VEHICLE MILES TRAVELED (VMT)

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1 DATE: April 13, 2017 TO: FROM: RE: San Francisc Planning Department Transprtatin Cnsultants Wade Wietgrefe, Senir Planner In September 2016, a memrandum was sent t the transprtatin cnsultant pl regarding language fr transprtatin and circulatin significance criteria. Althugh sme f these significance criteria were in place fr many years, the purpse f this memrandum is t prvide clarity thrugh further descriptin, references, and examples f types f analysis necessary t address sme significance criteria fr typical develpment prjects. Clarity is nly prvided fr thse significance criteria with recently bserved misunderstandings. The significance criteria presented in the September 2016 memrandum are als brken apart int questins fr clarity purpses. The descriptin and examples are nt intended t be exhaustive. This guidance shuld be paired with existing guidance prvided in the Transprtatin Impact Analysis Guidelines and Envirnmental Review Guidelines. 1 In additin, this memrandum updates the apprach fr addressing the recently adpted Transprtatin Demand Management Prgram and prvides clarity regarding the apprach fr using a future baseline and analyzing cumulative impacts. VEHICLE MILES TRAVELED (VMT) Cause substantial additinal VMT? Substantially induce additinal autmbile travel by increasing physical radway capacity in cngested areas (i.e., by adding new mixed-flw travel lanes) r by adding new radways t the netwrk? The remval f autmbile delay des nt preclude the need fr trip distributin infrmatin prvided in the travel demand sectin f the transprtatin study. This infrmatin is still vital t analyze ther transprtatin (and air quality and nise) impact tpics. VMT des nt equal traffic. Traffic generally refers t vehicles mving (r nt) n a street. VMT captures nt just the amunt f vehicles n a street in any given lcatin, but als the distance thse vehicles travel and the assciated impacts frm that. VMT and traffic must be separate transprtatin impact headings. The VMT heading captures these impacts. The traffic heading relates t traffic hazards, as described further belw. Please refer t references belw fr further details regarding VMT analysis. 1 Bth dcuments are available nline here: Bth dcuments are intended t be updated in the future. Mem

2 Transprtatin Demand Management (TDM) Prgram The TDM Prgram (Planning Cde Sectin 169) became effective March 19, It generally applies t all residential develpment f 10 units r mre, nn-residential develpment f 10,000 square feet r mre, and changes f use f 25,000 square feet r mre. Each prject subject t the TDM Prgram is required t meet a pints target. The prject spnsr meets the pints target thrugh the selectin f measures frm a TDM menu f ptins. The pints target is adjusted dwnward fr thse prjects that meet the requirements f Planning Cde Sectin 169.3(e) related t filing date f applicatins. Nte that the Envirnmental Applicatin deemed cmplete language in the Planning Cde nly applies fr prjects that meet that requirement n r befre September 4, 2016, which thse prjects shall be subject t 50% f the pints target. 2 Fr new transprtatin studies r existing transprtatin studies at draft 2 r prir, the prject descriptin shuld describe the TDM measures selected fr each prpsed land use categry that will require a TDM Plan and include plans displaying the physical TDM measures selected. In mst instances, the VMT sectin discussin f TDM will simply cnsist f a cde cmpliance discussin (i.e., dcumentatin as t hw the prject s TDM Plan meets the pints target). The prject spnsr is required t file their TDM Plan with the first Develpment Applicatin. Given envirnmental review shall nt prceed beynd review f the prject descriptin unless the prject spnsr has filed Develpment Applicatin(s), the transprtatin cnsultant will have access t the prject spnsr s TDM Plan fr this cde cmpliance check. TDM checklists, imprvement measures, etc. are typically n lnger required fr transprtatin review as this is nw a Planning Cde requirement. Please refer t references belw fr further details regarding the TDM Prgram. References: Refer t March 3, 2016 Planning Cmmissin Staff Reprt fr the Transprtatin Sustainability Prgram, Align Cmpnent fr VMT significance criteria: Shift (TDM Prgram) website: 2 In ther wrds, a Develpment Prject with an Envirnmental Applicatin deemed cmplete between September 5, 2016 and December 31, 2017 withut a filed Develpment Applicatin shall be subject t 100% f the target, while thse with a filed Develpment Applicatin between thse dates shall be subject t 75% f the target. 2

