1 -
Introduction

2 -
Vision Statement

3 -
Land Use

4 -
Circulation

5 -
Conservation

6 -
Noise

7 -
Safety

8 -
Recreation

9 -
Historical

10 -
Community Design

11 -
Glossary

- Maps

CHAPTER FOUR

CIRCULATION ELEMENT

Introduction

State law requires that a Circulation Element include "the general location and extent of existing and proposed major thoroughfares, transportation routes, terminals and other public utilities and facilities". This element defines transportation facilities, and includes the goals, policies and implementation measures for the City's circulation system. The Circulation Element's provisions are mandated by State law to be correlated with, and thus support, the goals, objectives, and policies of the Land Use Element.

It is the underlying goal of the entire Circulation Element that the City's circulation system 1) promote the safe, efficient and reliable movement of the people and goods; 2) facilitate a level of transition from the automobile to other modes of transportation; and 3) provide an adequate level of transportation service for all persons traveling in and through Grass Valley.

As in most areas, to travel within or through the Grass Valley vicinity, one is very dependent on the automobile. Until recently, this dependence was not viewed as a critical issue. That is no longer the case. Traffic congestion is no longer confined to major urban centers. Some of the worst recurring traffic conditions in the area occur along Highway 49. Some of the City's collectors and arterials, particularly Main Street and in the unincorporated area of Nevada County, Brunswick Road, are now experiencing regular peak hour congestion.

Travel demand is expected to increase as the City population increases to the levels forecasts for the year 2020. This population increase, coupled with increases in employment, will challenge the City to find solutions which will maintain roadway Level of Service standards.

For these reasons, the City is committed to actively pursuing policies and implementation measures that will promote car-pooling, transit and non-vehicular modes of travel (bicycles and walking) as alternatives to single-occupant automobile use. In this effort, the City will be making a long-term commitment to alternative forms of transportation.

No City or County is an island in its regional setting. It is, therefore, important that the City coordinate its Circulation Element provisions with neighboring jurisdictions, and with regional and State plans.

The provisions of the Circulation Element affect the community's physical, social and economic environment. The location, design and constituent modes of the City's circulation system affect air quality, noise, energy use, community appearance, land use patterns and other factors. The circulation system should be accessible to all segments of the population, including the disadvantaged, the young, the poor, the elderly and the handicapped. In addition, the efficiency of a community's circulation system can either contribute to or adversely affect the community's economy. All of these factors must be considered in developing circulation policy.


The Circulation Element discusses the following components of the circulation system.

  1. Functional Classification
  2. Level of Service
  3. Transit
  4. Non-vehicular Transportation

Functional Classification

The objective of functional classification is to group into connecting systems roads and streets having similar functions, purposes and importance in the roadway network. In turn, the systems are distinguished by their more general functions and levels of importance.

Careful long-range planning of the City's roadways is needed to meet Grass Valley's Circulation goals. This includes the establishment of a comprehensive designation of all roadways throughout the City. A sound functional classification is essential for:

Long-range planning and coordination

Determining right-of-way requirements and preserving right-of-way

Defining design standards and operations of facilities in each class

Developing budgets and funding programs according to priority

Determining acceptable levels of traffic volumes, especially on the local and collector street systems

Roadways have two functions, which are incompatible from a design standpoint: 1) to provide mobility and 2) to provide land access. High and constant speeds are desirable for land access. A functional classification system provides a functional specialization in meeting the access and mobility requirements of the roadways. Local streets emphasize a high level of mobility for through movement, and collectors offer a more balanced service for both functions.

The existing street network in the City of Grass Valley is a product of both roadways that have provided access to the older portions of the City for decades, and roadways that were designed to serve the areas of new development. As a result, in the older portions of the City, some roadways function as arterial or collector roadways, but they have not previously been classified as such.

Freeways / Expressways. Freeways and Expressways are regionally important facilities which link the community of Grass Valley with its Nevada County neighbors and with regional destinations. These facilities are high speed, restricted access facilities providing little direct linkage to adjoining property but providing access via interchanges or, in the interim, major signalized intersections. Freeways and Expressways are designed to the standards of the California Department of Transportation (Caltrans) and improvements to these facilities are planned and implemented through a cooperative effort of Caltrans, the Nevada County Transportation Commission, Nevada County, the City of Grass Valley and Nevada City. State Highways 20 and 49 are the Freeways and Expressways serving Grass Valley.

