M E M O R A N D U M INTRODUCTION

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1 M E M O R A N D U M T: Christina Ferracane, Frm: Nelsn\Nygaard Team Date: Nvember 13, 2015 Subject: Summary f Best Practices INTRODUCTION The Nelsn\Nygaard team has cmpleted an extensive review f current transprtatin impact review (TIR) best practices in Califrnia cities and in ther states with recent transprtatin review updates and alternatives t traffic-fcused level f service (LOS) evaluatin metrics. These best practices prvide examples f appraches t implementing updates t CEQA metrics, evaluating prject impact n the transprtatin system utside CEQA, and determining develper bligatins with nn-los metrics. Examples were selected t illustrate hw nn-los evaluatin is applied in ther cities. Sme cities utilize LOS-based analysis and achieve their desired develpment by applying exemptins n a prject-by-prject basis, and these are nt cnsidered amng the best practices. Rather, this review fcuses n implementing new appraches t CEQA evaluatin, and n nn-los evaluatin metrics t identify prject impacts and management strategies. The fllwing Califrnia cities prvide tw examples f new r emerging appraches t CEQA evaluatin: San Francisc, CA The fllwing jurisdictins prvide examples f transprtatin impact evaluatin metrics, generally included as cdes r as part f transprtatin demand management rdinances: Cambridge, MA Rckville, MD Yl and Sacrament Cunties, CA Alexandria, VA Brkline, MA Example transprtatin review metrics frm each f these jurisdictins that may be applicable in Oakland are summarized in the table belw. 116 NEW MONTGOMERY STREET, SUITE 500 SAN FRANCISCO, CA FAX

2 Table 1: Example Review Metrics, Triggers and Applicatins Jurisdictin Review Metric Trigger/ Applicatin Vehicle miles traveled (VMT) Primary impact t mitigate; may be used in with impact fees t supprt public amenities and nnaut infrastructure investments San Francisc, CA VMT Specific t prject type, measures against reginal average VMT and fcuses n net decrease; requires mitigatin with implementatin f TDM plan Cambridge, MA Parking threshlds TDM strategies are required depending n the number f parking spaces prduced fr a prject; large prjects require a Parking and Transprtatin Demand Management Plan t be develped and apprved by City staff Rckville, MD Trip generatin Analysis and trip mitigatin strategies vary depending n trip generatin estimates; large prjects require a traffic analysis, trip reductin plan, traffic cunts fr tracking, and Transprtatin Imprvement Fee r prprtinal Transprtatin Imprvement Cntributin Yl and Sacrament Cunties, CA Alexandria, VA Brkline, MA TBD Develpment size Develpment size, use change r expansin Bth cunties have adpted VMT threshlds; Yl Cunty has mdified LOS plicies t allw LOS E and F in many areas targeted fr grwth, while requiring LOS C in rural and agricultural areas t limit grwth TDM requirements are based n where a develpment falls within the tiered size categries, based n number f units fr residential, and square feet fr cmmercial; requirements range frm cntributing t a fund fr area TDM strategies, teaming with adjacent transprtatin management plans, and enacting and mnitring a new TDM plan Develpments are categrized by size, lcatin and accessibility t create cntext-specific TDM plans with target trip-reductin scres The reviews are fcused n methds fr updating r adpting a new TIR prcess in respnse t CEQA refrm, innvatins and new appraches t TIR practices, and specific metrics t address multimdal peratins and safety issues. CEQA REFORM IMPLEMENTATION In 2004, the City f Pasadena adpted a develpment plan that favrs increasing density in the city s urban cre. In 2008, the City began the prcess f updating the land use and mbility Nelsn\Nygaard Cnsulting Assciates Inc. 2

