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HomeMy WebLinkAbout65-Public Works L C CITY OF SAN BERNARDINO #--, V ; , File No. 6.39 A'-I?- - REQUEST FOR COUNCIL ACTION From: ROGER G, HARDGRAVE Subject: Authorization to Indicate City's Willingness to Participate in Development of Transportation/ Air Quality Improvement Program Dept: Public Works/Engineering Date: 9-23-87 Synopsis of Previous Council action: None. ;:'.J r.' n c'"> d /1 -;':) I I....) >- '-!., C X :z: .'.;) 0 "'11 ~"l -, , Recommended motion: That the Mayor be authorized to sign a letter to SCAG signifying the City's willingness to participate in the development of a local implementation plan for transporta- tion control measures under the Transportation/Air Quality Implementation Program for air quality improve- ment. cc: Ray Schweitzer Contact perlon: Roger G. Hardgrave Staff Report Phone: 5025 Supporting data attached: Ward: N/A FUNDING REQUIREMENTS: Amount: r~ / A Source: (ACCT, NO,) (ACCT, DESCRIPTION) Finance: Council Notel: 75.0262 / 1A..::2, cOt OF SAN BERNARI()IO - REQU"JT FOR COUNCIL AOION STAFF REPORT Page 1 of 2 The Environmental Protecti9nAgency, Region IX, has instituted the Transportation/Air Quality Implementation Program in those areas of California where clean air standards have not been met, All of southern California is basically one of those areas, Continued non-compliance could result in sanctions by EPA, which would limit Federal-Aid funding'for a variety of proj- ects. Projections of future traffic volumes show tremendous increases over the next few years. These increases, in spite of street and highway improvements, will result in increased traffic delays and reduction in the levels of service. The Transportation/Air QuaTity Implementation Program requires the adoption of additional control measures to speed progress toward better air quality and traffic flow. A copy of the prototype ordinance ,developed by SCAG is attached for refer- ence. Implementation of this program is based upon a report developed by the City, and employee and developer organizations, to define the extent of anticipated problems, and measures to reduce the impacts. The report must incorporate the 3 following components, with appropriate recommendations. I TRANSPORTATION SYSTEM MANAGEMENT (TSM) -- Designation of improvements to street system in order to increase capacity, Examples of these improvements are: Improve signalization Channelization and restriping Directional flows II TRANSPORTATION DEMAND MANAGEMENT (TDM) -- Establishment of programs and facilities for new and existing developments to change user behavior, in order to reduce traffic congestion. This effort is divided into two areas - 1) Trip Reduction Program for Existing Development and, 2) Trip Reduction Program for New Developments. Examples of actions for existing development are: Creation of Transportation Management Associations Provide preferential parking for rideshares Provide vanpool vehicles for employees Establish flextime/modified work schedules Reduce time limits on parking spaces Improve traffic signal synchronization Improve transit service Provide facilities for non-vehicular commuters 9/23/87 75-0264 . CIO OF SAN BERNARDOO - REQUOT FOR COUNCIL AeON STAFF REPORT Page 2 of 2 III TRANSPORTATION FACILITY DEVELOPMENT SYSTEM TFD) -- Invo ves improvements on existing street systems and con- struction of new facilities. Examples of these projects are: Street widenings Intersection widenings Gap closures Grade separations with railways Standards are to be set for mitigation of transportation impacts by land use decisions. These standards can be based upon trips, number of employees, or area. Developments below the established standards will not be covered by the above components of the pro- gram. The prototype ordinance sets a goal to maintain peak- hour levels of service (LOS) of "D." In order to achieve this goal, each new development is required to undertake responsibility of carrying out sufficient provisions under TSM, TDM and TFD to mitigate the impact from their generated trips. Some of the provisions under this program may not be in accordance with our present development policies, This may neces- sitate a careful review of our long range objectives and possibly some re-appraisal. The proposed traffic impact fee is a step in this direction. I".r/' A city-wide traffic study is being prepared as a part of the revision to the general plan. Data from this study can be used as a base for the report needed to implement'this program. SCAG intends to contact other cities in our area to present the program and solicit their cooperation, The County of San Bernardino has indicated an interes~in participating in developing solutions to the air quality problems, and are employing TDM, TSM and TFD strategies for circulation improvements. We understand that revenue received from the proposed 1/2~ sales tax can be used to fund a temporary position of Trans- portation Planning Engineer to prepare the report prescribed by the ordinance. SCAG has requested that the City provide a letter out- lining our commitment to participate in this process. A copy of the sample letter is attached for reference, If it is your desire to participate in this program, it is recommended that the Mayor be authorized to sign a letter signifying the City's willingness to participate. 