Circulation and Transit Element Table of Contents

LIST OF FIGURES

LIST OF TABLES

1.0 INTRODUCTION

1.1 PURPOSE

The Circulation Element must address the location and extent of existing and planned transportation routes and facilities. It is correlated with the land use element to assure that the transportation system serves future travel demand and helps attain the desired land use plan.

Current traffic congestion in Sonoma County has resulted from a combination of factors. Growth in employment and population has increased the number of people using the County's transportation system, particularly its roadways. Changes in transportation patterns have occurred in response to changes in fuel and vehicle costs, congestion, commuting patterns and recreational use. Most importantly, the public continues to prefer the automobile as the primary means of travel.

While the demand for mobility has increased, money for road and transit system improvements has dwindled. In addition, construction of improvements is often opposed by area residents due to environmental concerns, a desire for neighborhood preservation, or the fear that increased roadway capacity will spur unwanted growth and more congestion in the long run.

The transportation system outlined in this Circulation Element recognizes the likely limitations of funding as well as the growth inducing potential of excessive capacity in areas not planned for growth. However, the County must be aggressive in obtaining revenue for needed improvements. To do less, even without the growth in the unincorporated area allowed in the general plan, will further strain county and city road capacities and reduce the mobility and quality of life expected in Sonoma County.

The Circulation and Transit Element includes a plan for future transportation facilities that will 1) help accomplish the planned pattern of future land uses, 2) not be growth inducing, 3) serve the needs of all population groups and enable transport of goods and materials, and 4) contribute to environmental quality and achieve environmental goals. Major considerations in the plan policies are the efficient use of existing facilities and the high cost of improvements.

1.2 RELATIONSHIP TO OTHER ELEMENTS

This element and its implementing measures are coordinated with the land use element in the following manner:

Other elements also address transportation facilities. The Air Transportation Element contains policies regarding air transportation services. Bikeways are addressed primarily in the Open Space Element. Projected noise contours for highway sources are included in the Noise Element. Air quality policies in the Resource Conservation Element take into account the projected traffic volumes and conditions on area highways.

1.3 SCOPE AND ORGANIZATION

The element contains seven sections: 1) a summary of existing and projected future traffic conditions, problems, and needs, 2) general goals and policies for the transportation system. Goals, objectives and policies for: 3) highways, 4) transit services, 5) Transportation System Management (TSM), 6) planned transportation improve-ments in each of the nine planning areas, and 7) an implementation program.

2.0 EXISTING AND PROJECTED FUTURE TRANSPORTATION NEEDS

2.1 TRANSPORTATION SYSTEM CONDITIONS IN 1984

In 1984 components of the countywide transportation system consisted of several federal and state highways, including two freeways; numerous county routes, rural and urban highways, several local and regional transit systems, paratransit services, and rail freight service. Travel within the county is affected by residential and work locations and by regional activity centers. Travel patterns are also influenced by work trips to Marin County and downtown San Francisco. The private automobile is the primary means of travel. Transit serves the commute to San Francisco and Marin but is otherwise limited primarily to people without access to automobiles, the elderly, students, and the physically handicapped.

2.1.1 Existing Transportation Network: 1984

As of 1984 there were approximately 2,375 miles of roads in Sonoma County. Some of these roads serve predominantly local traffic. These include many city-maintained streets and roads and a number of county-maintained roads. Roads serving the County as a whole and serving subareas of the County include six state and federal highways, numerous county-maintained roads, and several important city-maintained roads. These roadways are components of the countywide highway system and are the subject of this plan.

The Countywide Highway System: The County's highway system is linked to Marin and the San Francisco Bay Area by U.S. Highway 101 (Figure CT-1 on page 281). This route is heavily used by commuters during peak travel periods. Highways 12/121 and 37 connect Sonoma County and Napa. Highway 12/121 is heavily congested at commute periods and on weekends due to tourism and recreational travel. Highway 101 north of Cloverdale, the primary route to Mendocino County, is also congested on weekends from recreational travel. In addition to the above routes, Sonoma County's highway network includes several other state highways; Highways 116, 128 and 1. It also includes numerous county roads, as well as some streets within cities. Outside of urban areas, most of these roadways are two-lane rural roads.

Several roads could be developed as alternative routes for inter-county travel during peak periods on Highway 101. These parallel arterials are Stony Point Road and Fulton Road to the west and Petaluma Hill Road and Adobe Road to the east.

Transit Network: In 1986, eight transit operators provide fixed-route transit services within Sonoma County. Golden Gate Transit connects the Santa Rosa, Sebastopol, Rohnert Park, Cotati, and Petaluma areas with Marin and San Francisco. Mendocino County Transit Authority connects the Mendocino and Sonoma Coast to Santa Rosa via Bodega Bay and Sebastopol. Sonoma County Transit provides intercity travel within Sonoma County. Local fixed-route bus service is provided by municipal or county transit systems in the cities.

The share of trips made by transit as of 1984 was low, about one percent countywide, but accounted for over 35 percent of the commute trips to San Francisco.

2.1.2 Travel Demand in 1984

Using computer modelling, those trips made on the countywide highway system were evaluated in terms of travel demand; the number of person trips made on an average weekday and during the weekday A.M. peak period. These do not include local trips, those entirely within the same Traffic Analysis Zone (TAZ), or trips made on roadways which are not part of the countywide highway system.

The total number of person trips estimated for an average weekday on the countywide highway system was 1,394,700 during 1984. About 17 percent of these trips (239,100) were home based work trips. Another 60 percent (850,400) were home based trips made for other purposes such as school and shopping. The remaining 22 percent were between locations not involving the traveler's home.

Weekday peak period congestion is primarily caused by commuting. Just over 18 percent of home based work trips were to jobs in other counties, mostly on Highway 101. More than 50 percent of peak period transit riders were traveling to points and destinations outside Sonoma County. However, the out of County commute is only a small part of the total commute picture. Over half of the peak period trips along the 101 corridor between Healdsburg and Petaluma involve internal trips within one of the four planning areas while another 28 percent involve trips between planning areas.