3 elements f the general plan, which called fr a new apprach t CEQA impact review in rder t be cnsistent with the 2004 develpment plans. This prcess was accmpanied by a cmmunity engagement effrt as part f the General Plan update. The City drafted new metrics based n vehicle miles traveled (VMT) assciated with develpment prjects, which was encuraged under SB 375 and technically allwed under CEQA but nt required at the time. When SB 743 was signed int law, this prvided a clear directin frm the State t Califrnia Cities t mve away frm LOS-based analysis. The City Cuncil adpted the new VMT metrics in Nvember 2014, and Pasadena became the first city in Califrnia t adpt VMT as an impact metric. In additin t VMT as a metric, Pasadena is als using vehicle trips per capita, the prximity and quality f the lcal bicycle netwrk, the prximity and quality f the transit netwrk, and pedestrian accessibility as measurements when assessing new develpments. i Pasadena s use f VMT as the primary transprtatin impact evaluatin metric is cnsistent with the city s previus directin, with lng range plans calling fr a majrity f infill develpment and n rad widening prjects. This metric allws the city t fcus n strategies fr managing cngestin, traffic vlumes and signal peratins, whereas, mitigating LOS impacts with additinal rad capacity wuld nt be feasible within the built-ut rad netwrk as there is n additinal right-f-way available within areas designated fr develpment. Pasadena has histrically used impact fees t supprt public amenities like parks, and this tl will be crucial fr successful impact mitigatin with VMT metrics. The City is in the prcess f updating its Traffic Reductin and Transprtatin impact fee s that its revenues can be used t supprt transit service, bicycle infrastructure, pedestrian plans, and ther prjects that may ffset VMT increases but wuld nt have registered as imprvements under the ld LOS-based evaluatin. San Francisc The City f San Francisc has recently cnducted a crss-agency prcess t study, select, and refine transprtatin impact metrics ii, which will be fllwed by a legislative apprval prcess fllwing state actin n SB 743. This has been driven by a recgnitin that the existing LOSbased review is cunter t implementing City gals and plicies, such as Transit First and Cmplete Streets, and by San Francisc s recgnitin that it needs t take a cmprehensive apprach t address jbs and husing grwth within the city iii. While the City has been discussing new appraches since 2003, the current effrts are als cnsistent with state-level guidance t update CEQA review. The City has develped a new Transprtatin Sustainability Prgram as part f its multi-prnged apprach. This will change hw the City analyzes the impacts f new develpment n the transprtatin system under CEQA, establish transprtatin demand management (TDM) measures fr new develpment prjects, and establish a citywide Transprtatin Sustainability Fee (TSF) t fund imprvements t transit, bicycle and pedestrian infrastructure and capacity. San Francisc s new CEQA evaluatin metrics address the limitatins and vehicle centric analysis f LOS and supprt infill develpment and ther City gals and plicies such as Visin Zer (eliminatin f pedestrian deaths and severe injuries due t vehicle cllisins) and Transit First. In respnse t the state s likely supprt fr establishing vehicle miles traveled (VMT) as a new metric, San Francisc has prpsed VMT-based guidelines, which measure the ttal distance f vehicle travel induced by a prject, and cunt single ccupancy vehicle trips as having a greater impact than transit trips. The fllwing threshlds are set t determine whether the City will require a TDM plan and TSF frm certain types f plans and prjects: Nelsn\Nygaard Cnsulting Assciates Inc. 3

4 Land use prjects Land use plans If prject VMT is mre than the reginal average VMT If prject is incnsistent with city plicies If plan is incnsistent with Plan Bay Area r similar VMT reductin strategy Transprtatin prjects If prject fails t imprve safety and/r peratins, including transit peratins If physical radway capacity increases fr auts NOTE: All pedestrian, bicycle and transit prjects lead t a net decrease in VMT even if they require reallcatin r remval f vehicle lanes, and are cnsidered t have a less than significant impact Because f San Francisc s urban nature, mst prjects in the City wuld perfrm better than the reginal average fr VMT per trip generated, and wuld be cnsidered t have a less than significant impact. Land use plans that are either cnsistent with a sustainable cmmunities strategy r achieve an equivalent reductin in VMT as prjected t result frm implementatin f a sustainable cmmunities strategy will als result in a less than significant impact. Examples f mitigatin measures include limiting parking supply, prviding car and/r bike sharing r ride sharing prgrams, and prviding transit passes. In additin t the streamlined transprtatin review apprach, which will be mre supprtive f envirnmentally beneficial develpment and allw fr mre efficient implementatin f transprtatin prjects, the City is develping a TDM prgram. This TDM prgram will standardize implementatin and imprve predictability during the entitlement prcess, prviding develpers with an utward facing tl t understand hw TDM strategies affect their prjects mde split. A number f TDM tlkit elements are prvided as a menu f ptential measures fr develpers t chse frm, and develpers will be asked t partner with the City t achieve the VMT reductin. Develpers will als have t cntribute financially t the TSF t pay their fair share fr transprtatin impacts frm new trips. This fee will replace the existing Transit Impact Develpment Fee (TIDF) and includes market-rate residential develpment and majr institutins. The City f San Francisc has cncluded the crss-agency planning prcess, and the Bard f Supervisrs unanimusly apprved the TSF rdinance n Nvember 3, The City will cntinue with the legislative apprval prcess fllwing directin frm the State n SB 743, and plans t intrduce an rdinance t cdify the TDM prgram; this will set a target reductin in VMT based n the reginal transprtatin plan and will prvide technical guidance and structure fr mnitring and enfrcement. The fllwing steps remain: State OPR updates the fficial Envirnmental Review Standard Public hearing t intrduce and adpt Sustainable Travel Legislatin Nelsn\Nygaard Cnsulting Assciates Inc. 4

