Issue Paper on Regional Land Use and Transit Planning (Draft)

Transcription

1 Regional Transit Long-Range Plan Update Issue Paper on Regional Land Use and Transit Planning (Draft) 401 South Jackson Street Seattle, WA October 2014

2

3 Issue Pap er on Region al La nd Use an d Tr ans i t Plan ni n g (Dra f t) Contents Executive Summary Introduction Overview of Land Use-related Guidance Roles of local, state, and regional land use authorities Sound Transit and state legislative guidance Regional and Sound Transit transit-oriented development guidance Sound Transit TOD guidance PSRC s Growing Transit Communities initiative Transit-supportive Land Use and HCT Development Transit-supportive land use densities PSRC s TOD guidance Federal Transit Administration Report No Transit Cooperative Research Program Report Transit Cooperative Research Program Report Transit supportive land use densities and HCT transit development Implementing HCT into areas with transit-supportive land use Current transit-supportive land use planning for HCT Legislative and policy direction Coordination of land use and transit planning at various stages of project planning and development Station area planning Budgeting Partnering with local jurisdictions Refining or strengthening station siting evaluation criteria Responding to change at stations Conclusions and Next Steps Planning next steps Long-Range Plan Update System planning Corridor planning and preliminary engineering/environment documentation Costing of TOD-related elements Leveraging potential FTA funds Forming partnerships with local jurisdictions References Appendix Appendix A: Sound Transit Resolution R and Transit Oriented Development Policy Octobe r 2014 i

4 Regio na l T ran sit Lon g -Range Plan Upda te Tables Table 1. Summary of transit-supportive land use and transit planning strategies Table 2. Summary of Sound Transit and PSRC TOD policies and guidelines Table 3. HCT land use densities guidelines minimum dwelling units/acre Table 4. Summary of transit station infrastructure requirements and density Table 5. Land use and transit planning coordination at various stages in project development Table 6. Simplified station access typology and characteristics Figures Figure 1. PSRC 2010 population + employment per acre along ST2 HCT corridors Figure 2. Examples of residential and employment land use densities Figure 3. PSRC regional growth centers ii Octob er 2014

5 Issue Pap er on Region al La nd Use an d Tr ans i t Plan ni n g (Dra f t) Acronyms and Abbreviations BART FTA GMA GTC HCT LRT MTC PSRC SEIS TCRP TOD TRB Bay Area Rapid Transit Federal Transit Administration Growth Management Act Growing Transit Communities high-capacity transit light rail transit Metropolitan Transportation Commission (San Francisco Bay area) Puget Sound Regional Council supplemental environmental impact statement Transportation Cooperative Research Program transit-oriented development Transportation Research Board Octobe r 2014 iii

6

7 Issue Pap er on Region al La nd Use an d Tr ans i t Plan ni n g (Dra f t ) Executive Summary The state legislation that established Sound Transit specified that the implementation program for highcapacity transit (HCT) shall favor cities and counties with supportive land use plans. As Sound Transit considers potential expansion of its HCT system, land use characteristics could be a key consideration in the selection of HCT extensions and station locations and the design features that make up these stations. Sound Transit s Transit-Oriented Development (TOD) Policy and Strategic Plan provides important direction. Policy direction relating to land use and HCT planning and coordination is also supported by the state Growth Management Act (GMA) and the more recent Growing Transit Communities (GTC) initiative by the Puget Sound Regional Council (PSRC). Although there is substantive state, regional, and Sound Transit policy direction for land use and HCT planning coordination, further attention at the implementation stages of project development could provide major benefits to Sound Transit and local jurisdictions. Of particular benefit is enhanced coordination between land use and transit planning to encourage land uses compatible with development of high-capacity transportation systems. Table 1 provides an overview of possible strategies on land use and transit planning at key phases of project development. Octobe r

8 Regio na l T ran sit Lon g -Range Plan Upda te Table 1. Summary of transit-supportive land use and transit planning strategies No. Current approach Potential methodologies 1 Long-range plan The 2005 Long-Range Plan policy is to promote transit-oriented development (TOD) investments around regional transit facilities by encouraging conveniently located pedestrian-oriented businesses and services near regional transit facilities. 2 System planning Ridership forecasting will assess potential HCT corridors under system planning. However, additional consideration of population and employment densities and supportive local infrastructure (e.g., sidewalks) that maximize ridership may be warranted. 3 Budgeting for TOD-related planning elements Opportunities for TOD-related planning should be identified as early as possible in the planning phases. 4 Interlocal agreements Currently, Sound Transit forms interlocal agreements on an as-needed basis for various joint development activities encountered during station development. 5 Continuity of supportive land use/transit Primary assumptions relating to land use/transit planning coordination, including expectations on the part of Sound Transit, local jurisdictions and other parties, will influence outcomes. However, documentation of these assumptions and expectations has not always been clear at various stages of project development. 6 Flexibility for land use/transit planning The duration of project planning and development can exceed 15 years. Thus, the station area characteristics influencing how land use and transit planning are coordinated could change substantially between system planning and project opening. Establish recognition of RCW as policy guidance for implementation of transit-supportive land use policies and planning by Sound Transit from the Long-Range Plan to system planning and each stage of project development. Evaluate transit-supportive land use at the system planning level, including population and employment densities for existing conditions and planned land use. Apply the walkshed analytical tools already applied in the recent HCT corridor studies during system planning to understand potential station locations relative to system connectivity and available population and employment within 1/4 mile and 1/2 mile. Communicate the results of this analysis and outreach to local jurisdictions to begin consideration of forming partnerships and commitments to transit supportive land uses and right-of-way needs at potential station locations. In concert with the evaluation of transit-supportive land use, identify associated costs associated with TODrelated planning activities, at all major stages of project development. This will include costs for additional staff time to work with local jurisdictions. Evaluate expected changes in transit supportive land use, with compatible access improvements (sidewalks, bike lanes, bus transit centers, park-and-ride facilities), to compare ridership. Include budget for Sound Transit staff to work with local jurisdictions as they prepare station area plans. Although project costs generally include property acquisition for construction staging, other costs may need to be budgeted. These costs include those associated with preparing the construction staging property to be sold for redevelopment after construction. In addition, there may be costs associated with various partnership strategies that could occur with local jurisdictions. With an analysis of transit-supportive land use, Sound Transit could enter into partnerships with local jurisdictions, at any appropriate stage of planning and project development. The length of time from planning to project implementation provides an opportunity for cities to make changes in land use policy and for interlocal agreements to be developed. At each stage of project development, a hand-off to the next stage could be identified. This hand-off should include primary assumptions and expectations as well as documentation of agreements and direction between Sound Transit and other parties. At each stage of project development, station area typologies can be reviewed to determine potential changes relating to transit-supportive land uses and transit planning and design. Existing stations can also be reviewed to determine if changes in land use provide new opportunities for TOD. 2 Octobe r 2014

9 Issue Pap er on Region al La nd Use an d Tr ans i t Plan ni n g (Dra f t) 1 Introduction Sound Transit develops the region s HCT system to connect regional centers, and ridership is critical to maximizing the effectiveness of Sound Transit s investments in HCT (Sound Move, ST2, and future system plans). Land use densities, types of land use, a mix of population and employment near stations, access to stations, and other factors are important contributors to increasing transit ridership. This paper explores issues relating to transit-supportive land use and how Sound Transit could consider one aspect of transit-supportive land use in particular transit supportive densities when implementing HCT. Analytical tools and methodologies were investigated for application in planning transit-supportive land use for HCT alignments and station locations that maximize ridership. The term stations in this paper refers to HCT stations, including light rail transit, commuter rail, and potentially bus rapid transit and multi-modal stations. This issue paper is part of a series of reports designed to inform the Sound Transit Board in its decision-making on the 2014 update of the Regional Transit Long-Range Plan and for use if Sound Transit enters into a phase of system planning. The Regional Land Use and Transit Planning issue paper addresses the following topics: Legislative authorities and roles of planning agencies, Sound Transit, and local jurisdictions in land use and HCT implementation Potential approach for examining system expansion, and station siting, into areas with supportive land use for improved HCT ridership Station area planning, and partnering with local jurisdictions Framework for including TOD planning into system planning Potential updates to the current Long-Range Plan Octobe r

