Appendix H. Millennium Hollywood Project Trip Cap and Mitigation Triggers

Transcription

1 Appendix H Millennium Hollywood Project Trip Cap and Mitigation Triggers

2 MILLENNIUM HOLLYWOOD PROJECT TRIP CAP AND MITIGATION TRIGGERS Crain and Associates Introduction The Millennium Hollywood Project (the "Project") is proposed for development as a mixed-use project, including residential and commercial uses, on opposite sides of Vine Street between Yucca Street and Hollywood Boulevard, and Ivar Avenue and Argyle Avenue, in the Hollywood Community of Los Angeles. The Project Site consists of two sites bisected by Vine Street, the West Site and East Site, respectively and includes the historic Capitol Records Building and Gogerty Building (the "Capitol Records Complex"). The controlling parameters of the Project will be established by a "Development Agreement" between the City of Los Angeles and the Project Applicant. The Development Agreement and corresponding Development Regulations will include project design features such as the types of uses to be developed, the maximum height of the buildings, the amount of required parking, and the connections of the Project Site to the nearby Metro Red Line station and other area transportation facilities. For purposes of the impact analysis for the Project, a recommended trip cap limit has been developed to control the extent and intensity of uses developed on the Project Site through implementation of the Development Agreement. Similarly, this document establishes the levels of Project development that would trigger the traffic mitigation measures established in the Millennium Hollywood Traffic Impact Study (the Traffic Study ). In other words, this document demonstrates when the developer would have to implement certain traffic mitigation measures that correspond to the amount of development on the Project Site and the related traffic trips. The trip generation calculations, development size limit (based on the trip cap), and mitigation measure triggers listed in the final section of this appendix are based on data in the Traffic Study. In order to maintain consistency with the Traffic Study trip generation estimates, the scenario that causes the greatest level of traffic impact (the Commercial Scenario) was also used in this supplemental analysis. This appendix also addresses the construction traffic impacts. Trip Generation Calculations Adjustments to ITE Assumptions The level of potential traffic generated by the mixed-use components of the Project is a fundamental part of the Traffic Study. In it, adjustments to the basic ITE trip generation rates are listed individually by component in the Traffic Study. The adjustments were made because the vehicular travel behavior of a mixed-use project (located in a heavily- Crain & Associates 1

3 developed urban area near rail and mass transit options) is materially different than vehicular travel behavior of the single-use suburban sites studied for the ITE manual. In addition, the adjusted trip generation values from the Traffic Study are based on the SCAG model and approved by LADOT. The same adjustments are consistently used in the analysis contained in this supplement. The trip generation values in the Traffic Study generation table are: Base (ITE) generation; and Reductions for: Internal Commute Trips; Internal Support Trips; Transit/Walk-in Trips; and Pass-by Trips. Similar adjustments were made to the existing uses trip generation estimates as were made to the trip generation estimates for the proposed uses associated with the Project. The adjustments to the existing uses trip generation were made to properly account for the Project traffic impacts, as the existing uses are also in a location within an urban community, next to a transit railway station. This supplemental analysis utilized the same reductions to the existing and the proposed uses trip generation as those used in the Traffic Study. Trip Cap Calculation The trip cap for the Project is recommended to be set based on the level of trip generation analyzed in the Traffic Study. Table 1 summarizes the land-use and trip generation parameters from the Traffic Study. Table 1 Adjusted Trip Generation Based on Project Uses Land Use Category Use Size AM Peak Hour Trips PM Peak Hour Trips 220 Residential 461 du 165 trips 151 trips 310 Hotel 254 rm 121 trips 128 trips 492 Health/Fitness Club 80 ksf 63 trips 156 trips 710 General Office 150 ksf 137 trips 54 trips 820 Retail 100 ksf 78 trips 321 trips 931 Quality Restaurant 25 ksf 13 trips 121 trips N/A Car Rental -8 ksf (3) trips (7) trips Site Total (Trip Cap) 574 trips 924 trips As depicted in Table 1, the "Commercial Scenario" of the Project would produce 574 net new AM peak hour trips and 924 new PM peak hour trips. For purposes of environmental impact analysis, this 574 AM/924 PM peak hour "Trip Cap" generation represents the number of AM and PM peak hour trips associated with the most trip- Crain & Associates 2

