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CIRCULATION AND SCENIC HIGHWAY ELEMENT UPDATE
CITY OF SARATOGA, CALIFORNIA
BACKGROUND REPORT AND
GOALS, POLICIES, AND IMPLEMENTATION MEASURES
PREPARED FOR:
CITY OF SARATOGA
November 17, 2010
CIRCULATION AND SCENIC HIGHWAY ELEMENT UPDATE
CITY OF SARATOGA, CALIFORNIA
BACKGROUND REPORT AND
GOALS, POLICIES, AND IMPLEMENTATION MEASURES
PREPARED FOR:
CITY OF SARATOGA
PREPARED BY:
FEHR & PEERS.
November 17, 2010
VISION STATEMENT
It is the intent of the City that the emphasis on maintaining the character of
Saratoga as expressed in the General Plan and Specific Plans be affirmed, preserved
and furthered by the goals, policies and implementation measures presented in the
Year 2010 Circulation and Scenic Highway Element Update. Additionally, it is the
intent of the City that the mandate expressed by the citizens of Saratoga to control
density, traffic, and noise be affirmed, preserved and furthered by the goals, policies
and implementation measures presented in this document. The City also pledges to :
1) improve the transportation system by balancing the needs of bicyclists,
pedestrians, and transit users with considerations for safe vehicular travel, 2)
promote a healthy and active community by providing transportation opportunities
for bicyclist and pedestrians, and 3) be a responsible partner in developing regional
transportation solutions. Where any inconsistency or conflict appears in
interpreting this document, the strong value that Saratogans place on the character
of the City shall weigh heavily in the resolution of such conflict.
TABLE OF CONTENTS
Chapter Page
I. INTRODUCTION ...........................................................................................1
II. EXISTING TRANSPORTATION SYSTEM ..................................................4
III. OTHER CIRCULATION ISSUES ................................................................ 21
IV. SCENIC HIGHWAYS AND CORRIDORS .................................................24
V. FUTURE CONDITIONS ...............................................................................25
VI. GOALS, POLICIES, AND IMPLEMENTATION MEASURES .................36
TECHNICAL APPENDICES
APPENDIX A: LEVEL OF SERVICE TABLES FOR ROADWAY SEGMENTS
LIST OF TABLES
Table Page
1. Mode Share of Saratoga Residents ..........................................................................4
2. Existing Roadway Segment Levels of Service ......................................................12
3. Transit Load Factors – Routes Serving Saratoga ...................................................15
4. Year 2030 Roadway Segment Levels of Service ...................................................26
5. Existing and Future Vehicle Miles of Travel (VMT) ............................................28
LIST OF FIGURES
Figure Page
1. City Map ..................................................................................................................6
2. Current Roadway Classifications .............................................................................9
3. Existing Daily Traffic Volumes .............................................................................11
4. Existing Transit Service .........................................................................................16
5. Existing Bicycle Facilities .....................................................................................20
C-1 Existing and Proposed Roadways .........................................................................50
C-2 Roadway Classifications .......................................................................................51
C-3 Truck Routes .........................................................................................................52
C-4 Existing Transit Service ........................................................................................53
C-5 Existing and Proposed Bicycle Facilities ..............................................................54
C-6 Existing and Proposed Trails/Pedestrian Paths .....................................................55
City of Saratoga Circulation and Scenic Highway Element
Background Report/Goals, Policies, and Implementation Measures
Fehr & Peers Page 1
I. INTRODUCTION
What is a Circulation and Scenic
Highway Element?
A Circulation and Scenic Highway Element
is one of seven required elements of a City
or County’s General Plan. California
Government Code Section 65302 (b)
specifies that the Circulation Element of a
General Plan shall identify the proposed
location and extent of major thoroughfares,
terminals, and services designed to transport
people and goods. The City of Saratoga’s
transportation system is comprised of
roadways, bikeways, sidewalks and trails,
transit facilities and services, and rail lines.
The Circulation and Scenic Highway
Element addresses all travel modes and
includes the goals, policies, and
implementation programs that guide the
development and maintenance of the
transportation system. Scenic highway
designations and corridor preservation issues
are also addressed as part of this element.
Why Update the Circulation
Element?
The Circulation Element was last updated in
2000. Over the last ten years, the City of
Saratoga has not seen significant changes in
its transportation system, and traffic
volumes have decreased by approximately
ten (10) percent. Because the vast majority
of land use within Saratoga is essentially
built-out, future travel demand will be
generated by redevelopment, in-fill projects,
and additional through traffic. Thus, the
primary goal of the Circulation Element is to
manage and improve the efficiency of the
existing transportation system.
Background
The transportation system in Saratoga was
originally developed before the City was
incorporated and was based on planning
principles for rural communities. These
principles included construction of
numerous local streets without finished
curbs, gutters or sidewalks, extensive use of
natural landscaping, and development of an
arterial street system that radiated from the
Village area along Big Basin Way.
Due to the hilly terrain and natural setting,
some City streets include narrow travel lanes
that are less than the 12-foot standard used
in many urban areas. The City maintains an
on-going effort to eliminate sight distance
limitations caused by trees and shrubs or by
structures built before recent setback
standards were implemented
As the City has developed and overall travel
demand has increased, the focus of Citywide
circulation traffic volumes has shifted from
congestion in the Village area to
neighborhood traffic management and
school circulation. Traffic volumes on City
streets have decreased approximately ten
(10) percent since 2000. This decrease is not
unexpected due to the economic boom that
occurred in the late 1990s and the current
recession. Although traffic volumes have
decreased, opportunities to expand
alternative travel modes have been limited
because of: 1) the original planning
principles to minimize the number of
sidewalks, 2) insufficient roadway width or
right-of-way to accommodate both on-street
parking and separate bicycle facilities, and
3) the low-density development pattern that
makes transit service less efficient.
The City has consistently made a conscious
effort to retain the rural character of the
City of Saratoga Circulation and Scenic Highway Element
Background Report/Goals, Policies, and Implementation Measures
Fehr & Peers Page 2
community while providing adequate
capacity and safety for vehicles and other
modes of travel. Local residential streets are
the framework around which the
neighborhoods in Saratoga are built. To a
great extent, the pattern and design of streets
help shape neighborhood image and identity,
and can influence whether or not residents
of an area feel safe, the degree of
communication neighbors have with each
other, the degree to which residents use
alternative modes for personal travel, and
the general feeling of well-being and
comfort related to their immediate
environment.
Regulatory Agencies
The City of Saratoga has jurisdiction over
all City streets and City-operated traffic
signals. The SR 85 freeway, its ramps, and
SR 9 (Saratoga-Los Gatos Road and Big
Basin Way) are under the jurisdiction of the
State of California Department of
Transportation (Caltrans). A short section of
Lawrence Expressway is under the
jurisdiction of Santa Clara County.
The Santa Clara Valley Transportation
Authority (VTA) is an independent special
district responsible for congestion
management, specific highway improvement
projects, countywide transportation
planning, and bus and light rail operations in
Santa Clara County. The VTA is the
Congestion Management Agency (CMA) for
jurisdictions within the County and sets the
State and Federal funding priorities for
improvements affecting Congestion
Management Program (CMP) facilities, as
well as non-automobile facilities. CMP
facilities in Saratoga include SR 85, SR 9
(Saratoga-Los Gatos Road and Big Basin
Way), Saratoga-Sunnyvale Road, and
Saratoga Avenue (east of SR 85). In
Saratoga, the VTA provides fixed-route bus
and paratransit service.
The regional transportation planning agency
for the San Francisco Bay Area is the
Metropolitan Transportation Commission
(MTC), which is the clearinghouse for both
State and Federal funds for transportation
improvements. Each county’s CMA,
including the VTA, forwards their Capital
Improvement Project (CIP) list to MTC for
review. MTC prepares the regional priority
list based on input from all nine Bay Area
counties and submits it to the California
Transportation Commission (CTC) and/or
the Federal Highway Administration
(FHWA) for funding.
Community Input
Participation from Saratoga residents and
public officials was an integral part of the
Circulation Element update process.
Community input ensures the Circulation
Element reflects the issues and opportunities
identified by the community. The main
concerns for this Circulation Element update
were focused on updating bicycle paths,
lanes, and routes on the Bicycle Facilities
Map, verifying consistency between the
trails map within the Circulation Element
and the trails map within the Open
Space/Conservation Element, and accurately
describing the existing transportation
system, goals, policies, and implementation
measures that form the vision of the City’s
circulation plan.
Numerous groups met to discuss circulation
issues with regards to the Circulation
Element update. The Pedestrian, Equestrian,
and Bicycle Trails Advisory Committee
(PEBTAC) met numerous times in 2007,
2008, and 2009 to discuss changes to the
Bicycle Facilities Map. The City Council
City of Saratoga Circulation and Scenic Highway Element
Background Report/Goals, Policies, and Implementation Measures
Fehr & Peers Page 3
and Traffic Safety Commission (TSC) also
met in 2009 to discuss the Bicycle Facilities
Map and changes to the element.
PEBTAC also discussed changes to the trails
maps in May and June 2010. After
thorough review of the maps, recorded
documentation, and site visits, corrections to
both trails maps were made and brought into
conformity. These meetings were open to
the public, noticed on standard meeting
agendas, and included on the City’s website.
A joint public meeting was also held by the
TSC and PEBTAC in May 2010. The
meeting was held to solicit additional public
input on the background report and draft
goals, policies, and implementation
measures for the Circulation Element, as
well as discuss any issues regarding the
Bicycle Facilities Map and Trail Map.
These meetings were advertised through the
Saratoga News, noticed on the City’s
website, and posted as a TSC agenda item.
The Circulation Element is tentatively
scheduled to be reviewed by the Planning
Commission on September 8, 2010 before
recommending approval of the Circulation
Element to the City Council. City Council
reviewed the Circulation Element in October
2010 and approved it in November 2010.
City of Saratoga Circulation and Scenic Highway Element
Background Report/Goals, Policies, and Implementation Measures
Fehr & Peers Page 4
II. OVERVIEW OF EXISTING TRANSPORTATION SYSTEM
The current use of each travel mode is
presented followed by descriptions of each
component of the existing transportation
system: roadways, bicycle and pedestrian
facilities, transit services and facilities, and
rail lines. Figure 1 shows a map of the major
roadways within Saratoga.
Travel Mode Data
Saratoga residents use a variety of modes to
travel. Table 1 shows the proportional share
by travel mode for Saratoga residents
commuting to work based on the most recent
Census data.
TABLE 1
Travel to Work Mode Share - Saratoga
Residents
Transportation
Mode Share (%)
Drive Alone
Carpool/Vanpool
Bus
Bicycle
Walk
Other1
85.4
5.0
0.9
0.2
0.9
7.6
Notes:
1 Includes motorcycle riders, worked at home and
other modes.
Source: U.S. Census 2000, Summary File 3.
The vast majority of work trips (more than
85 percent) are made by single-occupant
vehicles. Carpools/vanpools or ridesharing
comprises the second highest share at five
(5.0) percent. Transit, bicycle and pedestrian
trips comprise approximately two (2.0)
percent of the commute trip total.
Interestingly, the drive alone rate decreased
by approximately 3.5 percentage points from
Year 1990 to 2000.
Based on two previous mode share studies
and anecdotal evidence approximately 90
percent of local elementary students arrive
and depart by automobile. This trend is due
to an open enrollment system (where a
student may attend any school in the district)
and the lack of dedicated school bus service.
Existing Roadway System
Regional roadway access to Saratoga is
provided by three major freeways: State
Route (SR) 85, Interstate 280 (I-280), and SR
17. Only SR 85 provides direct access to
Saratoga via interchanges at Saratoga
Avenue and South De Anza Boulevard (in
Cupertino). Access to SR 17 is provided by
Saratoga-Los Gatos Road, which is
designated as SR 9, and via SR 85. Lawrence
Expressway also serves regional traffic and
links Saratoga to Santa Clara and Sunnyvale.
As shown on Figure 1, the major roadways
carry traffic between various areas of
Saratoga as well as to other nearby cities.
Local roadway access within Saratoga is
provided by a network of streets that was
specifically designed to discourage cut-
through traffic in neighborhood areas.
Unfortunately, increased congestion on some
of the major roadways, especially near the
SR 85/Saratoga Avenue interchange, has led
to increased diversion through
neighborhoods.
Brief descriptions of the key roadways within
the City are presented below.
State Route 85 (SR 85) is six-lane freeway
linking U.S. Highway 101 (US 101) in
Mountain View to US 101 in south San Jose.