FIGURE CT-1

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2.1.3 Transportation Conditions and Problems in 1984

Figures CT-2a and CT-2b on pages 285 and 287 show estimated 1984 traffic volumes, levels of service and congestion for an average weekday and average weekday A.M. peak period respectively. Roadways with severe congestion were limited to a few locations, primarily at major U.S. 101 cross-routes in Santa Rosa, Rohnert Park, Cotati, and Petaluma. Less severe congestion occurred at a number of locations along the Highway 12 and 121 corridors in the Sonoma Valley, along much of U.S. 101 from River Road to the Marin County line, along River Road, along Highway 12 from east Santa Rosa to Sebastopol, along Highway 116 from Sebastopol to Cotati, and along Petaluma Hill Road from Cotati Avenue to Petaluma.

2.2 PROJECTED FUTURE TRANSPORTATION CONDITIONS

2.2.1 Projected Travel Demand

Forecasted countywide travel demand for 2005 for the average weekday is 2,090,000 person trips; an increase of 52 percent over 1984 figures. The number of person-trips projected during the peak A.M. commute period is 225,100, an increase of 57 percent over 1984.

Since most traffic congestion occurs during the peak commute periods, forecasts of home based work trips are especially important. About 17.6 percent of home based work trips are projected to be to jobs outside the county, the proportion being 37 percent in the Petaluma region, 32 percent in Rohnert Park, 10 percent in Santa Rosa, and under seven percent in Cloverdale.

2.2.2 Projected Modal Split and Transit Demand

The daily mode share for transit systems is projected to increase from about 2.0 percent in 1984 to 2.8 percent for work trips. Peak period and average weekday boardings on transit for regional/intercity trips are projected to increase more dramatically with a corresponding decrease in vehicle miles traveled. Improved transit and High Occupancy Vehicle (HOV) Transit lanes on the U.S. 101 Freeway would reduce peak-period volumes by 1,200 at the Marin County line.

2.2.3 Projected Future Traffic Volumes and Conditions

Figures CT-2c and CT-2d on pages 289 and 291 show projected traffic volumes and levels of service during a typical weekday and peak A.M. period. Several roadways in Santa Rosa, Rohnert Park, and Sebastopol are projected to operate at level of service D or E during the peak period. Congestion is projected for a portion of Highway 12 north of Sonoma, Highway 121 in the Schellville area, Highway 116 south of Sebastopol, Highway 12 from Sebastopol to Llano Road, Fulton Road north of the Highway 12 interchange, and segments of Highway 101 south of Petaluma, between Cotati and Santa Rosa, and north of Santa Rosa.

2.2.4 Future Recreation Related Travel

Many highways in Sonoma County will continue to have their highest traffic volumes on summer weekends due to recreational travel. Roads likely to have significant weekend travel delays include Highway 12, 121, and 116 in the Sonoma Valley, Lakeville Highway and Stage Gulch in the Petaluma Area, Highway 116 from Cotati to Jenner, Bodega Highway, Bohemian Highway, Highway 1 from Bodega Bay to Jenner and north of Fort Ross to the Sea Ranch, River Road, Westside Road, Dry Creek Road, Alexander Valley Road, and Dutcher Creek Road. The highway plan would reduce weekend congestion on U.S. 101 from Windsor to the Marin County line and in Cloverdale, Highway 12 in the Sonoma Valley and Highway 1 near Bodega Bay.

2.2.5 Future Transport of Goods and Materials

About one fourth of the vehicles registered in the County in 1986 were commercial vehicles. Truck traffic is significant on Highway 37, U.S. 101, and Route 128 where percentages of trucks range from seven to 15 percent. Truck traffic generating land uses are found mainly in the Cloverdale/N.E. County, Healdsburg, Southwest Santa Rosa and Petaluma areas. The areas of greatest increase in truck travel generally coincide with areas of future industrial development and include U.S. 101, which carries the majority of through or intercounty truck traffic.

3.0 GOALS, OBJECTIVES AND POLICIES FOR CIRCULATION AND TRANSIT

Goal CT-1: Develop a comprehensive circulation and transit system that is safe, efficient, environmentally sound, accessible, and coordinated with the land use plan.

Objective CT-1.1: Design and implement a circulation and transit system that will serve projected future travel demand, minimize congestion, achieve the shortest feasible travel times and distances, and achieve the land use plan of city centered growth and limited growth in rural areas.

Objective CT-1.2: Design and implement a circulation and transit system that serves the elderly, physically handicapped, youth, and persons with limited incomes so that they may participate in a full range of activities.

Objective CT-1.3: Require that circulation and transit system improvements be done in a manner which, to the extent practical, minimizes disturbance of the natural environment and reduces air and noise pollution.

Objective CT-1.4: Encourage increased ridership on public transit systems and increased use of alternative modes, including bicycles and walking.

Objective CT-1.5: Coordinate regional and express route transit services with local transit services and parking facilities to facilitate transfers.

Objective CT-1.6: Equitably distribute the costs of circulation and transit system improvements necessary to maintain the levels of service set forth in Objective CT-2.1 on page 294.

The County shall use the following policies, in addition to those of the Resource Conservation, Noise, and Open Space Elements, to achieve these objectives:

CT-1a: Design and construct the circulation and transit system to provide, but not substantially exceed, the capacities needed to serve the travel demand of 468,540 residents and about 190,000 jobs.

CT-1b: Formulate a circulation and transit plan that encourages the concentration of residents and jobs in urban centers.

CT-1c: Work with local governments and other responsible agencies to evaluate and propose solutions to regional circulation and transit problems in the Northbay area.

CT-1d: Review and comment on major development projects in adjacent counties that affect the Highway 101 commute. Consider recommending staggered work hours and other means of reducing commute congestion.

CT-1e: Work with the incorporated cities to mitigate the cumulative impacts of incorporated and uninco-rporated development on the countywide circulation and transit system. Use annexations, redevelopment agreements, revenue sharing agreements, tax allocation agreements and the CEQA process as tools to ensure that development within the cities pays its fair share toward mitigating traffic impacts in the unincorporated portion of the County.

