HomeMy WebLinkAboutMINUTES - 07192005 - D2 IO: BOARD:-OF SUPERVISORS
FROM: DENNIS M. BARRY, AICP ' , . Contra
COMMUNITY DEVELOPMENT DIRECTOR Costa
County
DATE: July 19, 2005lop,
SUBJECT: Metropolitan Transportation Commissions' Transit Oriented Development Policy for
Regional Transit Expansion Projects
SPECIFIC REQUEST(S) OR RECOMMENDATION(S) & BACKGROUND AND JUSTIFICATION
RECOMMENDATIONS
ACCEPT report on the Metropolitan Transportation Commission's (MTC's) Transit
Oriented Development Policy for Regional Transit Expansion Projects.
FISCAL IMPACT
None at this time. This policy, if adopted, will create a new mandate on local
jurisdictions to initiate General Plan studies at proposed transit stations. In Contra
Costa, General Plan studies are funded by the project applicant. MTC and the Bay
Area Rapid Transit District (BART) have earmarked funds to help cover these costs for
the East Contra Costa BART Extension project, also known as "eBART'.
BACKGROUND/REASONS FOR RECOMMENDATIONS
On, June 14, the Board of Supervisor accepted a report on the eBART project, and
directed staff to schedule a presentation to the Board on MTC's Transit Oriented
Development (TOD) Policy. On June 22, 2005, MTC released a revised draft of this
policy (see Exhibit A). James Corless, MTC Senior Planner, has been invited to present
this policy to the Board. The remainder of this report provides background on how the
TOD policy affects Contra,Costa County.
CONTINUED ON ATTACHMENT:. X YES SIGNATURE /'1 0
vRECOMMENDATION OF COUNTY ADMINISTRATOR RECOMMENDATION OF BOARD COMM EE
APPROVE _OTHER
SIGNATURE(S):
ACTION OF BO ON ./o /7 o'�Da.S' APPROVED AS RECOMMENDED
441W
VOTE OF SUPERVISORS
I HEREBY CERTIFY THAT THIS IS A TRUE
UNANIMOUS (ABSENT rL 1 AND CORRECT COPY OF AN ACTION TAKEN
AYES: NOES: AND ENTERED ON THE MINUTES OF THE
ABSENT: ABSTAIN: BOARD OF SUPERVISORS ON THE DATE
SHOWN.
Contact: Steven Goetz (925/335-1240)
cc: P. Roche, CDD ATTESTED ��/�
J. Kennedy, CDD JOHN S�1N STEN, CLERK OF
M. Shiu, PWD THE BOARD OF SUPERVISORS
J. Corless, MTC ND COUNTY ADMINISTRATOR
BY � DEPUTY
MTC's Transit Oriented Development Policy for Regional Transit Expansion Projects
July 19, 2005
Page 2
BACKGROUND/REASONS FOR RECOMMENDATIONS (Continued)
There is a substantial gap between the request for transit expansion projects and even
the most optimistic forecast for transit funding. Similarly, long range forecasts indicate
that it will be increasingly difficult for Bay Area transit operators to balance transit
operating costs with fares and other operating revenue. One strategy MTC is using to
address these problems is to connect transit expansion projects with local land use
decisions. The intended outcome is to generate a greater share of transit revenue from
ridership, making transit more cost-effective and allowing even further expansion of
transit services in the Bay Area. This is the primary purpose of MTC's TOD policy.
The TOD policy only applies to transit expansion projects included in MTC's Regional
Transportation Plan. The transit expansion projects in Contra Costa that are subject to
the TOD policy are the eBART project proposed by BART, and the ferry service for
Richmond, Hercules and Antioch proposed by the Water Transit Authority. These
Contra Costa projects have only partial commitments for funding. Regional funds
controlled by MTC will be needed to fully fund these projects. Under the TOD policy, no
regional funds will be dedicated for construction until the requirements of this policy
have been satisfied.
MTC staff is proposing that each transit extension project must plan for a minimum
number of housing units along the corridor. The minimum number of housing units can
be met through current development within a half-mile radius of each transit stop or
through a local jurisdiction's adoption of appropriate General Plan policies and related
implementation mechanisms for these areas. MTC will consider adopting the TOD
policy on July 22nd.