The median lane in both directions is
City of Saratoga Circulation and Scenic Highway Element
Background Report/Goals, Policies, and Implementation Measures
Fehr & Peers Page 5
designated for use by High Occupancy
Vehicles (HOVs) and motorcycles during
peak periods. HOVs include carpools,
vanpools and buses. Full-access via ramps is
provided at Saratoga Avenue between
Fruitvale and Cox Avenues.
Saratoga-Los Gatos Road (SR 9) is a two- to
four-lane roadway extending between Big
Basin Way in Saratoga and SR 17 in Los
Gatos. A center two-way left-turn lane is
provided on selected segments of this road
within Saratoga. Saratoga-Los Gatos Road is
designated as SR 9 and is under the
jurisdiction of the California Department of
Transportation (Caltrans).
Saratoga Avenue is a two- to six-lane street
linking Saratoga-Los Gatos Road (SR 9) with
Scott Boulevard in the City of Santa Clara. In
Saratoga, this street includes two lanes
between SR 9 and Fruitvale Avenue, and
four lanes north of this point to the City
limits.
Saratoga-Sunnyvale Road is a four-lane,
north-south road extending between Saratoga
Avenue and Prospect Road. North of
Prospect Road in the Cities of Cupertino and
San Jose, this roadway is designated as South
De Anza Boulevard and includes six travel
lanes.
Prospect Road is a two- to four-lane east-
west roadway extending between Stevens
Creek County Park and Saratoga Avenue.
Several north-south collector streets connect
to Prospect Road through Cupertino
including Blaney Avenue, Miller Avenue,
and Johnson Avenue. The majority of
Prospect Road forms the boundary between
Saratoga and the Cities of San Jose and
Cupertino. A short segment of this road
includes five through lanes between Saratoga
Avenue and Lawrence Expressway.
Fruitvale Avenue is a two- to four-lane street
linking Saratoga Avenue to Saratoga-Los
Gatos Road (SR 9). It is two lanes wide
south of Burgundy Way. Fruitvale Avenue is
the primary access to West Valley College
and also serves Redwood Middle School, a
Post Office, and Saratoga City Hall at
Allendale Avenue.
Cox Avenue is an east-west street
extending between Saratoga-Sunnyvale Road
and Quito Road. The majority of this street
includes two travel lanes, with a four lane
segment between Saratoga Avenue and Paseo
Presado. As part of the City’s neighborhood
traffic management efforts, the two-lane
segment east of Paseo Presado includes a
speed table to discourage speeding. Between
Prospect Road and Saratoga-Los Gatos Road,
Cox Avenue is the only east-west street
providing a direct connection across Saratoga
between Saratoga-Sunnyvale Road and Quito
Road.
Allendale Avenue is a two-lane, east-west
roadway linking Fruitvale Avenue and Quito
Road. As noted above, this street provides
access to the Saratoga Civic Center, Post
Office, and Redwood Middle School west of
Fruitvale Avenue. Secondary access to West
Valley College is provided on Allendale
Avenue.
Quito Road, with the Sunland exception
forms the City’s eastern boundary. Quito
Road links Lawrence Expressway with four
lanes to Cox Avenue, proceeding south to
Saratoga-Los Gatos Road as two lanes.
Big Basin Way is a two-lane roadway
between Saratoga-Los Gatos Road and Pierce
Road. West of Pierce Road, this roadway is
called Congress Springs Road and connects
to Skyline Boulevard (SR 35). Big Basin
Way is designated as SR 9.
Legend:
Fehr & Peers Page 6
Revised May 2010
Saratoga City Boundary
Roads
Waterways
Figure 1 City Map
City of Saratoga Circulation and Scenic Highway ElementCity of Saratoga Circulation and Scenic Highway Element
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City of Saratoga Circulation and Scenic Highway Element
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City of Saratoga Circulation and Scenic Highway Element
Background Report/Goals, Policies, and Implementation Measures
Fehr & Peers Page 7
Pierce Road is a two-lane roadway linking
Congress Springs Road (SR 9) with
Saratoga-Sunnyvale Road. This roadway
traverses hilly terrain and provides access to
numerous local and collector streets in the
western hills. As part of the City’s
neighborhood traffic management efforts,
this street includes two speeds humps just
east of Saratoga-Sunnyvale Road.
Roadway Classifications
To better identify the character of a
roadway, all streets and highways are
classified depending upon the service they
provide. For example, some facilities are
designed to serve high traffic volumes
across the City, while others are designed to
serve low volumes and to distribute traffic
within a limited area. Prior to the 2000
General Plan, roadways were classified
based on the functional classification system
typically used by the Federal Highway
Administration (FHWA) and illustrated on
California Road Systems (CRS) Maps. The
functional classification system emphasizes
vehicle travel and focuses on the street
environment between the curbs. In the 2000
General Plan, City roadways were identified
based on the following classifications:
interstate freeway, other freeway or
expressway, major arterial, minor arterial,
and collector. All other streets are assumed
to be local streets.
In determining the appropriate classification
system for a given roadway, the City has
and will continue to recognize that
transportation corridors have multiple users
(i.e., drivers, bicyclists, pedestrians, and
transit users) and that adjacent land uses also
influence the functionality and character of
the street environment. A map of the City’s
adopted roadway classification system is
shown on Figure 2.
The City does not have an officially adopted
classification system. Although the current
General Plan map identifies some arterial
roadways and collector streets, no
distinction is made between types of arterial
roadways (principal/major vs. minor). For
discussion purposes, roadways have been
classified into seven categories: freeways,
expressways, major and minor arterials,
collectors, local streets, and hillside streets.
Portions of Prospect Road and Quito Road
that are located in adjacent jurisdictions may
be designated differently by those agencies.
General definitions of these classifications
and example segments are presented below.
• Freeways. Freeways are limited-
access, high-speed travelways
included in the State and Federal
Highway systems. Freeways are
facilities designed solely for traffic
movement, providing no access to
abutting properties, and designed to
separate all conflicting traffic
movements through the use of grade-
separated interchanges. The only
freeway in the City is State Route
(SR) 85.
• Expressways. Expressways are high-
speed, limited-access streets
designed to facilitate the movement
of high traffic volumes. Expressways
are designed to serve both regional
through and local traffic and ideally
connect other regional roadways and
freeways. Expressways are
maintained and operated by the
Santa Clara County Roads and
Airports Department. While the city
coordinates with the County
regarding expressway operations and
improvements, the County controls
access to and operation of traffic
City of Saratoga Circulation and Scenic Highway Element
Background Report/Goals, Policies, and Implementation Measures
Fehr & Peers Page 8
signals on each of these facilities.
The only expressway facility within
the city limits is a very short segment
of Lawrence Expressway north of
Saratoga Avenue.
• Major and Minor Arterials. Arterial
roadways are major streets that
primarily serve through traffic and
provide access to abutting properties
as a secondary function. Arterials are
generally designed with two to six
travel lanes and major intersections
are signalized. This roadway type is
divided into two categories: major
and minor arterials. Major arterials
are typically four- or more lane
roadways and serve both local and
through traffic. Minor arterials are
typically two- to four-lane streets
and serve local and commute traffic.
Examples of major arterials are
Saratoga Avenue east of SR 85,
Saratoga-Sunnyvale Road, Saratoga-
Los Gatos Road, and Quito Road
north of SR 85. Minor arterials
include Saratoga Avenue west of SR
85, Fruitvale Avenue, Cox Avenue
(Saratoga-Sunnyvale Road to
Saratoga Avenue), and Quito Road
south of SR 85.
• Collectors. Collectors are streets that
provide land access and traffic
circulation within residential,
commercial and industrial areas.
They connect local streets to arterials
and are typically designed with two
travel lanes that may accommodate
on-street parking. Collector streets
include Herriman Avenue, Pierce
Road, and Miller Avenue.
• Local Streets. Local or residential
streets provide direct access to
abutting residential properties as
their primary function. Local streets
have no more than two travel lanes
and may or may not accommodate
on-street parking. In many areas of
Saratoga, local streets do not include
sidewalks.
Legend:
Fehr & Peers Page 9
Revised May 2010
Interstate Freeway (Not Applicable)
Other Freeway or Expressway
Minor Arterial
Collector
Major Arterial
Figure 2 Current Roadway Classifications
City of Saratoga Circulation and Scenic Highway ElementCity of Saratoga Circulation and Scenic Highway Element
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City of Saratoga Circulation and Scenic Highway Element
Background Report/Goals, Policies, and Implementation Measures
Fehr & Peers Page 10
• Hillside Streets. These roads are local
streets located in the foothills that
have narrow travel lane widths and
slower travel speeds. No on-street
parking is typically permitted and no
right of way is available for separate
pedestrian or bicycle facilities.
Examples include Bohlman Road and
portions of Canyon View Drive.
• Heritage Lanes. Two roadways in
Saratoga are designated as “heritage
lanes.” While not an official roadway
classification for circulation purposes,
this designation indicates corridors
that are maintained to preserve the
City’s character. The two roadways
with this classification are Saratoga
Avenue between Fruitvale Avenue
and Park Place, and Austin Way
south of Saratoga-Los Gatos Road
(SR 9).
Existing Traffic Volumes
Existing traffic volumes were established
with traffic counts conducted in 2006 and
2010. Current daily traffic volumes for the
City’s major streets in the City are presented
on Figure 3.
Daily traffic volumes are used to identify the
required number of travel lanes on roadway
segments. While intersections represent the
constraint points of a roadway system,
forecasting specific turning movement
volumes 20 or more years in the future can
be speculative. In addition, use of daily
volumes better illustrates maximum use of a
roadway as opposed to focusing only on a
one- or two-hour peak period.
Roadway Segment Operations
The operations of roadways are described
with the term level of service. Level of
service (LOS) is a qualitative description of
traffic operations ranging from LOS A
(indicating free flow operations with little or
no delay experienced by motorists), to LOS F
(indicating congested and oversaturated
conditions where traffic flows exceed design
capacity and result in long queues and
delays). LOS E represents conditions at
capacity.
Roadway segments in the City of Saratoga
were analyzed using comparison of the daily
volume to threshold volumes based on
roadway type as presented in the technical
appendix. It is important to note that daily
volume thresholds are used for planning
purposes and traffic during peak periods may
result in worse operations than illustrated by
the daily LOS.
The City of Saratoga currently maintains
LOS D as the minimal acceptable operation
level for intersections that are under the
City’s jurisdiction. This same standard was
applied to the roadway segment operations
analysis.
Table 2 shows the existing operations of the
key roadway segments identified on Figure
3.
Legend:
Fehr & Peers Page 11
Revised May 2010
Existing Daily Volumes
Note: Traffic counts obtained in 2006 and 2010
Figure 3 Existing Daily Volumes
150
18,300
16,300
26,100
3,000
10,500
31,900
17,800
36,900
32,800
19,900
16,600
7,600
17,500
6,300
13,000
8,500
13,800
16,100
City of Saratoga Circulation and Scenic Highway ElementCity of Saratoga Circulation and Scenic Highway Element
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City of Saratoga Circulation and Scenic Highway Element
Background Report/Goals, Policies, and Implementation Measures
Fehr & Peers Page 12
TABLE 2
Existing Roadway Segment Levels of Service1
Roadway Segment
Existing
Volume1
Roadway Type Number
of Lanes LOS
Prospect Road
(Saratoga-Sunnyvale Road to Miller Avenue) 16,300 Major Arterial 4 C
Prospect Road
(Miller Avenue to Lawrence Expressway) 18,300 Major Arterial 4 C
Saratoga-Sunnyvale Road
(Prospect Road to Cox Avenue) 26,100 Major Arterial 4 D
Saratoga-Sunnyvale Road
(Cox Avenue to Saratoga Avenue) 17,500 Major Arterial 4 C
Pierce Road
(Surrey Lane to Comer Dr.) 3,000 Collector 2 B
Cox Avenue
(Saratoga-Sunnyvale Road to Saratoga Avenue) 10,500 Minor Arterial 2 D
Saratoga Avenue
(Lawrence Expressway To Cox Avenue) 31,900 Major Arterial 4 D
Saratoga Avenue
(Cox Avenue to SR 85) 36,900 Major Arterial 4 E
Saratoga Avenue
(SR 85 to Fruitvale Avenue) 32,800 Major Arterial 4 D
Saratoga Avenue
(Fruitvale Avenue to Saratoga-Sunnyvale Road) 16,600 Minor Arterial 2 D
Big Basin Way
(Saratoga-Sunnyvale Road to Pierce Road) 6,300 Minor Arterial 2 C
Fruitvale Avenue
(Saratoga Avenue to Allendale Avenue) 19,900 Minor Arterial 4 D
Fruitvale Avenue
(Allendale Avenue to Saratoga-Los Gatos Road) 8,500 Minor Arterial 4 C
Allendale Avenue
(Fruitvale Avenue to Quito Road) 7,600 Minor Arterial 2 C
Quito Road
(Saratoga Avenue to Allendale Avenue) 17,800 Major Arterial 2 F
Quito Road
(Allendale Avenue to Saratoga-Los Gatos Road) 13,800 Minor Arterial 2 D
Saratoga-Los Gatos Road
(Saratoga Avenue to Fruitvale Avenue) 13,000 Major Arterial 4 D
Saratoga-Los Gatos Road
(Fruitvale Avenue to Quito Road) 16,100 Major Arterial 4 C
Note: 1 Average Daily Traffic (ADT) volume based on traffic counts collected November 2006 and February
2010.