9/23/87 75-0264 . L ,..... ., '-" ~ ''\ --.I IOUTHEAn CAUFOAnlA AIIOCIAIIOft OF lSOVEAnmEnTI 100 Jouth Ca..a_CIIth Avenue .Mae 1000. Lot AnQeIeI' California. 90005 .213/385-1000 SMI'lE lOCAL .JItISDICTION LETTER OF MREEMENT AS RE~IRED BY EPA FOR TAQIP IMPlEMENTATION PlEASE NOTE THAT THE LETTER SHOULD: o BE PREPARED ON CITY OR COUNTY LETTERHEAD o SPECIFY THE TAQIP PROGRAM o CDNTAIN AN AGREEMENT TO PARTICIPATE o REFLECT AN UNDERSTANDING OF THE TIME FRAMES INVOLVED o SPECIFY A CONTACT PERSON FOR FUTURE COMMUNICATIONS Janu.ry 2, 1987 P.t llelleth, Director SCA6 Envi~nt.l Planning 600 South C) ....lth Avenue Suite 1000 LoS Angeles, CA g0005 Dear Ms. IleMth: Thank you for your offer of technfc.l .ssfstance fn development of a loc.l i~lelent.tfon plan for Transportation Control Measures under the Transport.tion / Afr Quality I~lelentatfon Program for air quality f~rov..nt_ We underst.nd that you need a Conlftllent of our cooperation in this effort towards flllPl..ntat1on of transportatfon systl!llls and dem.nd .anagelent Ie.sures over the next two years; this letter commits our 1nvolvelent as follows: to'rev1ew and approve a work plan and schedule fonulatecl by SCA6 by the end of February, and to work together with SCA6 in COIIPleting an f~lelent.tion plan by the end of June 19B7. Day-to-day technfc.l questions and c~nfcatfons on this work shciuld be directed to Merrie Wfllent of our Public Works staff at 714/660-6161. Thank you for your tile and cooper.tfon_ Sfncerely, Dennfs Wilberg Manager of Transportatfon Servfces Page 3 9/23/87 IIIc " -- " III " " -. III -- - II -- -- JI - - tI - ,r....... ,1">"\ ,) '-I '-'" lOUT. ERR CRUFORRIR RIIOCIRTIOfI 0' ctOVI!RftmERU Ith Avenue .JIIlte JOOO. Lo.t AngeIer. California. 90005.213/385-1000 600 Jouth ~ Dear Local Elected Official: SCAG has recently developed the attached transportation/land lJse prototype ordinance for your consideration. Increasingly, cities and counties, both in California and throughout the United States, are finding that the increased growth they need and want is causing the. severe problems of increased traffic congestion and increased air pollution. Some of these local Jurisdictions believe they have discovered a way out of this dilemma by adopting transportation/land use ordinances--and thus far, their experiences are showing progress. Although these ordinances differ broadly, their one common thread is that somehow they condition increased growth on the ability to manage the increased trips such growth would create. Included with this packet is a prototype of such an ordinance to establish a permanent transportation/land use program for a city or county. The ordinance is based on the major elements typical of such ordinances in many cities In California and thoughout the country. You will find the documentation about these other ordinances in the accompanying report. While anyone city accrues the greatest benefits in traffic reduction when cont1guous Jurisdictions also adopt transportation/land use strate- gles--such strategies and ordinances can, and probably would, vary considerably from city to city. They generally address three categories: 'transportation demand management, transportation system management, and transportation facilities development. No one strategy or group of strategies Is right for every city, because each city has different growth pOlicies and different traffic problems. Therefore, the prototype ordinance allows for diversity and flexibility so that each Jurisdictions can determine the appropriate methods it wants to adopt to achieve its goals. The prototype ordinance does suggest a format or list of elements: goals, strategies, enforcement, and evaluation. Your city or county will want to tailor these sections to meet specifically the needs and priorities of your community. However, some ordinance provisions have regional signifi- cance--that is, they will help achieve regional goals such as for air quality. These should be uniformly adopted by all jurisdictions. 9/23/87 110-18-4 c ,-... '-' """\ '-' I I I I t , I l . For example, the prototype ordinance sets a regionwide goal, achieving no worse than a "0" peak hour level of service on streets, arterials, and highways. Some cities' streets are already far worse than that and are deteriorating quickly; other do not yet have so severe a problem. However, reducing or preventing stop-and-go traffic will do much to improve the entire region's air quality. As you consider how your city could adapt this ordinance to serve your own needs, you will want to consider, at a minimum, the following: Your transportation/land use ordinance should provide for (1) continuing effectiveness; (2) equitable treatment for all developers and employers; (3) flexibility to meet changing conditions; (4) participation by both the public and private sectors; (5) financially feasible strategies; (6) clearly defined enforcement; and (7) criteria for measuring results. An ordinance which applies to both existing and new development will be both the most equitable and the most effective in achieving the community's goals. To most effectively measure the ordinance's results, a Jurisdiction should first establish reliable and accurate base data. Equity would demand that requirements that government