As you know, BART also has a system expansion policy that links expansion of the
BART system with local land use decisions. BART is applying their policy to the eBART
project. The BART policy establishes a minimum ridership threshold for this transit
corridor. Local jurisdictions must demonstrate that this ridership threshold can be
achieved before BART will adopt the eBART.project and proceed with implementation.
A Memorandum of Understanding is being considered by the eBART participants,
including the County, which will define responsibilities for demonstrating compliance
with the BART system expansion policy.
Some Regional Transportation Planning Committees and the Contra Costa
Transportation Authority have significant concerns regarding MTC's TOD policy. They
view the policy as an unnecessary intrusion on a jurisdiction's land use authority.
Jurisdictions in eastern Contra Costa find it particularly objectionable that MTC is
imposing its TOD policy on the eBART project which already must comply with the
separate requirements of BART's system expansion policy. Recent correspondence
describing the concerns of these agencies is included as Exhibits B, C and D.
The County's General Plan supports transit oriented development. Examples include
Specific Plans that require compact mixed-use development, which have been adopted
for the Pleasant Hill BART Station area in 1983 and for the Pittsburg/Bay Point BART
Station area in 2002, However,.the BART and MTC policies have not been applied to
previous planning efforts.
The County has commented to BART that its system expansion policy needs to
11 all a 0 is acknowledge that each junaiction unique and has different abilities to generate
transit ridership. The proposed eBART station in Byron/Discovery Bay is located near
the County Agricultural Core and in a community with significant sewer and drainage
constraints which will limit the ability to support transit oriented development at this
location. The BART and MTC policies address this concern by establishing ridership or
development requirements that are to be met by the transit corridor rather than by each
transit station individually. The concern of local jurisdictions is that the BART or MTC
policy will impose a land use change that would be in fundamental conflict with their
General Plan.
Exhibit A: Revised Draft of MTC's TOD policy,June 22, 2005
Exhibit B: June 17 Authority letter to Jon Rubin, MTC Chair
Exhibit C: June 7 Transplan Committee letter to Jon Rubin, MTC Chair
Exhibit D: May 24 Transpac Transportation Partnership and Cooperation letter to Jon Rubin, MTC Chair
EXHIBIT A
METROPOLITAN Joseph R Bort MetroCenter
T TRANSPORTATION 101 Eighth Street
Oakland,CA 94607-4700
COMMISSION Tel:510.464.7700
'I'IY/TDD:510.464.7769
Fax:510.464.7848
e-mail:inf6@mtc.dst.ca.us
Memorandum
TO: Planning and Operations Committee DATE: June 22, 2005
FR: Executive Director
RE: Resolution 3434,Revised: Transit Oriented Development(TOD)Policy
At your June 10 meeting, you considered a proposal for a Transit-Oriented Development(TOD)
Policy for transit extension projects funded with regional discretionary dollars under Resolution
3434. After much discussion,the Committee voted to delay adoption of the policy for one
month, and asked staff to return to the July 8 Committee meeting with a proposal that would
address two key policy issues: (1)the potential to remove the combined jobs and housing
threshold while raising the housing minimum threshold; and(2)the promotion of affordable
housing near transit stations through either incentives or specific requirements. Additionally,we
have addressed comments and suggested other changes in the draft policy as noted in(3)below.
1. Jobs &Housing vs. Housing-Only Thresholds
The jobs and housing thresholds as previously proposed provided a quantitative measure of
transit-oriented development for each of the new extension corridors and emphasize two of the
most essential ingredients for boosting transit ridership—housing and jobs within walking
distance of transit stations. At your June 10 meeting, some members of the Planning and
Operations Committee expressed concern that quantifying jobs at the local level is cumbersome
and may overshadow the importance of producing more housing near transit stations. Other
Committee members felt that maintaining employment as part of an overall combined threshold
is an important strategy to promote mixed use along each of the corridors.
Staff is forwarding the following two options for consideration, as shown below:
(a)Establish a housing-only threshold, at a level 10%higher than previously
proposed, on a corridor-wide basis for all transit modes (see Table 1).