Arterial Streets. The primary function of arterial roadways is to move large volumes of traffic through the community to other sections of the City and beyond. In more recently developed areas the right-of-way for arterials is either 84 or 100 feet, and while most arterials are two lanes, four lane arterials can be developed in response to traffic demands. Some roadways function as arterials due to the current high traffic volumes and their key linkages between one section of the City and another. For these roadways, current right-of-way widths vary, but most contain only two traffic lanes.

Collector Streets. Collector streets generally link local residential streets and commercial and office parking areas to the arterials. In new areas, these streets are generally designed with a 54 or 60 foot right-of-way and contain two traffic lanes with bike lanes. In older portions of the community, a number of roadways function as collector roadways due to moderate traffic volumes and their linkage to the arterial roadway system. Right-of-way widths vary, with most containing two traffic lanes.

Local Streets. Local streets provide direct access to abutting land and access to the collector street system. The right-of-way for local streets is normally 54 feet which provides for two traffic lanes and a narrow parking lane that doubles as a Class II bikeway on both sides. Actual pavement widths for local streets vary throughout the City.

The Circulation Plan (existing and planned arterial and collector roadway system) is depicted in Figure 4-1 and Table 4-1. All roadways not included as freeways, arterial, or collector roadways in Figure 4-1 and Table 4-1 are local streets. Conceptual alignments through planned annexations areas indicate potential ultimate connections of existing and planned arterials. The exact location and need for each new roadway in the Special Development Areas will be evaluated during the preparation of Specific Plans or similar detailed development plans.

New transportation facilities needs as shown on the Circulation Plan (Figure 4-1) are:

  • Construction of a new interchange on Highway 20/49 at Dorsey Drive.
  • Construction of a new intersection or interchange on Highway 49 in the area of Crestview Drive-Smith Road in southern Grass Valley.
  • Construction of a new arterial road through the North Star area linking the Brighton/McCourtney intersection near Highway 20 with the new Crestview-Smith intersection or interchange on Highway 49. This new road would be connected to a southward extension of Freeman Lane. It is the City's policy, however, that Freeman Lane not be extended southward from its current termination north of Wolf Creek, until and unless the new Crestview-Smith arterial road is constructed.
  • Extension of Dorsey Drive easterly to Brunswick Road.
  • Reconstruction of the McKnight Way Interchange on Highway 49 to create modern roundabout intersections.
  • Reconstruction of the Highway 174/Highway 20/49 interchange as a modern roundabout.
  • Construction of a new road network in the northeastern quadrant of the Planning Area, linking existing and planned streets and roads.
  • Closure of Idaho-Maryland road at the Brunswick Road intersection.

TABLE 4-1

FUNCTIONAL CLASSIFICATION

CITY OF GRASS VALLEY'S ARTERIAL AND COLLECTOR ROADWAY

ARTERIALS

COLLECTORS

South Auburn Street

Brighton Street Extension

Brunswick Road

Crestview Extension

Empire Street

Idaho Maryland Road (part)

LaBarr Meadows Road

Main Street

Mill Street

Neal Street

Nevada City Highway

Sierra College Drive (part)

Allison Ranch Road

Alta Street

East Bennett

Brighton Street

Butler Street

Dorsey Drive

Empire Street

Freeman Lane

Hughes Road

Idaho Maryland Road (part)

McCourtney Road

McKnight Way

Mill Street

Richardson Street

Ridge Road

Sierra College Drive (part)

Sutton Way

Taylorville Road

Whispering Pines Lane

All roadways not listed here are designated as local streets.

Another important component of the City's functional classification are truck routes. Currently the City has no designated truck routes within the Grass Valley City limits, although trucks are prohibited on East Maryland Drive.

Level of Service

For General Plan level analysis, the levels of service (LOS) on individual roadway segments is determined based on general daily traffic volume thresholds which account for such factors as the level of access control, terrain, traffic control, etc. The thresholds employed in the Nevada County General Plan and by the Nevada County Transportation Commission (NCTC) in previous regional studies were used. These daily traffic volume standards are presented in Table 4-2.