4 intensive development scenario of the Project. Thus, the maximum allowable peak hour trips that would be allowed under any development scenario would be limited to Trip Cap of 574 AM peak hour trips and 924 PM peak hour trips. Accordingly, Project trip generation at the Trip Cap level was used in the Traffic Study to analyze the maximum level of potential traffic impacts associated with Project development. Project Component Trip Generation Calculation Procedures The Project may be built in several phases, and the aggregate site development for each phase will be evaluated to ensure that the Trip Cap would not be exceeded by the cumulative site development. Further, due to the potential for the Project to be constructed over many years, the implementation of traffic mitigation measures is phased to correspond with the amount of development (and associated trips) on the Project Site. In other words, certain levels of development will "trigger" the requirement to implement traffic mitigation measures before construction. The mitigation measures triggers based on trip generation would be implemented as follows. First, a trip generation calculation would be required before any building permits are issued for each phase of development. Project trip generation for two periods (i.e., the Construction Period and Operational Period) would be analyzed for each development phase. For the Construction Period, a set of trip generation calculations would consider the maximum level of Construction Period trip generation based on construction trucks and employees. For the build out and occupancy phase (defined herein as the Operational Period), a second set of calculations would be made. The Operational Period calculations typically represents a longer term period with higher trip generation than the Construction Period. The tables and narrative below explain how trip generation would be calculated. Table 2 contains the Project's proposed construction activities and land uses, and a corresponding trip generation multiplying factor which would be used to create trip generation estimates. The construction activities would first be considered in the trip generation calculations. Construction activity employees were assumed to generate traffic similar to a light industrial use. No credit was taken for transit/walk-in employee trips or other factors. The Passenger Car Equivalent ("PCE") factor for trucks is applied to account for the trucks larger size and traffic impact. The PCE factor, depending upon truck size, ranges from 1 to 3. A conservative average PCE of 2.5 was assumed and applied to the trucks entering or exiting the Project Site on a daily basis. It was generally assumed that there would be 1 inbound and 1 outbound trip per load and the truck trips would be spread evenly over an 8 hour work day. For soils export, however, the standard City Haul Route conditions do not allow truck trips to be made during peak hours. Therefore, none of the truck trips will be added to the site peak hour trip generation and associated traffic impacts for the Excavation and Shoring phase. Crain & Associates 3

5 Table 2 Trip Cap Computation Factors By Construction Activity and Land-Use Type Level Land Use/Activity Peak Hour Trips Factor * ** *** Construction Period AM PM Unit 110 Construction Employee* trips/employee N/A Construction Trucks** trips/truck load Operational Period 220 Residential trips/du 310 Hotel trips/rm 492 Health/Fitness Club trips/ksf 710 General Office trips/ksf 820 Retail *** (1-25,000 sf) trips/ksf (25,001+ sf) trips/ksf 931 Restaurant trips/ksf N/A Car Rental Facility trips/ksf The trip rates per peak construction worker used are the ITE Trip Generation, 8th edition manual rates for a Light Industrial site (LU 110). Standard City haul route conditions prohibit such truck activity during the excavation and shoring construction phase and thereby 0 truck trips are to be assumed for that phase. The rates apply to the average trucks hauling loads to or from the site on a weekday during each other construction phase. Incrementally applied to the retail building area on the site at the conclusion of a development phase. Second, the Operational Period trips would be considered. The Operational Period multiplying factors were calculated based on the Traffic Study data summarized in Table 1. The measure of land use intensity for each Project use was also taken from the Traffic Study data summarized in Table 1. The trip generation data and land-use intensity assumptions were then used to establish the rate of trip generation per unit of development for the Project that are included in Table 2. In the Traffic Study, the trip generation estimates for the Operational Period were all based on procedures in the ITE Trip Generation Manual, except for the rental car facility, which is not an ITE land-use and which will be demolished as part of the Project. For the residential use, the land-use intensity is measured in terms of dwelling units. For the hotel, the measurement is for number of rooms. For all other uses, the square footage of building area is used as the land-use intensity parameter. The total amount of trips considering the net land-uses included on the Project Site during the development phase would be determined. For analytical purposes, the total net development would be comprised of the following elements: a) All buildings currently occupying the Project Site which were constructed after the Development Agreement was approved; Crain & Associates 4