(b)Establish a combined jobs and housing threshold that incorporates the higher
housing minimum from above, and also includes a combined jobs and housing
threshold that is 10% lower than previously proposed(see Table 2).
Memo to POC—Resolution 3434 Update
July 8, 2005
Page 2
Project
Type
Commuter
BART Light Rail Bus Rapid Rail Ferry
eshold Transit
Housing
Threshold 3,850 39300 29750 2,200 750
Project
Type
Commuter
BART Light Rail Bus Rapid Rail Ferry
eshold Transit
Housing Unit 31850 31,300 23,750 2,200 750
Minimum
Combined
Housing Units 25000
and Jobs 115700 73,200 59400 4,500
Threshold
Staff recommends the first option, as shown in Table 1,using only housing for the corridor
threshold requirements. We support this focus on housing based on the region's severe
undersupply of housing and the stronger nexus between housing and transit ridership. This
option also establishes a simpler and more straightforward policy for the purposes of
http://www.mtc-ca-gov/planning/smart_growth/tod/Resolution-3434—memo.doc
• Memo to POC—Resolution 3434 Update
July 8, 2005
Page 3
implementation. Transit-oriented development does need to include jobs, and mixed use is
essential for successful transit-oriented stations. However, our experience dictates that it is not
necessary for MTC to provide additional incentives for local governments to plan for
employment. Local jurisdictions will continue to promote and permit jobs to the extent that the
market will support them.
The issues of mixed use development and creating space for locally-serving retail can be
addressed in station area plans and local zoning, and we have added language in the Station Area
Plans section of the attached policy to encourage this outcome. (Note that the recommended
threshold for ferries has been increased by more than 10 percent in both options,based on
follow-up detailed analysis and discussions with the Water Transit Authority and affected local
jurisdictions.)
2. Affordable Housing Provisions
Planning for affordable housing in station areas is another significant issue due to the fact that
lower income residents have a higher propensity to take transit, In concert with the strengthened
housing minimums suggested above,we are recommending stronger provisions for affordable
housing. We have defined the following options for the Commission's consideration:
(a) Strengthen the incentive provisions of the draft TOD policy to provide
additional weight for"below market"housing(as defined in the draft TOD
Policy)—specifically to increase the bonus from 20%to 50% for new affordable
units compared with market rate units. To illustrate, consider a corridor that has to
plan for an additional 10,000 housing units to meet the housing threshold. If the
jurisdictions plan for 2,000 affordable units,these affordable units would be
"counted"as 3,000 units (2,000 affordable units x 1.5 bonus per unit). In this
example,jurisdictions along the corridor could satisfy the requirement to plan for
10,000 new housing units by zoning for 7,000 market rate units and 2,000 below
market rate units.
(b)Require that each city along a transit corridor either have an inclusionary
zoning requirement(with the exact percentage to be determined by each city), or
provide a minimum of 15 percent of new housing in a station area that will meet
the definition of"below market" as defined in the TOD policy.
Staff recommends option(a) for two reasons. First, almost all the cities in Resolution 3434
corridors already have inclusionary zoning requirements. The few cities that do not would
typically be required to incorporate affordable housing due to their inclusion in a redevelopment
area,which incorporates a state inclusionary zoning mandate of 20 percent. Therefore, it appears
that a requirement for inclusionary housing would have very little impact on development around
the stations. Second,the increased incentive works in concert with the higher housing thresholds
http://www.mtc-ca-gov/planning/smart,arowth/tod/Resolution-3434—memo.doc
Memo to POC—Resolution 3434 Update
July 8, 2005
Page 4
that are suggested above,providing an additional tool for local jurisdictions to meet these higher
thresholds with additional affordable housing.
3. Additional Proposed Changes to the TOD Policy
In addition to the issues above, staff is proposing the following changes to the TOD policy
0
summanzed below and shown in strikeout in the attached policy:
• Clarification that optional stations will not be counted towards the corridor
thresholds for the purposes of satisfying the policy.
• New emphasis on planning to provide access for persons with disabilities as part
of the development of Station Area Plans.
• Clarification that the Oakland Airport Connector project, as a one station
extension to an international airport, is exempt from the TOD policy because
housing construction is infeasible at the extension station.
