4.1 INTRODUCTION

This chapter describes the existing transportation system within Sutter County. It provides details on the various modes of transportation available for different uses. This chapter also includes information on projected transportation deficiencies and needs based on build out of the General Plan.

4.2 EXISTING CIRCULATION SYSTEM

Sutter County has approximately 1,061 miles of public roadways including the roadways within the incorporated cities. These roadways carry an estimated 630 million vehicle miles of travel demand annually. Table 4.2-1 shows road miles by jurisdiction in Sutter County and Figure 4.2-1 shows the roadway network system of the County.

TABLE 4.2- 1
ROADWAY MILES IN SUTTER COUNTY BY JURISDICTION

The roadways in Sutter County lie predominantly in north-south and east-west directions. State Route 20 and State Route 99 are the primary regional transportation corridors within the County. State Route 20 serves east-west regional travel providing connection to Yuba County and beyond to the east and Colusa County and beyond to the west. State Route 99 serves as the north-south regional travel corridor providing connection to Butte County and beyond to the north and Sacramento County and beyond to the south. State Route 70 and State Route 113 are two other state highways that support north-south regional travel. This regional system of state highways is interconnected by a system of major (arterial/collector) and minor (local) county roads; the combination of regional and local roadway systems compliment each other to support the basic movement of goods and people.
BIKEWAYS

It is anticipated that in 1996 Sutter County will adopt the Yuba-Sutter Bikeway Master Plan. This Bikeway Plan was prepared for the Feather River Air Quality Management District and provides a comprehensive bikeway network for Sutter and Yuba Counties.

This bi-county plan includes:

* Bikeway goals and policies
* Identifies existing conditions
* Incorporates an analysis of demand
* Delineates existing and proposed bikeway routes
* Includes a cost and funding analysis
* Provides an implementation strategy

In its entirety, the proposed system includes approximately 395 miles (635 km) of bikeway facilities. As shown on Figure 4.2-2, proposed facilities specifically within Sutter County include 8.3 miles (13.4 km) of Class I bikeways, 29.6 miles (47.6 km) of Class II bikeways and 172.2 miles (277.1 km) of Class III bikeways. As described within the Plan, a Class I bikeway consists of a completely separated right-of-way for the exclusive use of bicycles and pedestrians with minimal crossflow traffic. A Class II bikeway provides a striped lane for one-way bike travel on a street or highway and a Class III bikeway utilizes bike route signs to identify routes which provide for shared use with pedestrian and motor vehicle traffic.

The proposed system not only connects each city in Yuba and Sutter Counties, but provides regional connections to six other counties, including Butte, Colusa, Nevada, Placer, Sacramento and Yolo. Connections to multi-modal facilities are also identified along with the need for support facilities and programs.

FIGURE 4.2-1
ROADWAY NETWORK

FIGURE 4.2-2
BIKEWAY MASTER PLAN

4.3 PHYSICAL CONSTRAINTS

Physical constraints to the County's circulation system include both natural and man-made barriers that limit roadway connections and alignments. The main natural barriers to travel are the three rivers (Sacramento River, Feather River and Bear River) that border Sutter County. The Sacramento River flows along the majority of both the Colusa County and Yolo County lines. The Feather River and Bear River flow along the Yuba County line from the north and east directions separately. Downstream of the Bear River confluence with the Feather River, the Feather River flows diagonally through the southern part of the County before entering the Sacramento River. The Sutter Bypass, bisecting the County from the Sutter Buttes in the northwest, to the Sacramento River in the south, and the railroad tracks through the communities of Yuba City, Tierra Buena and Live Oak are the major man-made barriers to travel in Sutter County. The combination of the above mentioned natural and man-made barriers dictate the travel opportunities within the County as well as the access to the surrounding region.

