numerous taxi services operate in Emeryville. Several are located within Emeryville, and many
are located in nearby cities such as Oakland and Berkeley. Taxi services operate 24 hours a
day, seven days a week. Fares are based on distance traveled. Many taxi services specialize in
airport service, transporting passengers to the Oakland International Airport, the San Francisco
International Airport, and even as far as the San Jose International Airport.
Four taxi companies participate in a free taxi voucher program, providing services to disabled and
senior residents of Emeryville. The participating taxi companies are: Yellow Cab of the East Bay,
Friendly Cab Company, Metro Yellow Taxi Cab, and Veterans Cab Company. Emeryville’s taxi
voucher program is open to all Emeryville residents over age 18 who are ADA certified. Program
participants receive a certain number of vouchers per year, based on their transportation needs.
Each voucher is worth $ 5, and most rides require more than one voucher. Wheelchair accessible
van taxis are available to those who need them, but must be requested at least 24 hours in
advance.
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Access to Transit
Transportation analysts universally agree that when it comes to the traveler’s experience, “ the
last mile is the longest mile.” This creed especially rings true for travel by mass transit, where
every transit trip begins and ends with a different mode – from the origin of the trip to a transit
stop and from another transit stop to the destination.
Trips to and from transit are most commonly made as a pedestrian for at least one leg of the trip.
Bicycles are also commonly used, or desirable, because of their low cost, health and recreation
benefits, and the increased distance one can travel to and/ or from a transit stop. The experience
of these connecting trips can have a fundamental impact on whether an individual uses transit to
make that trip, or makes the trip at all. Important factors include distance, safety ( and perception
of safety), comfort levels, and the presence of a clear path of travel. For individuals without
access to a vehicle, transit may be their only option for longer- distance trips. For persons with a
disability affecting their mobility, certain barriers may make it extremely unsafe or uncomfortable,
or even physically impossible, for them to access fixed route transit.
The quality of connections has a strong influence on one’s decision whether or not to use transit.
If people have other options, such as access to a private automobile, then their tolerance for
negative factors such as no sidewalks or lack of connectivity to a bus stop will be especially low
and may discourage transit use. Investment in a safe, comfortable, convenient environment for
pedestrians and bicyclists, along with the provision of key amenities, can achieve significant
reductions in dependence on automobile travel. Moudon, et al ( 1996) 24 found that walking is
three times more common in a community with pedestrian friendly streets than in otherwise
comparable communities that are less conducive to foot travel. According to Cervero and
Radisch ( 1995) residents in a pedestrian friendly community walk, bicycle, or ride transit for 49%
of work trips and 15% of their non- work trips, compared to 31% and 4% for residents of a similar
automobile oriented community. 25
The focus of this section is on pedestrian and bicycle environments and their influence on transit
usage. It begins with an overview of the key factors affecting access to transit, and is followed by
an analysis of the impact the pedestrian and bicycle realms have on one’s decision to use public
transit.
Factors Affecting Access to Transit
A variety of factors impact the ability and choice to use transit, including the distance and time to
make the trip, the condition of sidewalk or bicycle path for accessing transit, traffic volumes and
speeds, and one’s ability to navigate within the surrounding environment. For bicyclists, the
presence of secure parking and/ or the ability to bring a bicycle on the transit vehicle are
important. People will want to know that they are physically safe, especially if it is after dark
and/ or they are alone. The provision of shelter from sun, wind, and precipitation both at the
transit stop and along the way are important considerations.
The perception of time, distance and safety is also highly relevant, causing variations in the
distance someone is willing to walk from a block or two, if at all, to more than a half mile
24 Moudon, et al. ( 2003) Effects of Site Design on Pedestrian Travel in Mixed Use, Medium- Density Environments,
Washington State Transportation Center, Document WA- RD 432.1.
25 Cervero, R. & Radisch, C ( 1995) Travel Choices in Pedestrian Versus Automobile Oriented Neighborhoods, UC
Transportation Center, UCTC 281.
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( approximately a ten minute walk). These perceptions are influenced by comfort levels, familiarity
with the path of travel and surrounding area, and knowledge of how long until the next transit
vehicle arrives. Physical barriers can be a critical factor, especially for individuals with disabilities
limiting their mobility.
These considerations will be critical in the development of strategies to encourage the use of
transit.