3 TRANSIT cause a substantial increase in transit demand that culd nt be accmmdated by adjacent transit capacity, resulting in unacceptable levels f transit service? Screenline analysis is typically used t address this significance criterin. Hwever, n a case-by-case basis directinal link and/r line-by-line analysis may als be used. cause a substantial increase in delays r perating csts such that significant adverse impacts in transit service levels culd result? Even if a prject des nt necessitate a quantitative transit delay analysis, this significance criterin still must be addressed qualitatively. This qualitative assessment shuld take int accunt whether the prject wuld add a substantial vlume f vehicle trips t lanes and mvements with transit peratins r whether the prject wuld include design elements that wuld substantially affect transit peratins (e.g., vehicular ingress/egress facilities where a substantial number f vehicles cnflict with transit peratins; r changes t the public right-f-way that affect transit facilities (e.g., relcatin f transit stps)). PEDESTRIANS result in substantial vercrwding n public sidewalks? Even if a prject des nt necessitate a quantitative sidewalk capacity analysis, this significance criterin still must be addressed qualitatively. This qualitative assessment shuld take int accunt the existing plus prject sidewalk activity, particularly as it relates t sidewalks between the prject site entries/exits and majr destinatins r transit stps, and the actual and effective sidewalk widths. create ptentially hazardus cnditins fr pedestrians? This significance criterin fcuses n hazards t peple walking as a result f any element f the prject. The analysis shuld fcus n items such as whether the prject wuld add a substantial vlume f vehicle trips t a ptentially hazardus turning mvement fr peple walking; whether the prject wuld exacerbate an existing hazard (e.g., High Injury Crridr) thrugh a substantial number f vehicle trips; r whether the prject wuld include design elements that wuld cause hazards (e.g., vehicular ingress/egress facilities where a substantial number f vehicles cnflict with substantial number f peple walking; vehicular ingress/egress facilities that result in hazardus turning mvements between vehicles and a substantial number f peple walking; r changes t the public right-f-way that create hazards fr peple walking). The analysis shuld als identify whether a substantial number f particularly vulnerable persns exist r wuld exist in the study area (e.g., children, senirs, peple with disabilities). 3

4 therwise interfere with pedestrian accessibility t the site and adjining areas? This significance criterin fcuses n accessibility bth in terms f Americans with Disabilities Act (ADA) accessibility and accessibility in the brader meaning f the wrd. The analysis shuld fcus n items such as whether ADA accessible sidewalks and facilities are prvided, particularly as it relates t sidewalks between the prject site entries/exits and majr destinatins r transit stps, and whether the prject wuld create barriers t access t the site and adjining areas (e.g., vehicular ingress/egress facilities that result in substantial queuing frm vehicles that blck access t a substantial number f peple walking; creates substantially large blcks withut mid-blck pedestrian access facilities t prvide safe access fr peple walking, particularly acrss streets with a diversity f land uses; r remval f sidewalk facilities). BICYCLES Bicycle capacity is nt currently a significance criterin. create ptentially hazardus cnditins fr bicyclists? This significance criterin fcuses n hazards t peple bicycling as a result f any element f the prject. The analysis shuld fcus n items such as whether the prject wuld add a substantial vlume f vehicle trips t a ptentially hazardus turning mvement fr peple bicycling; whether the prject wuld exacerbate an existing hazard (e.g., High Injury Crridr) thrugh a substantial number f vehicle trips; r whether the prject wuld include design elements that wuld cause hazards (e.g., vehicular ingress/egress facilities where a substantial number f vehicles cnflict with substantial number f peple bicycling; vehicular ingress/egress facilities that result in hazardus turning mvements between vehicles and a substantial number f peple bicycling; r changes t the public right-f-way that create hazards fr peple bicycling). therwise substantially interfere with bicycle accessibility t the site and adjining areas? This significance criterin fcuses n accessibility in the brader meaning f the wrd. The analysis shuld fcus n items such as whether the prject wuld create barriers t access t the site and adjining areas (e.g., vehicular ingress/egress facilities that result in substantial queuing frm vehicles that blck access t a substantial number f peple bicycling (e.g., acrss a bicycle facility); r remval f a bicycle facilities). LOADING result in a lading demand during the peak hur f lading activities that culd nt be accmmdated within prpsed n-site lading facilities r within cnvenient n-street lading znes, and if it wuld create ptentially hazardus traffic cnditins affecting traffic, transit, bicycles, r pedestrians r significant delays affecting traffic, transit, bicycles r pedestrians. 4