10 Regio na l T ran sit Lon g -Range Plan Upda te 2 Overview of Land Use-related Guidance This issue paper considers relationships between land use characteristics and potential future HCT development. This relationship is important given that state legislation establishing Sound Transit specified that the implementation program for HCT shall favor cities and counties with supportive land use plans (RCW ). This section of the issue paper summarizes current regional policies relating to land use in the central Puget Sound region and its relationships with HCT planning. In addition to regional policy direction, this section describes Sound Transit policy and strategic plan on TOD and PSRC s GTC compacts. 2.1 Roles of local, state, and regional land use authorities Comprehensive planning and zoning in Washington State are governed by cities and counties. Periods of rapid growth before 1990 raised concern with citizens, and the Washington State Legislature found that uncoordinated and unplanned growth posed a threat to the environment, sustainable economic development, and quality of life in Washington. The Growth Management Act (GMA) was adopted by the Legislature in 1990 (RCW 36.70A, Chapter 36). The GMA established state goals, set deadlines for compliance, offered direction on how to prepare local comprehensive plans and regulations, and set forth requirements for early and continuous public participation. Within the framework provided by the mandates of the Act, local governments have many choices regarding the specific content of comprehensive plans and implementing development regulations. Also, at a more specific level, regional growth centers and manufacturing/industrial centers have been identified in the central Puget Sound region. For Snohomish, King, and Pierce Counties, all regional growth and manufacturing/industrial centers are located within Sound Transit s service district. Planning for transportation facilities is largely dictated by development patterns, both existing and future. This also occurs at PSRC through planning with the member jurisdictions. However, there is no direct legal mandate that connects local jurisdiction planning and zoning with the regional land use plan. Regional city land use plans and zoning regulations, while required to accommodate growth, may or may not be consistent with best practices with regard to land use densities, development patterns, and street networks that are supportive of regional HCT development. 2.2 Sound Transit and state legislative guidance Sound Transit provides the regional HCT system to deliver transit service that connects regional centers, which is also an important step toward meeting local and regional land use goals. The enabling legislation states: The Legislature finds that a single agency will be more effective than several local jurisdictions working collectively at planning, developing, operating, and funding a high capacity transportation system. The single agency s services must be carefully integrated and coordinated with public transportation services currently provided. As the single agency s services are established, any public transportation services currently provided that are duplicative should be eliminated. Further, the single agency must coordinate its activities with other agencies providing local and state roadway services, implementing comprehensive planning, and implementing transportation demand management programs and assist in developing infrastructure to support high capacity systems including but not limited to feeder systems, park and ride facilities, intermodal centers, and related roadway and operational facilities. (RCW ). 4 Octobe r 2014

11 Issue Pap er on Region al La nd Use an d Tr ans i t Plan ni n g (Dra f t) The basis for Sound Transit s involvement in regional land use is established by RCW (2) which states: Interlocal agreements between transit authorities, cities, and counties shall set forth conditions for assuring land uses compatible with development of high capacity transportation systems. These include developing sufficient land use densities through local actions in high capacity transportation corridors and near passenger stations, preserving transit rights-of-way, and protecting the region s environmental quality. The implementation program for high capacity transportation systems shall favor cities and counties with supportive land use plans. In developing local actions intended to carry out these policies cities and counties shall insure the opportunity for public comment and participation in the siting of such facilities, including stations or transfer facilities. Agencies providing high capacity transportation services, in cooperation with public and private interests, shall promote transit-compatible land uses and development which includes joint development. This legislation provides guidance for potential linkages between land use and HCT planning. However, it also needs to be recognized that actual implementation of transit-supportive land use and associated HCT development will require close coordination and commitments on the part of local jurisdictions, Sound Transit, and other parties as appropriate. Section 3 of this issue paper describes potential methodologies for this planning and coordination. It also needs to be recognized that the potential for transit-supportive land use would depend on the characteristics or types of station areas from densely developed urban areas with substantial opportunities for walk, bicycle, and local bus access to low-density communities that would likely require park-and-ride access. Station area typologies have been taken into account in the exploration of planning methodologies. 2.3 Regional and Sound Transit transit-oriented development guidance TOD is a land development pattern that integrates transit and land use by promoting transit ridership while supporting community land use and development visions. TOD development is addressed in four Sound Transit documents the 2005 Long-Range Plan (Sound Transit 2005), TOD Policy Resolution No. R (Sound Transit 2012), the Transit-Oriented Development (TOD) Program, Strategic Plan Update (Sound Transit 2014b), and the Sustainability Plan (Sound Transit 2011). In addition, PSRC has taken an active role in TOD to achieve the land use and transportation goals of VISION 2040 and Transportation A summary of Sound Transit, PSRC, and other TOD documents is presented in Table Sound Transit TOD guidance The Sound-Transit-adopted TOD Policy Resolution No. R is a guide to the agency s activities and establishes a framework in which Sound Transit will evaluate, facilitate, and implement TOD strategies as the agency plans, designs, builds, and operates the regional transit system. The policy directs these activities to be in cooperation and partnership with public and private entities, as allowed by applicable laws, regulations, plans, and policies. The TOD policy and associated Board Resolution are included as an appendix to this issue paper. Sound Transit recognizes two types of TOD agency and community. Agency TOD typically consists of public and private development projects initiated by Sound Transit that result in dense, pedestrianoriented environments with a mix of land uses and activities at and around transit facilities. The current development efforts at the Capitol Hill light rail station are examples of agency TOD. Community TOD, initiated by local jurisdictions, is generally focused on land within approximately 1/2 mile, or a 10- to 15-minute walk, of a transit facility and along corridors that provide key connections to the regional HCT Octobe r

12 Regio na l T ran sit Lon g -Range Plan Upda te system. The street network within and surrounding community TOD is integral to successful TOD by providing access to HCT for bicycles, local transit, and other modes of access. Table 2. Summary of Sound Transit and PSRC TOD policies and guidelines Document Overview Highlights Regional Transit Long-Range Plan, Sound Transit, 2005 To encourage policies that support transit, the 2005 Long-Range Plan states that local jurisdictions should develop land-use and transportation plans and regulations that support TOD, regional and county plans, and the Long-Range Plan. Examples of supportive actions include building or upgrading sidewalks to transit facilities and changing zoning to encourage development of urban centers. General statements on TOD. Since adoption of the 2005 Long-Range Plan, newer and more detailed TOD policy has been adopted by Sound Transit. Transit-Oriented Development Policy Resolution No. R Attachment A, Sound Transit, 2012 Transit-Oriented Development Program, Strategic Plan Update, Sound Transit, April 2014 Growing Transit Communities Strategy, PSRC, October 2013a Transit-supportive Planning Toolkit, PSRC December, 2013b Transportation 2040 Update, Draft Report, PSRC, April 2014 Attachment A of the TOD resolution includes four strategies. Sound Transit will (1) work cooperatively to evaluate and facilitate TOD strategies on its own property and in areas around its transit facilities through Agency TOD and Community TOD; (2) assess TOD early in system planning, throughout all phases of its transit projects; (3) allocate sufficient resources and develop a strategic plan, procedures, and guidelines to implement a TOD program; and (4) report at least annually to the Sound Transit Board. The Sound Transit TOD Program Strategic Plan, completed in 2010, introduced the adopted policy framework for the TOD work program within the larger context of Sound Transit s efforts related to implementation of regional high-capacity transit as detailed in Sound Move (1996) and ST2 (2008). The Plan update was published in April A significant change in the Plan update is the additional attention paid to the role of TOD in long-range and project planning. This document presents 24 strategies and within each strategy includes recommended actions for the PSRC, transit agencies, local governments, and other agencies. The purpose of the strategies is to ensure the greatest value from the region s investment in light rail and other high-capacity transit. The Growing Transit Communities (GTC) Partnership consists of 24 agencies and nonprofits, including Sound Transit. The GTC Strategy, Appendix E, includes community profiles for 74 transit community profiles from around the region. Profile data includes demographic data, jobs, housing, people profile, place profile, and strategies for community transit enhancement. The toolkit contains two strategies for TOD: Plan for and encourage transit-oriented development that achieves transit-supportive densities. Collaborate with transit agencies to ensure that agency transitoriented development policies, plans, and programs and local jurisdiction policies and actions are consistent and complementary and provide a mix of uses within transit station areas and corridors. The Transit-Oriented Development section of Transportation 2040 recognizes that accommodating growth in transit communities can lead to a range of substantial social and environmental benefits. Transit stations are critical access points to the region s transportation system, connecting residents and workers to jobs, daily activities and services, and offering access to civic and public spaces. Transit Communities are generally the areas within a 1/2-mile-radius of high-capacity transit stations, such as light rail, bus rapid transit, streetcar, and other major transit hubs. The TOD Resolution provides very specific direction for TOD development, including system planning, transit project development, and transit system operations. There are specific task lists for each phase, except that the system planning is more general. Tangible tools and example applications of the tools provided for TOD planning at the corridor level for HCT studies and for siting and planning stations. Regional Compacts will provide basis for partnerships. Individual work programs for the partnership are nearly complete. Sound Transit is already conducting many of the recommended actions for transit agencies. Toolkit is limited in specificity but such an approach could provide more specific direction for HCT planning/ design in relation to local jurisdiction TOD-related policies and actions. Possible tie-in between regional policy and Sound Transit decisions on HCT development: to support/ reinforce jurisdictions with supportive land use in transit communities. 6 Octobe r 2014