for private sector employers. The economic strength of our region and the quality of our lives depend on the willingness of our cities and counties to address the relationship between development and mObility. public employers meet the same (through its ordinance) establishes SCAG staff are available to assist your city or county with further information as you may need it. Please call either Renee Simon, Principal, Demand Management or Richard Spicer, Principal, Plan and Project Review at (213) 385-1000. ~ __1If_....... ",. ,., ~.) II C II , II II II , . . - - - - I , I t , , "''' ,,---, "" j "- TRANSPORTATION/LAND USE PROTOTYPE ORDINANCE I. PURPOSE The purpose of this ordinance is to establish requirements for existing and new developments that will provide mitigation measures to reduce transportation congestion on the surface streets and highway system and improve air quality. The City/county shall establish a transportation/land-use ordinance that will do the following: A. Mini.ize peak-hour commute trips from new and existing employer developllll!nt; B. Reduce the traffic impacts within the community and region with a reduction in the number of vehicular trips and total vehicle .iles traveled; C. Reduce the vehicular emissions, energy usage, and ambient noise levels by a reduction in the number of vehicular trips, total vehicle miles traveled, and traffic congestion through a decrease in peak-hour commute trips, as well as achieve and IIAintain a Level Of Service (LOS) liD" on streets, arterials, and highways; D. Minimize the percentage of employees traveling to and from work at the same time and during peak-hour periodS by encouraging Job/housing balance; E. Promote or increase work-related transit use, ridesharing, and bicycling to minimize parking needs and to keep critical intersections from severe overload; F. Decrease the governmental economic costs of transportation improvements; and G. Maximize the use of commute modes other than the single- occupancy vehicle through other programs; i.e., Transportation Systems Management, Transportation Oemand Management, and Transportation Facilities Development. II. PROBLEM IDENTIFICATION/FINDINGS The City/county hereby finds and 'determines that: A. A significant increase in new growth and employment opportun- ities is occurring in this Jurisdiction and will increase traffic congestion Significantly. 110-3-3/4 1 > ~. '.. '- r ..... :) studies project future traffic and freeways will be intolerable to reduce commute hour traffic B. Transportation and traffic levels on surface streets unless measures are taken levels. C. Air quality studies project that a 50% reduction is needed to meet carbon monoxide concentration standards along surface streets and freeways. D. Traffic along major routes in this community average LOS which is below the average E. The central business district of this community may have a deficit of parking spaces F. New development or major additions to existing development will have an adverse impact on the existing transportation facili- ties and services. G. The City/county general plan mandates an uncongested traffic circulation system, energy conservation. and maintenance of noise and air quality levels within established standards. H. Transportation Systems Management (TSM), Transportation Demand Management (TDM). and Transportation Facility Development (TFD) strategies can improve service and operations to increase mobility and the general efficiency of the system. These strategies encompass traffic operations. ridesharing, and bicycle improvements as well as transit planning, and aanagement of the system including transportation centers. These strategies enhance vehicle flow or shift demand on an existing transportation facility. This system of improvement can be very effective when dealing with the external effects of transportation, such as air quality. energy use. and noise levels. . I. Reduction of congestion and the time of commute trips will encourage builders to locate more office buildings in the city/ county and enable,employers to effectively recruit and retain qualified personnel. J. Coordination of TSM, TDM, and TFD strategies with other cities and counties in the region and through regional agencies will assist in meeting the goals of this ordinance. II 1. GOALS To accomplish the intent of this ordinance. the goals of the TSM, TDM, and TFD strategies shall be as follows: 2 110-3-3/4 ) I I I I I 1 ~ 1 J II II II II , II .. II II - , . ~ . , I ~ , , (- .' ." '-" '-' A. To maintain peak-hour levels of service (LOS) on streets and intersections at no worse than LOS "0" for as long a period of time as feasible and not to exceed LOS-"E". B. To preclude peak hour LOS on streets and intersections from reaching LOS "F". IV. IIWIA6EMENT The city/county shall require each new development and existing development covered under the ordinance to take the responsibility for carrying out TSM, TOM, and TFD strategies appropriate to the partfcular development and for providing liaison with the appro- priate cfty/county personnel. As indicated elsewhere in the ordfnance and regulations, a variety of options are available for Irttigating transportation impacts. V. GEOGRAPHIC AREAS OF COVERAGE The city/county shall determine "traffic impact zones" which designate the types