5 NON-CEQA TRANSPORTATION EVALUATION METRICS The fllwing sectin summarizes transprtatin impact metrics fr nn-ceqa prject evaluatin. These are used variusly t determine apprpriate mitigatin effrts, TDM triggers, parking requirements and restrictins, and impact fees. Many f these example jurisdictins still use LOS r cnventinal trip generatin fr part f their traffic impact and TDM analysis, and nly the best practice elements f their analysis and mitigatin are called ut. Cambridge, MA The city f Cambridge adpted a Parking and Transprtatin Demand Management (PTDM) Ordinance iv in 1998 (made permanent in 2006) that aims t supprt mde shift away frm single ccupancy vehicles and requires TDM measures t be part f new develpments when parking is added abve a specified threshld. If the develpment prduces five t 19 parking spaces (i.e. a small prject), three TDM strategies are required. These may include transit pass subsidies, bicycle parking, changing facilities, carpls/vanpls, r financial incentives nt t drive alne. Fr larger prjects with 20 r mre parking spaces, a PTDM plan must be drafted by the develper and apprved by the Cambridge PTDM ffice. Sample PTDM measures include prviding a transit subsidy, emergency ride hme, and hiring Cambridge residents. Large prjects are als required t cnduct annual mnitring f their PTDM plan reprting n mde share, garage cunts, and TDM measure implementatin status. Prject spnsrs wrk with the City t set target mde splits and determine mnitring requirements. Prject mnitring strategies include emplyee, resident, and custmer surveys t determine mde splits, SOV rate, and parking ccupancy. Strategies can als include an assessment f the status f TDM measures. T date, the city s research indicates that 62% f prjects have achieved the target mde split v, leading t a 24% verall reductin in VMT. vi Rckville, MD The city f Rckville adpted a TDM plicy in 2011 t establish a lng-term visin fr TDM in the city vii while wrking with limited financial resurces. Trip generatin analysis is required f new develpments t estimate a prject s ptential trip generatin. Applicants use a web-based tl t answer a number f questins including the develpment site s transit and pedestrian accessibility, land use mix, and density. If any f the peak hur trips (AM peak, PM peak, and weekend peak) is ver 30 trips, additinal study and pssibly mitigatin is necessary. If all peak hur estimates are under 30 trips, a shrt nsite transprtatin reprt is the nly requirement mandated by the city. At 30+ trips, a traffic analysis, n-site transprtatin reprt, and a Transprtatin Imprvement Fee (funds multimdal imprvements thrughut the City) are required. At 125+ trips, a trip reductin plan is required with required annual traffic cunts tracking prgress. At 350+ trips, a prprtinal Transprtatin Imprvement Cntributin is required t crrect multimdal cnnectivity and accessibility gaps arund the develpment site. Althugh the city tracks payment f TDM fees, the City des nt actively mnitr the prgress f individual trip reductin gals, leaving the results f the prgram difficult t cnclude. Yl and Sacrament Cunties, CA Bth Yl and Sacrament Cunties have defined VMT threshlds in their general plans, and have mdified LOS plicies t reflect lcal develpment gals. Fr example, Yl Cunty requires Nelsn\Nygaard Cnsulting Assciates Inc. 5