13 Issue Pap er on Region al La nd Use an d Tr ans i t Plan ni n g (Dra f t) Sound Transit s TOD Strategic Plan Update provides guidance for the role of TOD at the corridor planning level and in project planning. The update includes tangible tools and example applications for TOD planning at the corridor level for HCT studies and for siting and planning stations PSRC s Growing Transit Communities initiative PSRC s Growing Transit Communities (GTC) program is designed to help make the most of the region s investment in HCT by locating housing, jobs, and services close enough to transit so that more people will have a faster and more convenient way to travel. Specifically, GTC Strategy 7: Use Land Efficiently in Transit Communities speaks to the direction asked of partner agencies to attract growth to transit communities. Strategy 7 states, Transit communities contain a limited amount of land to accommodate housing, workplaces, retail and services, open space, and other public amenities. Attracting growth to transit communities starts with policies and regulations that use that resource wisely and allow sufficient compact development to meet growth and ridership goals along with public and private actions to support those investments. (PSRC 2013a). The GTC program is intended to support local jurisdictions with policies and strategies to affecting HCT station areas during comprehensive plan updates. Strategy 7.1 also states the commitment by the partnership s transit agencies to achieve transit-supportive densities, including amending policies and procedures, as appropriate, to include detailed guidance on transit-supportive densities and uses, including recommended density ranges for transit communities within each high-capacity transit corridor. Along with 14 cities, 5 public agencies, and 14 non-governmental agencies, Sound Transit is a signatory agency of the GTC compact. Signatures of the compact agree that the region s long-range growth management, economic, environmental, and transportation goals depend heavily on continued investment in more and better public transportation services and commit to goals of the GTC initiative. Octobe r

14 Regio na l T ran sit Lon g -Range Plan Upda te 3 Transit-supportive Land Use and HCT Development Transit-supportive land use patterns can reinforce the region s plan for growth in regional growth centers and provide mobility with HCT while maximizing ridership benefits of future HCT. This could be achieved for the existing regional HCT system (Sound Move and ST2) and future developments. Important factors that could generate high HCT ridership include the following: Higher residential densities are more transit-supportive. With higher residential densities, there are potentially large transit markets that can conveniently walk or bike to HCT stations. By concentrating growth, transit investments can be oriented toward a greater portion of the population. Higher employment densities are more transit-supportive. With higher density employment, there is a concentration of transit markets at the destination end that results in commuters being able to conveniently walk to their work destination. With this higher density employment, transit investments can be more effectively oriented toward a greater portion of commuter trips. Greater mix of land uses will support two-way transit ridership as well as walk and bike access at each end of the trip. Limited parking availability or restrictions on parking at both the origin and destination end of the trip (time limits, fees, and permit restrictions) can encourage the use of transit. Street patterns with a high level of pedestrian and bicyclist connectivity are supportive of public transportation. Greater connectivity increases the catchment area of a transit station, which is generally the area that can be reached within a 15-minute walk or up to a 15-minute bike ride. Other factors affecting HCT ridership include the cost of transportation, income levels, car ownership, and personal lifestyle choice. In addition, a mix of land use, jobs, and housing near stations can increase the efficiency of an HCT investment because more two-way and all-day riders are generated. This issue paper is focused on understanding transit-supportive land use densities compatible with the development of HCT systems. 3.1 Transit-supportive land use densities This section presents current density guidelines from PSRC Vision 2040 (PSRC 2009), findings from research, and case studies of land use factors affecting HCT ridership. In general, transit agencies use a variety of factors to evaluate potential HCT systems and projects. Land use densities from the various sources below are described in terms of population or dwelling units and employment. For comparative purposes only, 7 to 8 dwelling units per acre with an estimated 3 persons per household would be approximately 23 people per acre. 1 The PSRC target threshold of 45 (population + employment) for regional centers would result in 30 dwelling units per acre with 1.5 persons per dwelling unit. 1 In the Puget Sound region, the average number of persons per household is 2.5; however, single-family residences may have more than 2.5 persons per household and high-density residences may be closer to 1 person per household on average. An analysis of local census data combined with built land use would be required to determine actual persons per dwelling unit for a range of residential densities. 8 Octobe r 2014

15 Issue Pap er on Region al La nd Use an d Tr ans i t Plan ni n g (Dra f t) PSRC s TOD guidance PSRC s Creating Transit Station Communities in the Central Puget Sound Region; A Transit-Oriented Development Workbook (PSRC 1999) indicated that, with respect to establishing density targets, Although density is only one variable influencing transit use, numerous studies have found that transit ridership increases significantly with increased land use density. The report acknowledges, however, that There is no magic number for an appropriate density target for transit station communities For example, household densities can be lower if employment and commercial densities are high, and vice versa. Transit stations without associated parking would require higher land use densities than those with parking available. PSRC s 1999 report indicated that the following could be considered as general guidelines for establishing density targets: Residential densities should approach 7 to 8 households per gross acre to support local bus service connections to a transit station; Household densities should reach, at a minimum, 10 to 20 dwelling units per gross acre close to transit station facilities; Employment densities of 25 jobs per gross acre will support frequent high-capacity transit service if employment is clustered close to the facility; and A density of 50 jobs per acre is a preferred target for higher frequency and high-volume service provided by light rail. PSRC s Implementing Equitable Transit Communities (PSRC 2013c) currently relies on these guidelines as well. Since 2011, PSRC has included growth targets in its designation procedures for new regional centers (PSRC 2011). The density threshold for a regional growth center designation is in terms of activity levels, which is the sum of population plus employment. The required activity levels for new center designations are as follows: Must have a minimum existing activity level (population + employment) of at least 18 per gross acre. The required existing activity level must be met before regional designation can be pursued. Must have a minimum target activity level (population + employment) of at least 45 per gross acre based on the jurisdiction s adopted growth target and the allocated portion to the center. Must have sufficient zoned development capacity to adequately accommodate targeted levels of growth. Because it is not time-bound, zoned capacity can allow levels of development that are higher than the 45 population + employment threshold. This allows a jurisdiction to support long-term higher levels of density that achieves the regional vision for a more compact, complete, and mature urban form in regional centers. Figure 1 presents the range of population + employment densities along existing HCT corridors and two possible extensions, as estimated by PSRC. These data are from the 2010 census and the PSRC 2010 covered employment database (PSRC 2013d). In addition, a new PSRC guidance paper on transitsupportive land use densities is expected in late Octobe r

16 Regio na l T ran sit Lon g -Range Plan Upda te Source: PSRC 2013d, based on covered employment database 2010, and Census 2010 Figure 1. PSRC 2010 population + employment per acre along ST2 HCT corridors 10 October 2014