2 Level of Service (LOS) based on roadway capacities defined in the technical appendix.
Source: Fehr & Peers, March 2010.
City of Saratoga Circulation and Scenic Highway Element
Background Report/Goals, Policies, and Implementation Measures
Fehr & Peers Page 13
Overall, the City’s daily roadway volumes
have decreased by approximately 10 percent
as compared to the volumes presented in the
2000 General Plan. The decrease in roadway
volumes is not unexpected given the
economic boom that occurred in the late
1990s and the current recession.
Furthermore, the most recent VTA
Monitoring and Conformance Report (2008)
demonstrates that the CMP facilities
currently operate at acceptable levels.
Those facilities are located at (Saratoga-Los
Gatos Road and Big Basin Way), Saratoga-
Sunnyvale Road, and Saratoga Avenue (east
of SR 85).
The results in Table 2 show that two of the
eighteen study roadway segments are
operating near capacity on a daily basis. The
two areas of substantial congestion include:
• Saratoga Avenue between Cox Avenue
and SR 85
• Quito Road between Allendale Avenue
and Saratoga Avenue
As noted previously, congested daily
operations can indicate that overall traffic
demand meets or exceeds the capacity of a
given segment. However, peak-hour
intersection operations and potential
intersection improvements should be
evaluated prior to recommending widening
of roadway segments. This will allow the
City to maximize the use of existing
infrastructure while balancing the needs of
all roadway users.
Truck Traffic
Truck traffic is not a significant existing
problem in the City of Saratoga. The major
state highways leading into and traversing
the City are not high volume truck routes.
SR 9 west of the City is a two-lane road with
numerous curves and steep grades and is not
conducive to truck travel. Trucks over four
and one-half (4.5) tons are not permitted on
SR 85. In general, most large trucks travel
on Saratoga streets only to make local
deliveries, pick-ups, and support new
construction. While some complaints occur
during construction or remodel of a home or
business, issues are localized and addressed
through code or law enforcement.
Other Traffic Issues
Several issues regarding traffic circulation
throughout the City have been identified at
public meetings and through
communications with City Community
Development Department staff. These issues
are listed below followed by a brief
discussion of each.
Neighborhood Traffic Problems – Changes
in traffic patterns within the City have
caused some through traffic to divert to
residential collector and local streets at
selected locations. Citizens in several
neighborhoods have indicated that the traffic
volume or travel speeds on some local
streets have increased to an unacceptable
level, although in many cases, speeding is
caused by residents from immediate or
adjacent neighborhoods.
City of Saratoga Circulation and Scenic Highway Element
Background Report/Goals, Policies, and Implementation Measures
Fehr & Peers Page 14
The arterial and collector roadways shown
in Table 2 are designed to carry substantial
traffic volumes. Even a two-lane collector
road with numerous access driveways is
physically capable of serving traffic
volumes in excess of 7,500 vpd without
congestion depending on intersection
operations, available gaps in traffic, and lane
widths. For collector and local streets in
residential areas, the volume of traffic
generally accepted or tolerated by
residents is significantly lower. This
threshold is referred to as the
“environmental capacity” of a roadway. The
environmental capacity relates to the
perceived speed of traffic, how difficult it is
for residents to back out of driveways, and
the overall perception of safety. The
environmental capacity of a collector street
is often cited as 3,000 to 3,500 vpd. The
environmental capacity of a local street is
between 1,500 to 2,000 vpd.
Residents of some neighborhoods are
interested in traffic calming or management
techniques to mitigate these problems.
Traffic calming measures include changes in
street alignment, installation of barriers or
other physical devices, and enforcement to
reduce traffic speeds and/or cut-through
volumes, in the interest of street safety,
livability, and other public purposes.
Increased enforcement has been identified as
a key issue at public meetings regarding
Citywide traffic issues.
Citizen complaints and issues regarding the
volume and speed of traffic on these
facilities are typically heard by the Traffic
Safety Commission (TSC), which is
comprised of seven appointed
commissioners that are residents of the City.
The TSC works together with City staff,
including the City’s Traffic Engineer, and
investigates, reviews and analyzes traffic
safety issues raised by community members
and Public Safety agencies. The Traffic
Safety Commission makes
recommendations to the City Council
regarding traffic safety and the potential
implementation of traffic calming devices.
As an advisory body, the Commission
develops recommendations to the Planning
Commission and City Council on
transportation improvements and circulation
issues.
Congestion at Schools – Over the years,
vehicle congestion around several City
schools has continued to be a controversial
issue. The increased traffic is due in part to
increased student population, but is more
related to a trend in students that are driven
to school instead of walking or bicycling.
Most elementary schools in Saratoga
generate a higher than typical number of
vehicle trips due to a lack of sidewalks on
many local streets and the ability for
students to attend any school within the
City. Student pedestrian and bicycle safety
is a key concern for residents.
Special Event/Concerts – The traffic and
parking demand for events at both the
Mountain Winery and Villa Montalvo often
cause delays for local traffic. Major events
at the winery primarily occur on weekends
City of Saratoga Circulation and Scenic Highway Element
Background Report/Goals, Policies, and Implementation Measures
Fehr & Peers Page 15
and affect travel through the Village and on
Pierce Road. Off-site parking at West Valley
College and shuttle service have been used
to reduce traffic for Villa Montalvo events.
The City works with operators of both
facilities and law enforcement to minimize
impacts to City residents and businesses.
Transit
The Santa Clara Valley Transportation
Authority (VTA) operates bus, light rail
transit, and paratransit service throughout
Santa Clara County. Bus transit service
within the City of Saratoga includes six
fixed routes (Routes 26, 37, 53, 57, and 58),
one limited stop route (Route 328 on
Lawrence Expressway), one commuter route
(Route 101 on Lawrence Expressway), and
paratransit service (dial-a-ride service for
qualified individuals). Figure 5 illustrates
the bus route paths operating within the
City.
All of the fixed bus routes, except Route 26,
operating through the City terminate at West
Valley College and only provide service on
Saratoga-Sunnyvale Road, Saratoga
Avenue, Quito Road, and Allendale Avenue.
No service is provided on Cox Avenue, most
of Fruitvale Avenue, and the southern half
of Quito Road. VTA ridership statistics or
load factors from March 2010 are
summarized in Table 3.
As shown, at least 68 percent of the
available seat capacity is used on the routes
serving Saratoga; and two routes (Route 26
and Route 53) have more passengers during
peak service times than the available seating
capacity. At public meetings, residents have
indicated that the time and number of
transfers required to access major
destinations (e.g., regional malls, downtown
San Jose) are deterrents to transit use.
Recent reductions in service due to budget
constraints have further reduced the
attractiveness of transit as a viable
alternative to private vehicle use and have
negatively affected transit-dependent
individuals.
Paratransit service is operated under contract
with OUTREACH, a private, non-profit
paratransit broker. This door-to-door service
is provided to riders whom meet the
eligibility requirements established by the
Americans with Disabilities Act (ADA).
TABLE 3
Transit Load Factors –
Routes Serving Saratoga
Route Capacity Avg. Max
Load
Load
Factor
26
37
53
57
58
38
25
38
38
38
9.4
3.8
4.4
6.6
3.6
0.25
0.15
0.12
0.17
0.09
Notes:
Source: Valley Transportation Authority, August
2010.
Legend:
Fehr & Peers Page 16
Revised May 2010
Figure 4 Existing Transit Service (Effective January 11, 2010)
Route 26
Route 53 Route 328
Route 101
Express Route 102 (No Stops in Saratoga)
Route NumbersXXRoute 58
Route 57
53
57
53
26
26
328
102
102
58
101
Route 53
57 37
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City of Saratoga Circulation and Scenic Highway Element
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City of Saratoga Circulation and Scenic Highway Element
Background Report/Goals, Policies, and Implementation Measures
Fehr & Peers Page 17
Bicycle Facilities
Bicycle facilities include bike paths, bike
lanes, and bike routes. Definitions of these
facility classifications are presented below.
• Bike Paths and Trails (Class I). Bike
paths are separated facilities
designated for exclusive use of
bicycles and pedestrians, and are
physically separate from roadways by
space or barriers.
• Bike Lanes (Class II). Bike lanes are
lanes adjacent to the outer travel lanes
reserved for the exclusive use of
bicycles, and designated with special
signing and pavement markings.
• Bike Routes (Class III). Bike routes
are roadways recommended for
bicycle use and often connect to bike
lanes and bike paths. Routes are
designated with signs only and do not
have separate bike right-of-way or
lane striping.
Saratoga has a limited number of dedicated
bicycle facilities. Figure 5 depicts the
locations of the existing bike lanes, paths,
and routes. The paths shown on Figure 5 are
multi-use trails and serve both bicycles and
pedestrians.
Although the segment of Fruitvale Avenue
between Allendale Avenue and Burgundy
Way has painted shoulder stripes, the narrow
shoulder includes a concrete valley gutter,
which does not meet Caltrans standards or
Valley Transportation Authority guidelines
for bicycle lanes.
Saratoga-Los Gatos Road (SR 9) has
continuous shoulder stripes along its length
through the City of Saratoga. In most
sections, the width of the shoulder meets
Caltrans standard for bicycle lanes and the
lanes are painted and signed as such.
However, intermittent segments exist where
the current striping does not meet Caltrans
standards for bike lanes and the sections are
officially designated bike routes, even though
the shoulder width provides sufficient room
for bicyclists to travel.
In August 2008, VTA adopted the Santa
Clara Countywide Bicycle Plan (CBP). The
CBP guides the development of major
bicycling facilities by identifying Cross
County Bicycle Corridors and other projects
of countywide or intercity significance.
Seven of the County’s 24 roadway bicycle
corridors and one of the County’s ten
separated path/ trail corridors traverse the
City of Saratoga and provide direct bicycle
connections to the surrounding jurisdictions.
These routes primarily run along Prospect
Road, Saratoga Avenue, Quito Road,
Saratoga-Sunnyvale/Saratoga-Los Gatos (SR
9), Allendale Avenue, Miller Road, and Cox
Avenue.
Other important types of bicycle facilities are
Bicycle and Pedestrian Bridges, Tunnels, at
At-Grade Railroad Crossings. In the 2008
CBP these facilities are referred to as Across
Barrier Connections (ABCs). These facilities
provide important connections for
pedestrians and bicyclists across physical
City of Saratoga Circulation and Scenic Highway Element
Background Report/Goals, Policies, and Implementation Measures
Fehr & Peers Page 18
barriers, such as freeways, rivers, creeks, and
railroad tracks. Travel distances for bicyclists
and pedestrians can be significantly reduced
by providing connections across these
barriers, and therefore, they help increase the
viability of bicycle and pedestrian travel.
SR 85 and the parallel running UPRR tracks
traverse through the northern part of the City
of Saratoga at a northwest-southeast angle
and are the major barrier to pedestrian and
bicycle travel within the City.
The City of Saratoga has two Bicycle and
Pedestrian Bridges that provide direct
connections across SR 85:
• Azule Park on Goleta Avenue to
Kevin Moran Park on Scully Avenue.
• Seagull Way to Kevin Moran Park on
Scully Avenue.
The City does not maintain any official
crossing of the UPRR, though there are
future plans to provide an at-grade pedestrian
crossing between Fredericksburg Drive and
Guava Court. This improvement is discussed
in more detail in the section on Future
Conditions and “Suggested Routes to
School,” since this crossing of the UPRR
tracks would provide a direct connection to
Blue Hills Elementary School.
Figure 5 illustrates the locations and type of
ABCs within the City of Saratoga.