TABLE 4-2

DAILY PLANNING SERVICE VOLUME CRITERIA
FUNCTIONAL CLASS

LANES

LOS A

LOS B

LOS C

LOS D

LOS E

Interstate and

Freeway

4

6

59,400

89,100

69,300

103,950

79,200

118,800

89,100

133,650

99,000

148,500

Arterial

2

4

6

9,300

18,600

27,900

10,850

21,700

32,550

12,400

24,800

37,200

13,950

27,900

41,850

15,500

31,000

46,500

Collector

2

6,600

7,700

8,800

9,900

11,000

Currently there are four roadway segments in the Planning Area which fail to deliver LOS "D" conditions. As shown in Table 4-3, these are:

TABLE 4-3

EXISTING ROADWAY LEVEL OF SERVICE DEFICIENCIES

ROAD LOCATION

NUMBER OF LANES

ADT

LOS

Sutton Way W of Brunswick Road

2

13,661

E

Brunswick Road S of Idaho Maryland Road

2

14,504

E

Brunswick Road NW of Loma Rica Drive

2

14,056

E

Nevada City Highway Grass Valley City Limits

2

14,355

E

The City intends to mitigate these roadway deficiencies through its Capital Improvement Program which is described in the implementation section of this component.

Levels of Service are also determined for intersections using procedures outlined in the 1994 Highway Capacity Manual. Table 4-4 indicates the characteristics of Levels of Service at intersections controlled by stop signs and by traffic signals.

Levels of Service are estimated for future travel conditions to ensure that a roadway will provide acceptable operations for its "design life", which is commonly 20 years. For the General Plan, the year 2020 will be used for estimating traffic demand and determining Levels of Service on the roadway system. The City has established Level of Service "D" as the goal for both the General Plan and for the development of Citywide and regional traffic impact fees.

TABLE 4-4

LEVEL OF SERVICE DEFINITIONS

LEVEL OF SERVICE

SIGNALIZED INTERSECTION

UNSIGNALIZED INTERSECTION

"A"

Uncongested operations, all queues clear in a single-signal cycle. Delay 5.0 sec Little or no delay.

Delay 5 sec/veh

"B"

Uncongested operations, all queues clear in a single cycle.

Delay > 5.0 sec and 15.0 sec
Short traffic delays.

Delay > 5 sec/veh and 10 sec/veh

"C"

Light congestion, occasional backups on critical approaches.

Delay > 15.0 sec and 25.0 sec
Average traffic delays.

Delay > 10 sec/veh and 20 sec/veh

"D"

Significant congestions of critical approaches but intersection functional. Cars required to wait through more than one cycle during short peaks. No long queues formed.

Delay > 25.0 sec and 40.0 sec
Long traffic delays.

Delay > 20 sec/veh and 30 sec/veh

"E"

Severe congestion with some long standing queues on critical approaches. Blockage of intersection may occur if traffic signal does not provide for protected turning movements. Traffic queue may block nearby intersection(s) upstream of critical approach(es).

Delay > 40.0 sec and 60.0 sec
Very long traffic delays, failure, extreme congestion.

Delay > 30 sec/veh and 45 sec/veh

"F"

Total breakdown, stop-and-go operation. Delay > 60.0 sec Intersection blocked by external causes. Delay > 45 sec/veh
Sources: 1994 Highway Capacity Manual

Existing and Future Traffic Conditions

An analysis of the roadway improvements needed to maintain a Level of Service "D" standard in the year 2020 has been conducted using land use growth assumptions and the NCTPA sub-regional travel demand model. Year 2020 roadway improvement needs are shown in Table 4-5. Figure 4-2 is an index map showing numbered locations of traffic counts shown in Table 4-5. Numbered locations correspond to road segments in the "Road" column. Figure 4-3 shows road segments requiring four lanes by the Year 2020, based upon projected traffic volumes and an assumed LOS "D" or better.

TABLE 4-5

ROADWAY DAILY TRAFFIC VOLUMES LEVELS OF SERVICE

SECTION 1 - FREEWAYS

ROAD LOCATION

NO. OF LANES

EXISTING

2020

EXISTING

YEAR 2020

ADT

LOS

ADT

LOS

1.

State Route 49/20 S of N. Auburn St

4

4

29,000

A

59,500

B

2.

State Route 49/20 S of Bennett St

4

4

36,000

A

52,500

A

3.