17 Issue Pap er on Region al La nd Use an d Tr ans i t Plan ni n g (Dra f t) Federal Transit Administration Report No. 56 A comprehensive summary of transit-supportive land use densities from various agencies has been compiled in the report by the Federal Transit Administration (FTA), Planning for Transit-Supportive Development: A Practitioner s Guide, Section 4: Corridor Planning and Transit Supportive Development (FTA 2014). The FTA summary of density guidelines by various agencies, for high-capacity transit (light rail, bus rapid transit (BRT), and heavy rail/commuter rail), are presented in Table 3. Table 3 also includes examples of density guidelines for selected transit and planning agencies that were included in the report. Table 3. HCT land use densities guidelines minimum dwelling units/acre Agency density guidelines 1 FTA research report Planning for Transit-Supportive Development Metropolitan Transportation Commission Station Area Planning Manual City of San Diego TOD Guidelines Urban core (downtown) City center Suburban center average 12 minimum Sacramento Regional Transit Guide to TOD 36 minimum 1/4 mile: 20 1/2 mile average 8 minimum 1/4 mile: 15 1/2 mile: 10 City of Charlotte light rail transit (LRT) stations 25 minimum 25 minimum Puget Sound Regional Council 2 Near transit stations For higher frequency and high-volume transit service 1 FTA 2014, HCT defined as light rail, commuter rail, and bus rapid transit 2 Source: PSRC minimum minimum Transit Cooperative Research Program Report 167 In the TCRP Report 167, Making Effective Fixed-Guideway Transit Investments: Indicators of Success (TRB 2014), researchers analyzed 55 completed transit projects to find correlations between ridership and more than 140 factors. The researchers conducted regression analysis using data from 55 heavy rail transit, light rail transit, and fixed-guideway bus rapid transit projects in more than 20 metropolitan areas. The analysis found several strong and significant predictors of transit ridership and some surprising results. The most significant indicators of project ridership and system-wide passenger miles of travel were: Employment within 1/2 mile of project stations Population within 1/2 mile of project stations Combination of employment and population within 1/2 mile of stations and daily parking rate in the central business district Percent of the project alignment at grade The above-noted indicators were generally evaluated in combination to provide a more complete picture of an area s readiness for fixed guideway transit. A spreadsheet-based forecasting tool was developed using research results of TCRP 167 to incorporate the indicators listed above and 16 other indicators related to population and employment characteristics near stations, mix of land use, station spacing, vehicle miles traveled per freeway lane mile, user costs, and capital costs. The research under TCRP Report 167 also noted that corridors with at-grade systems tend to have less density than corridors with grade-separated systems and thus attract fewer riders. The at-grade mileage Octobe r

18 Regio na l T ran sit Lon g -Range Plan Upda te may also be indicative of slower transit speeds. Despite the overlap of indicators the percent at-grade was included in the forecasting due to the significant relationship of the percent at-grade and accuracy of the ridership forecasts within the spreadsheet model. Station spacing and fixed guideway travel time was less of a strong predictor of ridership than the indicators listed above. San Francisco Bay Area s Metropolitan Transportation Commission The San Francisco Bay Area s Metropolitan Transportation Commission (MTC) TOD Policy (MTC 2005) includes an adopted set of housing targets at station areas for each HCT mode. New HCT extension projects are expected to meet these goals with existing and planned housing before the MTC programs the funds. The MTC TOD policy addresses multiple goals: improving the cost-effectiveness of regional investments in new transit expansions, easing the Bay Area s chronic housing shortage, creating vibrant new communities, and helping preserve regional open space. Resolution 3434 states: Each proposed physical transit extension project seeking funding through Resolution 3434 must demonstrate that the thresholds for the corridor are met through existing development and adopted station area plans that commit local jurisdictions to a level of housing that meets the threshold. There are three primary elements of MTC s regional TOD policy Corridor-level thresholds to quantify appropriate minimum levels of development around transit stations along new corridors Local station area plans that address future land use changes, station access needs, circulation improvements, pedestrian-friendly design, and other important features in transit-oriented development Corridor working groups that bring together congestion management agencies, city and county planning staff, transit agencies, and other key stakeholder to define expectations, timelines, roles and responsibilities for various stages of the transit project development process The TOD policy applies to any physical transit extension project with regional discretionary funds, regardless of level of funding. Meeting the corridor level housing targets requires that within 1/2 mile of all stations, a combination of existing and planned land uses meets or exceeds the overall corridor threshold for housing. The highest priority for the award of MTC s Station Area Planning Grants is provided to HCT extension projects that do not currently meet the corridor thresholds with existing development. To be counted toward the threshold, planned land uses must be adopted through general plans and appropriate implementation processes must be put in place, such as zoning codes. New belowmarket housing units receive a 50-percent bonus toward meeting the corridor threshold. The plans must clearly show the number of existing and planned housing units and jobs as well as station access and circulation plans for motorized, non-motorized, and transit access. The MTC housing thresholds differ from the concept of density thresholds to support HCT; the thresholds are targets to achieve housing goals and generate cost-effective access to transit by locating housing near HCT stations. MTC conducted an evaluation of the housing thresholds in 2009 (MTC 2009). Fourteen commuter rail stations were evaluated with a threshold of 2,200 housing units within 1/2 mile of each station. There was wide variation with some stations above the threshold, some at the threshold, and numerous below. However, the sum of each station along the corridor was a threshold of 30,800 units, and the total number of units in 2009 was 6,426 below the threshold. Next steps in the TOD policy identified a recommendation to develop a corridor-wide approach to TOD to allow transit corridors to respond to local station area conditions. 12 October 2014

19 Issue Pap er on Region al La nd Use an d Tr ans i t Plan ni n g (Dra f t) In addition, MTC and Cambridge Systematics, Inc. developed a proprietary indicator-based tool, the Transit Competitiveness Index. This tool offers a way to score different travel markets in terms of how well transit is likely to compete with the automobile. The tool also accounts for various transportation and land use characteristics trip volumes, land use density, parking cost, and congestion along with trip purpose and household characteristics to produce a numeric score. Depending on the score, individual markets are characterized as strongly competitive, marginally competitive, marginally uncompetitive, and uncompetitive. PSRC has also developed a version of this tool using local market segment data by census block group to determine the mode choice behavior for each market segment, including the attitudinal data collected from the PSRC Household Travel Survey. Utah Transit Authority The Utah Transit Authority calculates a Transit Preparedness Index to identify those parts of its service area that have the characteristics to support a successful transit investment. The index relies on five criteria to identify the best places in the region for improving transit service: TOD or mixed-use zoning (up to 40 points) TOD or mixed use in general plan (up to 10 points) Bike/pedestrian plan (up to 10 points) Amenity proximity score based on walkscore.com (up to 10 points) Intersection density based on walkscore.com (up to 30 points) Portland Metro Portland (Oregon) Metro provides land use planning and is responsible for maintaining the Portland-area urban growth boundary. Metro coordinates with the cities and counties to plan for transit-supportive land use densities. TriMet operates most of the region s buses and the MAX Light Rail system. Metro Code 3.07 (Metro 2012) is the Urban Growth Management Functional Plan, and Section establishes population and employment levels for centers, corridors, and station communities. The following are average number of residents and workers recommended for each: Central city 250 persons/acre Regional centers 60 persons/acre Station communities (HCT) 45 persons/acre Transit Cooperative Research Program Report 153 Table 4 shows the typical infrastructure and operational requirements based on the case studies of transit agencies in TCRP Report 153. TCRP Report 153, and the case studies, was also used as a resource document for the issue paper on system access. The summary in Table 4 shows how the need for park-and-ride facilities increases as HCT extends in to lower density areas. Potentially higher access-related costs would result from additional infrastructure needs of park-and-rides and vehicle traffic to and from park-and-rides. When HCT stations have residential densities within 1/2 mile of an HCT station, the combined walking/transit trip can provide a higher speed and more reliable travel choice than a trip involving park-and-ride/transit access. The walk/rail trip also supports goals of active transportation and public health. Octobe r

20 Regio na l T ran sit Lon g -Range Plan Upda te Table 4. Summary of transit station infrastructure requirements and density Location type Typical distance from city center (miles) Typical net residential density (people/square mile) Primary arrival modes 1 Central business district 0 2 NA Pedestrian Central city ,000 20,000 Pedestrian, bus Inner suburbs ,000 6,000 Park-and-ride, bus Outer suburbs ,500 4,000 Park-and-ride Exurbia Over 25 Varies Park-and-ride Source: TCRP Report 153 (TRB 2012) 1 Primary arrival modes indicate how the majority of riders access Transit supportive land use densities and HCT transit development Transit agencies that plan and build HCT systems can influence land use densities of station areas served by HCT. Transit agencies such as Sound Transit are most often limited in their land use authority but have a legal basis to plan for HCT in areas with transit-supportive land use densities. Many of these agencies have produced guidelines for land use densities and development best practices to support HCT. However, without legal authority for zoning, the recommendations are typically broad in nature; as a result, it can be difficult to compare guidelines for density thresholds across agencies. The City of Charlotte, North Carolina, is unusual in that its light rail system is within a division of the city government and so land use and station area planning are integrated under one authority. In the San Francisco Bay Area and Los Angeles County, MTC and Metro are state-chartered regional transportation planning agencies. These agencies have taxing authority and have more flexibility in the use of revenue among modes and for planning activities. MTC allocates funds for mandatory station area planning to achieve housing targets. Finally, there is the example of Portland Metro that is a regional planning agency with authority to regulate land use. Historically, land use densities for HCT have focused on dwelling units per acre, as summarized in FTA Report 56 (see Section ). This focus occurs because HCT systems are designed to attract riders from residential areas and deliver riders to high employment areas, such as a downtown or urban core. The density of the residential area is generally the deciding factor for ridership as well as mode of access required to achieve ridership. The HCT density guidelines summarized by FTA Report 56 are: 35+ dwelling units per acre for an urban core (downtown) 25 to 35 dwelling units per acre for a city center Larger urban areas have a mix of residential and employment within their cities as well as multiple employment areas. In addition, demographic changes are resulting in fewer persons per dwelling unit. As a result, more mature cities and a mature HCT system would likely service a mix of origins and destinations for residences and employment. To address this mix of residential and employment land use, Portland Metro has established density thresholds for population + employment use. PSRC also uses population + employment for designation of regional growth centers. The Portland Metro and PSRC thresholds for population + employment for regional centers are: 60 persons/acre, planned growth for Portland Metro regional centers 45 persons/acre minimum target, PSRC regional centers Portland Metro identifies a threshold for HCT station areas at 45 persons per acre. King County Metro s service guidelines use population and employment within 1/4 mile of a corridor to guide decisions on frequency of service. In general, 15 housing units per acre supports 15-minute service, 14 October 2014