The City of Saratoga also has several short-
cuts and school pathways that use easements,
parks or other means to reduce the trip length
of bike and walk trips. Such pathways
include but are not limited to the connection
between Saratoga Avenue and Fruitvale
Avenue that runs through the orchard and
connects to the Saratoga Library. Another
pathway travels between Saratoga Avenue at
Herriman Avenue to Redwood Elementary
School. These pathways are an important
bicycle and pedestrian infrastructure that
serve the residents of the City of Saratoga.
Pedestrian and Equestrian Facilities
Pedestrian facilities improve safety for
pedestrians and can also encourage the use of
alternative modes of transportation. These
facilities include sidewalks, paths, pedestrian
bridges, crosswalks, and pedestrian signals
with crosswalks at signalized intersections to
accommodate pedestrian circulation.
Many of the streets in Saratoga do not have
sidewalks because of the City’s rural
planning principles. Of particular importance
are the streets leading up to and around some
schools that do not have sidewalks or are
served by discontinuous sidewalk segments.
Lack of sidewalks forces school children to
share the roadway with vehicles. In many
instances, parents elect to drive their students
to school to avoid potential conflicts with
vehicle traffic. Also noted as an issue is
existing gaps in pedestrian paths or sidewalks
on the major and minor arterial roadways
throughout the City.
The City of Saratoga prepared an Open
Space and Conservation Element in 2007.
This document identified existing and
proposed trails throughout the City. The
existing trails are shown on Figure 6. Both
pedestrians and bicyclists can use existing
paved trails, like those on Fruitvale Avenue.
Equestrians currently use the existing trail
system for recreation purposes. The majority
of horseback riding occurs in the western
hills of the City near Pierce Road with some
activity in other areas including Sobey Road
and south of SR 9.
City of Saratoga Circulation and Scenic Highway Element
Background Report/Goals, Policies, and Implementation Measures
Fehr & Peers Page 19
Rail Service
The City is currently served by a single rail
line that extends generally parallel to SR 85
between Prospect Road and Quito Road. The
rail line crosses six streets in Saratoga with
one grade-separation (Saratoga Road), four
at-grade crossings with gates (Prospect Road,
Saratoga-Sunnyvale Road, Glen Brae Drive
and Quito Road), and one at-grade crossing
with lights but no gates (Cox Avenue).
The railroad is currently operated by Union
Pacific Company and is only used by the
Lehigh Permanente Quarry and Cement Plant
(formerly Kaiser-Permanente). Trains run
between Milpitas and the Quarry on
Mondays, Wednesdays, and Fridays at 9:00
am, and the trains return at around 2:00 pm.
Trains do not stop within the City and do not
substantially impact vehicular traffic.
Legend:
Fehr & Peers Page 20
Revised August 2010
Arr
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Figure 5Existing Bicycle Facilities
Bicycle Lanes (Class II Facilities)
Bicycle Routes (Class III Facilities)
Expressway Segments (Bicycles Permitted)
Bicycle Paths (Class I Facilities) - See Existing Trail Easements Bicycle Lanes/Routes (Class II/III Facilities)
Note:
Based on city designation, some facilities do not
not include signage or adequate bike lane width.
Note: Most sections of Saratoga-Los Gatos Rd. include bike lanes. On intermittent
segments, current striping does not meet Caltrans standards for bike lanes and these
sections are technically considered bike routes, even though the shoulder width
provides sufficient room for bicyclists to travel.
Across Barrier Connections
0 3,000 6,0001,500
Feet
City of Saratoga Circulation and Scenic Highway Element
City of Saratoga Circulation and Scenic Highway Element
Background Report/Goals, Policies, and Implementation Measures
Fehr & Peers Page 21
III. OTHER CIRCULATION ISSUES
In addition to the transportation facilities and
services described in Chapter II, the
circulation-related issues in this chapter will
be used to formulate policies in the
Circulation and Scenic Highway Element
update.
Traffic Calming
As noted in Chapter II, some local streets
have experienced increases in traffic
resulting from changes in travel patterns and
overall changes in regional through traffic
throughout Santa Clara County. Other
problems such as speeding on residential
streets and those near schools are also
potential candidate streets for calming
measures. Traffic calming measures are the
focal point of overall neighborhood traffic
management.
Suggested Routes to School
As noted in Chapter II, the rural planning
principles employed in Saratoga include not
constructing sidewalks on many local
residential streets to reduce the amount of
impervious surface and to maintain a high
level of visual quality. Given the relatively
low traffic volumes on most streets, the
combination of pedestrian and vehicle traffic
in the roadway does not typically result in
problems. However, many parents of
elementary school-age children do not permit
their children to walk to school because of
potential vehicle-pedestrian conflicts. Painted
crosswalks at some intersections help to
delineate the desired path for students
walking between various neighborhoods and
their school.
Thus, many students are driven to and from
school, and the result is increased congestion
and delay. These factors contribute to an
increase in the vehicle-pedestrian conflict
potential, especially in the immediate vicinity
of the school. Although the school districts
have been actively participating in efforts to
increase ridesharing to reduce overall traffic
volumes at elementary schools, additional
measures will be necessary to decrease the
number of students driven to school.
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Part of the problem may be that many parents
are unaware of route options their children
could use to get to and from school. Some
routes include streets with traffic control
devices that make drivers more aware of
other vehicular and pedestrian traffic. For
example, a student crossing at a stop sign-
controlled intersection is preferable over
crossing at an uncontrolled location.
The four elementary school districts in
Saratoga (Saratoga Union, Cupertino Union,
Campbell Union, and Moreland) and the
various private schools have not formally
adopted a Suggested Routes to School
Program. This program would help parents
identify appropriate travel paths for student
pedestrians and bicyclists. Implementation of
such a program could also help to reduce
vehicle trip generation at most school
locations and through neighborhoods.
Although the district would likely establish
and maintain such a program, the City would
be an effective partner in preparing the
inventory of traffic control devices and
streets.
Parking
Parking is typically considered a separate
issue from overall circulation. However, the
presence of on-street parking has a direct
effect on roadway capacity. In addition, off-
street parking deficiencies can cause vehicles
to re-circulate on public streets, increasing
traffic volumes and congestion by reducing
capacity for through traffic.
Saratoga’s zoning ordinance includes parking
requirements to ensure that adequate
numbers of spaces are provided on-site for
most uses, as well as minimum stall
dimensions that are consistent with current
standards for other jurisdictions. These
regulations apply to all new developments
and may be applied to existing uses that are
modified or expanded.
Valet parking is provided at two restaurants
on Big Basin Way (SR 9) in the Village area.
At peak times, parking demand exceeds the
available number of on-street and off-street
spaces in the immediate vicinity of these
establishments. The valet service is provided
for La Fondue and the Plumed Horse on Big
Basin Way past 4th Street. This is one method
of maximizing the use of available parking
and reducing conflicts with street traffic.
Transportation Demand
Management Programs
Transportation Demand Management (TDM)
programs are designed to reduce the number
of vehicle trips and the amount of peak
period traffic by encouraging employees to
use modes other than the single-occupant
automobile for transportation to and from the
workplace and to travel during non-peak
times. Typical TDM components include:
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• On-site TDM coordinator
• Carpool/vanpool match program and
preferential parking for
carpools/vanpools
• Secure bicycle storage facilities
• On-site shower facilities
• Flex-time (i.e., staggered hours that
begin and/or end outside the peak
commute hours)
• Alternative work schedules (e.g., 9/80
schedule)
• Provisions for telecommuting
• Shuttle bus service
• Guaranteed ride home program
• Cash incentives/Transit subsidies/On
site transit pass sales
• Education programs
The City does not have adopted policies or
implementation programs regarding specific
TDM measures. Recent court decisions have
restricted the methods by which jurisdictions
can require TDM measures for
developments. Typically, TDM measures are
included as part of a project through the
development agreement process for new
projects or through approval of use permit
modifications for existing developments. The
City strongly supports methods that decrease
the overall vehicle travel demand and
encourages residents and employees to
maximize the use of TDM measures.
Transportation Impact Analysis
(TIA) Reports
The City requires some new development
and redevelopment projects to prepare a
transportation impact analysis (TIA) to
evaluate the effect of these projects on the
current transportation system. City staff has
the discretion to require focused studies
regarding access, sight distance, and other
operational and safety issues, in addition to
or in lieu of roadway/intersection capacity
analysis.
To the extent possible, the analysis of
transportation impacts should be consistent
with the criteria maintained by the VTA, the
regional planning agency for Santa Clara
County. Impact criteria for freeways,
intersections, and alternative modes are
published in the VTA’s guidelines for impact
analyses. For developments that cause
significant and unavoidable impacts, the City
should use its discretionary approval process
to determine whether the project would
provide a clear and overall benefit to
Saratoga.
The TIA process allows the City to request
specific improvements from private
developers based on the relative impact of
the project.
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IV. SCENIC HIGHWAYS AND CORRIDORS
Background
The undulating terrain and extensive natural
and cultivated foliage in and around
Saratoga provide scenic drives throughout
the City. As development in the hillside
areas has increased, the City has employed
strict policies to preserve the natural beauty
of the mountains. In addition, many of the
City’s collector and local streets are very
attractive. A scenic highway provides the
motorist with a continuous, varied visual
experience. Scenic highways are selected by
how pleasing the field of vision is for
touring vehicles.
Roadways can be officially designated as
“scenic” through either the State Scenic
Highways program or through the Santa
Clara County Scenic Highways program.
The State Scenic Highway Element’s
legislative authority was passed into State
law on April 16, 1971. Saratoga originally
adopted its Scenic Highways Element in
1974. The most recent Guidelines for the
Official Designation of Scenic Highways
was updated by Caltrans in March 1996.
The purpose of the element is to inventory
scenic corridors and to develop plans to
protect them. The Master Plan for Scenic
Highways identifies those highways that are
eligible for official designation as State
Scenic Highways. Eligible highways can
only become officially designated by the
State after the local jurisdiction has adopted
and implemented a plan to protect and
enhance the scenic corridor. A detailed list
of current officially designated State
highways and eligible routes is maintained
by Caltrans and is available on its web site
(www.dot.ca.gov).
County roadways may be designated County
Scenic Highways and are protected by the
Santa Clara County zoning ordinance which
requires 100-foot setbacks for buildings and
structures along the scenic route. The
County Board of Supervisors, on advice
from the State Department of
Transportation, designates those roads that
qualify as officially designated County
Scenic Highways.
Existing Scenic Corridors
Currently, SR 9 is officially designated as a
State Scenic Highway Corridor from the Los
Gatos city limit (east of Saratoga), through
the Village, to SR 35/Skyline Boulevard at
the Santa Cruz County Line (i.e., at Saratoga
Gap).
Based on the section 3.30.050 of the Santa
Clara County Municipal Code, five roadway
segments are currently designated as County
Scenic Roadways:
• Skyline Boulevard (Saratoga Gap to
Loma Prieta)
• Congress Springs Road (Saratoga
Gap to the Saratoga City limit)
• Bohlman Road/Montevina Road
• Mt Eden Road
• Sanborn Road
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V. FUTURE CONDITIONS
The City of Saratoga is essentially built out
with the majority of vacant parcels located
in the western and southern hillside areas.
These areas are typically zoned for single-
family residential development at low
densities. Some redevelopment in the City is
projected, however, the commercial areas
are generally well-established and
substantial traffic growth from land uses in
the City is expected to be limited. The
majority of increases in traffic volumes is
expected to result from increased through
traffic; that is, vehicles that do not have an
origin or destination in Saratoga.
Future Traffic Volumes
Future traffic volumes for the major streets
in Saratoga were developed based on
forecasts from the Countywide
transportation demand model maintained by
the Santa Clara Valley Transportation
Authority (VTA). The countywide model
includes a roadway network of the major
streets and highways in the County plus land
use aggregated for specific geographic areas.
Models representing 2005 and 2030
roadways and land uses were utilized for
this analysis. The land use assumptions are
based on forecasts prepared by the
Association of Bay Area Governments
(ABAG) and approved by each City. A
review of the land use inputs show that the
total population increase between 2005 and
2030 is approximately 2,400 persons, while
the total number of jobs in the City is
expected to increase by approximately 950
during this period.
2005 and 2030 traffic volumes on selected
roadway segments in the City of Saratoga
were compared to calculate an annual
compounded growth factor. Based on this
analysis an annual growth factor of 1.2
percent was applied to the existing volumes
in Table 2 to estimate future year 2030
traffic volumes for the study roadway
segments.