of areas that may range from the entire jurisdiction to parts of a jurisdiction, such as: A. Central business district; B. Centers; C. Multicommunities (neighborhoods); D. CoaIercial/office corridors; and E. Transportation corri~ors. VI. PERMIT PROCESS (New Construction) The city/county shall amend the building permit to include demand .anagement tactics for new construction or major remodeling before physfcal work can begin. The following shall be adhered to: A. The building permits shall require plans to be approved for the project and collection of' fees or other arrangements made by the city/county before issuance of a permit; B. The certificate of occupancy shall require that a field fnspector visit the site and determine that the facility meets all of the ordinance requirements. C. Covenants and agreements shall be issued and recorded after construction is completed and bind all future owners of the land to continue TSM, TOM, and TFD programs/activities. VII. FEES (Optional) The purpose of the transportation mitigation fee is to partially defray the cost of providing transportation facilities and services assocfated with new and existing commercial and/or residential developMent. The public fee from parking facilities and meters may be used for TSM, TDM, and/or TFD activities. The private sector 3 110-3-3/4 1- c c o ~ " fee is based on a number of criteria including, but not limited to, the number of trips generated, square footage of office use, percentage of trip ends and a combination of the above. The two types of fees are: A. Public Fee: This shall be the fee derived from the city/county operated parking facilities (including lots and garages) and from parking meters; and B. Private fee: This shall be the transportation mitigation fee charged to a private firm for other mitigation measures deemed necessary by the city/county. Public facilities that generate revenue and traffic shall also be subject to this fee. VIII. DEDICATED FEE/FUND ACCOUNT If the city/county establishes a fee. the funds shall be set aside in special accounts to finance TSM, TDM. and/or TFD activities. IX. REFUNDS A refund can be claimed if a fee has been charged and found to be erroneously or illegally collected and shall be given to the current owner(s) of said property holding the title report issued by a licensed title insurer. In disputes regarding title to property, refunds will be submitted to the Superior Court by an attorney for the city/county. The time allowed to claim a refund shall be established by the city/county. These refunds and/or releases may be made where: A. The building permit expires and no extensions have been granted for a development for which the funds have been collected; or B. A refund or release has been authorized by the city/county's decision-making bOdy (city councilor board of supervisors) which finds that said fee is no longer needed for transpor- tation improvements. X. EXEMPTIONS FROM FEES AND OTHER REQUIREMENTS The following land uses are exempt from paying a transportation mitigation fee: A. Additions, alterations or construction of any single-family structure, in any zone. B. Park-and-ride facilities; C. Churches, temples, and other properties used for religious worship; D. Private and public elementary and secondary schools; and/or 110-3-3/4 4 " ..." ,L II , , , , II II II II , ,II II . , I . , II " '--.", "-' '-" E. Any uses which do not generate more than x number of trips as determined by the city/county. XI. SANCTIONS/ENFORCEMENT The City/county shall impose sanctions and/or enforcement methods where the conformance with TSM, TOM, or TFD programs/activities are not met. These methods could include the addition of elements to the TSM or TOM plan, the transfer of authority for plan implemen- tation from the project builder/tenant to the administrative entity (city, county or government agency), and the imposition of penalty fees until failure to achieve goals is rectified. XII. FINANCIAL PENALTY If an owner or employer fails to submit an initial plan, annual plan update, annual audit or mandatory plan revision or fails to impleMent provisions of a plan, the owner will be in violation of this ordinance and the implementing transportation mitigation regulations or any other related requirement. In such cases, the City/county shall impose an additional fine of up to $____ per day. A developer in violation of the ordinance may have future phases of a development reduced in scope. XIII. APPEALS Where conformance with the TSM, TDM, and TFD programs/facilities are not met, the City/county can allow an appeal within days of an administrative determination of noncompliance. -rhe City council/board of supervisors shall make the determination whether to eli.inate or reduce an assessment fee. XIV. DEFINITIONS For the purpose of this Transportation Land Use Ordinance and regulations, the following definitions shall apply: Carvool shall mean a motor vehicle occupied by two (2) or more emp oyees travelling together at least three times per week. Commute Trips shall mean a home-to-work or work-to-home trip. E~lOYee shall mean any person hired by an employer full-time a on a permanent basis. Employer shall mean any public or private employer having a permanent place of business. , Emplo~nt Centers shall mean employment areas that are