6 b) All buildings removed from the site which were existing before the Development Agreement was approved (as a credit); c) Any buildings proposed to be constructed on the Project Site for which a previous application was filed and not withdrawn, but the building has not yet been constructed; and d) The current development phase now being applied for. The trip generation level for each of the four land-use elements will be determined using the rates in Table 2. The trip generation for land-use items a, b and c will be the same for both the Construction and Operational Periods. The trip generation value for land-use element d can vary between the estimates for the construction and operational. The Project Construction Period and Operational Period Project trip generation would be separately determined from the summation of the trip generation for the four land-use elements discussed above. Trip Cap Comparisons Construction Period In order to evaluate the transportation implications of the construction, and verify that the traffic generation will remain within the Trip Cap, a conservative scenario was evaluated. Under this conservative scenario, it was assumed that the entire Project was constructed as a single phase. The assumed construction activity included the efforts required to simultaneously construct the components on both the East and West Sites. Table 3 shows the resulting level of activity. Table 4 shows the results of the trip calculations under the conservative scenario whereby all construction occurs at the same time. The analysis applies the rates set in Table 2 to the level of activity shown in Table 3. The greatest generation will occur during Phase 7 - Finishes, due to the large combination of workers and deliveries. Table 3 Level of Activity During Project Construction By Construction Phase Construction Daily Amount Months (Inclusive) Truck Loads Workers Construction Phase Start End Duration Average Peak Average Peak 1 Demolition Month 1 Month 1 1 Month Excavation & Shoring Month 2 Month 9 8 Months Foundation & Below Grade Month 9 Month 14 6 Months Building Superstructure Month 13 Month Months Exterior Finishing Month 16 Month Months Framing / Rough In Month 16 Month Months Finishes Month 22 Month Months Crain & Associates 5

7 Table 4 Trip Generation During Project Construction For Each Construction Phase AM Peak Hour PM Peak Hour Construction Period Trips Construction Period Trips Construction Phase Trucks Workers 1 Total Trucks Workers 1 Total Average for Phase 1 Demolition Excavation & Shoring Foundation & Below Grade Building Superstructure Exterior Finishing Framing / Rough In Finishes Peak of Phase 1 Demolition Excavation & Shoring Foundation & Below Grade Building Superstructure Exterior Finishing Framing / Rough In Finishes Notes: 1 Conservatively assumes that construction worker shifts begin and end as typical industrial shifts. 2 Soils import/export truck trips are not allowed in the peak hours. Table 5 utilizes the information in Table 4 and calculates the level of Construction Trips during each period of months. It was assumed that each activity would be at its average level over the length of that phase. Each phase will be at its peak for the month(s) when 1) that phase is the only phase operating on the site, or 2) when that phase is starting if it would not occupy the entire site at any time. The level of activity was adjusted for the non-peak months so that the average trip level remained the same as indicated in Table 4. These same assumptions shall be made in subsequent evaluations. As Table 5 shows, the maximum level of trip-making activity from the Project Site during the AM peak hour will be 496 trips, which is nearly 15% lower than the Trip Cap of 574 AM peak hour trips. The highest PM peak hour construction generation is 479 trips, slightly greater than half of the Trip Cap level of 924 PM peak hour trips. Crain & Associates 6