Future Traffic Operations
The final future year traffic volumes were
then compared to theoretical capacities to
estimate roadway operations in 2030,
assuming no new roadway improvements in
the City. A summary of the projected 2030
levels of service is presented in Table 4.
The results in Table 4 show that six of the
eighteen study roadway segments will
operate near or at capacity on a daily basis.
The six areas of congestion include:
• Saratoga Avenue between Lawrence
Expressway and Cox Avenue
• Saratoga Avenue between Cox Avenue
and SR 85
• Saratoga Avenue between SR 85 and
Fruitvale Avenue
• Saratoga Avenue between Fruitvale
Avenue and Saratoga-Sunnyvale Road
• Quito Road between Saratoga Avenue
and Allendale Avenue
• Quito Road between Allendale Avenue
and Saratoga-Los Gatos Road
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TABLE 4
Year 2030 Roadway Segment Levels of Service1
(Assumes No New Roadway Capacity Improvements)
Roadway Segment
Projected
Year 2030
Volume1
Roadway
Type
Number
of Lanes LOS
Prospect Road
(Saratoga-Sunnyvale Road to Miller Avenue) 20,700 Major Arterial 4 D
Prospect Road
(Miller Avenue to Lawrence Expressway) 23,300 Major Arterial 4 D
Saratoga-Sunnyvale Road
(Prospect Road to Cox Avenue) 33,200 Major Arterial 4 D
Saratoga-Sunnyvale Road
(Cox Avenue to Saratoga Avenue) 22,300 Major Arterial 4 D
Pierce Road
(Surrey Lane to Comer Dr.) 3,800 Collector 2 B
Cox Avenue
(Saratoga-Sunnyvale Road to Saratoga Avenue) 13,300 Minor Arterial 2 D
Saratoga Avenue
(Lawrence Expressway To Cox Avenue) 40,500 Major Arterial 4 F
Saratoga Avenue
(Cox Avenue to SR 85) 46,900 Major Arterial 4 F
Saratoga Avenue
(SR 85 to Fruitvale Avenue) 41,700 Minor Arterial 4 F
Saratoga Avenue
(Fruitvale Avenue to Saratoga-Sunnyvale Road) 21,000 Minor Arterial 2 F
Big Basin Way
(Saratoga-Sunnyvale Road to Pierce Road) 8,000 Minor Arterial 2 C
Fruitvale Avenue
(Saratoga Avenue to Allendale Avenue) 25,300 Minor Arterial 4 D
Fruitvale Avenue
(Allendale Avenue to Saratoga-Los Gatos Road) 10,800 Minor Arterial 4 C
Allendale Avenue
(Fruitvale Avenue to Quito Road) 9,700 Collector 2 D
Quito Road
(Saratoga Avenue to Allendale Avenue) 22,600 Major Arterial 2 F
Quito Road
(Allendale Avenue to Saratoga-Los Gatos Road) 17,500 Minor Arterial 2 E
Saratoga-Los Gatos Road
(Saratoga Avenue to Fruitvale Avenue) 16,500 Major Arterial 4 D
Saratoga-Los Gatos Road
(Fruitvale Avenue to Quito Road) 20,400 Major Arterial 4 D
Note: 1 Average Daily Traffic (ADT) volume based on traffic counts collected November 2006 and February
2010.
2 Level of Service (LOS) based on roadway capacities defined in the technical appendix.
Source: Fehr & Peers, March 2010.
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The City’s policy is to generally maintain a
minimum of Level of Service (LOS) D
operations at all signalized street
intersections and roadway segments that are
under City jurisdiction. Intersections and
roadways located in the Santa Clara County
Congestion Management Program are held
to a LOS E standard.
In some cases it may not be practical or
feasible to implement improvements to
maintain Citywide LOS D operations. In
those cases, the City may consider accepting
a lower level of service. In the case of the
six segments noted above, for example, the
City has determined that no practical and
feasible improvements can be implemented
to lessen or avoid the lower levels of service
because of right-of-way and funding
constraints.
Explanation of acceptance of level of service
less than LOS D on these segments of
Saratoga Avenue:
• Saratoga Avenue (Lawrence Expressway
to Cox Avenue)
• Saratoga Avenue (Cox Avenue to SR
85)
• Saratoga Avenue (SR 85 to Fruitvale
Avenue)
• Saratoga Avenue (Fruitvale Avenue to
Saratoga-Sunnyvale Road)
Vehicle capacity enhancements on Saratoga
Avenue, such as roadway widening or
additional turn lanes at intersections to
improve the future LOS to acceptable levels
would require elimination of bike lanes, on
street parking, and/or removal of the center
median.
Explanation of acceptance of level of service
less than LOS D on these segments of Quito
Avenue:
• Quito Road (Saratoga Avenue to
Allendale Avenue)
• Quito Road (Allendale Avenue to
Saratoga-Los Gatos Road)
The Quito Road segment between Saratoga
Avenue and Allendale Avenue would
require similar modifications to improve the
service levels, though the SR 85
overcrossing as currently configured would
not be able to accommodate an additional
travel lane in each direction. Without
additional right-of-way acquisition on the
segment south of Allendale Avenue, Quito
Road would not be able to accommodate
vehicle capacity enhancements. (see the
section on Potential Roadway Improvements
on page 28 for further discussion). In
addition, vehicle capacity enhancements
would conflict with existing or planned
bicycle, pedestrian, or transit facilities and
service on roadways
For these reasons these segments will be
allowed to operate at LOS F in the future.
Daily Vehicle Miles Traveled
A performance measure used to quantify the
amount of city- or region-wide travel is
vehicle miles traveled (VMT). VMT is a
useful performance measure, since the
amount of travel and conditions under which
the travel occurs directly relate to how much
fuel vehicles burn.1 One combusted gallon
of gas from a vehicle is equal to
approximately 24 pounds of carbon dioxide.
Given today’s average fuel mileage of
vehicles (i.e., approximately 22 miles per
gallon), one mile of travel equates to about
1 Conditions influencing the amount of fuel consumed
per VMT include the speed of travel, congestion stops
and starts, length of trip, layover between trips, and
the vehicle type and fuel economy.
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one pound of carbon dioxide. As a result,
increases in VMT directly cause increases in
greenhouse gas emissions and air pollution.
VMT measurement has one primary
limitation: it is not directly observed.
Methods do not exist that can measure the
trip distances of all vehicles on a given day.
VMT is typically an output of a calculation
– one based on the number of vehicle trips
multiplied by the distance traveled by each
car. The volume and distance of traffic
depends on land use types, density/intensity,
and patterns as well as the supporting
transportation system.
Two key data sources for information on
land use and travel patterns in Saratoga and
Santa Clara County were used to estimate
VMT under existing and 2030 conditions for
the City: the land use projections from
ABAG and the Countywide transportation
demand model maintained by the Santa
Clara Valley Transportation Authority
(VTA). The 2007 land use projections from
ABAG2 were used to determine the number
of vehicle trips generated by each land use
type. ABAG projections were also compared
to those in the VTA model, which showed
that the number of residential units
compared within 0.5% and the number of
employees compared within 4%, or 350
jobs. Average trip lengths were developed
for each trip purpose (work, school,
recreation, etc.) based on the Metropolitan
Transportation Commissions Bay Area
Travel Survey (2000) and local information.
The VTA model was used to determine the
number of trips that are internal to the City
of Saratoga (i.e., those that both start and
end within the City boundaries). The
resulting VMT estimates were calculated for
2 2007 ABAG land use projections are the most recent
approved.
existing and 2030 conditions, as summarized
in Table 5.
As shown in Table 5, VMT increases
between 2007 and 2030, by approximately
60,000 vehicle-miles, or 6.9% over 2007
conditions. This increase seems reasonable,
when compared to the 8% increase in
residential units and 13% increase in
employment based on ABAG projections
between 2007 and 2030. Additionally, VMT
per service population (resident population
plus employment) was calculated to show
the change in VMT relative to the projected
land use growth. VMT per service
population is similar to VMT per capita, but
service population also accounts for
employment within the City, which
contributes to VMT generated. VMT per
service population is projected to decrease
by 0.5 vehicle-miles, which means that the
VMT generated by the City is growing at a
lesser rate than the land use growth and that
the greenhouse gas emissions per service
population from VMT are decreasing
slightly with the future increases in land use.
TABLE 5
Existing and Future Vehicle Miles of
Travel (VMT)
Performance
Indicator 2007
2030
Change
(2030 –
2007)
VMT 877,819 938,000 +60,181
VMT per
Service
Population1
22.8 22.3 -0.5
Notes:
1 Service population is defined as resident
population plus employment.
Source: Fehr & Peers, March 2010. VMT
calculations based on ABAG 2007 and 2030 land
use projections for the City of Saratoga’s Sphere of
Influence.
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Potential Roadway Improvements
In general, the increase in traffic on Saratoga
streets will primarily consist of through
traffic since the City is essentially built out.
However, additional capacity will be
required to maintain acceptable traffic
operations or to minimize delays to the
extent possible at locations with excessive
congestion.
When considering roadway widening the
City will balance the needs of all roadway
users (vehicles, bicycles, pedestrians, and
transit) while maximizing the use of the
existing infrastructure and systems.
Intersections typically represent the
constraints points in roadway operations,
since they determine the flow of traffic on a
roadway. As noted previously, congested
daily operations can indicate that overall
traffic demand meets or exceeds the capacity
of a given segment. Therefore, peak-hour
intersection operations and potential
intersection improvements should be
evaluated prior to recommending widening
of roadway segments. This will allow the
City to maximize the use of existing
infrastructure while balancing the needs of
all roadway users.
To provide the opportunity for future
roadway capacity and freeway access, the
City should establish a policy to limit any
development that could encroach on future
interchange footprints at both the Prospect
Road and Quito Road overcrossings.
However, the City and the VTA do not
anticipate land use changes to necessitate the
construction of additional interchanges on
SR 85.
More detailed analysis and Citywide
approval will be required to determine the
specific environmental and traffic impacts of
any new freeway access. Extensive public
and environmental review would be
required. Based on the process used for
approval of the Saratoga Avenue
interchange, the addition of any new
interchange should require a Citywide vote
for approval. While provision of additional
ramps would reduce traffic at and near the
Saratoga Avenue interchange, traffic
congestion is expected to increase at
intersections near any new interchange.
Roadway Functional Classification
Roadway functional classification is used to
determine appropriate traffic levels for
streets and highways, as well as the
appropriate fronting land uses. In addition,
roadway classifications are used to
determine the applicability of traffic calming
devices. The City will maintain the current
roadway classification system as shown in
Figure 2. However, in the future the City
will evaluate its roadway classification
system as roadway volumes, multi-modal
access, and fronting land uses change.
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Truck Traffic
As noted previously, truck traffic is not
considered to be an existing problem in the
City of Saratoga. Even with increased
through traffic on City streets, the number of
trucks without a destination or origin in the
City traffic is not expected to increase
substantially. Additional development
within Saratoga is expected to be limited
given the fact that the City is mostly built
out. Low volumes of truck traffic will be
generated by the construction of new single-
family homes or the limited redevelopment
of other areas. This traffic is expected to
have a negligible effect on overall Citywide
circulation.
SR 9 west of Saratoga is not conducive to
truck travel because of its design, and large
trucks are not permitted on SR 85. Article 9-
40 of the City’s Ordinance currently
identifies designated routes for trucks that
do not make local deliveries or pick-ups (see
Figure C-3). Truck routes should include
City streets that do not have front-on
housing, are not designated as a heritage
lane, or have design features that do not
favor the movement of large trucks (e.g.,
sharp curves, narrow travel lanes). Although
Saratoga Avenue between Fruitvale Avenue
and SR 9 would not typically be included
based on some of the aforementioned
criteria, no alternative routes exist that are
considered feasible because of the adjacent
neighborhoods, narrower lane widths,
overhead landscaping, and circuitous paths.
Because it provides direct connectivity
through the City, it is therefore included as a
truck route. Given their connectivity
between communities, the State Highway
segments are considered to be designated
truck routes.
Improvements to Other Travel
Modes
Similar to the rest of the Bay Area,
increasing traffic volumes and the limited
opportunities for expanding roadway
capacity in Saratoga will increase the
demand on alternative travel modes.
Potential improvements to each mode are
discussed below.
Transit
The Santa Clara Valley Transportation
Authority (VTA) controls fixed route bus
service in the City of Saratoga. In addition
to making service changes to accommodate
near-term demand, the VTA does long-range
planning to determine future service needs.