centra y located within each subregion and are conducive to both trallsit and ridesharing. traffic 110-3-3/4 5 , c 110-3-3/4 ,.... ......, o " ",,/ JOb{HOuSinQ Balance shall mean a close, match of housing and emp oyIDent opportunities within each subregion which reduces the need for inter-subregional trip making (work, shopping, and recreational trips) and which supports community cohesiveness. Level of Service (LOS) shall mean a term to describe prevail- ing and projected traffic conditions on a roadway and is ex- pressed by the ratio of volume/capacity (V/C). Six levels of service are used ,to represent the V/C ratio designated "A" through "P. "A" (0.00) describes a free-flowing condition and OF" (1.00 and above), i.e., 100+ % of volume/capacity, des- cribes forced traffic flow conditions. This definition is based on the Highway Capacity Manual, Highway Research Board Special Report B7, 1965. Mitigation Measures shall mean those strategies (e.g., Transportation Systems Management, Transportation Demand Management, and Transportation Facility Development) that are used, to reduce traffic impacts in congested areas. Monitoring shall mean the techniques used to monitor progress in achieving transportation mitigation goals, activities, and/or facilities. Peak-Hour or Peak-Hour Periods shall mean those hours of the business day, during which the highest number of home-to-work and work-to-home vehicle trips occur: the hours from a.m. to a.m. and from p.m. to p.m. - - -- Peak-Period Trips shall mean the employee's work-day trips that begin and end within the peak period. Pedestrian Overcrossing shall mean a grade-separated public pedestrian bridgeway over a pUblic street. Pedestrian Tunnel shall mean a grade-separated public pedestrian tunnel way under a public street. Preferential Parking shall mean parking spaces designated or assigned for carpool and vanpool vehicles carrying commute passengers on a regular basis. These spaces shall be provided at a reduced cost in a location more convenient to a place of elPloyment than parking spaces provided for single-occupant vehicles. Ridesharinl shall mean transporting more than one person in a IOtor veh cle for commute purposes such as carpools, vanpools, buspools, and taxi pools. Shuttle Bus Service shall mean sixteen or more passengers cOllUting on a regular basis to and from work on a fixed route, schedule, and cost. 6 "'C II , II II , ~ , II - , " , , , I . I II 110-3-3/4 ~ /d."_ ) '- '--' Sinqle-occupancy Vehicle shall mean a passenger car or truck occupied by one (1) employee for commute purposes excluding any two-wheeled carrier. Teleconmutinq shall mean a system which allows an employee to work at home or a satellite work site and still be in communi- cation with the office. Traffic Impact Assessment shall mean written documents for a developlent which assesses the traffic flow/congestion before and after completion of a project. Volume-to-capacity rates shall be used at intersections identified'by the City/county. Traffic Impact Zones shall mean a geographic area of the city whose boundaries may encompass all or a portion of one or more cOllUnity plan areas wherein traffic congestion has been identified as an imminent or existing condition. Transportation Coordinator shall mean an employee. tenant, property owner. property manager, contracted service. or an eMployer association whose function is to promote carpools. vanpools. and alternative commute modes (i.e., TSM and TDM program activities). Transportation Corridors shall mean linear areas of high eMployment and population densities, typically encompassing a ..jar thoroughfare or highway. Transportation Demand Manaqement (TDM) shall mean the imple- lentation of strategies which will encourage individuals to either change their mode of travel from a single-occupancy vehicle, eliminate the trip altogether, or commute at other than peak periods. Transportation Facility Development (TFD) shall mean major capital improvements to a highway or transit system or operating equipment which includes new construction of the existing system or construction of a new system. Transportation Manaqement Association (TMAs) shall mean voluntary, private. non-profit Corporations formed so that eMployers, developers, and/or retailers and civic leaders can collectively address community transportation-related problems. TMAs can be housed within an existing private organization. thereby resolving many of the difficulties associated with fOnling a new entity. Some TMAs are single-purpose organi- zations formed specifically to address transportation concerns; others are element of broader multipurpose civic organizations. SOle concentrate on downtown central city transportation problems. while others deal with regional transportation needs; and some are suburban in orientation. 7 c i , t 110-3-3/4 1'" '-' .:) ,) Transportation System Management (TSM) shall mean strategies that are designed to improve traffic flow through modifications in the operation of existing facilities. Trip Reduction shall mean that target percentage reduction in single-occupant vehicle trips by private- or public-sector programs used during peak periods of home-to-work commutation. Work Place shall mean the place of employment; base of operation, or predominant work location of an employee. 8