6 LOS C in rural and agricultural areas t limit grwth, while LOC E and F are accepted in many grwth pririty areas and n specific radways. This apprach is applied t specific plan areas t supprt grwth bundaries and lcal develpment gals. Fr example, Yl Cunty s Dunnigan Specific Plan requires that LOS shall nt be allwed t wrsen beynd LOS E except where specified, and calls fr a maximum f VMT generated per husehld per weekday thrugh implementatin f TDM, land use, and jbs/husing match plicies and prgrams viii. Alexandria, VA In 1987, Alexandria enacted its riginal Transprtatin Management Plan (TMP) rdinance (updated mst recently in 2014) t reduce the impact f large prjects n autmbile traffic thrughut the city ix. A develpment s size (measurements depending n land use) triggers TDM requirements in the hpe f increasing the city s nn-aut mde share. If a develpment is f sufficient size (e.g. 20 dwelling units r mre fr residential develpments, 10,000 r mre square feet fr ffice r retail), it is categrized as Tier 1, 2, r 3. Tier 1 requires develpments t cntribute t a transprtatin demand management fund, which allws the City t invest in varius TDM strategies thrughut the area. Larger develpments in Tier 3 are required t enact and mnitr a separate and individual transprtatin management plan r partner with an adjacent TMP, while Tier 2 prjects can either cntribute t the TDM plan r partner with an adjacent TMP. Each develpment with a TMP must cmplete annual surveys f residents r emplyees (depending n develpment type) t track the facility s prgress. Brkline, MA In 2015, the Twn f Brkline, MA cmmissined a prpsal t implement a revised TDM rdinance. The existing Brkline TDM rdinance uses develpments f 100,000 square feet r larger t trigger but the prpsal recmmended a lwer threshld t capture mre prjects and pinted ut the limitatins f square ftage fr residential prjects. New prpsed trigger minimums include a residential trigger f five units r mre and a nn-residential trigger f 5,000 square feet r greater. In additin, the prpsal utlines ther triggers including a change f use r expansin that meets the residential and nn-residential requirements abve. x In additin t the current TDM rdinance trigger additins, the prpsal utlines triggers based n the accessibility f the new develpment s lcatin. Accessibility fr bicycling, walking, and transit wuld be assessed thrughut the city and neighbrhds r census tracts wuld be given a grade fr each. Using a pint system, develpments culd then be categrized by size and lcatin t create TDM plans that are cntext-specific with a target trip-reductin scre. CONCLUSIONS The is in an pprtune psitin t capitalize n sme f these best practices and strategies emplyed by the abve examples, sme f which have just recently been implemented. Belw is a chart f the metrics that have been discussed in this mem, the cities that have implemented these metrics, and the assciated advantages and disadvantages f each. Nelsn\Nygaard Cnsulting Assciates Inc. 6

7 Table 2: Metrics t Cnsider in Oakland Metric Jurisdictin Advantages Limitatins Vehicle miles traveled (VMT) San Francisc, CA Measure based n lcal trip distance assumptins Aligns with ptential state guidance Accunts fr the range f impacts f trip generatin Allws fr assumptin that all pedestrian and bicycle transprtatin prjects lead t a net decrease in VMT Expensive t implement Difficult t verify Cmplex Prximity and quality f lcal bike and pedestrian netwrks Addresses impacts and access fr nn-mtrized travel Qualitative and may be difficult t apply unifrmly Parking threshlds Cambridge, MA Easy t measure Easy t verify Inexpensive t implement Objective trigger Effective impact n mde splits Trip generatin Rckville, MD Inexpensive t implement Fcused n direct impact f prject (trips) Desn t accunt fr mde split Measures a symptm f SOVs, nt actual trips High ptential fr inaccurate reprting Difficult t verify Questinable measurement VMT + Mdified Level f Service (Ls) Yl Cunty, CA Sacrament Cunty, CA Flexible Cntext-sensitive (different metrics fr different land uses) Partially aligns with ptential state guidance Cmplex Difficult t measure Expensive t Implement sss Accunts fr the range f impacts f trip generatin Develpment size Alexandria, VA Easy t measure Easy t verify Inexpensive t implement Affects all land use types Mre equitable Desn t accunt fr mde split Arbitrary tier threshlds Develpment size, use change r expansin Brkline, MA Easy t measure Cmprehensive Transparent Allws fr flexibility Cmplex Nelsn\Nygaard Cnsulting Assciates Inc. 7

8 i Yamarne, Mark. City f Pasadena Department f Transprtatin. Measuring Mbility In Pasadena Beynd Aut LOS [PwerPint slides] ii San Francisc Cunty Transprtatin Authrity (SFCTA). Interagency presentatin n Transprtatin Sustainability Prgram, May iii Nelsn\Nygaard interview with SFCTA staff, January iv Cambridge Cmmunity Develpment Department. Parking and Transprtatin Demand Management Ordinance v Grll, Stephanie PTDM Mnitring. April eprt_ pdf vi S. Grll, persnal cmmunicatin, Nvember 12, vii City f Rckville. Transprtatin Demand Management Plan viii Cunty f Yl Cuntywide General Plan ix City f Alexandria, Virginia. Transprtatin Management Plans x Nelsn\Nygaard. TDM Strategy Recmmendatins fr the Twn f Brkline. January Nelsn\Nygaard Cnsulting Assciates Inc. 8