Mobility Management STAFF SUMMARY REPORT

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Joseph Whitehead
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1 Mobility Management STAFF SUMMARY REPORT COMPREHENSIVE PLAN AMENDMENTS Transportation Element Capital Improvement Element LAND DEVLOPMENT REGULATIONS Mobility Update Treasure Island

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3 A. LEGISLATIVE CHANGES AND MOBILITY MANAGEMENT MOBILITY LEGISLATIVE BACKGROUND Transportation Concurrency was enacted as part of the 1985 Growth Management Act with the stated intent of ensuring that adequate roadway capacity would be in place to accommodate the demand created by new development. In many urban areas throughout Florida, concurrency had the unintended consequence of limiting growth and encouraged sprawl by forcing development to suburban and rural areas where capacity was either available or it could be added cheaply. Starting in 2005, the Florida Legislature began to change transportation concurrency to address the negative effects its implementation was causing in urban areas. The Legislature introduced proportionate share and the idea of backlog beginning in In 2009 the legislature exempted dense urban areas from concurrency. The 2011 legislative session eliminated state mandated concurrency and made concurrency optional for local governments. In 2011, the Florida Legislature adopted the Community Planning Act which implemented the most substantial changes to Florida s growth management laws since the 1985 Local Government Comprehensive Planning and Land Development Regulation Act, which had guided comprehensive planning in Florida for decades. Although local governments are still required to adopt and implement a comprehensive plan, the requirements have changed and shifted more discretion to local governments. One of the major changes had to do with the process for evaluating a local governments comprehensive plan, which changed from an extensive process accompanied by a major report, to one that required only the submittal of a letter to the State informing them whether the community will amend their Comprehensive Plan to meet changed statutory requirements or changing conditions in the community. The 2013 Legislative Session brought about more changes in how local governments could implement transportation concurrency and further recognized the ability of local governments to adopt alternative concurrency systems. House Bill 319, passed by the Florida Legislature in 2013 and signed into law by Governor Rick Scott, established Mobility Plans and associated Mobility Fees as the preferred alternative concurrency system by which local governments can allow development consistent with an adopted Comprehensive Plan to equitably mitigate its transportation impact. Mobility Plans are intended to serve as a blueprint for how a community intends to provide mobility for its residents, visitors and businesses and to allow for new development and redevelopment to equitably and predictably mitigate for its transportation impact. The intent of the Mobility Fee is to combine transportation concurrency, proportionate share and impact fees into a simplified one-time payment by which developments can mitigate their impact to the transportation system based upon the projects and mobility strategies established in an adopted Mobility Plan. Following the repeal of concurrency, the Pinellas County Metropolitan Planning Organization (MPO) subsequently facilitated coordination among the County's local governments to develop a consistent countywide transportation mobility management approach, and multimodal impact fee as a replacement to transportation concurrency and traditional transportation impact fees. 2 P a g e

4 B. COMPREHENSIVE PLAN AMENDMENT PINELLAS COUNTY MOBILITY MANAGEMENT SYSTEM The Pinellas County Planning Council, Metropolitan Planning Organization, and County Staff are developing Mobility Plans within the County in coordination with all the municipalities within the county. Mobility strategies will be focused on multi-modal improvements, intersections and targeted roadway improvements. The Mobility Fee will be based on future travel demand within the area of each mobility plan and the mobility strategies and projects identified in the mobility plan. If the proposed amendments are approved, development projects would be required to pay an impact fee commensurate with the number of new trips they generate on the transportation system. The proposed policy changes also include a tiered review of development projects adding more than 50 new trips during the peak hour on deficient roads. For a development project on a deficient road, its multimodal impact fee may be applied as credit toward the cost of the transportation management strategies that are required to address that project s impacts on the surrounding transportation Pinellas County system. These strategies could include, for example, trail, sidewalk, bus stop and intersection improvements or trip reduction programs such as vanpooling or telecommuting. COMPREHENSIVE PLAN AMENDMENTS OVERVIEW The primary purpose of this Ordinance amending the Comprehensive Plan is to eliminate transportation concurrency and associated level of service standards, and set up the policy framework necessary to implement a more flexible mobility management system and mobility fee in its place. This requires amending the Transportation and Capital Improvements Elements of the Comprehensive Plan. In addition to the mobility management-related amendments, there are also several cleanups proposed. Those revisions include the following: Deletion of references to repealed Rule 9J-5, Florida Administrative Code found within the Transportation Element, and within the Goals, Objectives and Policy Section of the Capital Improvements Element. Revising some supplemental background information to reflect recent federal and state revisions within the Transportation Element. Updating of charts, graphs, and update of report references in the Transportation Element. In the Transportation Element, minor changes recognize updated Pinellas County MPO 2025 Cost Feasible Transportation Plan. Some additional revisions included the following: Revision to the Future Significant Parking Facilities in line with discussion regarding possible future parking needs, and recognizing that redevelopment may be an option at a future date. Adding a Mobility Plan Introduction section to the Transportation Element. Adding Multi-modal transportation goals, policies and objectives in coordination and aligned with the Pinellas County Mobility Plan. Concurrency Management Section is being revised to eliminate transportation concurrency management. Updating Intergovernmental coordination within the transportation element. 3 P a g e