Figure CT-2a

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Figure CT-2b

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Figure CT-2c

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Figure CT-2d

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CT-1f: The County may use, individually or in combination, the following funding mechanisms to pay for circulation and/or transit improvement projects:

1)	State and Federal transportation funding.
2)	Local sales tax increases as allowed by state law.
3)	Area traffic mitigation fees and/or countywide traffic mitigation fees.
4)	Special Assessment Districts for improvement projects which benefit an identifiable local area.
5)	Local gasoline tax.
6)	Lease unused County owned lands adjacent to transportation facilities for such purposes as parking, mini-storage facilities, and recreation.
7)	Increased County Bed Tax.
8)	Dedication of land or other transportation improvements by developers.
9)	Revenue sharing, redevelopment, and tax allocation agreements during the annexation approval process.
10)	Other appropriate funding mechanisms.

CT-1g: Avoid construction of circulation and transit system components not identified on Figures CT-6a through CT-6i which encourage growth in rural areas.

CT-1h: Make a variety of circulation and transit options available to major employment and activity centers including direct access to express transit routes and primary arterial highways.

CT-1i: Encourage circulation and transit system improvements identified on Figures CT-6a through CT-6i which improve access to jobs within the county.

CT-1j: Encourage measures which will reduce the number of vehicle miles traveled during peak periods in order to reduce automobile emissions. These measures include:

1)	incentives for carpooling and vanpooling
2)	HOV and transit vehicle lanes along Highway 101 from Windsor to the Marin County line
3)	incentives to increase transit ridership, including: employee transportation allowances, convenient bus turnouts and shelters, and shuttle buses from job centers to express bus stops
4)	flex-time and modified work schedules
5)	facilities for bicycle use
6)	encouraging pedestrian traffic

CT-1k: Where practical, locate and design improvements and new circulation and transit facilities to minimize disruption of neighborhoods and communities, disturbance of biotic resource areas, destruction of trees, and noise impacts.

CT-1l:Locate and design circulation and transit system improvements and operations to encourage fuel and energy efficiency.

CT-1m: Use the capital improvements program to establish improvement priorities and scheduling for roadway construction projects and transit facility construction.

CT-1n: To the extent possible, accommodate future circulation and transit demand by using existing facilities more efficiently, or improving and expanding them before building new facilities.

CT-1o: Implement the provisions of Assembly Bill No. 3705 as per guidelines to be established by the Metropolitan Transportation Commission (MTC).

4.0 GOALS, OBJECTIVES AND POLICIES FOR THE COUNTYWIDE HIGHWAY SYSTEM

Three major issues affect the countywide highway system plan: 1) whether to increase the capacity of the 101 freeway or the parallel arterials, 2) how to define and measure Level of Service (LOS) and 3) how to finance and distribute the cost of improvements needed to serve projected growth.

Figure CT-3 on page 295 illustrates highway plan concepts, including the functional classification system. Figures CT-6a through CT-6i show the designated countywide highway system.

Goal CT-2: Provide and maintain a highway system capacity to serve projected highway travel demand in 2005 at acceptable levels of service.

Objective CT-2.1: Reduce congestion on the countywide highway system by maintaining a "C" level of service or better on designated arterial and collector roadways unless a lower level of service is shown on Figures CT-2c and CT-2d on pages 289 - 291, a lower level of service is determined to be acceptable due to environmental or community values existing in some portions of the County, or the project(s) which would cause the lower level of service has an overriding public benefit which outweighs the increased congestion that would result.

Objective CT-2.2: Correlate new development with roadway improvements necessary to maintain the countywide levels of service set forth in Objective CT-2.1 or better on arterial and collector roadways as is more fully explained in policy CT-2b.

Objective CT-2.3: Establish a functional classification system for major highways, set minimum right-of-way and design standards, and classify needed roadway improvements.

Objective CT-2.4: Establish guidelines for obtaining rights-of-way for planned and likely future highways.

4.1 General Policies Related to the Countywide Highway System

The sections includes general policies for the County's roadway system and classification of roadway improvements.

CT-2a: Use the levels of service shown on Figures CT-2c and CT-2d on pages 289 -291 to determine whether or not congestion is exceeding the desired level of service on the countywide highway system. Use area and/or project traffic analyses to determine whether intersection impacts or other localized congestion may also affect these desired levels of service.

CT-2b: Assure that new development occurs only when a funding mechanism is available for improvements needed to achieve these levels of service specified in CT-2a above. If the Board determines that a project will provide significant overriding public benefit, the project may be exempt from this requirement.

CT-2c: Tables CT-1 and CT-2 on pages 298 and 299 define levels of service "C" and "D" on a peak hour and average daily basis and should be used as a guideline for measurement of roadway congestion.

CT-2d: Divide the countywide highway system improvements shown on Figures CT-6a through CT-6i into two categories for funding purposes: 1) those which primarily serve countywide traffic demand and 2) those which primarily serve local area demand. Assign primary responsibility for funding of countywide improvements to the state or federal governments and/or all city and county residents and businesses. Assign funding responsibility for local area improvements to city and county residents and businesses in that defined area. This policy is not intended to express a priority of one category over the other.

CT-2e: Primary responsibility for funding intersection, right-of-way, and other needed localized improvements not identified as part of the countywide highway system belongs to individual projects.

CT-2f: Develop a program to evaluate the planned circulation and transit system on an on-going basis to determine whether it is meeting the County's transportation needs. The purpose of this monitoring program will be to ensure proper correlation between the Circulation and Land Use Elements of this plan, to establish a basis for setting traffic mitigation fees, and to evaluate new projects. Should analysis reveal that the Circulation and Land Use Elements are not in balance, this plan should be amended to achieve equilibrium.

CT-2g: Classify improvement projects on existing roadways which maintain or improve traffic safety but do not increase capacity as "upgrade/maintenance" projects; category "A". For intersections, these improvements may include traffic control and safety devices, minor pavement widening for curvature reduction, and an initial left and/or right turn lane. For roadways, this class includes safety related pavement widening to safely accommodate bicycle and vehicular traffic, traffic safety devices (e.g. guard rails), and resurfacing.

Figure CT-3

CT-2h: Classify improvement projects on existing roadways which moderately increase capacity as "management" projects; category "B". For intersections, these improvements may include widening for additional (not initial) left or right turn lanes and stacking lanes. For roadway segments, they may include widening for a continuous two way left turn lane and bridge widening, without new through lanes.