5 This significance criterin includes tw main questins, with a sub-questin/cmments beneath it: What is the peak hur lading demand? Can this peak hur lading be accmmdated by the prpsed ff-street lading supply r within cnvenient n-street lading znes? If yes, then significant impacts wuld nt ccur. If n, des this situatin create ptentially hazardus cnditins fr traffic, transit, bicycles, r pedestrians r significant delays affecting transit? If yes, then significant impacts wuld ccur and mitigatin measures are required. If n, then significant impacts wuld nt ccur. The significance criterin des nt include Planning Cde cmpliance, althugh Planning Cde cmpliance shuld still be described. While nn-cmpliance with the Planning Cde may indicate that the prject des nt meet the peak hur lading demand, which by itself des nt result in a significant impact. If the peak hur lading demand is nt met, the analysis shuld fcus n items such as whether the prject wuld create ptentially hazardus cnditins fr traffic, transit, bicycles, r pedestrians (e.g., duble-parking n a high-vlume street fr any f thse users f the transprtatin system) r significant delays affecting transit (e.g., duble-parking in a mixed-flw lane used by transit r transit-nly lane r illegal lading in a transit bus stp). If a prject is nt in cmpliance with the Planning Cde, staff may require a cde cmpliant variant t be studied t assess the envirnmental impacts f such a variant and infrm decisin makers. While the current Transprtatin Impact Analysis Guidelines des nt include estimates f passenger lading demand fr mst land uses, the impact analysis shuld still qualitatively assess the ptential fr impacts related t passenger lading fllwing the same guidance as abve. TRAFFIC A prject wuld have a significant adverse impact if it wuld cause majr traffic hazards. This significance criterin fcuses n hazards t peple driving as a result f any element f the prject. The analysis shuld fcus n items such as r whether the prject wuld include design elements that wuld cause hazards (e.g., vehicular ingress/egress facilities where a substantial number f vehicles cnflict with substantial number f peple driving; vehicular ingress/egress facilities that result in hazardus turning mvements between vehicles and a substantial number f peple driving; r changes t the public right-f-way that create hazards fr peple driving). 5

6 EMERGENCY VEHICLE ACCESS A prject wuld have a significant effect n the envirnment if it wuld result in inadequate emergency access. CONSTRUCTION Cnstructin f the prject wuld have a significant effect n the envirnment if, in cnsideratin f the prject site lcatin and ther relevant prject characteristics, the temprary cnstructin activities duratin and magnitude wuld result in substantial interference with pedestrian, bicycle, r vehicle circulatin and accessibility t adjining areas thereby resulting in ptentially hazardus cnditins. PARKING The prject wuld have a significant effect n the envirnment if it wuld result in a substantial parking deficit that culd create hazardus cnditins affecting traffic, transit, bicycles, r pedestrians r significant delays affecting traffic, transit, bicycles r pedestrians and where particular characteristics f the prject r its site demnstrably render use f ther mdes infeasible. This significance criterin must be addressed, even if the prject meets the prvisins f Senate Bill 743. First, the analysis needs t determine if the prject wuld result in a substantial parking deficit. This determinatin is rare (e.g., the prject site is gegraphically islated frm transit and parking culd nt be managed r peple wuld nt be inclined t switch mdes). If a substantial parking deficit wuld nt ccur, n significant impacts wuld ccur. If the prject wuld result in a substantial parking deficit, then the analysis wuld determine if the prject wuld create ptentially hazardus cnditins fr traffic, transit, bicycles, r pedestrians r significant delays affecting transit. Please refer t references belw fr further details regarding parking analysis. References: Refer t February 23, 2017 Planning Cmmissin Memrandum fr Califrnia Envirnmental Quality Act: Vehicle Miles Traveled, Parking, Fr-Hire Vehicles, and Alternatives: supprting-dcuments. FUTURE BASELINE In sme circumstances, it may be apprpriate analyze a future (aka adjusted r mdified) baseline. The ratinale fr a future baseline is the existing plus prject impact analysis des nt accurately reflect the cnditins that exist at the time the prject s impacts wuld ccur and an existing plus prject analysis culd be misleading t the public and decisin makers. In these circumstances, a descriptin f existing cnditins is still required in the transprtatin study. The future baseline cnditins sectin shall describe the prjects that 6