8 Table 5 Trip Generation During Project Construction By Month Within the Construction Period Month(s) AM Peak Hour PM Peak Hour Phase1 Phasa2 Phasa3 Phasa4 Phasa5 Phasa6 Phasa7 Total Phase1 Phasa2 Phasa3 Phasa4 Phasa5 Phasa6 Phasa7 Total * Phases -- 1 = Demolition, 2 = Excavation and Shoring, 3 =Foundation and Below Grade, 4 = Building Superstructure, 5 = Exterior Finishing, 6 = Framing / Rough In, and 7 = Finishes. Operational Period To stay within the envelope of environmental impact analysis, the Project trips must remain within the Trip Cap during the Operational Period. Table 6 shows a set of AM and PM trip level computations that compare each development scenario (Concept Plan, Commercial Scenario and Residential Scenario) in the EIR to the Trip Cap. As this table demonstrates, under all three scenarios the Project trip generation would remain at, or below, the Trip Cap values of 574 for the AM peak hour and 924 for the PM peak hour. Crain & Associates 7

9 Concept Plan Table 6 Sample AM and PM Peak Hours Trip Level Computations For Comparison to the Trip Cap and Mitigation Trigger Values Component Size AM Peak Hour PM Peak Hour 220 Residential 492 du 176 trips 161 trips 310 Hotel 200 rm 95 trips 101 trips 492 Health/Fitness Club 35 ksf 28 trips 68 trips 710 General Office 215 ksf 197 trips 78 trips 820 Retail (1-25,000 sf) 15 ksf 22 trips 75 trips (25,001+ sf) 0 ksf 0 trips 0 trips 931 Restaurant 34 ksf 18 trips 165 trips N/A Car Rental Facility -8 ksf -3 trips -7 trips 110 Construction Employee 0 emp 0 trips 0 trips N/A Construction Truck 0 trucks 0 trips 0 trips Total 533 trips 641 trips Commercial Scenario (Traffic Study) 220 Residential 461 du 165 trips 151 trips 310 Hotel 254 rm 121 trips 128 trips 492 Health/Fitness Club 80 ksf 63 trips 156 trips 710 General Office 150 ksf 137 trips 54 trips 820 Retail (1-25,000 sf) 25 ksf 36 trips 126 trips (25,001+0 sf) 75 ksf 42 trips 195 trips 931 Restaurant 25 ksf 13 trips 121 trips N/A Car Rental Facility -8 ksf -3 trips -7 trips 110 Construction Employee 0 emp 0 trips 0 trips N/A Construction Truck 0 trucks 0 trips 0 trips Total 574 trips 924 trips Residential Scenario 220 Residential 897 du 321 trips 294 trips 310 Hotel 0 rm 0trips 0trips 492 Health/Fitness Club 30 ksf 24 trips 59 trips 710 General Office 114 ksf 104 trips 41 trips 820 Retail (1-25,000 sf) 25 ksf 36 trips 126 trips (25,001+ sf) 0 ksf 0 trips 0 trips 931 Restaurant 10 ksf 5 trips 48 trips N/A Car Rental Facility -8 ksf -3 trips -7 trips 110 Construction Employee 0 emp 0 trips 0 trips N/A Construction Truck 0 trucks 0 trips 0 trips Total 487 trips 561 trips Off-Site Transportation Mitigation Measure Implementation Schedule The mitigation triggers and payment schedule are intended to implement traffic mitigations prior to the construction or occupancy levels that would create traffic impacts. Thus, prior to issuance of any building permit or issuance of a permit allowing a change of land-use the number of Operational Period and Construction Period trips to be Crain & Associates 8