21 Issue Pap er on Region al La nd Use an d Tr ans i t Plan ni n g (Dra f t) 7 housing units per acres supports 30-minute service, and 4 housing units per acres supports 60-minute service (Metro 2012). Figure 2 shows examples in the central Puget Sound region of residential and employment land use densities. Figure 2A shows residential land use densities of 7 to 8 units per acre, which is considered a minimum to support fixed route bus transit. Figure 2B shows an aerial view of the residential area in Figure 2A. The street network in this community includes cul-de-sacs and collectors that would limit effective transit access and create relatively long distances between residences and transit zones. Figure 2C shows an example of much higher residential densities (36+ units/acre net) that could potentially support HCT; this building is located near the Redmond Transit Center. The office building in Figure 2D is an example of employment densities of 30+ per acre (net, rather than gross) within the business park. Figure 2A. Residential density supporting fixed route bus transit Figure 2B. Residential density supporting fixed route bus transit aerial Figure 2C. High-density residential supporting higher capacity transit Source: Parsons Brinckerhoff Figure 2D. Employment supporting fixed route bus transit Figure 2. Examples of residential and employment land use densities From the standpoint of transit-supportive land use, the major destinations of HCT systems usually include central business districts with very large concentrations of employment. The densities of these employment concentrations usually far exceed those in outlying locations and would likely have greater effects in terms of achieving higher HCT ridership levels. For the density-related examples described above, the higher density land uses that include residential developments would likely have greater influence on HCT ridership because they better support all-day ridership for all trip purposes. Octobe r

22 Regio na l T ran sit Lon g -Range Plan Upda te 3.2 Implementing HCT into areas with transit-supportive land use Planning for transit-supportive land use patterns begins with land use planning at the regional policy level (PSRC), community planning for transit-supportive land uses along HCT alignments and station areas, and Sound Transit s TOD-related initiatives near HCT stations. Ultimately, local jurisdictions have the authority for zoning and infrastructure in station areas. Transit-supportive land uses will help ensure that the region s investment in HCT maximizes ridership, while also enabling local jurisdictions and agencies to achieve their policy goals. This section further describes foundations for land use and transit planning in the central Puget Sound region, including policy direction. A potential approach regarding how transit-supportive land use can be considered at various stages of HCT project planning and development is also described Current transit-supportive land use planning for HCT Sound Transit s current system is the beginning of regional HCT service to connect regional growth centers. By serving regional growth centers, the core HCT system accesses areas with the highest population, employment, and densities. Vision 2040 and Transportation 2040, adopted by PSRC, provide a planning-based connection between the region s land use plan and its transportation plan. Sound Transit, as the agency responsible to plan and build a regional HCT system, is implementing a significant component of Transportation Vision 2040, the region s growth strategy, focuses the majority of the region s employment and housing growth in both metropolitan and core cities, which together contain more than two dozen designated regional growth centers as well as manufacturing/industrial centers. Centers in other larger cities also play an important and increased role over time as places that accommodate growth. The regional growth centers are shown in Figure 3. The regional growth strategy in Vision 2040 and Transportation 2040 together support a plan to accommodate the travel demand generated by this growth with HCT. During system planning for Sound Move and ST2, extensive analyses of potential HCT alignments were prepared to evaluate ridership. More recently, through several HCT corridor studies, Sound Transit has taken a closer look at potential alignments, including some potential HCT station areas and the conditions that support HCT. The HCT Corridor Studies included an evaluation of the potential for community TOD as well as connectivity of the street system to provide non-motorized access to the population and employment near HCT stations. Station Area Development Potential was a relevant screening criterion for the HCT studies. Four factors were evaluated and quantified or rated in the evaluation of alignments and potential station locations: Supportive land use plans Percent/type of developable land near stations Quality of connections to existing transportation facilities Number of activity centers near stations 16 October 2014

23 Issue Pap er on Region al La nd Use an d Tr ans i t Plan ni n g (Dra f t) Source: PSRC 2013 Figure 3. PSRC regional growth centers Octobe r

24 Regio na l T ran sit Lon g -Range Plan Upda te Legislative and policy direction As noted in Section 2.2, the basis for Sound Transit s involvement in regional land use is established by RCW (2). As directed by this law, HCT implementation should favor cities and counties with supportive land use plans. However, in some instances a variety of factors can affect Sound Transit s ability to favor cities and counties with supportive land use plans in HCT implementation, including: Inadequate land use and transit planning coordination at major steps in the HCT project planning and development process, particularly at early stages of the process. For example, early in the system planning process there could be limited opportunity for HCT ridership results to be communicated to local jurisdictions and, in turn, for local jurisdictions to modify land use plans. Likewise, local jurisdictions along potential new alignments may be hesitant to plan for HCT densities without a commitment to HCT station locations. Land use zoning, codification of land use, and local streets, are under the authority of local jurisdictions. Regional forecasting models are not the tool for capturing differences in access to transit at the station area level. Inventories of all potential station locations and local access are also not feasible at the regional level or during system planning. Other factors that may influence future alignment and station locations, such as HCT station spacing, travel time, regional connections, environmental or design constraints, and the resulting costs. Also, the need to recognize Sound Transit adopted policies related to subarea equity can influence HCT implementation Coordination of land use and transit planning at various stages of project planning and development Sound Transit can address state enabling legislation by planning HCT alignments and stations that favor cities and counties with supportive land use plans to maximize ridership. Table 5 presents some examples of methodologies to support planning for transit-supportive land uses, including community and agency TOD. These methodologies begin with Sound Transit s Long-Range Plan and continue through system planning, corridor planning, preliminary engineering/environmental documentation, engineering and construction, as well as operation of existing stations. Planning and design for transit-supportive land use may necessitate a refinement of Sound Transit s early planning approaches. This refinement includes documentation throughout the planning and design process in order to capture the conditions and commitments for interlocal agreements. Possible steps of this approach are provided in the following sections. Long-Range Plan Update Under the Long-Range Plan Update, policies relating to HCT development and land use can be updated. This update could reflect the most recent direction from Sound Transit s TOD policies as well as other policy-related items since adoption of the 2005 Long-Range Plan. System planning The extent of potential transit-supportive land use being considered for HCT corridors and stations can begin to be determined during system planning. Table 5 presents some examples of approaches that could be used during system planning to help determine HCT supportive land use. 18 October 2014

25 Issue Pap er on Region al La nd Use an d Tr ans i t Plan ni n g (Dra f t) Table 5. Land use and transit planning coordination at various stages in project development Phase Long-range plan update System planning Corridor planning Relevant direction Background/need Long-range goals (2040 and beyond) ST Transit-Oriented Development (TOD) Policy Ridership Transit-supportive land use to increase ridership Local jurisdictions plans and policies with potential for community TOD Connectivity of local streets and arterials for pedestrians and bicycles Examples of approaches that could be used to help determine HCT supportive land use Review peer agencies approach to transit-supportive land use Recommend overall system-wide land use objectives Review newer and more detailed TOD policy adopted by Sound Transit in 2012 and 2014 for goals or objectives needed in the Long Range Plan Identify policies showing relationship between transitsupportive land use and HCT decisions (from the TOD Policy Resolution) Determine range of densities that meet a possible threshold for transit-supportive land use. Evaluate existing and planned land use relative to potential HCT extensions and stations. Document TOD potential at system planning level, including documentation of local jurisdiction and community input (e.g., city council resolutions) Evaluate community TOD potential within ½ mile of potential alignments based on existing density and adopted zoning to achieve density Evaluate TOD potential based on land use patterns Evaluate TOD potential based on walkable infrastructure and commitment to walkable infrastructure and bicycle access Identify potential station features that reinforce transitsupportive land use; determine potential cost and Sound Transit share Prepare TOD-related checklist for corridor planning phase Begin to consider interlocal agreements to ensure land uses compatible with HCT Meet with local jurisdictions to identify interest in planning for Community TOD; develop approach to review TOD program at each phase of project development Jurisdictions begin to prepare station area plans as station locations are determined Determine corridor-level TOD potential for development and redevelopment within 1/2 mile of corridor or stations Determine population and employment within 15 minute walk and bike shed Conduct, with local jurisdictions, analysis of potential TOD (land use, walk and bike shed, connectivity of sidewalks within 1/2 mile of station and existing or planned bicycle access) Refine costs of station features that reinforce transit-supportive land use, including potential Sound Transit share of costs Include community TOD potential in station siting, evaluation of alternatives, and assessment of potential construction staging areas Document TOD potential at corridor level, including documentation of local jurisdiction and community input Prepare interlocal agreement to ensure land uses compatible with HCT stations, including commitment to any cost sharing for non-motorized station access improvements in city transportation improvement programs Prepare TOD-related checklist for preliminary engineering/ environmental documentation phase Octobe r