CT-2i: Classify improvement projects on existing roadways involving additional travel lanes which substantially increase capacity as "major" projects; category "C".

CT-2j: Adopt ordinances or specific or area plans to establish plan lines for arterial and collector highways based upon distance from road center lines. Use the guidelines in Table CT-3 on page 301 for right-of-way acquisition. Where allowed by law, prohibit new structures within the plan line. Measure required setbacks from the plan line boundary.

CT-2k: The County may require correction of potential safety deficiencies (inadequate road width, lack of traffic control devices, intersection alignment) prior to, or as part of, project approval.

4.2 The Highway 101 and Highway 12 Freeways

Two highways are designated as freeways by the plan: U.S. Highway 101 and State Highway 12 from Farmers Lane in East Santa Rosa to Llano Road east of Sebastopol.

The County shall use the following policies applicable to freeways:

CT-2l: Freeways are limited access highways designed to carry large volumes of interurban, regional, and interstate traffic, and carry local traffic in urban areas. Apply the following standards which are intended to be compatible with CAL TRANS requirements:

1)	Separate opposite travel lanes by a median strip or other barrier.
2)	Prohibit access from abutting parcels. Allow access prior to improvement to freeway standards if there is no alternative access route to a parcel.
3)	Limit access to cross streets to grade separated interchanges.
4)	Provide acceleration and deceleration lanes at interchanges.
5)	Consider providing auxiliary lanes from one interchange to another in urban areas which have closely spaced interchanges or where travel demand warrants.

CT-2m: Designate U.S. Highway 101 as a freeway for its entire length in Sonoma County. Improve it to freeway standards as a high priority.

CT-2n: Develop the planned additional travel lanes on Highway 101 to allow for high occupancy vehicles (HOV) and transit use during peak commute periods.

CT-2o: Consider new interchanges or overpasses at the following intersections with Highway 101: San Antonio Road, Kastania Road, Rainier Avenue, Old Redwood Highway, Railroad Avenue, Corona Road, Bellevue Avenue, Wilson Lane, and Arata Lane. Provide substantial improvements at the following interchanges: Washington Street, Wilfred Avenue, Hearn Avenue, Todd Road, Airport Boulevard, Fulton Road, and Windsor River Road. Until the expiration of Ordinance No. 5111R, any improvements to Highway 101 within the Petaluma/Novato Community Separator that are funded in whole or in part from appropriations from Sonoma County's general fund shall not include any interchange or frontage road having a design capacity in excess of that necessary to serve local needs, but shall include bicycle lanes. "Local needs" shall mean those needs necessary to serve both existing development and potential development allowed within the Petaluma/Novato Community Separator as of November 3, 1998. This provision shall also apply to any general plan that succeeds the 1989 Sonoma County General Plan.

CT-2p: Provide interchanges with the existing 101 route north and south of Cloverdale and with an appropriate intermediate cross street.

CT-2q: Designate State Highway 12 as a freeway from Llano Road to Farmers Lane.

CT-2r: Consider new interchanges at the intersections of Highway 12 with Fulton Road, Stony Point Road, Brookwood Avenue, and Farmers Lane.

CT-2S: Reconstruct the part of Highway 12 at the Sonoma County Fairgrounds to freeway standards.

* As per the current text of "A Policy on Geometric Design of Highways and Streets" by the American Association of State Highway and Transportation Officials.

* As per the current text of "A Policy on Geometric Design of Highways and Streets" by the American Association of State Highway and Transportation Officials.

Standards in this table are considered to be guidelines which may be modified where warranted by site specific conditions or where Federal and State standards supersede.

4.3 The Parallel Arterial System in the Petaluma-Windsor Urban Corridor

If improved, the Stony Point/Fulton Road arterial on the west side of Highway 101 and the Adobe Road/Petaluma Hill Road/Old Redwood Highway arterial on the east side could provide an alternative route to Highway 101.

The County shall use the following policies for the parallel arterial system:

CT-2t: Develop the parallel arterials in the 101 corridor as alternative routes which could attract a significant share of commuters during peak travel periods.

CT-2u: To the extent allowed by law, reserve right-of-way necessary to accommodate four travel lanes to allow for future expansion after the year 2005.

CT-2v: Apply the following standards and those included in Table CT-3 on page 300 to parallel arterials:

1)	The needed number of through travel lanes is shown on Figures CT-6c, 6e, 6g, and 6h .
2)	Discourage access from abutting parcels and prohibit it if reasonable access is available elsewhere. Encourage driveway consolidations. Avoid parking during peak travel periods.
3)	Provide turning lanes and deceleration/acceleration lanes at intersections. Signalization shall favor the parallel arterial.
4)	Avoid future plan amendments to add new commercial uses, including travel related services, on parcels abutting a parallel arterial unless the use is within a designated urban service area.

4.4 The Primary and Secondary Arterial System

The following policies shall apply to designated arterial highways:

CT-2w: The Public Works Department shall set and enforce access standards for new driveways and other encroachments to arterial highways. These standards may include functional layout, location, and spacing requirements to minimize side frictions.

CT-2x: Primary arterials are highway routes which carry large volumes of intercity or local traffic within urban areas and which place priority on the flow of traffic rather than on access to property. The following standards and those included in Table CT-3 on page 300 apply to "primary arterials":

1)	The needed number of travel lanes is indicated on Figures CT-6a through 6i.
2)	Allow access from abutting parcels if it does not interfere with traffic function. Encourage consolidation of driveways. Discourage parking, especially during peak hours.
3)	Provide continuous left turn lanes in urban areas, where practical. Provide turning lanes at intersections with other arterial and collector highways. Signals shall favor the arterial.
4)	Consider requiring urban improvement standards within urban service areas.

CT-2y: Secondary arterials are highway routes that carry lower traffic volumes than primary arterials or cover shorter distances. Within urban areas, these highways may connect large scale traffic generators and carry more local traffic. The following design standards and those included in Table CT-3 apply to secondary arterials:

1)	The needed number of travel lanes is indicated on Figures CT-6a through 6i.
2)	Allow access from abutting parcels if it does not interfere with the traffic function of the highway. Encourage consolidation of driveways.
3)	Provide continuous left turn lanes in urban areas. Where practical, provide turning lanes at intersections with other arterial and collector highways. Signals shall favor the arterial.
4)	Within urban service areas, consider requiring urban improvement standards.