Recent reductions in service due to budget
constraints have reduced the attractiveness
of transit as a viable alternative to private
vehicle use and have negatively affected
transit-dependent individuals.
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The City of Saratoga can help improve
transit service by requiring development
projects to install bus turnouts, sidewalks,
and other transit amenities in areas that may
be served by transit. In addition,
encouraging higher density development in
the vicinity of key transit stops such as West
Valley College will further expand travel
opportunities for residents and employers in
the City.
Input from community members, as well as
parents of school students, indicates that
residents are also interested in improved
local transit service within Saratoga. A local
shuttle system would allow residents to
travel to key destinations (i.e., shopping
centers, schools, commercial areas) without
increasing traffic. School traffic is a major
generator, especially during the AM peak
period. The City should actively pursue a
study to assess the feasibility of such a
system in concert with the business
community and school districts.
Access to the VTA’s light rail system is
provided at the Vasona station just west of
Winchester Boulevard and north of SR 85 in
the Town of Los Gatos. This light rail
extension has a negligible impact on transit
service in Saratoga given the distance
between the station and the city, and the fact
that many patrons need to drive to the
station. A greater impact would occur with
provision of light rail service in the SR 85
corridor through the City. However, the
VTA does not have any plans to extend light
rail in the SR 85 corridor through the City in
the foreseeable future. In general, the City of
Saratoga will continue to implement policies
and actions that support local and regional
transit access.
Bicycle Facilities
The City’s Proposed Bicycle Network (June
1995) identified a series of new bicycle
facilities to complete the Citywide bicycle
system. The new facilities in this document
included both bicycle lanes and bicycle
route designations. Three roadway cross-
sections were included for specific street
segments that meet current Caltrans
standards and Valley Transportation
Authority guidelines. However, no detailed
design standards for all Class I (paths), Class
II (lanes), or Class III (routes) facilities were
described or adopted.
Field reviews conducted in 1999 showed
that, in some cases, bicycle lanes proposed
in 1995 could not be accommodated without
substantial right-of-way acquisition, or
elimination of on-street parking in areas
with continuous front-on housing.
A revised set of proposed facilities was
prepared based on previously published
information and recent field data. The key
new facilities include:
• UPRR Multi-Use Path – A multi-use
path in the Union Pacific Railroad
corridor that will ultimately link the
City of Cupertino to the Town of Los
Gatos. The portion of the multi-use
path between Saratoga-Sunnyvale
Road and Saratoga Avenue is
currently under construction and
should be completed by the end of
2010.
• Pierce Road Multi-Use Path (Mount
Eden Road to Highway 9/Congress
Springs Road) – A future multi-use
path west of and parallel to Pierce
Road would link the proposed bike
path to the multi-use path on
Highway 9/Congress Springs Road.
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• Highway 9/Congress Springs Road
(west of Toll Gate Road) – The
future multi-use path would extend
south of and parallel to Highway
9/Congress Springs Road and would
provide an east-west connection
along Highway 9 to the west of the
Village.
• Fruitvale Avenue Bike Lanes
(Saratoga Avenue to Burgundy Way)
– This segment is recommended for
bike lanes. The width of this
roadway segment could
accommodate bicycle lanes by
reducing the width of existing travel
lanes.
• Allendale Avenue Lanes (Fruitvale
Avenue to Vasona Creek) – The
width of this roadway segment could
accommodate bicycle lanes by
reducing the width of existing travel
lanes.
• Highway 9/Saratoga-Los Gatos
Road – The City will work with
Caltrans to modify the existing
striping to provide continuous bike
lanes through the City of Saratoga.
• Scotland Drive and Cumberland
Drive Route (Saratoga Avenue to
Cox Avenue) – This route is
recommended to provide an
additional north-south bicycle
facility until the UPRR multi-use
path is constructed. This route also
provides an alternate travel path for
inexperienced bicyclists who want to
avoid the SR 85/Saratoga Avenue
interchange.
• Pierce Road (Surrey Lane to Mt.
Eden Road) – This future route is
recommended to provide an east-
west bicycle facility in the Saratoga
Hill’s area of the City and would
connect to the future Class I bike
trail parallel to Pierce Road between
Mt. Eden Road and Highway 9.
• Highway 9/Big Basin Way (4th Street
to Toll Gate Road) – This future
route is recommended to provide an
additional east-west bicycle facility
on Highway 9 that provides access to
the village area and connect to points
west. The bike route would connect
to the future Class I bike trail parallel
to Highway 9/Congress Spring Road
west of Toll Gate Road.
To ensure consistent implementation of the
proposed facilities, the City should formally
adopt a set of design guidelines for bicycle
facilities. The VTA has prepared a set of
technical guidelines for bicycle facilities and
services to be used by local agencies in
Santa Clara County. All existing facilities
should be upgraded to include appropriate
signage and pavement markings and
modified to meet minimum design standards
based on these guidelines. For example, the
travel lanes on Fruitvale Avenue between
Saratoga Avenue and Burgundy Way should
be re-striped to provide adequate bicycle
lane width so that riders do not have to
travel in the drain path parallel to the rolled
curb. The City should prepare a Bicycle
Master Plan (BMP) that includes all of the
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proposed facilities and design standards. A
formal BMP document substantially
improves the City’s opportunities for
obtaining State funds for bicycle
improvements.
Pedestrian Facilities/Trails
As noted previously, most collector and
local streets in Saratoga do not have
sidewalks, which is in keeping with the rural
planning principles maintained by the City
for many years. On most minor streets,
pedestrians are required to share the
roadway with vehicles, which is not
typically a problem since traffic volumes are
relatively low and travel speeds are usually
less than 30 miles per hour. However, a lack
of sidewalks in the immediate vicinity of
schools can be a problem during peak traffic
demand in the morning and afternoon.
A review of all existing major and minor
arterial roadways showed that several
segments have gaps in sidewalks or separate
pedestrian paths. These segments include
portions of Prospect Road, Cox Avenue,
Saratoga-Sunnyvale Road, Saratoga
Avenue, Allendale Avenue, Fruitvale
Avenue, Quito Road, and Saratoga-Los
Gatos Road (SR 9). While pedestrians
sharing the roadway with vehicles can be
accommodated on local streets, pedestrians
should not enter the traveled way of roads
where traffic volumes and travel speeds are
substantially higher. These gaps should be
closed to improve pedestrian travel and
safety. Enhanced pedestrian access will
provide an alternative to automobile travel
and will improve access to available transit
facilities and services.
As discussed in more detail below under
Suggested Routes to School, the City has
plans to establish a formal at-grade-crossing
of the UPRR tracks between Fredericksburg
Drive and Guava Court, which serves as a
direct access to Blue Hills Elementary
School.
The City completed a comprehensive study
of multi-use and pedestrian trails as part of a
2007 Open Space and Conservation
Element. The plan included existing trail
easements (both developed and
undeveloped) as well as the location of
proposed trails. The current plan links the
population centers in Saratoga to the great
scenic and open space resources available in
the Santa Cruz Mountains. Although a
primary function of the trail system is to
provide recreational opportunities, trail links
to sidewalks and low volume streets will
provide a travel alternative for other
purposes including shopping, school, and
employment trips. The City should ensure
implementation of the proposed trail system.
Suggested Routes to Schools
Directly related to pedestrian and bicycle
travel is the issue of students traveling
between their home and school. Although
students in Saratoga are permitted to attend
any school within their district, the majority
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of students attend their neighborhood
school. In many instances students live less
than a mile from school, which is a
reasonable distance to walk or bike to
school. However, most local and collector
streets do not include sidewalks except in
the immediate vicinity of each school. Based
on this information and recent studies at
several area schools, many Saratoga students
are driven to school for two reasons: 1) their
residence is located beyond a reasonable
walking distance, especially for students in
the western and southern hills, and 2)
parents perceive that the pedestrian and
bicycle routes to school are dangerous
because students must share the road with
vehicular traffic.
Although school districts have the most
direct contact with parents and students, the
City of Saratoga should work with each
district to ensure that students are provided
with as much information as possible
regarding safe travel to and from school.
Thus, the City should work with each
district to expand the current education
efforts and prepare Suggested Route to
School maps for each campus, and a
Guidelines for Safe Walking and Bicycling
handbook. Each of these items is described
briefly below.
Suggested Route to School maps include all
bicycle and pedestrian-related facilities and
traffic control devices including: crosswalks,
traffic signals, stop signs, paved sidewalks,
and school sign installations. This type of
map should be used by parents and students
to choose the most appropriate route to
school that maximizes the use of devices
that control traffic and warn drivers of
pedestrians.
A Guidelines for Safe Walking and
Bicycling handbook is an informational
pamphlet for parents and teachers to provide
guidelines for safe pedestrian and bicycle
travel. It provides text and illustrations to
show the correct procedures for minimizing
potential conflicts with vehicles and
includes suggested activities that parents can
do with their children. A section for parents
with tips on selecting a suggested route to
school is also included. This sample booklet
should be reviewed by both the school
district and City staff and included as part of
future student education efforts. Similar to
the sample route map, the sample handbook
does not imply a guarantee of safety.
Parental education and supervision is a key
element of a child’s approach to traveling on
or near roadways.
Each District should continue its education
programs and should encourage students to
walk and bicycle to school as appropriate.
The City should continue to pursue
opportunities to enhance pedestrian and
bicycle facilities, especially in the vicinity of
schools.
The City has been working with the VTA to
restore a former school route to Blue Hills
Elementary School that consisted of an at-
grade pedestrian crossing of the UPRR
tracks between Fredericksburg Drive and
Guava Court. The City submitted the Blue
Hills School Railroad Crossing Safety
Project for inclusion Valley Transportation
Plan 2035 (VTP 2035) Bicycle Element to
restore and improve the at-grade pedestrian
railroad crossing. This project was evaluated
and accepted into VTP 2035 as Project #B75
with a Bicycle Expenditure Program
allocation of $300,000.
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Potential Scenic Highways and
Corridors
Several roadways in or near the Saratoga
Sphere of Influence have the potential for
protection under the State and County scenic
highways programs. These facilities are
described below. Local policies and
programs to maintain scenic corridors within
the City of Saratoga are also presented.
Eligible State Highways
Besides SR 9, the only other highway that is
currently considered eligible for Scenic
Highway designation is SR 35/Skyline
Boulevard from SR 9 (at Saratoga Gap) to
the Santa Clara County-San Mateo County
line. Since the majority of views from this
segment are to the west and south, Santa
Cruz County is ultimately responsible for
developing a scenic highway program for
this segment. In San Mateo County, SR 35 is
an officially designated route.
Eligible County Roadways
Numerous corridors in the Saratoga Sphere
of Influence could be considered under the
County’s Scenic Highways protective
ordinance. However, currently no new
segments have been designated for the
County’s Scenic Highways protective
ordinance. Through the community outreach
process, the City should support designation
of such facilities to increase the aesthetics of
the surrounding area.
Local Measures to Maintain Scenic
Roadways
Arterial roadways and collector and local
streets are not eligible for the existing scenic
highway protection programs. However,
efforts to beautify these facilities contribute
to the overall aesthetic appeal of the City.
Several locations within the City have been
identified as having poor visual quality areas
because of extensive commercial
development and/or limited landscaping.
Key corridors that could be improved
include portions of Saratoga Avenue, Quito
Road, and Prospect Road. The gateway from
Cupertino into Saratoga at the Saratoga-
Sunnyvale Road/Prospect Road intersection
was recently improved to provide
landscaping and beautification.
The City of Saratoga has numerous
ordinances and procedures to require new
development projects, redevelopment
projects, and property/building
modifications to contribute to the
establishment and maintenance of scenic
corridors. These measures include:
• Parcel re-zoning
• Minimum site frontage requirements
• Subdivision requirements for
development projects to maintain
topography
• Landscaping requirements between
fences/walls and major roadways,
and on dead-end streets
• Design review of most residential
and commercial developments by the
Planning Commission
• Requirements for underground
utilities/wiring
• Special ordinances for hillside
subdivisions to provide erosion
control
• Building structure height restrictions
• Permit requirements for tree removal
• Establishment of scenic easements in
hillside subdivisions
• Aesthetic/scenic policies in the
Hillside Specific Plan
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VII. GOALS, POLICIES AND IMPLEMENTATION MEASURES
Based on the existing features of the
transportation system in the City and the
projected future travel demand, a set of
updated goals, policies, and implementation
measures was developed for the Circulation
and Scenic Highway Element. This
information has been modified by the
Traffic Safety and Planning Commissions,
and the City Council may make further
revisions as appropriate.