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Figure 6- 5 Summary of Existing Transit Services
Service Provider Service Area
System Service
Hours Frequency
Key Transfer
Points Annual Ridership Fare Structure Transfer Policy
Emery Go Round
Fixed Route Bus Transit
City of Emeryville
MacArthur BART
Station
Weekdays: 5: 45am-
10: 00pm, Saturdays:
9: 30am- 10: 00pm,
Sundays: 10: 00am-
7: 00pm
10 min ( weekday
peak) to 45 min
( weekends)
MacArthur BART,
Amtrak Station, 65th
St and Hollis St
1.1 million ( 1) Free No transfer discounts
between systems
AC Transit
Fixed Route Bus Transit
Western Alameda
and Contra Costa
Counties
Transbay service
to downtown San
Francisco
24 hours per day Varies by time and
route, from 8 minutes
to 1 hour
40th St. and San
Pablo Ave,
MacArthur BART
67 million ( 2) Local fare: $ 1.75
Transbay: $ 3.50
31- day pass
available.
Youth, seniors,
disabled: 50%
discount or more
( most fare types)
Local bus to bus
transfer: $ 0.25
BART
Regional Rail
Alameda
Contra Costa
San Francisco
San Mateo Counties
Weekday: 4am-
12am, Saturday:
6am- 12am, Sunday:
8am- 12am
Varies from 5 to 20
minutes
MacArthur BART,
West Oakland BART
92.8 million ( 3) Distance based:
$ 1.40-$ 7.65, no
passes available.
$ 0.25 discount to or
from BART to AC
Transit
Amtrak
Heavy Rail
Nationwide 4: 40am - 10: 50pm
( Emeryville station)
Routes going through
Emeryville range
from 2 trains per day
to 32 trains per day
Emeryville
Amtrak Station
25.8 million ( 4) Varies based on
distance and
advance purchase:
$ 7.50-$ 300
Must have valid
Amtrak ticket to use
Amtrak bus between
Emeryville and San
Francisco
East Bay Paratransit
Demand Response
Alameda and Contra
Costa Counties
During hours of AC
Transit and BART
service in the area
On demand To travel beyond the
service area,
passengers may
transfer to other
paratransit services
688,443 ( 5) Distance based: $ 3-
$ 7
No transfer discounts
between services
( 1) 2007 ( 2) FY2006 ( 3) FY2005 ( 4) FY2007 ( 5) FY2006
Z
Z
Z
Z
Z
Z
Z
EB I80
WB I80
HOLLIS ST
40TH ST
MARKET ST
SAN PABLO AV
WB S24
WEST ST
EB S24
AILEEN ST
POWELL ST
WB I580
HORTON ST
EB I580
STANFORD AV
57TH ST
43RD ST
SHELLMOUND STSHELLMOUND ST
56TH ST
ALCATRAZ AV
42ND ST
45TH ST
EB I580 CONN
65TH ST
PARK AV
GENOA ST
37TH ST
44TH ST
46TH ST
41ST ST
67TH ST
66TH ST
47TH ST
HARMON ST
64TH ST
APGAR ST
FAIRVIEW ST
34TH ST
VALLEJO ST
CHRISTIE AV
59TH ST
KING ST
WB I580 CONN
W MACARTHUR BLVD
60TH ST
55TH ST
MARSHALL ST
FRONTAGE RD
58TH ST
54TH ST
DOYLE ST
FOLGER AV
39TH ST
35TH ST
52ND ST
36TH ST
BAKER ST
53RD ST
WB 52ND ONRP ST
FREMONT ST
OCEAN AV
SB I880 CONN
LOWELL
WOOLSEY ST
LOWELL ST
ASHBY AV
MARTIN LUTHER KING JR WY
LUSK ST
BEAUDRY ST
GASKILL ST
NB I880 CONN
EMERY ST
CALIFORNIA ST
HERZOG ST
SB POWELL ONRP ST
ELLIS ST
WATTS ST
IDAHO ST
62ND ST
PERALTA ST
BAY ST
WB S24 CONN
HOLDEN ST
HASKELL ST
63RD ST
48TH ST
61ST ST
WOOD ST
WB W GRAND OFFRP AV
MACCALL ST
ADELINE ST
PEABODY LN
VA PRFFO YBHSA BN
PELADEAU ST
MANDELA PKWY
SACRAMENTO ST
WB I80 CONN
HALLECK ST
EB W GRAND ONRP AV
MABEL ST
POIRIER ST
NB POWELL OFFRP ST
HUBBARD ST
TOLL PLAZA
NB POWELL ONRP ST
POTTER ST
61ST PL
YERBA BUENA AV
ESSEX ST
7TH ST
MAGNOLIA ST
SB ASHBY OFFRP AV
SALEM ST
LINDEN ST
HAVEN ST
51ST ST
GRACE AV
ACTON ST
BOISE ST
ACCESS
SHERWIN ST
DOYLE
HELEN ST
NB ASHBY ONRP AV
OVERLAND AV
BEACH ST
ETTIE ST
HARLAN ST
TREMONT ST
WHITNEY ST