4.5 Major and Minor Collectors

The following policies shall apply to collectors designated on Figures CT-6a through CT-6i:

CT-2z: Collector roadways are highway routes which are intended to carry the internal traffic of a local area from the local road system to arterial highways and provide access to property, especially in rural areas. The following standards and those included on Table CT-3 on page 301 apply to both major and minor collector roadways:

1)	The needed number of travel lanes is indicated on Figures CT-6a through 6i.
2)	Allow access from abutting parcels. Allow on-street parking.
3)	Consider signalization in urban areas at some intersections, especially with arterial routes.
4)	Consider reduced standards for collector roads in rural areas that have very low projected traffic volumes.
5)	Within urban service areas, consider requiring additional urban improvement standards.

4.6 Local Roads

The following policies apply to local roads:

CT-2aa: Local roads are those county-owned roads which are intended to provide access to property and to carry local traffic to collector highways. The following standards and those included on Table CT-3 on page 300 apply to local roads:

5.0 GOALS, OBJECTIVES AND POLICIES FOR THE TRANSIT SYSTEM

The focus of the transit plan is on general policies and long-term transit routes and their relationship to the land use plan.

The plan policies foster coordination of transit services and development of a timed transfer system. Headways, schedules, and other operation management should make transfers convenient and improve average travel speed. Three different roles for public transportation are suggested: 1) provide basic mobility for transit-dependent people, 2) provide an alternative means of travel for people, especially peak-period commuters, who prefer transit, and 3) provide back-up service to people when their car is not available.

A major issue is finding a technically and financially feasible transit system that is an acceptable transportation alternative to the public in the Highway 101 corridor. Routes considered to date include Highway 101, the NWPRR right-of-way, and the Bay. Concerns have been raised about the potential growth inducing effects of a rail or train mass transit system. Another important issue is the determination of the role that transit can be expected to play in reducing congestion.

Public transportation is most efficient where travel demand occurs in areas of higher density development. In areas with very low urban or rural density, which is typical of many locations in Sonoma County, it is difficult for transit to provide an acceptable level of service at a reasonable cost.

Figure CT-4 on page 303 shows the types of transit services and facilities in Sonoma County. Figure CT-5 on page 305 shows the principal countywide transit network. Section 7.0 of this element includes a map for each planning area detailing existing and proposed intercity and regional transit routes. Transit policies include: 1) acquisition of the NWPRR right-of-way for potential future use as a transit guideway, 2) possible construction of new HOV/transit lanes on Highway 101, 3) regional and intercounty bus routes, 4) intercity bus routes, and 5) local urban area transit and paratransit services.

Figure CT-4

Figure CT-5

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Goal CT-3: Provide, in association with other regional and local transit agencies, transit services that are responsive to the future needs of commuters and transit-dependent people.

Objective CT-3.1: Increase the share of home based work or commute trips taken by public transit to about 5.0 percent by 2005, including about 2.5 percent by regional and intercity transit.

Objective CT-3.2: Encourage continued rail freight service on the Northwestern Pacific Railroad (NWPRR) right-of-way. If it is terminated, acquire it for potential use as an exclusive right-of-way for transit.

Objective CT-3.3: Coordinate express and local bus routes by establishing a series of "transit centers" or transfer sites and supportive park-and-ride lots in Sonoma Valley, Central Petaluma, the Cotati Hub, Rohnert Park, Central Santa Rosa, North Santa Rosa, Guerneville, Windsor, and Cloverdale.

Objective CT-3.4: Provide fixed-route, scheduled bus services which will have convenient access to major population, economic, institutional and recreation centers.

Objective CT-3.5: Design transit systems to make convenient transfers among the various routes, especially during peak commute periods.

Objective CT-3.6: Provide and expand transit services in a timely, efficient and cost effective manner which is responsive to growth patterns and transit demand.

5.1 General Policies Related to Transit Services

The following policies apply in general to all types of transit services:

CT-3a: Provide convenient and accessible transit facilities for elderly and physically handicapped people.

CT-3b: Establish transfer facilities and supportive park-and-ride lots in Sonoma Valley, Central Petaluma, the Cotati Hub, Rohnert Park, Central Santa Rosa, North Santa Rosa, Guerneville, Windsor, and Cloverdale. Locate transit centers to: 1) avoid rerouting by buses, 2) provide adequate off street parking, 3) provide convenient pedestrian access from activity centers, and 4) avoid arterials with heavy traffic and congestion. Transit centers should be designed to enhance public convenience.

CT-3c: Design the physical layout and geometrics of arterial and collector highways to be compatible with bus operations.

CT-3d: Require major traffic generating projects to provide fixed transit facilities, such as bus turnouts and passengers shelters and seating needed to serve anticipated or potential transit demand from the project.

CT-3e: Encourage and participate in joint efforts by the various transit operators to coordinate services by reducing route duplication, coordinating schedules to increase transfer potential, encouraging joint transit fare prepayment, joint marketing of transit services, and discounting fares for intersystem transfers.

CT-3f: In order to qualify for federal funding, request SCT and the Transportation Planning Council to prepare annual transit plans which comply with State and Federal laws. Use, to the extent practical, all available sources of transit revenues.

CT-3g: Design local transit routes and services within the Petaluma - Windsor corridor to provide feeder transit service to connect with intercounty and intercity routes at major transfer points.

5.2 Acquisition of the NWPRR Right-of-Way for Future Transit Guideway

The Northwestern Pacific Railroad (NWPRR) right-of-way parallels U.S. Route 101 through Sonoma County. Although NWP provides rail freight service in Sonoma County and northward, it has been abandoned through most of Marin County. A transportation study involving Highway 101 corridor communities and agencies evaluated the acquisition of the NWPRR right-of-way for a transit system corridor.