State Route 49/20 S of Idaho-Maryland

4

4

37,000

A

64,900

B

73.

State Route 49/20 S of Dorsey

4

4

30,500

A

56,600

A

4.

State Route 49/20 S of Brunswick Rd

4

4

30,500

A

41,100

A

74.

State Route 49/20 N of Brunswick Rd

4

4

30,000

A

40,000

A

75.

State Route 49 S of Crestview/Smith Ext

4

4

21,700

A

35,800

A

5.

State Route 49 N of Crestview/Smith Ext

4

4

21,700

A

32,700

A

6.

State Route 49 S of SR 20

4

4

32,500

A

41,650

A

7.

State Route 20 W of Mill St

4

4

14,200

A

25,170

A

8.

State Route 20 W of SR 49

4

4

15,000

A

27,500

A

76.

State Route 20 W of Brighton

4

4

14,200

A

25,200

A

ADT = Average Daily Traffic

LOS = Level of Service

( ) = Planned Road

TABLE 4-5

ROADWAY DAILY TRAFFIC VOLUMES LEVELS OF SERVICE

SECTION 2 - ARTERIALS

ROAD LOCATION

NO. OF LANES

EXISTING

2020

EXISTING

YEAR 2020

ADT

LOS

ADT

LOS

9.

State Route 174 E of SR 20

2

2

6,200

A

12,000

C

10.

State Route 174 E of Central St

2

2

4,500

A

7,350

A

11.

State Route 174 E of Ophir St

2

2

5,100

A

5,150

A

12.

State Route 174 S of Race St

2

2

5,400

A

7,250

A

13.

State Route 174 E of Empire Mine

2

2

5,600

A

9,000

A

79.

South Auburn St S of Main

2

2

NA

NA

5,700

A

14.

South Auburn St S of Mohawk St

2

2

7,802

A

7,800

A

15.

South Auburn St N of School Alley

2

2

6,852

A

6,950

A

16.

South Auburn St N of Whiting St

2

2

7,139

A

10,400

B

17.

South Auburn St NW of E. McKnight Way

2

4

8,228

A

14,300

A

90.

Bennett Road E of SR 49/20

2

2

NA

NA

5,700

A

94.

Brighton Extension S of McCourtney

(2)

2

NA

NA

4,600

A

95.

Brighton Extension W of Allison Ranch Rd

(2)

2

NA

NA

5,600

A

18.

Brunswick Road On Overcrossing 49/20

4

4

26,172

D

17,100

A

72.

Brunswick Road N of Dorsey Drive

2

4

12,235

C

14,600

A

19.

Brunswick Road S of Ranchview Ct

2

4

12,235

C

14,600

A

20.

Brunswick Road N of Whispering Pines

2

4

14,504

E

12,600

A

21.

Brunswick Road NW of Loma Rica Dr

2

4

14,056

E

18,600

A

22.

Brunswick Road NW of E. Bennett

2

2

10,686

B

11,200

C

69.

Centennial Drive S of Idaho Maryland

2

2

NA

NA

9,600

B

62.

Crestview/Smith Ext E of Allison Ranch Rd

(2)

2

NA

NA

6,050

A

102.

Crestview/Smith Ext E of Taylorville

(2)

2

NA

NA

3,100

A

40.

Dorsey Drive SE of Segsworth Way

2

4

5,541

A

15,400

A

67.

Dorsey Drive W of Sutton Way

(2)

2

NA

NA

13,500

D

85.

Dorsey Drive E of Sutton

(2)

2

NA

NA

12,800

D

86.

Dorsey/Whispering Pines Loop N of Idaho Maryland

(2)

2

NA

NA

12,800

D

87.

Dorsey/Whispering Pines Loop S of Idaho Maryland

(2)

2

NA

NA

8,250

A

23.

Empire Street E of Le Duc St

2

2

4,923

A

4,900

A

64.

Idaho Maryland Rd E of Railroad

2

4

12,111

C

24,700

C

24.

La Barr Meadows SE of E. McKnight Way

2

2

10,028

B

10,100

B

80.

La Barr Meadows N of Crestview/Smith Ext

2

2

NA

NA

7,950

A

82.

La Barr Meadows S of Crestview/Smith Ext

2

2

NA

NA

11,200

C

74.