5 In the Capital Improvements Element, minor changes include updating relevant Goals, Objectives and Policies within the Element: Deleting transportation impact fee references replacing with Mobility fees, as appropriate. Updating State Statute references per recent legislative changes. C. ASSOCIATED LAND DEVELOPMENT REGULATION UPDATE PINELLAS COUNTY MOBILITY RELATED AMENDMENTS SUMMARY In order to implement the Pinellas Countywide mobility-related policy changes, related amendments were also required to Chapters 134 and 150 of the Pinellas County Land Development Code, which implemented the County s concurrency management system and countywide impact fee respectively. The amendments to these chapters of the Land Development Code (LDC) were originally heard by the Pinellas County Local Planning Agency (LPA) and the Pinellas County Board in late The Pinellas County LDC amendments were adopted along with The Pinellas County Comprehensive Plan amendments on March After State-review agencies complete their review of the adopted Pinellas County Comprehensive Plan amendments, the changes will go into effect on May 1, Through the adoption of these amendments, Pinellas County provides the details and processes required to implement the new mobility management system and fee. Pinellas County staff requested the cities repeal contents related to transportation concurrency in the local municipalities Land Development Regulations, and utilize the countywide impact fee ordinance (i.e., Chapter 150 of the Pinellas County Land Development Code) to apply the development provisions related to the mobility amendments, including the list of deficient roads which the County will update on an annual basis. Future policy revisions in the Pinellas County Land Development Regulations may necessitate further revisions within the City of Treasure Island Land Development Regulations to maintain internal consistency. The Pinellas County LDR shall take precedence, should there be a nonconformity going forward. D. COMPREHENSIVE PLAN AMENDMENT REVISIONS MOBILITY PLAN AMENDMENTS The Pinellas County Planning Council, Metropolitan Planning Organization, and County Staff are developing Mobility Plans within the County in coordination with all the municipalities within the county. Mobility strategies will be focused on multi-modal improvements, intersections and targeted roadway improvements. The Mobility Fee will be based on future travel demand within the area of each mobility plan and the mobility strategies and projects identified in the mobility plan. As part of the following amendment involving more recent statutory requirements, staff performed a general clean-up of the Transportation Element, where necessary. 4 P a g e

6 PROPOSED GOAL, OBJECTIVE AND POLICY REVISIONS Many of the proposed amendments are, again, essentially clean-up items in nature and include correcting the titles of figures, tables, removing outdated references to Florida Statutes, the deletion of outdated references or deletions to reflect completion or maintenance of an initiative prescribed in policy language, and other data and analysis updates. Staff has drafted the following proposed policy language for the Mobility Plan Amendment to address the changes to the concurrency guidelines regarding mobility planning. The proposed policy changes and additions for this set of amendments can be found in the Transportation and Capital Improvements Elements of the City of Treasure Island Comprehensive Plan. Following are the proposed amendments to the Goals, Policies and Objectives, as indicated by element: TRANSPORTATION ELEMENT TRAN Goals, Objectives, Policies; Revisions #1: GOAL: Provide for a safe, convenient, and energy efficient multimodal transportation system that serves to increase mobility, reduce the incidence of single-occupancy vehicles, efficiently utilize roadway capacity, reduce the contribution to air pollution from motorized vehicles and improve the quality of life for the residents and visitors of Treasure Island. Rationale/Explanation of Change: The intent of Mobility Plans, consistent with state statutes and Pinellas County Mobility Plan, is to promote multi-modal transportation and land use patterns that support Mobility. TRAN Goals, Objectives, Policies; Revisions #2: The Goals, Objectives, and Policies below are part of a coordinated series of policies furthering a mobility system pursuant to recently created Pinellas County Mobility Plan and state statutes. Objective 1.1: Multi-Modal Transportation System Maintain the performance of the major road network within the County while furthering development of a multi-modal transportation system that increases mobility for bicyclists, pedestrians and transit users as well as motorists. Policy 1.1.1: Treasure Island shall manage the impacts of land development projects and increase mobility through application of Transportation Element policies and the Land Development Regulation provisions through the site plan review process in accordance with the Pinellas County Mobility Plan. Policy 1.1.2: The land development regulatory system shall include the identification of deficient roadways, including facilities operating at peak hour level of service (LOS) E and F and/or volume-to-capacity (v/c) ratio of 0.9 or greater without a mitigating improvement 5 P a g e