The 101 Corridor Study (Phase I) and the General Plan Transportation Study both indicated that the conditions necessary to make a line-haul transit system feasible within Sonoma County are not likely to exist by 2005. Reasons include 1) the total volume of long distance commute trips within Sonoma County is not projected to be sufficiently high by 2005 to make the system cost effective or efficient, 2) a transbay mass transit connection, via a tunnel or second deck on the Golden Gate Bridge, is not practical, 3) capital costs and initial investment are extraordinarily high in comparison with other alternatives, 4) job sites within the 101 corridor are increasingly dispersed, 5) some residential growth continues to be low density and dispersed. These studies indicate, however, that the option of future use of the NWPRR corridor should be retained.

The following policies of the County are applicable to the NWPRR right-of-way:

CT-3h: Oppose abandonment of freight service, but if service from Sonoma County northward is abandoned and the right-of-way is to be disposed of, acquire it for future use as alternative transportation.

CT-3i: Resolve the future use of the NWPRR right-of-way for public transportation purposes in cooperation with corridor communities so that an integrated and mutually supportive set of transportation projects may be defined for Sonoma and Marin Counties.

5.3 Construction of HOV/Transit Lanes on Highway 101

HOV lanes are created by designating one peak flow travel lane to be used only by vehicles with more than one person and by transit. These restrictions ordinarily apply during peak flow periods of several hours during the morning and afternoon commute. The lane is available for mixed flow traffic during other hours.

HOV lanes reduce the number of vehicles traveling during peak commute periods by increasing the use of carpools, vanpools, and public transit, providing an incentive by allowing very rapid travel for these vehicles.

In addition to the policy CT-2n on page 297, the following apply to HOV/transit lanes on U.S. Highway 101:

CT-3j: HOV lanes may be designated on Highway 101. They should be continuous, linking major population centers with employment centers. If HOV lanes are used, make them available for mixed flow traffic during non peak periods.

CT-3k: Base any use of HOV lanes on the volume of traffic flow and level of service during peak commute periods. Initial HOV designation may be as a demonstration project.

CT-3l: Accompany HOV lanes with measures to encourage carpooling and transit use and increase frequency of express bus service.

5.4 Regional and Intercounty Express Bus Services:

Basic regional transit service is defined as general purpose bus service which ordinarily operates throughout the day and week, provides connections between Sonoma and other counties, and serves many destinations. In addition, express buses serve major employment centers outside of the county and provide frequent service during peak commute periods. The number of stops is usually kept to a minimum to reduce travel time. "Park-and-Ride" facilities for riders are provided at major stops or transit centers. Annual patronage by 2005 could rise from 600,000 to 1,100,000 passengers.

The following policies apply to regional and intercounty express bus service:

CT-3m: Support regional and commute bus service from Sonoma county to employment centers in SanFrancisco and Marin County.

CT-3n: Encourage additional commute service routes within Sonoma County if efficient and cost effective.

CT-3o: Encourage greater frequency of service and express commute service along the various intercounty routes where warranted. Encourage "club bus" group transit where practical and cost-effective.

CT-3p: In order to reduce peak period congestion on Highway 101, provide Sonoma-Marin commute bus service to employment centers in Marin County. Additional park-and-ride lots at major transit stops will be essential to attain sufficient patronage.

5.5 Intercity Transit Service Within Sonoma County

Intercity bus routes include basic and commute transit services. Sonoma County Transit provides fixed-route, scheduled bus service linking the eight cities and major unincorporated communities.

The following policies apply to intercity transit services within Sonoma County:

CT-3q: Designate Sonoma County Transit (SCT) as the primary agency responsible for intercity transit services. Coordinate routes, schedules, fares, etc. with other operators to make transfers convenient between the various transit systems, especially during commute periods.

CT-3r: Provide a system of bus routes that is responsive to intercity commuters, transit dependent groups and persons with low mobility. Select route alignments to provide convenient access to major job centers, retail and recreational areas, high and medium density residential areas, and major health care and educational facilities.

CT-3s: Add new intercity bus routes to the transit network which are responsive to growth patterns and which are cost effective.

CT-3t: Add other services as needed, including greater frequency of service along individual bus routes, reduced headways, increased hours of operations, expanded express or commuter service along principle commute corridors during peak periods, and new route extensions to provide bus service to group areas.

5.6 Local Urban Area Transit Services and Paratransit

Local transit services are defined as fixed-route bus or jitney service within an individual city and its immediate areas. Para-transit services are adjusted to the needs of a limited number of users and are not regular, fixed-route or fixed-schedule services. Para-transit includes "dial-a-ride", vanpools, and subscription bus service.

The following policies are applicable to local transit and paratransit services:

CT-3u:Encourage local transit services within incorporated areas. SCT may contract with cities to operate local area bus service.

CT-3v: Design and operate SCT services to complement local transit services. Design SCT's route network and schedules to serve intercity travelers, while city systems meet internal needs. Facilitate transfers to and from different systems.

CT-3w: Have SCT provide local area transit services in unincorporated urban areas including the Windsor and Russian River Areas.

CT-3x: Encourage paratransit services in both unincorporated and city areas. Promote efficiency and cost effectiveness in paratransit service such as use of joint maintenance and other facilities.

6.0 GOALS, OBJECTIVES AND POLICIES FOR TRANSPORTATION SYSTEMS MANAGEMENT (TSM)

Transportation Systems Management (TSM) refers to measures designed to reduce the number of vehicle trips, shorten trip lengths, and change the timing of trips so that fewer people travel during peak commute periods. TSM encourages wider use of transit, vanpools, carpools, and other alternatives to the single occupant automobile. Large investments in new highway and transit systems are limited by lack of money, adverse community reactions, and other factors. TSM measures usually have lower capital costs and provide alternatives designed to modify travel demand patterns. They may be implemented within a short time-frame and evaluated quickly. Mandatory TSM measures may reduce peak period traffic by 5 to 10 percent.

Several policy issues arise in determining the extent to which TSM may be used to reduce congestion, including the effectiveness of voluntary compared to mandatory TSM measures, and the need to apply them only to new development projects or to all employers of a specific size. Public acceptance of TSM measures is uncertain. Some measures may inconvenience some people in order to reduce overall traffic congestion and improve system efficiency.