Main Street S of Squirrel Creek

2

2

5,763

A

10,200

B

63.

Main Street W of Auburn

2

2

NA

NA

9,450

B

71.

Main Street E of Bennett St

2

2

12,172

C

16,500

F

70.

Main Street N of Idaho Maryland

2

4

NA

NA

21,900

C

73.

McCourtney Road W of 20 Ramps

2

2

NA

NA

9,900

B

50.

W. McKnight Way SW of Taylorville Rd

2

4

8,882

A

16,800

A

25.

Mill Street S of Neal St

2

2

5,786

A

12,100

C

26.

Mill Street NE of Rhode Island St

2

2

5,750

A

8,600

A

92.

Mill Street N of McCourtney

2

2

NA

NA

12,100

C

27.

Neal Street E of Church St

2

2

5,239

A

3,750

A

77.

Nevada City Hwy S of Sierra College

2

4

NA

NA

15,400

A

28.

Nevada City Hwy Grass Valley City Limits

2

4

14,355

E

15,000

A

83.

Nevada City Hwy E of Brunswick

2

2

NA

NA

11,800

C

78.

Ophir S of Bennett

2

2

NA

NA

9,050

A

57.

Sierra College Dr E of Main Street

2

4

4,546

A

16,700

A

58.

Sutton Way E of Brunswick

2

2

9,040

A

10,800

A

59.

Sutton Way W of Brunswick

2

2

13,661

F

6,300

A

68.

Sutton Way N of Dorsey Dr

2

2

NA

NA

6,150

A

84.

Sutton Way S of Dorsey Dr

2

2

NA

NA

5,200

A

60.

Whispering Pines Ln W of Brunswick Rd

2

2

1,494

A

8,250

A

ADT = Average Daily Traffic

LOS = Level of Service

NA = Not Available

TABLE 4-5

ROADWAY DAILY TRAFFIC VOLUMES LEVELS OF SERVICE

SECTION 3 - COLLECTORS

ROAD LOCATION

NO. OF LANES

EXISTING

2020

EXISTING

YEAR 2020

ADT

LOS

ADT

LOS

29.

Allison Ranch Rd S of McCourtney

2

2

720

A

600

A

30.

Allison Ranch Rd N of North Star Mine Rd

2

2

665

A

600

A

98.

Allison Ranch Rd S of Crestview/Smith Ext

2

2

NA

NA

50

A

31.

Alta Street N of West Main St

2

2

4,203

A

3,000

A

32.

Alta Street S of Alta Vista Dr (S)

2

2

3,587

A

1,300

A

33.

Alta Street N of Alta Vista Dr (S)

2

2

3,476

A

850

A

34.

Alta Street SE of Ridge Road

2

2

3,380

A

1,100

A

96.

Old Auburn Rd S of McCourtney

2

2

NA

NA

1,450

A

81.

Old Auburn Rd S of North Star Connection

2

2

NA

NA

1,750

A

66.

E. Bennett Road E of Centennial

2

2

NA

NA

5,250

A

35.

E. Bennett Road E Grass Valley City Limit

2

2

2,142

A

8,150

C

93.

Brighton Street N of McCourtney

2

2

NA

NA

6,750

B

36.

Brighton Street N of McCourtney

2

2

3,830

A

6,750

B

37.

Brighton Street S of Chapel

2

2

2,581

A

3,950

A

38.

Butler Street W of Minnie

2

2

813

A

3,150

A

39.

Butler Street E of Packard Dr

2

2

929

A

3,100

A

65.

Centennial Drive N of E. Bennett

(2)

2

NA

NA

7,350

B

91.

North Collector W of Allison Ranch

(2)

2

NA

NA

600

A

99.

South Collector E of Old Auburn

(2)

2

NA

NA

1,150

A

100.

South Collector E of North Star Loop Rd

(2)

2

NA

NA

1,400

A

97.

South Collector W of Allison Ranch

(2)

2

NA

NA

1,950

A

41.

Empire Street E of Kate Hayes St

2

2

4,278

A

3,900

A

42.

E. Empire Street E Grass Valley City

2

2

4,178

A

3,900

A

43.

Freeman Lane N of McKnight Way

2

2

8,142

C

12,200

F

44.

Freeman Lane SW of McKnight

2

2

NA

NA

4,800

A

61.