7 scheduled for construction within three years. Deficient roads will be identified through the annual MPO Level of Service Report. The level of service for the State highway System during peak travel hours in the urbanized area is level-of-service (LOS) D. Policy 1.1.3: Treasure Island shall work cooperatively with the MPO and other local governments to complete the biennial update of the Multi-modal Impact Fee Ordinance through the MPO planning process, which includes review by the MPO Technical Coordinating Committee and MPO Policy Board. Policy 1.1.4: Treasure Island shall continue to work with the Pinellas Suncoast Transit Authority (PSTA) to increase the efficiency of the fixed-route system by encouraging mass transit use through the application of the Pinellas Mobility Plan and the Treasure Island site plan process. Measure: Implementation of a multimodal transportation system Objective 1.1: Level-of-Service Standards The City shall establish level-of-service standards for the roadways in its jurisdiction, and shall ensure, through its construction and development review processes, the maintenance of those standards. Policy 1.1.1: The operational level of service (LOS) D peak hour shall be the standard for all arterial and collector roads within the city. Policy 1.1.2: The City shall review all proposed development or redevelopment for consistency with this transportation element and their impacts upon the adopted LOS standards. Development orders and permits shall be issued only when it is documented that such development is consistent with the LOS standards for the affected transportation and public facilities adopted by this comprehensive plan. Policy 1.1.3: The City shall assess new development or redevelopment an equitable pro rata share of the costs to provide roadway improvements to serve the development or redevelopment and shall enforce countywide transportation impact fee regulations. Measure: Number of roadways with an acceptable operational level of service Rationale/Explanation of Change: The above Goals, Policies and Objectives are no longer consistent with State Statutes, nor the Pinellas County Mobility Plan. The primary purpose of this Ordinance amending the Comprehensive Plan is to eliminate transportation concurrency and associated level of service standards, and set up the policy framework necessary to implement a more flexible mobility management system and mobility fee in its place. The Legislature has prohibited local governments from requiring developers to mitigate for constrained and backlogged facilities or denying development based upon constrained and backlogged facilities. A Mobility Plan should be developed to address mitigation of constrained and backlogged facilities. 6 P a g e

8 TRAN Goals, Objectives, Policies; Revisions #3: Objective 1.5: Multimodal Transportation The City shall encourage the utilization of a multimodal transportation system. Policy 1.5.1: The City shall evaluate the need for enhanced public transportation and respond as appropriate. Policy 1.5.2: The City shall continue to establish facilities and encourage the use of bicycle and pedestrian ways. Policy 1.5.3: The City shall review all proposed development and redevelopment site plans for the accommodation of bicycle and pedestrian traffic needs through provisions within the land development regulations. Policy 1.5.4: The City shall continue to provide access to the transportation disadvantaged on city-owned buses. Measure: Implementation of a multimodal transportation system Rationale/Explanation of Change: The Goals, Objectives, and Policies are replaced by the new goals, policies and objectives found under Objective 1.1 and coordinated for consistency with Pinellas County staff and other municipalities to maintain consistency. TRAN Goals, Objectives, Policies; Revisions #4: Objective 1.5: Intergovernmental Coordination Transportation planning shall be coordinated with the city comprehensive plan, the Florida Department of Transportation 5-Year Transportation Plan, the Pinellas County Metropolitan Planning Organization (MPO) 5-Year Transportation Improvement Program (TIP) and Long Range Transportation Plan, and plans of neighboring jurisdictions. Transportation planning shall be coordinated with the Treasure Island Comprehensive Plan; the Florida Department of Transportation; District Seven Five-Year Tentative Work Program, as amended; the Pinellas County MPO Transportation Improvement Program, as amended; the Pinellas County MPO 2040 Long Range Transportation Plan, and plans of neighboring jurisdictions. Rationale/Explanation of Change: Updated references within the objective, and minor revisions for clarification. 7 P a g e