26 Regio na l T ran sit Lon g -Range Plan Upda te Table 5. Land use and transit planning coordination at various stages in project development (continued) Phase Preliminary engineering/ environmental documentation Final design Operations (existing stations) Relevant direction Include access considerations, evaluate TOD potential, define partnerships and cost sharing agreements Mode of Access Hierarchy (in Link and Sounder/Sound Transit Express design criteria) for directness and convenience of routing Final definition of station location and access characteristics to support TOD Changes in land use when conducting station access studies Operations review relating to potential TOD features (including placement of park-and-ride and bus facilities to support TOD) Examples of approaches that could be used to help determine HCT supportive land use Review local jurisdictions comprehensive and subarea plans Inventory potential community TOD sites within station areas (vacant and redevelopment potential) Review station design for potential TOD and site preparation for TOD (Design Team) Identify potential land acquisitions for construction staging and for potential Agency TOD (Planning and Design Teams) Evaluate potential for access enhancement to provide improved walk and bike access from station to potential TOD Document TOD potential near station areas, including documentation of local jurisdiction and community input Refine costs of station features that reinforce transit-supportive land use Define the partnership, degrees of cost sharing, and commitments between the local jurisdiction and Sound Transit for development of agency TOD, including financial commitments to non-motorized access enhancements Potentially include TOD sites in environmental analysis Prepare TOD-related checklist for final design phase Implement Sound Transit procedures for Agency TOD projects Monitor local jurisdictions commitment to TOD Review changes in land use Review agreements and commitments, including cost sharing This outreach between Sound Transit, local jurisdictions, and other parties, as appropriate, can begin to identify key issues relating to land use along potential HCT in corridors and station areas. Issues can include possible barriers as well as opportunities affecting potential transit-supportive land use and HCT services. Under system planning, an initial estimate of costs could also be identified to support land use/hct coordination. Accordingly, this step could include cost components that could reinforce transit-supportive land use. These components could include station access features such as access improvements that would complement transit-supportive land use particularly efforts to maximize transit ridership. Also, cost components should recognize Sound Transit s staff role participating in jurisdictions future station area planning at subsequent stages of HCT project development. Starting with system planning, documentation could be prepared relating to land use and HCT planning assumptions, including important items to consider in follow-up project development phases. This documentation would provide continuity as HCT projects transition from system planning to more detailed design and associated environment analysis in subsequent phases of project development. Corridor planning At corridor planning, more detailed definition of potential HCT corridors and station locations can be determined. Accordingly, further definition and direction can be made regarding the potential for transitsupportive land use and HCT characteristics that will reinforce this land use. As follow-up to initial 20 October 2014

27 Issue Pap er on Region al La nd Use an d Tr ans i t Plan ni n g (Dra f t) estimates in the system planning step of the process, costs of station features (such as access elements that reinforce transit-supportive land use) can be refined. As part of corridor planning, the process could also include community TOD potential in station siting, evaluation of alternatives, and assessment of potential construction staging areas that could later have potential use as TOD sites. This element of the planning process will help ensure that project development considers TOD in assessing potential HCT elements. The corridor planning process can include developing interlocal agreements to help ensure land uses compatible with HCT stations. These agreements could include commitments to any cost sharing for nonmotorized station access improvements in transportation improvement programs of local jurisdictions. Preliminary engineering/environment documentation At the preliminary engineering step, substantial definition of HCT elements, potential environmental impacts, and resulting costs will be determined. This level of definition will allow more detailed refinement of potential coordination with land use and related access features at HCT stations. Costs of station feature (such as access elements) that reinforce transit-supportive land use can be refined. This step in the project development process could provide an opportunity to further define the partnerships, degrees of cost sharing, and commitments between the local jurisdiction and Sound Transit for development of any agency TOD. This partnership could include financial commitments to nonmotorized access enhancements. Final design In this step of the process, final station locations and access characteristics to support TOD can be defined. Steps to formalize an agency TOD project could occur during final design. The TOD project construction could occur during or after station construction. Operations New opportunities for land use/hct planning coordination may be realized after a station has been in operation. The operations review can also include an assessment of potential TOD features (including placement of park-and-ride and bus facilities to support land use/transit planning coordination). 3.3 Station area planning Some form of station area planning by jurisdictions could begin in the early phase of project development. This may include an evaluation of potential station locations as the system is expanded, followed by station siting, and preparing for potential community and agency TOD. This may also include community coordination for pedestrian, bicycle, and bus access, and partnering for infill at existing stations with TOD. Most of the formal station area planning work would be led by local jurisdictions, but Sound Transit staff should also have a role in station area planning Budgeting Budgeting could include time for a more rigorous analysis of transit-supportive land use for Sound Transit staff to further enhance outreach efforts, communicate analysis and findings, share potential strategies to improve transit supportive land uses, and develop partnerships with local jurisdictions. Budgeting could include more Sound Transit staff time to participate in station area planning activities that are being led by local jurisdictions. Budgeting could also include planning and community TOD with local jurisdictions and agency TOD. Agency TOD may require budget for coordination of property acquisition during construction and facilities to support the TOD. Octobe r

28 Regio na l T ran sit Lon g -Range Plan Upda te For purposes of discussion in this issue paper, the TCRP simplified station typology model described in the Draft System Access Issue Paper (Sound Transit 2014d) could be applied to community TOD and agency TOD at existing and future HCT stations (Table 6). When using station typologies for community TOD and agency TOD, it should be recognized that characteristics of station areas can change over time. For example, a station area that is currently suburban with intensive park-and-ride access could convert park-and-ride capacity to add residential development. This conversion would reflect a station area transition to a more urbanized area that could support walk and bicycle access. Table 6. Simplified station access typology and characteristics Station area typologies Central business district Urban Suburban Special conditions Examples Westlake Station, Bellevue Transit Center Columbia City Station, Roosevelt Station Tukwila International Boulevard Station, NE 145th Station SeaTac/Airport Station Land use density (2010)/ developable land near stations Very high density; fully developed, changes in land use may occur Low/moderate to moderate/high density; strong potential for redevelopment and housing Low density; densifying near station may necessitate changes to land use plans Moderately high density; unique opportunities for infill to add population or employment Land Use and Access Characteristics Pedestrian and bicycle facilities Fully developed street network; good connectivity Fully developed street network; good connectivity Limited connectivity, some high-volume roadways Limited connectivity with emphasis on special facility Parking facilities No off-street parking No/limited off-street parking Some off-street parking or park-and-ride available Limited off-street parking may be available Partnering with local jurisdictions Local jurisdictions desiring service from HCT could partner with Sound Transit early in the planning process. The partnership could consist of the following efforts: Developing information materials and guidelines for local jurisdiction agreements on land use densities and development patterns that support HCT. Information materials for education and outreach efforts with local jurisdictions could serve as framework for collaborative efforts. Sharing technical information generated during system planning to show the ridership achieved during the study of alignments. This information can be used as feedback to cities that desire HCT and to determine changes in land use and local infrastructure to achieve transit-supportive land use and a walkable street network. Preparing analysis of potential community TOD during early planning or corridor planning within 1/2 mile of potential stations to support and communicate with local jurisdictions as partnerships are formed and station location decisions are made. Identifying potential land parcels that meet the programmatic requirements of stations, including locations for construction staging during corridor planning and preliminary engineering. A strategic choice of parcels selected in partnership with local jurisdictions can be made to the benefit of both 22 October 2014