4.4 FUNCTIONAL CLASSIFICATION AND DESIGN STANDARDS OF ROADWAYS

Sutter County's streets and highways are organized in a hierarchy according to their functional classification. This functionally designed street system provides for a series of distinct stages which are involved in making a trip, that is, primary movement on highways and arterials, collection/distribution on collectors, and access and termination on local streets. In addition, the streets are also classified as rural and urban to recognize the areas and the type of traffic the streets serve. It is necessary to understand that the service provided by the rural and urban roadways are different in character. Often rural roadways serve dual functions, i.e. distribution as well as termination/access.

The following is a brief discussion on different types of roadways classified by the function they serve. The first two classifications serve both rural and urban areas by providing travel on important, usually high volume, corridors.

State Roadways

FREEWAYS AND EXPRESSWAYS

Freeways and expressways serve both inter-regional and intra-regional circulation needs. These facilities are typically accessed by collector or arterial roadways and have few or no at-grade crossings. These facilities have the highest carrying capacity with the maximum speed limits allowed by law.

REGIONAL HIGHWAYS

Regional Highways are classified as Rural Arterials and are used as primary connections between major traffic generators or as primary links to state and national highway networks. Such routes often have long sections through rural environments without traffic control interruptions. Speed limits often range between 35 and 55 mph.
URBAN ROADWAYS

Urban Arterials provide intra-city circulation and connections to regional roadways. They are fed by both local and collector streets. Even though the principal function of these roadways is movement, occasionally they provide access to adjacent properties, especially in commercial areas. The speed limits on arterials often range from 35 to 45 mph.

Urban Collectors accumulate traffic from local roadways and distribute that traffic to roadways that are higher in the hierarchy of classification. Collectors also provide access to adjacent properties. These roads carry light to moderate traffic volumes with travel speeds ranging between 25 and 35 mph.

Urban Local roads provide direct access to adjacent properties and are typically designed to discourage through-traffic. Urban local roads also provide access to collector roadways carrying very low traffic volumes at slow speeds, typically 25 mph.

RURAL ROADWAYS

Rural Arterials provide primary connections between rural areas and also distribute traffic between rural and urban areas. In addition, rural arterials provide considerable statewide and interstate circulation. Speed limits often range from 35 to 55 mph.

Rural Collectors typically serve intra-county rather than regional or statewide circulation needs. Their primary function is to provide access to adjacent properties and connections between rural local roads and other roadways that are higher in the hierarchy of classification. Travel speeds on rural collectors often range between 25 mph and 45 mph.

Rural Local roads provide access to adjacent properties and distribute traffic to rural collectors. They differ from their urban counterparts in design cross section and their location. Travel speeds on rural local streets typically range from 25 to 35 mph.

4.5 MAJOR ROADWAYS IN SUTTER COUNTY

Following is a brief description of important roadways that serve Sutter County.

FREEWAYS

State Route 99 between Highway 20 and to a point north of Eager Road is the only freeway segment in the County. The State Route 99 freeway segment starts from north of State Route 20 in Yuba City as a four lane facility with interchanges at Queens Avenue and Eager Road. Just south of Encinal Road, the freeway segment transitions to a two lane roadway.

REGIONAL HIGHWAYS

State Route 20 is a two, four and six lane roadway which extends through Sutter County from Colusa County to Yuba County.

State Route 70 is a two lane roadway which extends from the Yuba County line in the north, south to a junction with State Route 99. At the junction with State Route 99, State Route 70 continues south as State Route 70/99 to the Sacramento County line. The roadway provides regional access to the cities of Sacramento and Marysville.

State Route 99 extends from the Sacramento County line north through Sutter County to the Butte County line. The roadway has two and four lanes over its length and provides regional access to the Sacramento metropolitan area in the south and the cities of Gridley and Chico in the north and beyond.

State Route 113 within the County extends from the Yolo County line over the Sacramento River to State Route 99 near the community of Tudor. This two-lane roadway is only one of two roadways that cross the Sacramento River in Sutter County.

MAJOR URBAN AND RURAL ROADWAYS

The following are other major roadways under the County's jurisdiction which serve Sutter County.

Acacia Avenue is a two lane north/south roadway that extends from Pass Road in the north to Franklin Road in the south. This roadway provides access to State Route 20 for the community of Sutter.