9 TRAN Goals, Objectives, Policies; Revisions #5: Policy 1.6.1: The City shall review updated versions of the Florida Department of Transportation, District Seven Five-Year Tentative Work Program Florida Department of Transportation 5 year Transportation Improvement Program and the Pinellas County MPO 2040 Long Range Transportation Plan Pinellas County Long Range Transportation Plan subsequent to their publication, and shall modify this element to be consistent with these plans, if necessary. Rationale/Explanation of Change: Updated references with correct Plans and programs. TRAN Goals, Objectives, Policies; Revisions #6: Policy 1.7.1: Continue to enforce land development regulations, consistent with Section (1), Florida Statutes, which addresses the provisions and intent of the objectives and policies contained in this transportation element. Rationale/Explanation of Change: Deleting the specific policy will keep it consistent as minor modifications shift policy numbers. CAPITAL IMPROVEMENTS ELEMENT CIE Goals, Objectives, Policies; Revisions #1: A. Background Pursuant to Section (9) and (10), F.S., and Rule 9J-5.016(3)(a), (b), and (c), F.A.C., the following represents the goals, objectives, and policies of the Capital Improvements Element. These goals, objectives, and policies are intended to establish the long-term end for the timely and efficient provision of public facilities through the use of sound fiscal policies. B. Nonapplicable Items All objectives and policies identified in Rule 9J-5.016, F.A.C., are applicable to the City of Treasure Island. C. B. Local Goals, Objectives, and Policies Rational/Explanation of Change: Deletion of references to repealed Rule 9J-5, Florida Administrative Code to ensure consistency with State Statute, and renumber as necessary to maintain internal consistency. 8 P a g e

10 CIE Goals, Objectives, Policies; Revisions #2: Policy 1.5.4: The City of Treasure Island shall use the following levels of service to determine the impacts of development and redevelopment. Roads: The operational level of service D peak hour shall be the standard for all arterial and collector roads within the city. Sanitary Sewer: The adopted level-of-service standard is 170 gallons per capita a day. Solid Waste: The adopted level-of-service standard is 3.34 pounds per capita a day, excluding recycled materials. Drainage: The level of service C, as described in the Treasure Island Master Drainage Plan, shall be the standard for flood control and stormwater management within the city. In addition, the following conditions shall be met: Stormwater retention systems shall be designed to accommodate a 25-year, 24-hour storm event. Stormwater conveyance devices (e.g., drainage pipes) shall be designed to accommodate a three year storm event. The City shall require that the stormwater discharge rate for a post-developed or redeveloped site shall not exceed, in terms of peak flow and total volume, that which would occur from the site under existing conditions for the design storm. Runoff shall, to the extent practicable, not be directly discharged into open waters. The land development regulations shall contain provisions which ensure that all development activity, excluding single-family homes, shall retain the first one-inch of rainfall on-site. Potable Water: The adopted level-of-service standard is 125 gallons per capita a day until the year Effective in 2005, the adopted level-of-service standard will decrease to 120 gallons per capita a day. Coastal Management New development or redevelopment approvals shall require that post-development runoff rates, volumes, and pollutant loads do not exceed predevelopment conditions. The City shall protect the natural functions of the 100-year flood plain so that flood-carrying and flood storage capacity are maintained. The City shall adhere to the impervious surface ratios defined in Objective 1.1 and associated policies of the Future Land Use Element, in order to minimize runoff and stabilize water quality. Parks and Recreation: The standards shown in Tables 1 and 2 shall be the adopted parks and recreation facilities level-ofservice standards. Policy : The elimination, deferral, or delay of construction of any road or service which is needed to maintain adopted level-of-service standards, and which is listed in the Schedule of Capital Improvements, shall require amendment of the comprehensive plan. 9 P a g e

11 Policy : Developments or redevelopments consisting of low-density residential dwellings, to be constructed on existing lots in subdivisions approved for such uses (residential infill), shall be considered de minimis and exempt from concurrency review. Other developments or redevelopments shall be considered to have de minimis impacts and be exempt from concurrency review provided they comply with all of the following: The net increase in traffic (peak hour) generated by the proposed development onto any affected roadway may not exceed one percent of the maximum service capacity of the roadway at the adopted peak-hour level-of-service standard. The net increase in traffic (peak hour) generated by the proposed development, added to the total net increases in peak-hour traffic generated by all previously-approved de minimis exemptions on any affected roadway, may not exceed ten percent of the maximum service capacity of the roadway at the adopted peak-hour level-of-service standard. The net increase in traffic (peak hour) generated by the proposed development onto any affected roadway designated as a hurricane evacuation route may not cause the actual level of service of the roadway to fall below the adopted peak-hour level-of-service standard. Rationale/Explanation of Change: The Legislature has prohibited local governments from requiring developers to mitigate for constrained and backlogged facilities or denying development based upon constrained and backlogged facilities. The County Mobility Plan should address mitigation of constrained and backlogged facilities. 10 P a g e

PINELLAS COUNTY MOBILITY PLAN SUMMARY REPORT

PINELLAS COUNTY MOBILITY PLAN SUMMARY REPORT In September, 2013, the Pinellas County Mobility Plan Report was approved by the Metropolitan Planning Organization (MPO). This action endorsed a countywide