29 Issue Pap er on Region al La nd Use an d Tr ans i t Plan ni n g (Dra f t) parties. For example, parcels strategically acquired for construction staging could result in land that is converted to a TOD project after construction is complete. Developing interlocal and cost-sharing agreements with cities and counties, as indicated in RCW , that set forth expectations for land use and infrastructure needs compatible with development of HCT systems. The initial basis for these agreements could occur during early planning and could be followed by more specific commitments during planning and project development Refining or strengthening station siting evaluation criteria Sound Transit can modify tools recently developed and used for corridor and project level planning for application in system planning. These tools are consistent with recent research (TRB 2008), which identifies population plus employment densities within 1/2 mile of stations as the strongest indicator of ridership. The two primary factors under Sound Transit s authority are: Prioritizing system expansion into areas with transit-supportive land use plans Providing guidance and expectations for station siting While HCT stations in lower-density areas will more likely be accessed by park-and-ride, the station areas may have potential for transitioning to a typology that has denser and more mixed-use developments if and when development patterns change. As this occurs, local jurisdictions could demonstrate that comprehensive plans, zoning, and the local street network will provide transit-supportive characteristics to support an effective HCT system. Refined station siting criteria have been further developed during the recent HCT studies. Specifically, a walkshed analysis within 1/2 mile of stations used geographic information systems as tools to identify population and employment within a 15-minute walk of the station. The population and employment, existing, and planned, was determined for the area defined by the 15-minute walkshed. The visual presentation of this information also showed the extent of connectivity in the local street network and access to transit for concentrations of population and employment. The same approach was used to determine the bikeshed in station areas. The TOD strategic plan in the HCT studies showed how these tools are applied in the evaluation of TOD potential at alternative station locations. These tools used at the corridor level could also be applicable during early planning and project development to identify the relative walksheds and population and employment between potential station locations. Alternatively, a methodology to show areas with the greatest population and employment near possible station alignments could be used to compare to possible density thresholds for transit supportive land use. In addition, there are numerous reports by transit agencies and regional planning agencies, including PSRC, that describe desirable development patterns at or near stations that are also important to a transit friendly environment. An example of detailed land use and community character design guidelines was prepared by the Sacramento Regional Transit, A Guide to Transit Oriented Development (TOD) (April 2009). There are two sets of guidelines: Land Use and Community Character Guidelines and Mobility and Access Guidelines. Guidelines are presented by station typology to provide flexibility for the various station areas encountered in urban and suburban areas Responding to change at stations Land use developments can quickly follow construction of an HCT station. Also, the nature of some transit stations, including markets served and access modes, can be expected to change in relation to the Octobe r

30 Regio na l T ran sit Lon g -Range Plan Upda te evolution of market dynamics of the station area, together with growth and expansion of the regional HCT system. One example of changing market dynamics is the potential redevelopment of station areas that involve conversion of park-and-ride areas to mixed land use developments. Two examples, one in Denver and the other in the San Francisco Bay Area, are presented. The Alameda LRT Station in Denver, Colorado, and the Pleasant Hill BART station in Contra Costa County, California, are examples of where the stations have been transformed with the addition of TOD on transit agency land. While in-filling has occurred at Sound Transit stations, Mt. Baker for example, the examples presented below affected parcels that were used for park-and-ride access converted to mixed-use developments. Alameda Station (Denver, Colorado) At Alameda station, 3 acres of parking and right-of-way adjacent to the station is being redeveloped as affordable residential TOD with a plaza as part of the Regional Transportation District s (RTD) TOD Pilot program. The project eliminated 216 paved parking spaces and 86 unpaved parking spaces. The lost parking is expected to be absorbed by excess capacity at the nearby Broadway LRT station. In 2009, the City of Denver adopted a station area plan for Alameda Station promoting high density, mixed-use development within 1/2 mile of the station. This station area plan was the end result of an 18-month process that included three public workshops with local residents and stakeholders. The Alameda Station Area Plan made several recommendations for the future development of the area including: Placing residential uses close to the station that will greatly improve resident access to not only the station, but also the region through transit. Offering a gathering space for transit riders west of Cherokee and south of Dakota. Extending the street grid to better connect with the station. Acknowledging that: Parking, while conveniently located right at the platform, is a barrier to pedestrians and visual connectivity between developments. If opportunities for partnership with RTD arise, decrease emphasis on parking right at the station. 24 October 2014

31 Issue Pap er on Region al La nd Use an d Tr ans i t Plan ni n g (Dra f t) Pleasant Hill Station (Pleasant Hill, California) A new pedestrian-oriented, mixed-use transit village, including housing, retail shops, commercial buildings, and civic functions, was constructed at the existing Pleasant Hill BART station site. Located in an unincorporated area of Walnut Creek, California, the station is one of the most significant public transit hubs for daily commuters in the San Francisco Bay Area. The development at Pleasant Hill Station transformed the transit center site into a mixeduse town center. At the heart of the Plan is a town square adjacent to the BART station gates offering a public gathering and place making opportunity. Civic functions are located in this prominent area. Opposite the town square is a 12-story office building complementing existing mid-rise office buildings adjacent to the site. A replacement parking structure for 1,550 BART patron cars is situated nearby. The compact residential blocks offer a variety of types such as townhomes and flats in a range of sizes from studio to three-bedrooms. Approximately 600 residential units (including 100 for sale condominiums) are in three to five stories over street level shops. Twenty percent of the housing is affordable. Each block has on-site parking screened from public view. Octobe r

32 Regio na l T ran sit Lon g -Range Plan Upda te 4 Conclusions and Next Steps The enabling legislation for Sound Transit calls for HCT planning that favors areas with transit-supportive land use. Also, Sound Transit s TOD Policy and TOD Strategic Plan provide direction on transitsupportive land use. However, without authority for land use decisions, as well as other factors in decision-making for the HCT system (see Section 3.2.3), the planning process is a more complex balance of HCT system planning, corridor planning, station siting, and transit-supportive land use planning. Addressing these complexities could be particularly helpful during early planning phases where coordination can occur between HCT planning and the comprehensive plans of local jurisdictions. 4.1 Planning next steps The methodologies identified in Section 3.3 of this issue paper are intended to address several features of current transit-supportive land use planning with HCT alignment and station location decisions. These methodologies can be included in major project development phases, from system planning through preliminary engineering. Several land use-related factors that affect HCT ridership include the regional jobs and housing balance and a mix of land use, jobs, and housing near stations. Access to HCT stations is another important factor and is explored in the System Access Issue Paper (Draft) (Sound Transit 2104d). However, transit-supportive land use density, the primary subject of this issue paper, is a very influential factor to assess compatibility for HCT systems. The following planning activities could be considered to better factor transit supportive land use (per RCW (2)) into the development of the HCT system Long-Range Plan Update The 2005 Long-Range Plan briefly speaks to the role of PSRC and local jurisdictions in developing transitsupportive land use. For example, page 19 of the plan indicates that The PSRC and each participating County GMA program should assure that programming to fund major transportation service and facility decisions is consistent with regional and local transportation, growth management and land-use plans. The 2005 Long-Range Plan also, on page 19, states that Local jurisdictions should develop land-use and transportation plans and regulations that support transit-oriented development, regional and county plans, and the long-range plan. Examples of supportive actions include building sidewalks to transit facilities, and changing zoning to encourage development of urban centers. One potential new addition that could be considered in an updated Long-Range Plan would be to establish recognition of RCW as policy guidance for implementation of transit-supportive land use policies and planning by Sound Transit, from the Long-Range Plan to system planning and each stage of project development System planning More detailed analysis could be conducted of transit-supportive land use at the system planning level for greater consistency with RCW , which indicates favoring locations with transit-supportive land use plans and policies in the HCT system implementation program. This effort could be supported by the following: Evaluate existing and future transit-supportive land use at the system planning level based on density thresholds. For future conditions, evaluate estimated PSRC population and employment projections, and how locally adopted comprehensive plans focus the projected increases in population and 26 October 2014

