Transportation and Land Use

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2 Transportation and Land Use Making the connection OPC Cincinnati Section March 2, 2007 Topics today are the transportation-land use connection; how land use is considered in the regional transportation planning process; and the tools we are producing for use at local level. 1 st some background and context. A nickle tour of how we ve come to discuss those topics at meetings like today s. We have 190 jurisdictions in this region.

3 These are our 4 Ohio counties and their cities and townships.

4 Here we ve added Dearborn County, its cities & townships.

5 And here are the 3 NKY counties and their cities.

6 Here is the region with the Interstate system.

7 Here is the region with the Interstate and state highway systems. This image really conveys the point that we live at the scale of the region, traveling from community to community to live, work or play. Our region has more than 3,000 miles of major roadways, and an additional 6,000 miles of other roadways. Vehicles travel more than 34 million miles a day on those roadways. (VMT has been projected to increase faster than population growth.) The demand put on a road, or for that matter on a transit system, has everything to do with land use. Typically, when land use intensifies, so does demand for transportation facilities and services. At the same time, transportation facilities and services typically are catalysts for land development.

8 In our region, land use decisions are made at the city, township and county levels. Of our 190 local jurisdictions, 138 have zoning authority. Some of the region s local zoning authorities must deal with zoning and subdivision reviews in the absence of a comprehensive plan. Such incremental, parcel-byparcel decisions can result in major transportation needs that force OKI to be reactive rather than proactive.

9 Federal Transportation Law ISTEA Intermodal Surface Transportation Efficiency Act TEA-21 Transportation Equity Act for the 21st Century SAFETEA-LU Safe, Accountable, Flexible, and Efficient Transportation Equity Act: A Legacy for Users Now, the Intermodal Surface Transportation Efficiency Act of 1991 (ISTEA) mandated that MPOs maintain a continuing, comprehensive transportation planning process, and that 15 or 16 planning factors, including land use, be considered during transportation planning. That marked a new era in Federal transportation investment. TEA-21 was ISTEA s successor for the 6-year period SAFETEA-LU, which stands for Safe, accountable, flexible, and efficient transportation equity act: a legacy for users was signed in Within SAFETEA-LU: MPOs are encouraged to consult or coordinate with planning officials responsible for other types of planning activities affected by transportation. The metropolitan planning process is to promote consistency between transportation improvements and State and local planned growth and economic development patterns. MPOs are required to consult with State and local agencies responsible for land use management, natural resources, environmental protection, conservation, and historic preservation concerning development of the Long Range Transportation Plan. SAFETEA-LU requires a stronger connection between land use and transportation planning than we saw in TEA-21.

10 On the Horizon Transportation Costs vs. Revenues Transportation Needs Shortfall Billion $ Long Range Plan Year You ve heard us talk about the consistent $3 billion shortfall between what will be needed for transportation projects over the next 20 years and what will be available. Why the shortfall? Because: The costs of labor and materials are increasing; Operation and maintenance costs are increasing; and The tri-state s growth trends mean that limited transportation dollars are spread more thinly across the region. For example, in the most recent round of funding for Northern Kentucky, we received requests for projects totaling $15.3 million while only $8.8 million was available through OKI.

11 Other Trends Our region is ahead of the curve in trying to strengthen the links between land use and transportation planning. When ISTEA first called for stronger links back in the early 1990 s, OKI committed to forming a Land Use Commission to look at the transport-land use connection. These composite maps were early products of our research & analysis. They were meant to start a discussion about our land development patterns, and how if trends continued would we support these patterns with roads, water, sewer, and green infrastructure. We used zoning to illustrate the future because not all the jurisdictions in our region have done comprehensive planning for future conditions. These picture beg lots of questions about timing, location and costs of land development and infrastructure.

12 State Planning & Zoning Law Also early on, we saw that comprehensive planning was all over the map no pun intended. Why? Look at state planning & zoning law. Kentucky law requires a comprehensive plan in order to do zoning. Plan must contain specific data and analyses, and have 3 elements plus G&O. Indiana permits local comprehensive plans, but they must contain certain objectives and policies on several topics. In Ohio, planning & zoning is permissible, but Ohio law differs for counties, townships, non-charter municipalities, and charter municipalities. No substantive direction in comp plan preparation is provided.