Background
The existing low-density residential land use
pattern combined with a limited amount of
commercial support services, entertainment
centers, and employment centers do not
strongly support the need for a complex
transit system. However, expanded transit
service is needed to provide transportation
opportunities for all residents and is an
important alternative to automobile use. The
use and expansion of other alternative
modes, including bicycling and walking, is
another key issue for providing a
comprehensive Citywide transportation
system. This approach is consistent with
other County, regional, and statewide efforts
to increase the use of non-automobile modes
to create more sustainable communities and
reduce the amount of pollutants and
greenhouse gases emitted.
The “backbone” of the City’s roadway
network is a set of major and minor arterial
roadways that provide the link between
neighborhoods and the City’s commercial
services, and also the regional freeway
system. Local and residential collector
streets represent the rural nature of Saratoga.
The pattern and design of local streets help
to shape the image and identity of
neighborhoods, influence perceived safety,
change communication between neighbors,
and increase the attractiveness of alternative
modes. The Circulation Element was
updated to further protect local
neighborhoods and to set forth policies that
will enhance travel throughout the City. The
goals, policies and implementation measures
begin on the following page.
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CIRCULATION AND SCENIC HIGHWAY ELEMENT (CI)
A circulation element consisting of the general location and extent of existing and proposed
major thoroughfares transportation routes, terminals, and other local public utilities and
facilities, all correlated with the land use element of the plan.
A scenic highway element for the development, establishment, and protection of scenic
highways pursuant to the provisions of Article 2.5 commencing with Section 260 of Chapter 2
of Division 1 of the Streets and Highways Code.
OVERALL TRANSPORTATION SYSTEM
Goal
CI.1a Provide a balanced, multi-modal transportation system in Saratoga to maintain
mobility for all segments of the community and to maintain the City’s small town
character.
CI.1b Encourage healthy, active living, reduce traffic congestions and fossil fuel use,
and improve the safety and quality of life of residents of the City of Saratoga by
providing safe, convenient, and comfortable routes for walking, bicycling, and
public transportation.
Policies
CI-Policy-1.1 The City shall encourage and participate in the implementation of a
variety of modes of transport to serve Saratoga.
CI-Policy-1.2 Encourage development of cooperation strategies to support local and
regional transportation solution and improvements.
CI-Policy-1.3 Provide safe, convenient and comfortable routes for walking, bicycling,
and public transportation that encourage increased use of these modes of
transportation, enable convenient travel as part of daily activities, improve
the public welfare by addressing a wide array of health and environmental
problems, and meet the needs of all users of the streets, including children,
older adults, and people of disabilities.
STREET SYSTEM AND STANDARDS OF SERVICE
Goals
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CI.2a Facilitate the safe movement of vehicular traffic within and through the City,
taking into consideration the environmental, historical, and residential integrity of
the City to maximize benefits and minimize adverse impacts and costs.
CI.2b For traffic management and street design, balance the efficiency of vehicular
traffic with the safety and livability of residential areas.
CI.2c Strive to establish a transportation system of streets that accommodates all travel
modes and users within the street right-of-way to the maximum extent possible.
Policies
CI-Policy-2.1 Make efficient use of existing transportation facilities and strive to reduce
the total number of vehicle miles traveled through the arrangement of land
uses, improved facilities for non-automobile modes, and enhanced
integration of various transportation systems.
CI-Policy-2.2 Maintain and develop a City-wide street system that manages vehicular
access, but also provides for emergency access.
CI-Policy-2.3 Maintain a minimum of Level of Service (LOS) D operations standard at
all signalized street intersections and roadway segments that are under
City jurisdiction except for intersections and roadways included in the
Santa Clara County Congestion Management Program (which are held to a
LOS E standard), and as otherwise specified pursuant to Policy 2.4.
CI-Policy-2.4 Accept Level of Service E or F operations on City-maintained roadways
after finding that: 1) no practical and feasible improvements can be
implemented to mitigate the lower levels of service, or 2) vehicle capacity
enhancements would conflict with existing or planned bicycle, pedestrian,
or transit facilities and services. A proposed development that exacerbates
LOS E or F operations and causes a significant intersection impact should
also be considered for approval if it will provide a clear, overall benefit to
the City (e.g., library expansion or relocation, new community center).
CI-Policy-2.5 Ensure that new development or redevelopment projects provide adequate
property dedication to accommodate future roadway and multi-modal
access improvements at key intersections and other potential conflict
areas.
CI-Policy-2.6 Efficiently manage traffic flow on major and minor arterial roadways to
discourage through traffic in residential neighborhoods.
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CI-Policy-2.7 Align and design collector streets to minimize adverse impacts on the
character of residential neighborhoods through which they pass, while
functioning efficiently to collect and distribute traffic.
CI-Policy-2.8 Design new local streets to reduce travel distance, promote alternative
modes, and provide a more even distribution of traffic.
CI-Policy-2.9 Establish the primary access for major traffic generators on arterial
roadways and design overall access to minimize traffic intrusion to
residential neighborhoods.
CI-Policy-2.10 Strive to maintain traffic volumes and speeds on collector and local streets
that are compatible with the character of the adjacent land uses, the
function of the street, and bicycle and pedestrian access.
CI-Policy-2.11 Protect the integrity of and improve existing hillside streets by planning
future development according to existing street function.
CI-Policy-2.12 Focus future improvements on the most congested intersections to
maintain an acceptable level of mobility for all modes of transportation.
CI-Policy-2.13 Require development projects to mitigate and reduce their respective
traffic and parking impacts by implementing practical and feasible street
improvements to improve multi-modal access.
CI-Policy-2.14 Coordinate with the Santa Clara Valley Transportation Authority (VTA)
to comply with the Congestion Management Program (CMP) Guidelines
for CMP-designated facilities. Should the CMP-designated facilities
degrade below the CMP standard of Level of Service E, the City will
prepare a Deficiency Plan for the deficient facilities per the VTA’s
requirements.
Implementation Actions
CI-Action-2.1 Continue to use the Capital Improvement Program to project and
implement needed improvements to the street system.
CI-Action-2.2 Implement roadway and signal timing modifications to improve operations
and enhance safety (e.g., lengthen turn pockets, adjust left-turn phases,
widen lanes).
CI-Action-2.3 Establish street and driveway accessibility requirements for all streets
designated as a major or minor arterial roadway as shown on Figure C-2.
Ensure that driveway or street access does not substantially impede arterial
City of Saratoga Circulation and Scenic Highway Element
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traffic flow as part of the City review process for individual development
projects.
CI-Action-2.4 Install coordinated signal systems on all major arterial roadways in the
City to improve traffic flow as appropriate. Funding should be obtained
from all available City, County, State and Federal funding sources, and
developer contributions.
CI-Action-2.5 Evaluate the need for upgrading or enhancing intersection control (e.g.,
signalization, stop signs) at existing intersections on arterial roadways and
collector streets to improve overall access and circulation.
CI-Action-2.6 Install traffic signals to serve existing and projected traffic demand,
provide acceptable traffic operations issues, and enhance pedestrian safety.
CI-Action-2.7 Require a transportation analysis for all development projects resulting in
25 or more net new peak-hour trips. As appropriate, the analysis shall
identify potential impacts to intersection and roadway operations, project
access, and alternative travel modes, and shall identify feasible
improvements or project modifications to reduce or eliminate impacts.
City staff shall have the discretion to only require focused studies
regarding access, sight distance, and other operational and safety issues, or
to require detailed studies that generate fewer peak hour trips.
CI-Action-2.8 Evaluate development proposals and design roadway improvements based
on established Level of Service standards without negatively affecting
travel by other modes, and to be in conformance with Valley
Transportation Agency’s Bicycle Technical Guide.
CI-Action-2.9 Require that roadway improvements identified as mitigation measures for
development projects be in place prior to issuance of occupancy permits.
CI-Action-2.10 Require new development or redevelopment projects to dedicate property
to accommodate needed roadway improvements.
CI-Action-2.11 Identify potential capacity improvements and access modifications to
maintain adequate circulation in the vicinity of the Civic Center, West
Valley College, Redwood Middle School, the Public Library, St. Andrews
School and Sacred Heart.
CI-Action-2.12 Consider paying for improvement costs to serve a development project, as
appropriate, where the City’s economic development interests may be
served.
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CI-Action-2.13 Continue to address neighborhood traffic management issues through
public review and input provided by the Traffic Safety Commission.
CI-Action-2.14 Design local streets to carry low traffic volumes at low speeds and to
function safely while minimizing the need for traffic control devices or
enforcement. Physical features should include gentle curves, changes of
grade, narrow widths, short lengths, and T-intersections where feasible.
CI-Action-2.15 Design streets to minimize impacts to topography, riparian habitats and
wildlife corridors.
CI-Action-2.16 Implement the action programs identified in the Hillside Specific Plan to
provide adequate vehicular access consistent with CI-Policy-2.11. Where
feasible, improvements will include widening of travel lanes, increasing
vertical clearance, installing additional signs, and providing new pavement
overlays to improve safety.
TRUCK TRANSPORTATION
Goal
CI.3 Limit the intrusion of commercial truck traffic on streets within the City.
Policies
CI-Policy-3.1 Require trucks to only use the designated routes shown on Figure C-3
unless making a local delivery.
CI-Policy-3.2 Encourage or require deliveries to be made during off-peak periods (i.e.,
outside the morning and evening commute periods), especially in areas
where intersections or roadways operate at LOS E or F during the peak
periods.
Implementation Actions
CI-Action-3.1 Continue to strictly enforce the truck route ordinance by citing violators.
CI-Action-3.2 Require as part of project approval for new projects with regular truck
deliveries that such deliveries be made outside the typical peak commute
travel periods (e.g., 7:00 am to 9:00 am and 4:00 pm to 6:00 pm) as
appropriate.
CI-Action-3.3 Establish and maintain reserved commercial truck loading zones on public
streets in appropriate areas such as the Village. Time limits for designated
City of Saratoga Circulation and Scenic Highway Element
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loading areas may be established to allow public on-street parking in
loading zones at other times.
CI-Action-3.4 Require new or redevelopment projects to provide on-site truck loading
areas except for areas such as the Village with small commercial lots.
Enforcement will be provided by the Sheriff’s Department similar to other
on-street parking areas in the City.
TRANSIT
Goals
CI.4a Promote local and regional transit as a viable alternative to automobile travel for
destinations within and outside the City.
CI.4b Promote the use of non-automobile modes of transportation by improving the
capacity, safety, accessibility, and convenience of existing and planned transit,
bicycle and pedestrian systems.
Policies
CI-Policy-4.1 Coordinate with the Valley Transportation Authority to increase service
range and frequency within the City per VTA’s Transit Sustainability
Policy. Existing service is illustrated on Figure C-4.
CI-Policy-4.2 Install transit improvements to improve service, increase safety, and
maintain traffic flow on streets serving as transit routes.
CI-Policy-4.3 Encourage the public school districts, private schools, recreation groups or
other operators to develop a local bus system and to expand ride-sharing
activities that will help to reduce school-generated vehicle traffic in
neighborhoods and on City streets. Bussing should be one of the first
measures considered, along with walking and biking, to reduce school-
generated traffic before substantial roadway capacity enhancements are
implemented.
CI-Policy-4.4 Investigate the feasibility of a local shuttle service within Saratoga to
reduce local traffic volumes on City streets and overall parking demand.
The feasibility study shall identify potential routes and funding sources.
Implementation Actions
CI-Action-4.1 Require development projects to dedicate right-of-way for purposes of
constructing bus turnouts and/or bus shelter pads on major and minor
arterial roadways as appropriate.
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CI-Action-4.2 In coordination with the VTA, provide seating and shaded waiting areas at
transit stops, with stop locations near entrances of buildings to encourage
ridership.
CI-Action-4.3 Coordinate with the Valley Transportation Authority when feasible to
provide new fixed route or shuttle service in underserved areas (e.g., Cox
Avenue).
CI-Action-4.4 Improve the links of local transportation systems and alternatives such as
bicycling and walking with private and public regional transit such as bus
transit, light rail, and CalTrain. Bicycle and pedestrian improvements
should be funded as Capital Improvement Program projects or through
private development projects to further encourage the use of transit.
CI-Action-4.5 Provide information to the public on available alternative transportation
choices and routes.
CI-Action-4.6 Encourage local businesses to provide employees with transit passes or
other financial incentives to use transit to commute to and from the
workplace.
CI-Action-4.7 Recommend potential stop locations for local school bus service and
provide minor street and landscaping improvements as appropriate.