33 Issue Pap er on Region al La nd Use an d Tr ans i t Plan ni n g (Dra f t) employment near potential station areas. The future year for the density thresholds could be year of opening, 10 years after opening, or some other timeframe. Consider the possibility of including preferred density thresholds for areas potentially served by HCT as an evaluation criteria in the system planning process. For example, possible density thresholds used in analysis could start with density thresholds for PSRC s regional growth centers and manufacturing/industrial centers (i.e., existing population + employment of at least 18 per gross acre; future target population + employment level at 45 per gross acre). Estimate potential Sound Transit costs to support land use/hct development, including potential administrative costs for Sound Transit staff to participate in a jurisdiction s station area planning in follow-up phases of project development. See Section for more information on costs of TODrelated elements that could be considered during system planning. Begin to consider the use of interlocal agreements to set forth conditions for assuring land uses compatible with development of HCT systems Corridor planning and preliminary engineering/environment documentation There will be useful overlap between corridor planning and preliminary engineering and environmental documentation phases with more attention to analysis of transit-supportive land uses. Alignment alternatives will differ in terms of transit-supportive land use but will be guided by other factors, such as regional connections, environmental or design constraints, and the resulting costs. Planning at these phases could include the following steps: Identify priority station locations based on preferred density thresholds for existing conditions and planned. The density analysis could occur within a 15-minute walkshed, within approximately 1/2-mile of a station. Higher densities within a transit-supportive development pattern could remain the highest priority due to the resulting ridership forecast. Apply the walkshed/bikeshed analytical tools that have already been applied in the recent HCT corridor studies to corridor planning. These tools could help prioritize station locations relative to system connectivity and available population and employment within 1/2 mile. The analysis conducted for corridor studies quantified population and employment within a 15-minute walkable area and also showed connectivity or lack of connectivity in the local street system. A 15-minute bikeshed analysis disclosed connectivity opportunities and constraints at a greater distance from the station (7 to 10 miles). Consider other factors that could be included in an analysis of transit-supportive land uses for HCT: Local jurisdictions station area plans Local jurisdictions plans for economic development along corridors Local jurisdictions plans for affordable housing along corridors Local jurisdictions plans for pedestrian and bicycle improvements PSRC GTC compacts Costing of TOD-related elements In concert with the evaluation of transit-supportive land use, costs associated with all aspects of transitsupportive land use could be identified. To support this effort, Sound Transit can consider TOD-related initiatives at all major stages of project development. Examples of likely costs associated with TOD are listed below: Octobe r

34 Regio na l T ran sit Lon g -Range Plan Upda te Funding, as part of development of project cost estimates, for Sound Transit staff to work more closely with local jurisdictions on TOD, including participating in station area planning that is conducted by local jurisdictions. Acquiring property for construction staging is already typically included in project costs estimates, but there may be some differences in costs if the project team focuses on options that both meet nearterm construction staging needs, and offer longer-term (post construction) TOD opportunities. Preparing real property to be sold after use for construction staging. Activities that have expenses associated with them include grading, clearing, boundary adjustments; research, legal, and engineering work to draft legal documents; and various other expenses associated with selling property. Evaluate potential costs associated with future park-and-ride redevelopment to TOD (i.e., the various costs associated with preparing part of a surface park-and-ride lot to be sold for TOD, which may be similar to those listed above) Leveraging potential FTA funds Sound Transit may be able to partner with jurisdictions to pursue other TOD-related funds, such as funds available from the Federal Transit Administration. For example, a program in MAP-21 was established to help communities plan for TOD. FTA announced in early September 2014 that it is accepting applications from transit agencies until November 3, for a total of almost $20 million in available funding. According to the notice from FTA, the grants will fund comprehensive planning that supports economic development, ridership, multimodal connectivity and accessibility, increased transit access for pedestrian and bicycle traffic, and mixed-use development near transit stations. The program requires that transit agencies partner with jurisdictions that have direct land use authority. As noted in the FTA grant announcement, this type of TOD planning has been used successfully in transit corridors such as the Foothill Extension of the Gold Line which connected 11 small cities east of Los Angeles, the West Corridor that connects Denver with the suburban community of Lakewood, and the Green Line which connects Minneapolis to Saint Paul. As shown in these cases, planning for development along the entire corridor rather than just one station area at a time can attract privatesector interest as well as stronger community consensus by creating a complete picture of the development opportunities presented by the new transit line Forming partnerships with local jurisdictions With transit-supportive land use analysis, Sound Transit could begin to form partnerships with local jurisdictions during the various stages of project planning and development. The length of time from early planning to project implementation provides an opportunity for local jurisdictions to make changes in land use policy and for interlocal agreements to be developed. This effort can be supported by the following: Sound Transit can prepare interlocal agreements with cities that may have future HCT stations, identifying commitments to land use and infrastructure changes compatible with the development of high capacity transportation systems. The interlocal agreements may be of greater importance and potentially more complex where the HCT system is extended into lower density areas. Jurisdictions can begin to prepare station area plans during corridor planning as station locations are defined. Station area planning should be consistent with prior commitments to define land use and infrastructure changes to support an HCT station. 28 October 2014

35 Issue Pap er on Region al La nd Use an d Tr ans i t Plan ni n g (Dra f t) Sound Transit and local jurisdictions can partner to apply for grant funding for station area access improvements consistent with TOD. Grant applications typically score higher with multi-agency partnerships. Sound Transit can evaluate the feasibility of preparing the project design and agreements for a future transition from parking to TOD. Sound Transit and local jurisdictions can consider potential in-fill opportunities at early stages of project development and in subsequent phases for stations with surface park-and-ride capacity. This effort could be undertaken in the context of overall access needs along an HCT corridor as well as changing land use conditions in station areas. Octobe r

36 Regio na l T ran sit Lon g -Range Plan Upda te 5 References FTA (Federal Transit Administration). Report Planning for Transit-Supportive Development: A Practitioner s Guide, Section 4: Corridor Planning and Transit Supportive Development. King County Metro (Metro) Linking Transit and Development Preliminary Concept Report. Metropolitan Transportation Commission (MTC) MTC Resolution 3434 Transit-oriented Development (TOD) Policy for Regional Transit Expansion Projects. Metropolitan Transportation Commission (MTC) MTC TOD Policy Implementation & Evaluation. Portland Metro, Metro Code PSRC (Puget Sound Regional Council) Creating Transit Station Communities in the Central Puget Sound Region; A Transit-Oriented Development Workbook. PSRC (Puget Sound Regional Council) VISION 2040: The Growth Management, Environmental, Economic, and Transportation Strategy for the Central Puget Sound Region. PSRC (Puget Sound Regional Council) Transportation 2040: Toward a Sustainable Transportation System and 2014 Update Report. PSRC (Puget Sound Regional Council) Designation Procedures for New Regional Growth and Manufacturing Industrial Centers. PSRC (Puget Sound Regional Council). 2013a. The Growing Transit Communities Strategy, Final Draft. PSRC (Puget Sound Regional Council). 2013b. Transit Supportive Planning Toolkit. PSRC (Puget Sound Regional Council). 2013c. Implementing Equitable Transit Communities; Regional & local recommendations for the central Puget Sound region. PSRC (Puget Sound Regional Council). 2013d. Growing Transit Communities, Existing Conditions IV: Land Use, Form and development. Sound Transit Long-Range Plan. Sound Transit Sustainability Plan. Sound Transit TOD Policy Resolution No. R Sound Transit. 2014a. Scoping Summary Report. Sound Transit. 2014b. TOD Strategic Plan Update. Sound Transit. 2014c. Draft Supplemental Environmental Impact Statement (SEIS) for the Regional Transit Long- Range Plan. Sound Transit. 2014d. System Access Issue Paper (Draft), Regional Long Range Plan Update TRB (Transportation Research Board) Transit Cooperative Research Program (TCRP) Report 167. Making Effective Fixed-Guideway Transit Investments: Indicators of Success. TRB (Transportation Research Board) Transit Cooperative Research Program (TCRP) Report 153. Guidelines for Providing Access to Public Transportation Stations. 30 October 2014

37 Issue Pap er on Region al La nd Use an d Tr ans i t Plan ni n g (Dra f t) Appendix A: Sound Transit Resolution R and Transit Oriented Development Policy Octobe r 2014 A-1

38 Regio na l T ran sit Lon g -Range Plan Upda te A-2 Octobe r 2014

39 Issue Pap er on Region al La nd Use an d Tr ans i t Plan ni n g (Dra f t) Octobe r 2014 A-3

40 Regio na l T ran sit Lon g -Range Plan Upda te A-4 Octobe r 2014

41 Issue Pap er on Region al La nd Use an d Tr ans i t Plan ni n g (Dra f t) Octobe r 2014 A-5

42 Regio na l T ran sit Lon g -Range Plan Upda te A-6 Octobe r 2014

43 Issue Pap er on Region al La nd Use an d Tr ans i t Plan ni n g (Dra f t) Octobe r 2014 A-7

44 Regio na l T ran sit Lon g -Range Plan Upda te A-8 Octobe r 2014