10 generated by the Project would be calculated using the procedures described in this supplemental analysis. The results of the calculations would be compared to the Trip Cap values of 574 AM peak hour trips and 924 PM peak hour trips. No building permits would be issued to allow the Project-related trip generation to exceed the Trip Cap value unless other supplemental analysis is completed. The results would also be compared to the triggers based on the trip generation level. Trigger mechanisms are to be used for mitigation measures that will be directly implemented by the Project Applicant. However, payments will be made based on the payment schedule set forth below for mitigation measures that will be implemented by the City. Project payments to the trust funds for the Bike Plan Trust Fundand Signal Systems Upgrades shall be made proportional to the trip generation values at the completion of each phase. For the payments, the number of trips at phase completion shall be multiplied by the rates set forth in Table 7, accounting for inflation based on the Marshall Valuation Service Comparative Cost Index (per City standards), and the higher of the amounts based on the AM peak hour or PM peak hour trips shall be due. Credits shall be made for previous Project payments to these funds. The AM peak hour and PM peak hour trigger values/payment amounts for each off-site mitigation measure is listed in Table 7. The Project Applicant would be responsible for implementing all off-site Transportation Mitigation Measures for which either of the two trigger values (AM peak hour of PM peak hour) would be exceeded by that phase of development and making any required payment corresponding to the higher value for that phase of development. If the trigger for one or more off-site Transportation Mitigation Measures will be exceeded by the Construction Period trips, a B-permit application must be filed with the Bureau of Engineering for that improvement prior to a building permit being issued. The application would include the posting of a bond for implementing the triggered mitigation measure(s). Filing the B-permit with a bond ensures that the triggered mitigation measure would be implemented to address the related traffic impact. If the Operational Period trips exceed a trigger, that corresponding mitigation measure(s) would be implemented prior to a permanent Certificate of Occupancy for that phase being issued by the City. The mitigation trigger applies to any and all buildings proposed to be part of that phase. For any other approval by the City (e.g. a change of use) which is determined to cause the Project trip generation to exceed a trigger for a Transportation Mitigation Measure, a B-permit application must be filed with the Bureau of Engineering. For those measures requiring a payment to a trust fund administered by the City (the Bike Lane Trust Fundand the Signal SystemUpgrades), the full payment for that phase shall be made to the City prior to any certificate of occupancy (temporary or permanent) being issued for a building in that phase. There are other Project-related Construction Period transportation impacts and corresponding mitigation measure that are not directly related to the Project s trip generation level. Instead, these impacts are a result of the temporary capacity loss (such as intrusions into the City s right of way) from Construction Period activities. As a result, there would also be a review of any such Project activities during construction for each Project phase and the mitigation measures would be implemented accordingly. Crain & Associates 9

11 Table 7 Trigger Values and Fee Payment Schedule For Off-Site Transportation Mitigation Measures Measure Trip Trigger Payment Schedule AM/PM AM/PM Hollywood Community Transportation Management 110 AM/ 210 PM Organization (TMO) Bicycle Plan Trust Fund $436/AM trip; $271/PM trip Signal System Upgrades* Completed Prior to any C of O $1,611/AM trip; $1,001/PM trip* * The Project Applicant may pay the per trip amount for the Signal System Upgrades, or in the alternative, the City and Project Applicant may instead agree to the Project Applicant installing the Signal System Upgrades under a B- permit, to be completed prior to any C of O. The Transit Enhancements must be completed prior to any Certificate of Occupancy and a Caltrans Encroachment Permit must be applied for prior to any Certificate of Occupancy pursuant to the LADOT Correspondence to the Department of City Planning, dated August 16, See Appendix K.2 of the Draft EIR. On-Site Transportation Project Features and Mitigation Measure Implementation Schedule On-site transportation project features from the Project Description and mitigation measures recommended in the EIR include: The Project Transportation Demand Management (TDM) Program, The Pedestrian, Bicycle, Automobile and Delivery Circulation Systems, Widenings or dedications for adjacent public streets, Site Loading Facilities, and The Parking Provisions. Standard City of Los Angeles procedures would be followed for the building permits associated with each phase. The requirements would consider the building(s) uses being planned for each phase and the layout of the Project Site at the completion of each development phase. Plans for the physical on-site transportation infrastructure would accompany each building permit application or, if determined to be appropriate by the Director of the Planning Department, with any other application for an approval by the City. The on-site requirements would be phased so as to appropriately serve the specific buildings to be developed on the Project Site within each phase. For example: Greater loading dock capacity per square foot of building area shall be required for retail or restaurant uses than for office uses, and The parking demand for each phase will be calculated using the shared parking provisions of the Development Agreement as studied in the Shared Parking Crain & Associates 10