Next Steps
Staff is releasing this memo and the attached revisions to the TOD policy in advance of the July
Planning and Operations Committee and Commission meetings in order to continue to allow for
public comment on the proposal.
Steve Heminger
Attachments
http://www.mtc.ca.gov/planning/smart growth/tod/Resolution 3434 memo.doc
ATTACHMENT
MTC RESOLUTION 3434 TOD POLICY
FOR REGIONAL TRANSIT EXPANSION PROJECTS
1. Purpose
The San Francisco Bay Area-widely recognized for its beauty and innovation-is projected to
grow by almost two million people and one and a half million jobs by 2030. This presents a
daunting challenge to the sustainability and the quality of life in the region. Where and how we
accommodate this future growth,in particular where people live and work,will help determine how
effectively the transportation system can handle this growth.
The more people who live,work and study in close proximity to public transit stations and
corridors,the more likely they are to use the transit systems, and more transit riders means fewer
vehicles competing for valuable road space. The policy also provides support for a growing
market demand for more vibrant,walkable and transit convenient lifestyles by stimulating the
construction of at least 4842,000 new housing units along the region's major new transit corridors
and will help to contribute to a forecasted 59%increase in transit ridership by the year 2030.
This 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. The policy ensures that transportation
agencies, local jurisdictions,members of the public and the private sector work together to create
development patterns that are more supportive of transit.
There are three key elements of the regional TOD policy:
(a) Corridor-level thresholds to quantify appropriate minimum levels of
development around transit stations along new corridors;
(b)Local station area plans that address future land use changes, station access
needs,circulation improvements,pedestrian-friendly design, and other key
features in atransit-oriented development; and
(c) Corridor working groups that bring together CMAs, city and county planning
staff,transit agencies, and other key stakeholders to define expectations,
timelines,roles and responsibilities for key stages of the transit project
development process.
2. TOD Policv A
,pplication
The TOD policy only applies to physical transit extensions funded in Resolution 3434(see Table
3l). The policy applies to any physical transit extension project with regional discretionary funds,
regardless of level of funding. Resolution 3434 investments that only entail level of service
improvements or other enhancements without physically extending the system are not subject to the
'Memo to POC—Resolution 3434 Update
July 8, 2005
Page 2
TABLE 1
Resolution 3434 Transit Extension Projects Subject to Corridor Thresholds
Project Sponsor TypeF. breshold is
met with current
d.eve1.opn.ie'-'1-.nt?
Commuter
I BART East Contra Costa Rail Extension BART/CCTA. Rail No
BART—Downtown Fremont to San Jose/
Santa Clara
(a)BART BART No
(a)Fremont to Warm Springs (b)VTA extension
(b)Warm Springs to San Jose/Santa Clara
AC Transit Berkeley/Oakland/San Leandro Bus Rapid
Bus Rapid Transit: Phase 1 AC Transit Transit Yes
Caltrain Downtown Extension/Rebuilt Commuter
I
Transbay Terminal TJPA Rail des
MUNI Third Street LRT Project Phase 2— mum
I New Central Subway Light Rail Yes
Commuter
Sonoma-Marin Rail SMART Rail No
SMTAI,
ACCMA,VTA,
ACTIA, Capitol Commuter
Dumbarton Rail Corridor Rail No
.&-04 IL.ILN-A.f .1 X.A W t LIL A Nwe%0141 W I RAIRITI.
Expanded Ferry Service Phase 1: Berkeley,
Alameda/Oakland/Harbor Bay., and South San
Francisco to SF(Note 1) WTA Ferry No
Expanded Ferry Service Phase 2: Alameda to
South San Francisco, and Hercules,Antioch,
Treasure Island,Redwood City and Richmond
to SF. (Note_1) I WTA I Ferry__
Note 1: The WTA Ferry Expansion "Corridor"for the purposes of the TOD policy consists of all new
terminals planned in Phase 1 and Phase 2.