DOVER ST
EB MACARTHUR OFFRP BL
TS LATNEDICCO
ADMIRAL DR
BOYER ST
TEMESCAL CIR
SHELLMOUND WY
CAPTAIN DR
MACARTHUR BLVD
64TH ST
WATTS ST
LOWELL
60TH ST
DOYLE ST
45TH ST
BAY ST
62ND ST
65TH ST
45TH ST
HAVEN ST
DOVER ST
62ND ST
HERZOG ST
63RD ST
FRONTAGE RD
37TH ST
63RD ST
39TH ST
56TH ST
63RD ST
62ND ST
53RD ST
DOVER ST
61ST ST 61ST ST
LINDEN ST
59TH ST
65TH ST
59TH ST
WHITNEY ST
54TH ST
57TH ST
67TH ST
61ST ST
66TH ST
55TH ST
HERZOG ST
41ST ST
ESSEX ST
47TH ST
VALLEJO ST
60TH ST
55TH ST
62ND ST
54TH ST
53RD ST
61ST ST
POTTER ST
ACCESS
NHI
IKEA
Novartis
City
Hall
Emery Tech
Heritage
Square
Powell St.
Plaza
Long’s
Drug Store
Hilton
Garden Inn
Hollis St.
Complex
ExPression
College
Woodfin Suites Hotel
Sheraton
Four Points
Courtyard
Apartments
Courtyard
by Marriott
Watergate
Condominiums
Hollis Business
Center
East Bay
Bridge Center
Pixar
Animation
Studios
Emeryville Public Market
Emeryville
Business
Center
1500 Park
Pacific Park Plaza
Emery Station East
Glashaus
Condominiums
Bridge Court
Apartments
Avenue 64
Condominiums
Watergate
Office
Towers
Bridgewater
Condominiums
The Terraces at Emery Station
Bay Street Shopping Center
& AMC Theater
MAC ARTHUR BART
Emeryville
Amtrak
SHELLMOUND ST
88
C
19
72
57
14
Z F
J
802
72
M
72
R
CB
Z
C
F
J
CB
14
57
E
19
C J F
14 19
CB
F
C
14
19
Z
J
SAN PABLO AV
HOLLIS ST
18
MARTIN LUTHER KING JR. WAY
Public Transit &
Car Share Services
Powell
BART Shopper
Hollis
Hollis North
Hollis South
Watergate
Express
Key Destinations
Zipcar Locations
BART
Amtrak
Z
City Carshare Locations
Emery- Go- Round
AC Transit Routes
AC Transit
72
EMERYVILLE
Transportation Action Plan
GIS Data Sources: ESRI, AC Transit,
NextBus, Dyett & Bhatia
0 0.25
Miles
Figure 6- 6 Map of Transit Services
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Chapter 7. Transportation Demand
Management
There are several programs and services available in Emeryville that are designed to manage
transportation demand by providing alternatives to the single occupant automobile. This chapter
reviews these programs – their background and objectives, a description of the services provided,
and their funding sources and costs. The specific services reviewed are:
 The Emeryville Transportation Management Association ( TMA), which funds and
administers the Emery Go Round and several other services
 The AC Transit EasyPass program, offering annual passes allowing unlimited rides on all
AC Transit bus routes at a discount when purchased in bulk quantities
 Zipcar carsharing service
 NextBus – a service providing estimated time of arrival for the next bus along a particular
route of the Emery Go Round.
 Casual carpool
 511 program of MTC, providing Information about transportation conditions and services
throughout the Bay Area via the telephone and online.
Emeryville TMA
Formed in 1997, the Emeryville Transportation Management Association ( TMA) is a non- profit
organization “ whose primary purpose is to increase access and mobility to, from and within
Emeryville while alleviating congestion through operation of the Emery Go Round shuttle
program.” 26
The Emeryville TMA began as a two year demonstration project, funded by a Congestion
Mitigation and Air Quality ( CMAQ) grant. In 2000, the TMA began to be funded through a
citywide Property- based Business Improvement District ( PBID), which was renewed in 2006.