CI-Action-4.8 Commission a feasibility study of local shuttle service within Saratoga.
Funding for the study should be obtained from federal and state
grants/sources and private development projects.
BICYCLE, PEDESTRIAN AND EQUESTRIAN FACILITIES
Goals
CI. 5a Integrate facilities for safe bicycling, walking, and horseback riding into the
overall transportation system.
CI.5b Encourage equestrian and pedestrian trails and pathways pursuant to the Open
Space and Conservation Element along roadways in areas where safety and
aesthetics permit.
Policies
CI-Policy-5.1 Develop and maintain a comprehensive and integrated system of bikeways
that promote bicycle riding for commuting and recreation
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CI-Policy-5.2 Integrate the City of Saratoga bikeways system with the bikeways system
of adjacent communities, where economically feasible.
CI-Policy-5.3 Pursue the expansion and continuation of the multi-use path along the
Union Pacific Railroad alignment (Joe’s trail) east of Saratoga Avenue and
west of Saratoga-Sunnyvale Road that will link the Stevens Creek
Recreational Trail in Cupertino with the Los Gatos Creek Trail in Los
Gatos.
CI-Policy-5.4 Pursue other potential rights-of-way such as Santa Clara Valley Water
District and utility easements for bicycle, pedestrian, and/or equestrian
trail development.
CI-Policy-5.5 Provide safe and direct pedestrian routes and bikeways between and
through residential areas linking transit centers and important community
centers such as local schools facilities and the Village.
CI-Policy-5.6 Improve pedestrian and bicycle access to all public and private schools to
enhance safety.
CI-Policy-5.7 Require adherence to the trails policies noted in the Open Space and
Conservation Element.
CI-Policy-5.8 Develop a set of practical and realistic transportation demand management
(TDM) measures that can be used by employers in the City to reduce the
number of single-occupant vehicle trips. These measures would encourage
ride-sharing and transit alternatives.
Implementation Actions
CI-Action-5.1 Update and adopt the Bikeways Master Plan to include goals and
objectives, a detailed list and map of improvements, a signage program,
detailed standards and guidelines, and an implementation program. The
Bikeways Master Plan should include the proposed facilities shown on
Figure C-5
CI-Action-5.2 Upgrade existing bikeways and designate new facilities where they can be
accommodated according to current Valley Transportation Authority
(VTA) technical guidelines (prior to adoption of City standards in the
Bikeways Master Plan). For example, travel lanes on Fruitvale Avenue
north of Burgundy Way should be restriped to provide bicycle lanes with
5-foot minimum widths or pathways.
CI-Action-5.3 Coordinate with the school districts and other entities to develop
“Suggested Route to School Plans” for all public and private schools in the
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Background Report/Goals, Policies, and Implementation Measures
Fehr & Peers Page 45
City. Plans shall identify all pedestrian and bicycle facilities, and traffic
control devices for residents to determine the most appropriate travel
route. The plans shall also identify existing easements for sidewalks.
CI-Action-5.4 Prohibit parking in designated bicycle lanes on all streets unless adequate
width is provided according to VTA guidelines or City standards.
CI-Action-5.5 Require the provision of secure bicycle parking as part of all future
development projects that include multi-family residential, commercial,
industrial, office, and institutional uses. Recommended bicycle parking
design standards shall be referenced from the Santa Clara Valley
Transportation Agency Bicycle Technical Guide.
CI-Action-5.6 Develop a plan to review and identify additional bicycle parking locations
in the Village area.
CI-Action-5.7 Require new development projects and redevelopment projects to dedicate
right-of-way and/or provide improvements to accommodate bicycle lanes
on streets identified on Figure C-5.
CI-Action-5.8 Require new cul-de-sac streets to accommodate bicycle and pedestrian
access between residential areas, public uses, and community areas.
CI-Action-5.9 Encourage non-residential development projects to include amenities such
as showers and lockers for employees to further encourage bicycling as an
alternative to automobile travel.
CI-Action-5.10 Increase priority of pedestrian safety projects (i.e., pedestrian street
crossings, sidewalks or pathways) as part of the Capital Improvement
Program.
CI-Action-5.11 Make bikeway improvements a funding priority by: 1) continuing to
consider financing bikeway design and construction as part of the City’s
annual construction and improvement fund; 2) incorporating bikeway
improvements as part of the Capital Improvement Program and pavement
management efforts; and 3) aggressively pursuing regional funding and
other Federal and State sources for new bikeways.
CI-Action-5.12 Update the Open Space and Conservation Element to maintain and
expand the Citywide pedestrian path system. The plan should include the
proposed trails shown on Figure C-6.
CI-Action-5.13 Assure implementation of the City's trails system by requiring trail
dedication, construction, and a method of trail maintenance pursuant to the
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Open Space and Conservation Element as part of the subdivision or site
approval process.
CI-Action-5.14 Prohibit motorized vehicular traffic on trails, pathways, parks and
dedicated open space areas except for maintenance and emergency
purposes.
CI-Action-5.15 Include new sidewalk or path construction in the Capital Improvement
Program, or as part of any new development, to close gaps in pedestrian
facilities on the following arterial roadways: Saratoga-Sunnyvale Road,
Saratoga Avenue, Prospect Road, and Cox Avenue (see Figure C-6).
CI-Action-5.16 Include new sidewalk or path construction in the Capital Improvement
Program, or as part of any new development or redevelopment, to close
gaps on local and collector streets near schools.
CI-Action-5.17 Review the need to install sidewalks and crosswalks on all City streets
within one-half mile of all public schools.
CI-Action-5.18 Review the present equestrian zones and assess their consistency with the
trails and pathways plan of the circulation element.
CI-Action-5.19 Provide trails, sidewalks or separated pathways along all arterial streets
and along some collector streets in areas where needed to provide safe
pedestrian access to schools.
AESTHESTIC QUALITIES AND HERITAGE LANES
Goals
CI.6a Protect the aesthetic, historic and remaining rural qualities of Saratoga through
street design and landscaping.
CI.6b Strive for aesthetically pleasing views from all roads in Saratoga and the Sphere
of Influence.
CI.6c Encourage the preservation of the width and appearance of those roads designated
as heritage resources by the City.
Policies
CI-Policy-6.1 Identify areas of critical need for beautification and coordinate plans with
revitalization or anticipated development of areas such as City gateways.
CI-Policy-6.2 Adhere to minimum City street standards based on location, terrain,
City of Saratoga Circulation and Scenic Highway Element
Background Report/Goals, Policies, and Implementation Measures
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character of areas and the anticipated function of the roadway.
CI-Policy-6.3 Permit variation of the conventional City street development standards, as
described in the City's Subdivision Ordinance, in order to preserve
environmentally sensitive roadside features where traffic safety will
permit such variations.
CI-Policy-6.4 Identify the function of a street in advance of construction, and apply
design criteria to minimize disruption to the area caused by through or
heavy vehicle traffic.
CI-Policy-6.5 Encourage the planting of trees and plan the development of landscaped
medians along major arterial roadways.
CI-Policy-6.6 Enforce ordinances to prevent the use of non-conforming roadside signs
on all roads and highways within the City, whether erected by private
individuals or business enterprises.
CI-Policy-6.7 Require increased setbacks of up to 100 feet for structures, walls or fences
to be located on lots adjacent to officially designated scenic highways
where it is determined by the City that such increased setbacks are
necessary to preserve the scenic qualities of the highway.
CI-Policy-6.8 Require increased setbacks and landscaping for commercial and multi-
family residential structures on corner lots adjacent to arterial streets, as
required, to reduce the visual impact of such structures and to enhance the
appearance of important intersections where it is determined by the City
that such increased setbacks are necessary to preserve the scenic qualities
of the highway.
CI-Policy-6.9 Approve designs for new hillside streets that maximize the use of natural
terrain for roadbed construction and minimize “cuts and fills.”
Implementation Actions
CI-Action-6.1 Review Subdivision Ordinance street standards for adequacy and prepare
illustrations of corresponding roadway cross-sections
CI-Action-6.1 Require a sight distance analysis to ensure adequate site access for
variances from street design standards proposed by the City or by private
developers.
CI-Action-6.2 Encourage residents of streets and roads believed to have historic merit to
nominate those rights-of-way for designation as heritage lanes through the
Heritage Preservation Commission.
City of Saratoga Circulation and Scenic Highway Element
Background Report/Goals, Policies, and Implementation Measures
Fehr & Peers Page 48
CI-Action-6.3 Design commercial areas with pedestrian amenities, shade trees, and on-
street parking to create inviting environments.
CI-Action-6.4 The designation of Heritage Lane shall not preclude City action necessary
to guarantee safe access for emergency vehicles while maintaining the
integrity of the existing heritage lane.
PARKING SUPPLY AND MANAGEMENT
Goals
CI.7a Provide adequate parking for non-residential uses to minimize intrusion into
adjacent neighborhoods.
CI.7b Provide on-street parking spaces in commercial areas that provide direct access to
abutting properties while requiring off-street public and private parking lots to
serve the majority of the demand.
Policies
CI-Policy-7.1 Review on-street parking policies and utilization in the Village area
CI-Policy-7.2 Designate curb parking in the Village area for short-term use by those
visiting businesses and public facilities.
CI-Policy-7.3 Encourage the location of parking lots behind buildings to emphasize the
buildings’ physical and visual connections to the street and to maximize
pedestrian access and safety.
CI-Policy-7.4 Encourage the use of carpools and vanpools by providing preferential
spaces as appropriate.
CI-Policy-7.5 Allow reduced parking supplies for parcels, where appropriate, in order to
utilize the area-wide parking supply.
Implementation Actions
CI-Action-7.1 Enforce parking time limits and zones.
CI-Action-7.2 Establish time limits for on-street parking in commercial areas.
CI-Action-7.3 Adopt design standards for parking stalls, aisles and driveways for on-
street and off-street facilities.
City of Saratoga Circulation and Scenic Highway Element
Background Report/Goals, Policies, and Implementation Measures
Fehr & Peers Page 49
CI-Action-7.4 Review parking demand and proposed supplies for each development
project to ensure maximum use of proposed off-street lots.
Legend:
Fehr & Peers Page 50
Revised May 2010
Saratoga City Boundary
Roads
Waterways
Figure C-1 Existing Roadways
City of Saratoga Circulation and Scenic Highway ElementCity of Saratoga Circulation and Scenic Highway Element
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City of Saratoga Circulation and Scenic Highway Element
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Legend:
Fehr & Peers Page 51
Revised May 2010
Interstate Freeway (Not Applicable)
Other Freeway or Expressway
Minor Arterial
Collector
Major Arterial
Figure C-2 Roadway Classifications
City of Saratoga Circulation and Scenic Highway ElementCity of Saratoga Circulation and Scenic Highway Element
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City of Saratoga Circulation and Scenic Highway Element
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Legend:
Fehr & Peers Page 52
Revised May 2010
Truck Route
Figure C-3 Truck Routes
City of Saratoga Circulation and Scenic Highway ElementCity of Saratoga Circulation and Scenic Highway Element
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City of Saratoga Circulation and Scenic Highway Element
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Legend:
Fehr & Peers Page 53
Revised May 2010
Figure C-4 Existing Transit Service (Effective January 11, 2010)
Route 26
Route 53 Route 328
Route 101
Express Route 102 (No Stops in Saratoga)
Route NumbersXXRoute 58
Route 57
53
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57 37
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Legend:
Fehr & Peers Page 54
Revised August 2010
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Figure C-5Existing/Planned Bicycle Facilities
Bicycle Lanes (Class II Facilities)
Bicycle Routes (Class III Facilities)
Expressway Segments (Bicycles Permitted)
Bicycle Paths (Class I Facilities) - See Existing Trail Easements Bicycle Lanes/Routes (Class II/III Facilities)
Note: Most sections of Saratoga-Los Gatos Rd. include bike lanes. On intermittent
segments, current striping does not meet Caltrans standards for bike lanes and these
sections are technically considered bike routes, even though the shoulder width
provides sufficient room for bicyclists to travel.
Note:
Based on city designation, some
facilities do not include signage
or adequate bike lane width.
Proposed Bicycle Lanes (Class II Facilities)Proposed Bicycle Routes (Class III Facilities)
Proposed Bicycle Paths (Class I Facilities)
Across Barrier Connections
0 3,000 6,0001,500
Feet
City of Saratoga Circulation and Scenic Highway Element
Legend:
Fehr & Peers Page 55
Revised August 2010
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Figure C-6Existing and Proposed Trails
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Future (2030) Volume
Ex
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(
2
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1
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V
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Fu
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