%..r r I 1 6.it 1k-V F V I&k-Y f6 W.F 91 Af OP%.4 A-4 V I i-f I k-4 I&7#--Y 9,&Loog, 9-W I t 6-A%.ILP V f I I%a W..f r IL11-1 4.9.1*
4, 04 macig4111 Axa-1
fit A.f 1 111 11.1 f tj
S:\zoetzlResolution 3434 TODpolicy.doc : _243d Rtai,6 aa CIS dan
'Memo to POC—Resolution 3434 Update
July 8,2005
Page 3
TOD policy requirements. Single station extensions to international airports are not subject to the
TOD policy due to the infe-a_s1*.bfitv of housing development
3. Definitions and Conditions of Funding
For purposes of this policy"regional discretionary funding"consists of the following sources
identified in the Resolution 3434 funding plan:
• FTA Section 5309-New Starts
• FTA Section 5309-Bus and Bus Facilities Discretionary
• FTA Section 5309-Rail Modernization
• Regional Measure 1-Rail(bridge tolls)
• Regional Measure 2 (bridge tolls)
• Interregional Transportation Improvement Program
• Interregional Transportation Improvement Program-Intercity rail
• Federal Ferryboat Discretionary
• AB 1171 (bridge tolls)
I • CARB-Carl Moyer/AB434(Bay Area Air Quality Management District) 1
These regional funds maybe programmed and allocated for environmental and design related work,
in preparation for addressing the requirements of the TOD policy. Regional funds maybe
programmed and allocated for right-of-way acquisition in advance of meeting all requirements in
the policy, if land preservation for TOD purposes is essential. No regional funds will be
programmed and allocated for construction until the requirements of this policy have been satisfied.
See Table 2 for a more detailed overview of the planning process.
4. Corridor-Level Thresholds
Each transit extension project funded in Resolution 3434 must plan for a minimum number of
housing units along the corridor. These corridor-
level thresholds vary by mode of transit,with more capital-intensive modes requiring higher
numbers of housing units -(see Table 34-). The corridor thresholds have been developed
based on potential for increased transit ridership, exemplary existing station sites in the Bay Area,
local general plan data,predicted market demand for TOD-oriented housing-��l;e*1%n�in each
county, and an independent analysis of feasible development potential in each transit corridor.
�The Carl Mover funds and AB 434 funds are controlled directly by the California Air Resources Board and Bay Area Air
Management District. Res.3434 identifies these funds for the Caltrain electrification project which is not subject to the TOD policy
S:\metzlResolution 3434 TODpolicy.doc :` _ _,
I
0 0 Memo to POC-Resolution 3434 Update I
July 8, 2005
Page 4
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Final Design Adopt Station Area Plans, Regional and county
Revise general plan policies and agencies assist local
zoning, environmental reviews jurisdictions in
implementing station
area plans
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• Memo to POC—Resolution 3434 Update
July 8, 2005
Page 5
Project
Type
BART Light Rail Bus Rapid Commuter Rail Ferry
Threshold Transit
G-1%ap i M L i Lb J*L J Lux'%Q1 El- A.W,--*0,NJ 11 NJ W%J NJ X/W
Housing i T
Threshold %'Y AW �}g.8-}
J. 111 3,850 3,300 2,750 2,200 750
Each corridor is evaluated for the��� Housing -iPs', ��.k��-Threshold. ��'
for 6,45 'i WJ 91,
For example, a four station commuter rail extension(including the existing end-of-the-line station)would be
required to meet acorridor-level threshold of� , � 8,800 housing units. Tlitiaeoan-idorinuytMe
ths-achoald upith a ;CR 01013 hQ21411"QC sisaitc thip diA';,-sx!3flee
eal-Whi "tin"achoom-
Threshold figures above are an average per station area based on both existing land uses and planned
development within a halfmile of all stations.New below market rate housing is provided aASO%bonus
towards meeting housing unit threshold.
• Meeting the corridor level thresholds requires that within a half mile of all stations, a
combination of existing land uses and planned land uses meets or exceeds the overall
corridor threshold for housing-anal-��s(listed—---------------in�ee Table-1 3);
• Physical transit extension projects that do not currently meet the corridor thresholds with
development that is already built will receive the highest priority for the award of MTC's
Station Area Planning Grants.