7 are assumed in the future baseline cnditins and hw the future baseline cnditins will be different than existing cnditins. Future baseline cnditins prjects shall nly include thse that are apprved and funded at the time transprtatin analysis cmmences. In ther wrds, the future baseline cnditins shall nly include prjects that are certain (i.e., nt planned, prpsed, r unfunded) t be cmplete by the future baseline. An example f a circumstance where it may be apprpriate t analyze a future baseline is where a prpsed prject needs t be designed t accmmdate implementatin f majr prjects currently under cnstructin (e.g., Central Subway, Transbay Transit Center, Van Ness Bus Rapid Transit). CUMULATIVE Much f this text is derived frm the Envirnmental Review Guidelines, but mdified slightly t reflect transprtatin. The analysis f cumulative impacts shall include the fllwing: Definitin f the relevant area affected fr the specific impact categry, with a reasnable explanatin supprting the gegraphic area used in the analysis (e.g., transit capacity utilizatin may be screenlines; transit delay may be a specific transit line s peratins; sidewalk capacity may be the sidewalks between the prject site and transit stps r majr destinatins; hazards may be alng the prject s majr vehicular travel streets and vehicular ingress/egress pints; lading may be the streets anticipated fr where the prject s lading activities wuld ccur). If using the list apprach, identificatin f past, present, and prbable future prjects that might result in related impacts (e.g., tw prjects may result in lading demand n the same street). If using the prjectins apprach, identificatin f past, present, and prbable future prjects that are included in the prjectins and that might result in related impacts (e.g., transit capacity utilizatin may include ppulatin grwth prjectins fr the City r regin; transit delay may include ppulatin grwth prjectins that wuld delay a specific transit line thrugh increased vehicles and passengers); Identificatin f whether there is a significant impact t which bth the prpsed prject and ther prjects cntribute. This analysis shall als discuss whether the prject designs fr the public right-f-way wuld cnflict with a reasnably freseeable streetscape design prject. This shall be dne withut taking int accunt any mitigatin identified fr prject-specific impacts. If there is a significant cumulative impact, identificatin f whether the prpsed prject's incremental effect is cumulatively cnsiderable withut mitigatin. If the prject cntributes t a significant cumulative impact and if the prject's cntributin is cumulatively cnsiderable, identificatin f whether mitigatin wuld reduce the prject's cntributin t a less than cumulatively cnsiderable level. Statement f whether the significance f the prject's cntributin t the cumulative impact is: 1) less than significant (i.e., less than cumulatively 7

8 cnsiderable); r 2) less than significant with mitigatin (i.e., the cumulatively cnsiderable cntributin wuld eliminated r rendered s small that it is n lnger cumulatively cnsiderable with mitigatin). Nte it is nt acceptable t state that a significant cumulative impact wuld nt ccur because the prpsed prject wuld have a less-than-significant impact. If yu have questins, please cntact yur Wade.Wietgrefe@sfgv.rg r Manj.Madhavan@sfgv.rg. 8