13 Strategic Regional Policy Plan Purpose To bring about more consistency between local land use planning and regional transportation planning, so that scarce tax dollars can be used for maximum benefit. With all of those factors in mind, OKI s board worked as a Land Use Commission on a Strategic Regional Policy Plan. OKI s board adopted the plan in April The plan is noteworthy for its final 3 years of intensive policy work sessions, AND for involving active participation by about two-thirds of OKI s board members and participation by local officials and the public. It is a policy plan because OKI does not have or seek authority over local land use, and because its scope involves not only OKI and local governments but also other organizations whose involvement will be needed, and with whom OKI hopes to work on a policy level.

14 Trends, Goals, Objectives and Policies Transportation 27 Public Facilities - 11 Natural Systems - 14 Housing - 16 Economic Development - 12 Land Use - 21 The strategic plan has an overall vision plus 6 subject areas and a total of 101 policies that address the LUC s mission, vision, strategic issues and goals and objectives. There is a strong and repeated emphasis on better local comprehensive plans and local implementing ordinances because when the timing, location and cost of land development and infrastructure is based on a solid local plan, the region gets better transportation projects.

15 Two Reoccurring Themes The importance of effective local comprehensive plans. We can t afford to continue current trends. So there are two recurring themes in the plan: First, recognizing the importance of effective local comprehensive plans; and second, acknowledging that we can t afford the current land use trends in our region with the needs they generate for transportation facilities and services. Hold that thought for a moment while Larisa Sims briefly describes how we re implementing the strategic plan.

16 OKI s Transportation Prioritization Process The Transportation Improvement Program is the short-range portion of the region s Long Range Transportation Plan. The TIP is a program of publicly funded transportation improvements for the OKI region. OKI produces the TIP on a biennial basis, each edition covers a period of four years. One way our Board wanted to implement the strategic plan was to tie it in to our TIP (or transportation improvement program). The TIP is the short-range element of the OKI Long Range Plan. OKI receives a portion of Federal Funding to allocate to projects in the region. Capacity adding projects must be listing in the Long range plan before they can be included in the TIP. Other projects, however, may also be funded if they meet the goals of the LRP. OKI produces the TIP on a biennial basis, and each edition covers a period of four years.

17 Evaluation Process Projects separated Highway & transit Projects scored for Transportation Factors (separate highway & transit factors) Projects scored for Planning Factors Transportation Factors & Planning Factors totaled; rudimentary Benefit/Cost Analysis completed. Considered factors also include safety, LOS, environmental justice, matching local funds, travel modes and now For those of you that are unfamiliar with this application process for federal funding through OKI, the review procedure includes these steps. Projects are separated into highway or transit projects and are scored separately for transportation factors. Example of a transit project would be replacement buses. Both types of projects are then scored for planning factors. Projects are ranked based on the total of transportation and planning factors. There are a total of 105 points is available. Considered factors also include safety, LOS, environmental justice, matching local funds, travel modes and now

18 OKI s Transportation Prioritization Process A New Land Use Conformance Factor Is the project consistent with (further and implement) the jurisdictions comprehensive plan? 5 points - Land Use Consistent--comprehensive plan complete & current 3 points - Conformance Consistent-- comprehensive plan needs improvement 0 points - Inconsistent--no comprehensive plan Last year, for the first time a new land use conformance factor was added to OKI s TIP process. The land use factor awards points to projects that are consistent with local comprehensive plans. It was added to help implement OKI s Strategic Regional Policy Plan. Again, one of the recurring themes within the SRPP is that complete and current local comprehensive plans are the key to a more efficient multi-modal regional transportation system. So now OKI is connecting project funding to comprehensive planning. Projects can receive up to 5 points (out of a total of 105) for being consistent with a complete and up-to-date comprehensive plan. The addition of this evaluation factor increases the importance of the land use and transportation relationship.