Goal CT-4: Use existing circulation and transit facilities more efficiently, especially highways, to: 1) reduce the amount of investment required in new or expanded facilities, 2) reduce automobile emissions and 3) increase the energy efficiency of the transportation system.

Objective CT-4.1: Use TSM to achieve a five percent reduction in the projected number of single occupant vehicles traveling during peak commute periods by 2005.

Objective CT-4.2: Share responsibility for implementation of TSM actions with cities and the private sector, including developers of new projects and existing employers.

The County shall use the following policies to carry out the above objectives:

CT-4a: County government should set an example for the community by developing a TSM program for the County Center and other offices.

CT-4b: Encourage TSM and traffic mitigation measures which divert automobile commute trips to transit whenever it is reasonably convenient. Encourage the following private sector and local agency programs:

1)	Programs for new projects may include: site design to allow for transit access, bus turnouts and passenger shelters, sidewalks between transit stops and buildings, secure bicycle parking, complementary street layouts and geometrics which accommodate buses and bicycles, exclusive bus lanes, land dedication for transit, and "transportation stores" for tenants of business and industrial parks.
2)	Employer programs to encourage transit use to existing job centers may include: transit information centers, on-site sale of transit tickets and passes, shuttles to transit stations or stops, transit ticket subsidies for employees, private or subscription transit service, parking fees and transportation allowances.
3)	Local government programs may include: street and highway design and geometrics to accommodate transit vehicles and bicycles, bus turnouts and passenger shelters, sidewalk access to transit stops, park-and-ride lots, HOV lanes on major highways, signal pre-emption for buses, and "transit centers" at major focal points in the bus route network.

CT-4c: Encourage TSM and traffic mitigation measures which increase the average occupancy of vehicles as follows:

1)	Employer and developer programs may include vanpools or carpools, ridesharing programs for employees, preferential parking, parking subsidies for rideshare vehicles, and transportation coordinator positions.
2)	Local government or agency programs may include preferential paring space and fees for rideshare vehicles, flexibility in parking requirements, HOV lanes on major highway facilities, and residential parking permit restrictions around major traffic generators.

CT-4d: Encourage measures to modify the timing of peak commute trips to reduce congestion, including flexible, variable or staggered work hours.

CT-4e: If voluntary TSM measures do not effectively reduce peak period congestion, impose mandatory TSM measures by ordinance. These regulations, which may apply to existing employers as well as to new development, may require transportation management programs that reduce peak-period commute trips by a specified amount. Require that the program have a transportation coordinator, provide information, select and carry out TSM measures and monitor and report on program effects.

7.0 CIRCULATION AND TRANSIT POLICIES FOR THE PLANNING AREAS

7.1 SONOMA COAST/GUALALA BASIN

The Sonoma Coast/Gualala Basin region does not have an extensive highway network due to its remote location and very low population density. The major highways are State Route 1, Highway 116, Bodega Highway, and the Bohemian Highway. All highways in the region are two lane or one lane rural roadways. Daily buses connects the small communities along Highway 1 to Sebastopol and Santa Rosa.

Traffic patterns are affected primarily by recreational travel. Traffic volumes are highest on Friday evenings in summer and from 3-7 p.m. on Sundays. Weekend travel delays occur on Highway 1 from near Bodega to Jenner and Bodega Highway west of Sebastopol. Projected weekday traffic volumes are relatively low. With proposed improvements, roadways are projected to function at Level of Service (LOS) "C" or better on weekdays in 2005.

The following policies and improvements apply to the Sonoma Coast/Gualala Basin planning area:

CT-5a: Use Figure CT-6a on page 313 as the improvement plan for this area's freeways, arterials, and collectors. All other roadways are local roads.

CT-5b: Develop a bypass route for Highway 1 at Bodega Bay as shown in the Local Coastal Plan. No other new facilities are proposed in the arterial and collector systems.

CT-5c: Design improvements on Highway 1 to improve traffic flow during peak periods of recreation travel including turn lanes for Sonoma Coast State Beaches, parking areas and shoulder improvements.

CT-5d: Continue to provide transit services as shown in Figure CT-6a on page 313.

7.2 CLOVERDALE/N.E. COUNTY

The major highways in the Cloverdale/N.E. County region include the U.S. 101 Freeway, State Route 128, Dry Creek Road; Dutcher Creek Road; Alexander Valley Road. With the exception of the 101 Freeway, all highways in the region are one or two lane rural roadways. Transit service includes intercity service along the U.S. 101 Corridor. Cloverdale operates a local jitney service.

Recreational activities affect travel patterns in this region. U.S. 101 near Cloverdale has periods of significant weekend travel delay, especially during summer months. Periods of weekend congestion occur on Alexander Valley, Canyon, and Dutcher Creek Roads. Lake Sonoma is expected to become a major visitor destination and will affect Dry Creek and Dutcher Creek Roads as well as U.S. 101. By 2005, daily summer weekend traffic congestion is expected in the Dry Creek area, on U.S. 101 and on Route 128 in Alexander Valley. With proposed improvements, all area roadways are projected to function at level of service (LOS) "C" or better in 2005 on weekdays.

In addition to the freeway improvements outlined in Section 4.2, the following policies and improvements apply to the Cloverdale/Northeast County planning area:

CT-6a: Use Figure CT-6b on page 315 as the improvement plan for this area's arterials and collectors. All other roadways are local roads.

CT-6b: Additional transit service may be provided by increasing the frequency of buses on the existing route or by express commute service when justified by ridership levels and transit demand.

CT-6c: Utilize Kelly Road to bypass the steep and winding segments of Hot Springs Road.

7.3 HEALDSBURG AND ENVIRONS

This region has a relatively extensive road network in the vicinity of Healdsburg and Windsor. The major traffic artery is U.S. 101. Other major highways include Dry Creek and Alexander Valley Roads, Eastside and Westside Roads, Chalk Hill Road, Windsor River Road, Shiloh Road, and Old Redwood Highway. All highways have two lanes except Highway 101. Some road in the Windsor area meet urban standards. Transit service operates principally on Old Redwood Highway and Healdsburg has a municipal bus service.