Bear River Drive is an east/west two lane roadway extending from the Placer County line in the east to slightly beyond Swanson Road in the west.

Bogue Road is an east/west two lane roadway extending from Garden Highway in the east to Clements Road in the west. This roadway provides access to State Route 99.

Broadway is a north/south two lane roadway extending from Clark Road in the north to Nuestro Road in the south.

Butte House Road is an east/west two lane roadway that extends from Acacia Avenue in the west to Yuba City in the east and provides access between the communities of Yuba City, Tierra Buena and Sutter.

Cranmore Road is a north/south two lane roadway aligned along the Sacramento River from Tisdale Bypass in the north to State Route 113 in the south. This roadway provides regional access to the communities of Cranmore and Kirkville. Cranmore Road along with Garmire Road and Meridian Road is part of the roadway system that fronts the Sacramento River in Sutter County.

East Butte Road is a north/south two lane roadway extending from Clark Road in the north to Butte House Road in the south. This roadway is part of a circulation system that encircles the Sutter Buttes.

El Margarita Road is a north/south two lane roadway that extends from Jefferson Avenue in the north to Colusa Frontage Road in the south and continues from State Route 20 to Franklin Road.

Encinal Road is an east/west two lane roadway that extends from State Route 99 in the east to Broadway in the west.

Franklin Road is an east/west two lane roadway between Tarke Road and Garden Highway. This roadway is located to the south of and provides an alternate route parallel to State Route 20 through a major part of the County.

Garden Highway is a north/south two lane roadway that extends from Second Street in Yuba City and continues south joining State Route 99 near Tudor. Garden Highway diverges from State Route 99 near Nicolaus and extends south along the Feather River and then along the Sacramento River towards the City of Sacramento. Garden Highway serves as an alternative north/south route to State Route 99 south of Yuba City.

Garmire Road is a north/south two lane roadway that extends from Moroni Road in the north to Cranmore Road in the south. A segment of this roadway forms part of the road system that fronts the Sacramento River through the County.

George Washington Boulevard is a north/south two lane roadway that extends from State Route 20 in the north to State Route 113 at Tudor Road in the south. George Washington Boulevard provides an alternate route parallel to and west of State Route 99.

Harter Road is a north/south two lane roadway extending from Butte House Road in the north to State Route 20 in the south.

Hooper Road is a north/south two lane roadway extending from True Road in the north to Colusa Frontage Road in the south.

Howsley Road is an east/west two lane roadway that extends from State Route 99 in the west through the community of Pleasant Grove to the Placer County line in the east.

Kirkville Road is an east/west two lane roadway that extends from Cranmore Road in Kirkville to Reclamation Road in the east and continues from Sacramento Valley Boulevard to Sacramento Road, east of State Route 113.

Larkin Road is a north/south two lane roadway located west of State Route 99 that extends from Eager Road in the south to Pennington Road in the north in the City of Live Oak. The roadway continues from Pennington Road, east of State Route 99, and extends north to Butte County.

Lincoln Road is an east/west two lane roadway that extends from Clements Road in the west and, after intersecting with State Route 99, ends at Garden Highway in the east.

Live Oak Boulevard is a north/south two lane roadway extending from State Route 99 and just south of Encinal Road to Yuba City in the south, where the roadway terminates at State Route 20.

Nicolaus Avenue is an east/west two lane roadway that serves the communities of Nicolaus, East Nicolaus, and Trowbridge and provides regional access by connecting to State Route 70 and State Route 99. Nicolaus Avenue extends from Pleasant Grove Road in the east to State Route 99 in the west.

O'Banion Road is an east/west two lane roadway that extends from Garden Highway in the east and, after intersecting with State Route 99, ends just west of Boulton Road.

Oswald Road is an east/west two lane roadway that extends from Railroad Avenue in the east to Schlag Road in the west and continues from west of the Sutter Bypass at Hughes Road to Meridian Road.