19 Model Plan Guidelines Elements of an Effective Local Comprehensive Plan Minimum Elements of a Local Comprehensive Plan (Summary) Making the Most of Limited Taxpayer Dollars We have also produced several documents that we hope will be helpful for local governments related to complete and current comprehensive plans. Elements of an Effective Local Comprehensive Plan, a 55-page guidance document that is very detailed in terms of contents and processes. We hope it will be useful for planning staff and it is meant to be scaled to local circumstances and resources. When we distribute that document, we like to have one-on-one personal discussion about it with whoever might be interested in using it. In fact, we have already met with several jurisdictions to discuss this and to offer it as assistance for those updating their comp plan Minimum Elements of a Local Comprehensive Plan, is a six-page summary of the longer guidance with background about why OKI is interested in linking regional transportation planning with local land use planning and other documents and resources. It is a more general document. Making the Most of Limited Taxpayer Dollars, this is a one-pager which summarizes what OKI is doing and why local governments would care about it. Contains a number of references to sections in the larger guidance doc. We put these documents together not only because of the importance of coordination between long term transportation planning and local land use planning, but also because of the new relationship between transportation funding prioritization and comprehensive planning that we just discussed.

20 Comprehensive Plan Contents Public Participation Data and Analysis Goals, Objectives and POLICIES Level of Service Management Transportation Housing Public Facilities and Services Natural Systems Economic Development Intergovernmental Coordination Capital Improvements Land Use Implementation Monitoring & Evaluation This is a list of things that are valuable within a comprehensive plan. Most of these topics are frequently addressed in some way around the region. But there are a few topics that are not typical for comprehensive plans in this area. We recommend including an approach to LOS Management and a Capital Improvements element. These enhance a plan by tying the plan to infrastructure improvements and a budget. Similarly writing an intergovernmental coordination element is eye-opening because it focuses on all the relationships that your jurisdiction has or should have with neighboring communities, state & federal agencies, water & sewer providers, school districts, police & fire depts, hospitals, park boards, & so on.

21 Community Choices: Example Ordinances Transit Friendly Development Bicycle and Pedestrian Connections Mixed Use Development Connectivity Corridor Overlays Infill Large Scale Retail Adequate Public Facilities See next page for notes

22 To help with comprehensive plan implementation, we produced a set of sample ordinances, with our commentary included, that we will post on OKI s website. All of the topics relate to the land use and transportation relationship. The strategic plan addresses these topics, but more important, they relate to transportation issues that any community might face. The strategic plan also envisions that local comprehensive plans will be implemented through local regulations and incentives that are consistent with such comprehensive plans. Transit/Bike/Ped Communities may be interested in increasing multi-modal opportunities by encouraging compact, mixed use, transit-friendly, pedestrian-oriented development and redevelopment provided for in their comprehensive plans. A mix of residential, retail and office uses in a project that is accessible to public transit, and higher housing densities near transit stops and neighborhood business centers can minimize the per-unit cost of public facilities and services. These techniques can also enable transportation options, they can reduce the number of vehicle trips, and can improve the health of the region. 1 In the Transit Friendly Development sample are Use/Density requirements, parking, multi modal transportation, and design standard. Topics in the Bicycle and Pedestrian Facility sample include sidewalks and paths, parking, traffic calming and safety, and pedestrian overlays. Mixed Use Communities may provide for mixed-use development in their comprehensive plans. Mixed use might be best in centers of population and employment. Many local governments in the Cincinnati region do not provide for mixed-uses. Compact, higher intensity, mixed-use, pedestrian-oriented development, uses less land, and can cost less - 25% less for roads, 15% less for utilities, 5% less for housing, and 2% less for other fiscal impacts. Topics within our sample include use mix and dimensional requirements, parking, and incentives Connectivity This topic addresses reducing congestion, increasing accessibility, walkability, and interconnectivity. Connectivity involves a system of streets providing multiple routes and connections to the same origins and destinations. Connectivity relates to how an entire area is connected by the street system, not only to the number of intersections along a street segment. Increasing connectivity can reduce vehicle miles traveled by providing a street and parking network designed for pedestrians, the disabled, bicyclists, transit, and automobiles. Considering connectivity during development reviews can also address increased traffic volume and safety impacts on existing arterial and collector roadway systems. 1 The notion of transit friendly development differs somewhat from transit oriented development. Many of the techniques used to implement the two types of development are similar. The goal of transit friendly development is to plan for a multi-modal environment, including a mix of uses that enables residents and visitors to have transportation options Transit oriented development specifically promotes transit as the major mode of transportation.