Large increases in traffic are expected on local roads in the Windsor area due to significant projected growth. Several area roadways will be affected by weekend recreational travel, including U.S. 101. Gravel trucks associated with mining along the Russian River will continue to impact several roadways. West Street in Healdsburg, Highway 101 south of Windsor River Road, and road segments in Central Windsor are expected to be moderately congested and operate below Level of Service "C". In all other areas, roads are projected to operate at level "C" or better in 2005.

In addition to the freeway and arterial improvements outlined in Sections 4.2 and 4.3, the following policies and improvements apply to the Healdsburg and Environs area:

CT-7a: Use Figure CT-6c on page 317 as the improvement plan for the area's freeways, arterials, and collectors. All other roadways are classified as local roads.

CT-7b: Study and choose an alternative route for gravel trucks. Encourage trucks transporting gravel from Eastside Road to use this route rather than Windsor River Road through downtown Windsor.

CT-7c: The Windsor Specific Plan includes a detailed traffic analysis and provides a detailed plan for needed new local roadways and local improvements and establishes development fees by ordinance to finance a portion of the cost of these facilities. Consider requiring additional traffic mitigation or other funding for the countywide transportation system, if warranted.

CT-7d: Propose new direct transit routes to link residential areas in Windsor, Larkfield, and northwest Santa Rosa with job centers. Consider upgrading existing routes with more frequent or express service when justified by patronage and cost factors.

CT-7e: Consider the Windsor community a priority area for providing local area transit service, with timing determined by growth, transit demand, and cost factors. This is a potential location for a transit center/transfer site.

7.4 RUSSIAN RIVER AREA

The Russian River Area has a relatively extensive road network in the Russian River resort corridor. Many local roads are very narrow and do not meet modern standards. Major traffic arteries are River Road, State Highway 116, Bohemian Highway, and Mirabel Road. All highways are two lane rural roadways. Intercity transit service connects the river communities with Santa Rosa via Sebastopol.

Traffic patterns in the Russian River Area are significantly affected by recreational travel, especially on summer weekends. Extensive weekend travel delays occur along River Road between Guerneville and Hacienda. Lesser delays occur along River Road to U.S. 101, on Highway 116, Bohemian Highway, and Westside Road. Summer weekend traffic will continue to be congested on these routes.

All area roadways are projected to function in 2005 at LOS "C" or better on an average weekday basis.

The following policies and improvements apply to the Russian River Area:

CT-8a: Use Figure CT-6d on page 319 as the improvement plan for this area's arterials and collectors. All other roadways are local roads.

CT-8b: Consider a "bypass" for central Forestville.

Figure CT-6a

View full size Figure CT-6a

Figure CT-6b

View full size Figure CT-6b

Figure CT-6c

View full size Figure CT-6c

Figure CT-6d

View full size Figure CT-6d

CT-8c: Provide a new intercity transit route linking the Guerneville area with Santa Rosa via River Road and local area service between Monte Rio and Rio Nido.

7.5 SANTA ROSA AND ENVIRONS

The Santa Rosa area has the county's most extensive roadway network. The Highway 101 freeway is the major corridor. State Route 12 has several segments that are constructed to freeway standards. Important parallel

arterials include Fulton and Stony Point Roads on the west and Old Redwood Highway/Petaluma Hill Road on the east. Other major arteries include Highway 12, River Road, Guerneville Road, Todd Road, Mark West Springs Road, Calistoga Road, and Bennett Valley Road.

Santa Rosa has an extensive local transit service. Regional and intercounty commute bus service is available to Marin County and San Francisco. Sonoma County Transit connects Santa Rosa to all cities and most unincorporated communities. Transfers between routes and systems is provided in Santa Rosa at the Second Street "Transit Mall".

Travel patterns reflect the dominant role of Santa Rosa in the County's economy which translates to substantial commuter traffic on area roadways. Projected 2005 traffic volumes will substantially increase over present levels. With improvements, peak traffic is projected to be congested (LOS "D" or "E") on several streets in Santa Rosa, in both directions on the U.S. 101 Freeway, on Highway 12 between Sebastopol and Llano Road, on a segment of Fulton Road above Highway 12, on Sebastopol Road between Wright Road and Stony Point Road, on a segment of Stony Point Road south of Highway 12, and on South Dutton north of Hearn Avenue. Localized congestion is projected at various freeway interchanges and their ramps and cross streets.

Coordination of circulation and transit system planning between Santa Rosa and the County is particularly important during the upcoming update of the city's general plan.

In addition to the freeway and arterial improvements outlined in Sections 4.2 and 4.3, the following policies and improvements apply to the Santa Rosa and Environs region:

CT-9a: Provide these major new highway facilities: extension of the Fountaingrove Parkway, extension of Farmer's Lane, extension of Todd Road concurrent with road improvements necessary to upgrade Todd Road, and extension of Laughlin Road/Sky Lane to Shiloh Road.

CT-9b: Use Figures CT-6e(1) and CT-6e(2) on pages 323 and 325 as the improvement plans for this areas freeways, arterials, and collectors. All other roadways are local roads.

CT-9c: Develop a new regional intercounty express commute bus service in the 101 Corridor. Increase the frequency of service on existing routes as growth and demand occur.

CT-9d: The Larkfield/Wikiup Plan includes a detailed traffic analysis and a detailed plan for local roadways and improvements and establishes development fees by ordinance to finance these facilities. Consider requiring additional traffic mitigation or other funding for the countywide transportation system, if warranted.

CT-9e: Add intercity bus service as follows: 1) an express commute route to the Sonoma Valley; 2) a direct route via River Road to the Russian River Area; 3) commute service along Stony Point Road and along Petaluma Hill Road to Petaluma; 4) commute service linking the Windsor/Airport Boulevard area, Northwest Santa Rosa, Santa Rosa Air Center and West Rohnert Park. Increase service frequency along existing routes as growth and increased transit demand occur.

CT-9f: Prepare detailed circulation and transit plans for unincorporated urban areas adjacent to Santa Rosa as part of future revisions of specific or area plans.

7.6 SEBASTOPOL AND ENVIRONS

With its large rural residential population, this region is extensively traversed by rural roadways. State Route 116, is the major traffic artery. Other important roadways include Bodega Highway, Graton Road, Occidental