Freeman Lane E of Mill

2

2

NA

NA

9,250

D

45.

Hughes Road NW of E. Main St

2

2

7,852

C

13,200

F

46.

Hughes Road S of Ridge Rd

2

2

3,872

A

10,400

E

47.

Idaho Maryland Rd W of Brunswick

2

2

3,570

A

3,850

A

48.

Idaho Maryland Rd E of Brunswick Rd

2

2

1,918

A

3,050

A

49.

McCourtney Road W of Brighton St

2

2

8,650

C

9,300

D

101.

McCourtney Road W of Old Auburn Rd

2

2

5,676

A

10,100

E

51.

Mill Street N of Bank Street

2

2

5,399

A

5,150

A

52.

Richardson Street E of Alta Street

2

2

1,171

A

2,900

A

53.

Ridge Road W of Ridge Estates Rd

2

2

5,059

A

8,000

C

54.

Ridge Road N of Hughes Rd

2

2

7,815

C

10,900

E

55.

Ridge Road S of Hughes Rd

2

2

7,625

B

10,400

E

88.

Ridge Road W of Alta

2

2

5,339

A

7,600

B

89.

Ridge Road E of Rough & Ready Hwy

2

2

4,263

A

11,600

F

56.

Sierra College Dr SE of Ridge Rd

2

2

3,180

A

7,200

B

103.

Taylorville S of McKnight

2

2

NA

NA

0

A

104.

Taylorville S of Crestview/Smith Ext

2

2

NA

NA

3,100

A

LOS = Level of Service

ADT = Average Daily Traffic

NA = Not Applicable

(2) = Planned Road

  • The planned number of lanes for all new roadways in the annexation areas should be adequate to accommodate projected year 2020 P.M. peak hour traffic flows and provide a Level of Service "D". In these areas, feasible at-grade improvements were identified for all major intersections.
  • As shown in Figure 4-3, a number of existing roadways in the infill areas of the City will require widening to provide Level of Service "D" operating conditions in the year 2020. Some of these locations are already deficient, while others will experience increased traffic as a result of future growth. Also, a number of existing intersections will require improvements.

  • A number of existing intersections will require improvements to provide Level of Service "D". As shown in Table 4-6, implementation of the General Plan Circulation Element and construction of the improvement projects included in the current General Plan, will result in satisfactory levels of Service at most locations.

TABLE 4-6

YEAR 2020

INTERSECTION LEVELS OF SERVICE
INTERSECTION

EXISTING

2020

LOS

DEL/

VEH

LOS

DEL/

VEH

V/C

#381

Colfax Hwy/SR 49 Frontage

B

14.1

0.633

#383

Main/Idaho Maryland/SR 49 SB Ramps

C

17.9

F

129.5

1.285

#384

Idaho Maryland/SR 49 EB Ramps

A/C

2.4

C

17.4

0.747

#385

Brunswick/SR 49 NB Ramps

B

11.5

.659

#386

Brunswick/SR 49 SB Ramps

C

15.2

0.394

#397

Idaho Maryland/Centennial

A/C

3.7

C

6.2

#398

Whispering Pines/Centennial

C

20.3

0.512

#409

Bennett/Centennial

F

9.6

#413

Freeman/McCourtney/Mill/Allison

B

7.8

C

21.5

0.633

#414

Mill/SR 20 WB Ramps

C

12.9

C

16.8

0.629

#415

McCourtney/SR 20 EB Ramps

A/E

3.5

C

17.0

0.509

#454

Sierra College/Litton/Robert Ross Way

F

53.2

D

23.1

1.451

#565

SR 49/Crestview

C

23.5

0.930

#640

Main/Bennett/Washington

C

21.5

0.760

#641

Colfax Hwy/Ophir

C

19.5

0.594

#669

Main/Alta

C

24.1

0.793

#675

McKnight/SR 49 SB Ramps

C

22.6

C

21.0

0.773

#676

McKnight/SR 49 NB Ramps

C

19.6

C

19.6

0.729

#677

Empire/SR 20 SB Ramps

D

36.8

1.030

#678

Empire/SR 20 NB Ramps

B

13.8

0.513

#750

Nevada City Hwy/Sierra College

C

24.3

0.691

#751

Nevada City Hwy/Hughes

C

19.3

0.760

#754