12 Analysis and the EIR, and that amount of parking shall be provided for that phase. If less parking is provided, additional environmental analysis will be required, however, the Project Applicant may provide more parking than required by the shared parking calculations. Pursuant to the LADOT Correspondence to the Department of City Planning, dated August 16, 2012 (See Appendix K.2 to this Draft EIR), prior to the issuance of the first building permit, the TDM Program shall be prepared and submitted to LADOT for review and a final TDM Program approved by LADOT is required prior to issuance of the first C of O for the Project. The TDM Program shall include measures to serve the occupants of the proposed building(s) (as well as retaining service to any other buildings on the Project Site), a description of how the building(s) shall comply with the City s Municipal Code bicycle requirements, and how the building(s) shall provide access to and/or encourage use of the area transit facilities. The TDM Program shall also address the implementation of other methods to encourage ridesharing and other alternative mode usage, including parking management, car and bike sharing, and on-site transit pass sales. The TDM Program for all phases of the Project shall contain the measures listed in Table 8. Table 8 Transportation Demand Management Measures To Be Included in All TDM Plans Provide an internal Transportation Management Coordination Program with an on-site transportation coordinator A bicycle, transit, and pedestrian friendly environment Administrative support for the formation of carpools/vanpools Flexible/alternative work schedules and telecommuting programs Parking provided as an option only for all leases and sales A provision requiring compliance with the State Parking Cash-out Law in all leases Distribution of information to all residents and employees of the onsite pedestrian, bicycle and transit rider services, including shared car and shared bicycle services While the final TDM Program will be approved by LADOT prior to issuance of the first C of O for the Project, the implementation of the additional specific measures below shall be included in the program beginning with the triggers listed in Table 9. Crain & Associates 11

13 Table 9 Trigger Values for Selected On-site Transportation Demand Management Measures Measure Inclusion of business services to facilitate work-at-home arrangements for the proposed residential uses, if constructed Provision of a self-service bicycle repair area and shared tools for residents and employees Provide car share amenities (including a minimum five parking spaces for a shared car program) Bike Parking Required per the Municipal Code in a Bike Friendly Manner Showers, and Lockers Required per the Municipal Code in a Bike Friendly Manner Trigger 50 Residential Units 50 ksf of Net New Office Use or 50 Residential Units 500 Net New Parking Spaces 10 ksf of Net New Non- Residential Uses 50 ksf of Net New Office Use Conclusion The above procedures are designed to ensure that the Project construction and operation do not exceed the level of traffic impacts analyzed in the Traffic Study and supplemental analyses conducted for the EIR. Calculation of the Project net trip generation would be required for each development phase. The Project trip generation computation for each phase would also take the construction impacts into account. A trip cap of 574 AM/924 PM peak hour net trips is to be included within the Project's Development Agreement. Also established are a payment schedule or trigger levels of net trip generation at which each off-site transportation mitigation measure would be required. It is recommended that these also be included in the Development Agreement. Finally, procedures are recommended for the Development Agreement to ensure that the on-site transportation mitigation measures are also implemented. The Tables above contain the measures to be included with each phase, and the triggers are listed for those measures specific to a minimum development level. The overall recommended Development Agreement program is designed to ensure that the Project transportation impacts do not exceed those analyzed in the Traffic Study and the EIR. Crain & Associates 12