Pacific Avenue is a north/south two lane roadway that extends from Howsley Road to Rio Oso Road in the community of Rio Oso. Pacific Avenue provides direct access between the communities of Trowbridge and Rio Oso.

Pease Road is an east/west two lane roadway that extends from Live Oak Boulevard in the east to Township Road in the west.

Pelger Road is an east/west two lane roadway that provides access to the community of Cranmore from State Route 113. Pelger Road extends from State Route 113 in the east to Cranmore Road in the west.

Pennington Road is an east/west two lane roadway that extends from the City of Live Oak in the east to Powell Road in the west. This roadway is part of the circulation system that surrounds the Sutter Buttes and, in addition, provides regional access to the community of Pennington.

Pleasant Grove Road is a north/south two lane roadway that is parallel to and east of State Routes 70 and 99 and extends from Riego Road in the south to the Yuba County line in the north. Pleasant Grove Road serves as a local alternative north/south route to the state highways. From the County line, Pleasant Grove Road continues north as Forty Mile Road in Yuba County.

Railroad Avenue is a north/south two lane roadway that extends from Messick Road in the south to north of Richland Road in Yuba City.

Reclamation Road is a two lane rural roadway that extends from Ensley Road in a northwestern direction through the community of Robbins, crossing State Route 113 before terminating at Acme Road near Tisdale. This roadway along with Progress Road, McGrath Road and Tarke Road serves as a direct route between State Route 113/Robbins and State Route 20/Meridian bypassing the urbanized Yuba City section of the County.

Richland Road is an east/west two lane roadway that extends from Garden Highway in the east to Walton Avenue in the west.

Riego Road is an east/west two lane roadway that is a continuation of Base Line Road in Placer County and extends west intersecting State Route 99 before terminating at Garden Highway. Riego Road (Baseline Road) provides local access to the City of Roseville urban area in Placer County.

Rio Oso Road is an east/west two lane roadway extending from State Route 70 east through the community of Rio Oso to Warren Road.

South Butte Road is an east/west two lane roadway extending from State Route 20 west of Township Road through the community of Sutter to West Butte Road. There is also a section connecting Tarke Road to Hageman Road north of State Route 20.

Stewart Road is an east/west two lane roadway that extends from Garden Highway to Walton Avenue.

Tierra Buena Road is a north/south two lane roadway that extends from Hooper Road in Tierra Buena to Eager Road.

Township Road is a two part, north/south two lane roadway. South Township Road extends from Tudor Road in the south to Franklin Road in the north. North Township Road extends from Franklin Road north to Nuestro Road and then continues north from Clark Road to the Butte County line.

Walton Avenue is a north/south two lane roadway that extends from Oswald Road in the south to State Route 20 in the north.

West Butte Road is a north/south two lane roadway that extends from North Butte Road in the north to South Butte Road in the south. This roadway is part of the circulation system that surrounds the Sutter Buttes.

West Catlett Road is an east/west two lane roadway that extends from State Route 99 and State Route 70 in the east to Garden Highway in the west.

4.6 ROADWAY ANALYSIS METHODOLOGY

To quantitatively evaluate traffic operating conditions and to provide a basis for comparison of operating conditions, roadway Levels of Service were determined. Level of Service (LOS) as defined in the 1985 Highway Capacity Manual is "a quantitative measure describing operational conditions within a traffic stream, and their perception by motorists and/or passengers". LOS definitions generally describe these conditions in terms of such factors as speed and travel time, freedom to maneuver, traffic flow interruptions, comfort and convenience, and safety. Six levels of service are defined and given letter designations, from "A" to "F", with LOS "A" representing the best operating conditions and LOS "F" the worst. Table 4.6-1 presents the characteristics associated with each LOS grade.

TABLE 4.6-1
LEVEL OF SERVICE DEFINITIONS

* Level of Service A represents free flow. Excellent level of comfort, convenience and freedom to maneuver.

* Level of Service B is in the range of stable flow, but the presence of other road users in the traffic stream causes noticeable reductions of comfort, convenience and maneuvering freedom.