Fees are assessed on all commercial and industrial property ( including rental apartments), based
on total square footage and use. Property owners pay the assessment through their property tax
bills twice a year. The County of Alameda transfers the funds to the City, which in turn, transfers
funds to the TMA. Rates may be adjusted a maximum of 5% annually by the TMA Board of
Directors and subject to final approval by the City Council, on a calendar year basis. Rates as of
November 2008 are as follows:
 Commercial/ Retail Use $ 0.21 per square foot per year
 Industrial Use $ 0.105 per square foot per year
 Residential ( For Rent) $ 105.00 per unit per year
For- sale residential units are not subject to the PBID; however, several new properties are
mandated to participate in the TMA through their Conditions of Approval for their Conditional Use
Permits and pay equivalent rates.
26 http:// www. emerygoround. com, accessed on November 11, 2008
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The TMA is governed by a seven member Board of Directors, comprised of the seven largest
commercial property owners in the City, one at- large property owner, one representative from the
Chamber of Commerce, and one residential representative. The at- large and residential members
are elected by the membership. The City of Emeryville has an ex- officio ( non- voting)
representative on the Board. The Board determines the tax rates for the PBID as well as makes
decisions about the Emery Go Round and other services of the TMA.
Programs and Services of the TMA
In addition to ongoing coordination with local governments and regional planning and transit
agencies, the Emeryville TMA administers and funds the following programs and services:
Emery Go Round
The primary service of the TMA is the Emery Go Round, a private, publicly- accessible and free
fixed- route shuttle service that has been in operation since about 1996. It began with two routes
running during peak commute hours, and has subsequently added midday- weekday and
Saturday service. Ridership on the Emery Go Round has grown steadily over time, with 1.3
million passenger trips estimated in 2008.27
Please see Chapter 6 for a complete description of the Emery Go Round service.
Guaranteed Ride Home
The Guaranteed Ride Home program ( GRH) provides commuters who regularly vanpool, carpool,
bike, walk, or take transit with a reliable ride home when one of life’s unexpected emergencies
arises. A common reason given by commuters for driving alone to work is that a vehicle is
needed in case of an emergency. The GRH program allows commuters to take an alternative
form of transportation to work but gives them the peace of mind that if an unexpected
circumstance arises, they will have a reliable transportation option available.
Once an employer is enrolled in the program, its employees may individually enroll. Each enrolled
employee receives a voucher good for either a free car rental or a free taxi ride. The employee
may use the voucher on any day that they do not drive to work and have an emergency. After the
voucher is used, the employee returns a copy of the voucher and a completed questionnaire in
order to receive a subsequent voucher. A program participant may receive up to six vouchers per
year.
The GRH program is free for both employers and employees. The program is funded through a
Transportation Funds for Clean Air ( TFCA) grant through the Bay Area Quality Management
District ( BAAQMD). The Alameda County Congestion Management Agency ( ACCMA)
administers the program in Alameda County, which includes the City of Emeryville. The GRH
program has been operating in Alameda County for eleven years.
In 2008 GRH formed an informal partnership with the Emeryville TMA in order to initiate a pilot
program. There is no cost to the TMA. Typically, businesses located within Alameda County
must have 75 or more employees in order to register for the GRH program. However, through the
pilot program in Emeryville, this requirement is waived, so that any business located within the
boundaries of the City of Emeryville may register for the program. The pilot program will be
evaluated in April 2009.
27 Data provided by the Emeryville Transportation Management Association on November 11, 2008.
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Although the GRH program operates in seven of the nine Bay Area counties, a common issue is
low program membership. This is typically due to limited marketing efforts. The pilot program in
Emeryville is a great solution to this problem by partnering with a local entity in order to spread
the word about the program and encourage membership. The Emeryville TMA’s GRH unit is one
of the fastest growing units of the GRH program.
Senior Shuttle
As noted in Chapter 5, a new Senior Shuttle Service will commence in early 2009 with funding
from a LIFT grant from the Alameda County Transportation Improvement Authority ( ACTIA). This
pilot service will provide group non- medical trip transportation for seniors and disabled persons in
the cities of Albany, Berkeley, Emeryville, Oakland and Alameda.
Please see Chapter 6 – Existing Transit Services for additional information about the shuttle
service.
AC Transit EasyPass
In the fourth quarter of 2008, AC Transit initiated a program offering annual passes at a bulk
discount, good on all local and Transbay routes ( see Chapter 6 – Existing Transit Services for
more information about AC Transit). The passes are available to aggregate organizations that
purchase 100 or more passes for their employees, residents, students, etc. As of November
2008, one multi- unit residential compl