23 Topics within this sample ordinance include street design, block length, connectivity indexes, cul-de-sacs, cross access and bike/ped facilities. Corridors Many communities are concerned about increasing congestion and safety along major transportation corridors that are experiencing development pressures. Access management and preservation and maintenance of existing transportation facilities and corridors, can enable major corridors to better handle increased traffic flow; increasing safety for residents and visitors. Corridor Overlay zones typically address special conditions or needs in a given area, such as transportation. Topics within this sample ordinance include access management, pedestrian access, signage and lighting. Infill New development in areas where centers of population and employment already exist can take advantage of available public facilities and services at less cost to the taxpayer; however, infill must be enabled by local comprehensive plans and local zoning and subdivision regulations. Topics within this sample include building and site design, density and dimensional requirements, and landscaping. Large Scale Retail High-volume commercial developments and big box stores often locate near Interstate interchanges and are increasingly relied on to generate local revenues through increased sales taxes. Such commercial highway development has proven to be inefficient from the perspective of traffic flow, generating local trips that occupy Interstate capacity and tie up local intersections. Short vehicle trips between retail stores, services, and fast food outlets become more numerous. Each jurisdiction has different economic development needs. Some communities choose to encourage large scale retail development to stimulate the economy, and to bring in new sales tax revenues and jobs. Other communities are concerned about large scale retail s impacts on community character, the homogeneity of retail uses, potential traffic impacts and unanticipated demand for capital investment in public facilities and services. All of these factors lead to the desire in some communities to address these issues through zoning regulations. Topics in this sample ordinance include size of structures, design standards, parking, community spaces, tenant mix, site design and aesthetics. Again, the strategic regional policy plan envisions that local comprehensive plans will be implemented through zoning and subdivision regulations, such as these examples.

24 Fiscal Impact Analysis Model Measure the fiscal impact of a development or a land use scenario on the costs and revenues of the governmental unit(s) serving the development. Useful for analyzing the financial implications of alternative land use plans, small area plans, large annexations, build-out scenarios, large rezoning and planned unit developments. We think this is the most exiting and promising tool we ve looked into. Fiscal impact models can be used to evaluate impacts of future land use plans and large development proposals on local government budgets. There are many communities throughout the nation that are using or developing fiscal impact modeling systems. Those models vary in sophistication, in purpose and scope, and in results. We have been investigating some of these models. Specifically, the FIT model from the federal reserve, and the Fiscal Impact Analysis Model from the State of Florida, which is currently undergoing its third revision. Additionally, ODOT is examining a fiscal impact analysis model as part of a project related to the Eastern Corridor Study. So we are investigating our options for providing a model in our area. There is great interest and potential for tool of this sort for the region.

25 Analysis Models OKI Visualization GIS/3D Fly Through 3D Visualization Traffic Simulation Other Scenario Models CITYgreen itree CommunityViz INDEX ArcGIS Network Analyst A picture is worth a thousand words. OKI possesses software that can fly the viewer across a study area, zoom in on, and pan around, a 3D image of an intersection or street segment to illustrate, say, better access management or traffic flow. Our traffic simulation capability ties in to our transportation model, so decision makers can see the traffic behave as the model predicts. Also listed here are some additional visualization products. Many of these programs are GIS based. City Green and itree are forestry related and can quantify benefits related to air quality, stormwater runoff, energy conservation and property value increases. CommunityViz can provide digital, interactive and 3D scenarios based on local decisions for community planning and design. INDEX is another scenario tools that can evaluate alternative plans, includes a digital charrette tool and A tool for evaluating land-use and transportation scenarios. The ArcView Network Analyst extension enables users to find the most efficient travel route, generate travel directions, or defining service areas based on travel time.

26 Contact Info Bill Miller Regional Planning Manager Larisa Sims Senior Planner Jane Wittke Senior Planner OKI Regional Council of Governments 720 East Pete Rose Way Suite 420 Cincinnati, OH

27 Contact Info D I S C U S S I O N... Questions?