* Level of Service C is in the range of stable flow, but the operation of individual users is significantly affected by interaction with others in the traffic stream.

* Level of Service D represents high-density, but stable flow. Users experience severe restriction in speed and freedom to maneuver, with poor levels of comfort and convenience.

* Levels of Service E represents operating conditions at or near the capacity level. All speeds are reduced to a low, but relatively uniform value. Freedom to maneuver is difficult, with users experiencing frustration and poor comfort and convenience. Unstable operations are frequent, where small increases or minor perturbations to the traffic flow can cause breakdown conditions.

* Level of Service F is used to define forced or breakdown conditions. This condition exists wherever the amount of traffic approaching a point exceeds the amount that can traverse a point. Roadways store long queues behind such locations, with traffic advancing in stop-and-go "waves".

Source: 1985 Highway Capacity Manual, Transportation Research Board (TRB) Special Report 209.

LOS is often quantified by determination of a "volume to capacity" (V/C) ratio. V/C is a measurement of the amount of capacity of roadway that is being absorbed by traffic and is simply the volume of traffic on the roadway divided by the capacity of roadway. LOS represents a range of the roadway utilization, corresponding to V/C ratios. A V/C ratio of 1.00 represents complete utilization of available roadway capacity.

Local governments adopt LOS standards for roadways under their jurisdiction. Generally, LOS "C" or "D" is considered adequate, although some communities adopt higher or lower standards depending on the circumstances and the needs of the community. Sutter County utilizes LOS "D" as the minimum acceptable standard.

ROADWAY CAPACITY

The capacity of a roadway segment is the maximum rate at which vehicles can be expected to traverse a point or section of facility for a given period of time. The 1985 Highway Capacity Manual (HCM) contains the standard procedures used for the analysis of highway capacity and level of service for most types of facilities.

The HCM defines levels of service for freeways and rural expressways (multi-lane highways) in terms of the density of vehicles on the road; that is vehicles per miles per lane. This measure relates best to a vehicle's freedom to maneuver and proximity to other vehicles.

For rural two-lane roadways, the HCM defines levels of service using percent-time delay as the primary measure. This is the average percent of the time that vehicles are delayed while traveling in platoons because of the inability to pass. Passing demand increases rapidly as traffic volumes increase, while passing capacity in the opposing lane declines as volumes increase. Thus, unlike other types of uninterrupted flow facilities, on two lane facilities, normal traffic flow in one direction influences flow in the other direction. Motorists are forced to adjust their individual travel speed as volumes increase and the ability to pass declines. In conjunction with this, terrain, shoulder width, percent of heavy vehicles, and available access points are important considerations.

For rural two-lane roads, the HCM presents an estimated maximum average daily traffic (ADT) of 20,800 for level terrain and a threshold of 12,200 ADT for LOS "D". This is based on a K factor (design hour factor, i.e., the proportion of ADT expected to occur in the design hour, usually the PM peak hour) of 10% and other standard assumptions for directionality of flow, heavy vehicle percentage, passing opportunity and roadway geometrics.

A typical daily volume assumed to correspond with peak hour capacity (i.e., LOS "E" to LOS "F" threshold) of an urban roadway would be calculated as follows:

1800 vehicles per hour per lane (an average urban saturation flow rate)
x 0.50 fraction of time right-of-way is given (g/c) in the case of major cross streets
x 100/60 total volume/greater direction volume (@ 60:40 directionality)
x 1/0.10 daily volume/peak hour volume
= 15,000 vehicles per day per two lanes (theoretical capacity)

The 15,000 vpd capacity threshold is based on ideal conditions and may vary depending on various conditions. To reflect traffic operating conditions in the urbanized areas of Sutter County and the City of Yuba City, the Levels of Service thresholds were calibrated in the study Traffic Impact Fee Study for Sutter County/Yuba City, 1993.

Table 4.6-2 shows the Levels of Service thresholds and capacities for various roadway facilities.

TABLE 4.6-2
ROADWAY LEVELS OF SERVICE THRESHOLDS