• To be counted toward the threshold,planned land uses must be adopted ^* ^ A. H„M
through beAh-general plans.,and the appropriate implementation processes must be put in
place, such as zoning codes. General plan language alone without supportive
implementation policies, such as zoning,. ges is not sufficient for the purposes of this
S:\RoetzlResolution 3434 TODpolicv.doc .
• Memo to POC—Resolution 3434 Update
July 8,2005
Page 6
policy. Ideally,planned land uses will be formally adopted through a specific plan(or
equivalent),zoning codes and general plan amendments along with an accompanying
programmatic Environmental Impact Report(EIR) as part of the overall station area
planning process. Minimum densities will be used in the calculations to assess achievement
of the thresholds.
• An existing end station is included as part of the transit corridor for the purposes of
calculating the corridor thresholds; optional stations will not be included in calculating the
corridor thresholds.
• New below-market housing units will receive aX8-50 percent bonus toward meeting the
corridor threshold(i.e. one planned below-market housing unit counts for 1.5-2 housing units
for the purposes of meeting the corridor threshold. Below market for the purposes of the
Resolution 3434 TOD policy is affordable to 60%of area median income for rental units and
100%of area median income for owner-occupied units);
• The local jurisdictions in each corridor will determine job and housing placement,type,
density, and design.
• The Corridor Working Groups are encouraged to plan for a level of housing that will
significantly exceed the housing unit " " thresholds stated here during the planning
process. This will ensure that the Housing Unit"4y_"y Threshold is exceeded corridor-
wide and that the ridership potential from TOD "«r'�y�'� �� '�y��•-�•�
....aay.ai.au.iax 11.�..L V.LYTTi c
+hrhn
is maximized.
5. Station Area Plans
Each proposed physical transit exteils:i.on 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 and meets the
threshold. This requirement maybe met by existing station area plans accompanied by appropriate
zoning and implementation mechanisms. If new station area plans are needed to meet the corridor
threshold,MTC will assist in funding the plans. The Station Area Plans shall be conducted by local
governments in coordination with transit agencies,Association of Bay Area Governments(ABAG),
MTC and the Congestion Management Agencies (CMAs).
I Station Area Plans are opportunities to define vibrant mixed use, accessible transit villages and
quality transit-oriented development—places where people will want to live,work, shop and spend
time.-These plans should incorporate mixed-use developments, including new housing,
neighborhood serving retail, employment, schools, day care centers,parks and other amenities to
serve the local community.
At a minimum, Station Area Plans will define both the land use plan for the area as well as the
policies—zoning, design standards,parking policies, etc.—for implementation. The plans shall at a
minimum include the following elements:
• Current and proposed land use by type of use and density within the Y2mile radius,with a clear
identification of the number of existing and planned housing units and jobs;
S:1Roetz\Resolution 3434 TODolicv.doc :`
• ' Memo to POC—Resolution 3434 Update
July 8,2005
Page 7
• Station access and circulation plans for motorized,non-motorized and transit access. The
I station area plan should clearly identify any barriers for pedestrian,-7bicYCIe and wheelchair
access to the station from surrounding neighborhoods(e.g., freeways,railroad tracks, arterials
with inadequate pedestrian crossings), and should propose strategies that will remove these
barriers and maximize the number of residents and employees that can plc--teaccess the station_
by these means. The station area and transit village public spaces shall be made accessible to
persons with disabilities.
• Estimates of transit riders walking from the half mile station area to the transit station to use
transit;
I • Transit village design policies and standards, including ��y.��QU .&W.L
Car-mixed use developments
and pedestrian-scaled block size,to promote the livability and walkability of the station area;
• TOD-oriented parking demand and parking requirements for station area land uses, including
consideration of pricing and provisions for shared parking;
• Implementation plan for the station area plan, including local policies required for development
per the plan,market demand for the proposed development,potential phasing of development
and demand analysis for proposed development.
The Station Area Plans shall be conducted using existing TOD design guidelines that have already
been developed by ABAG, local jurisdictions,transit agencies,the CMAs and others. MTC will
work with ABAG to provide more specific guidance on the issues listed above that must be
addressed in the station area plans and references and information to support this effort. MTC is
conducting an analysis of parking policies that will be made available when complete, and shall be
considered in developing local parking policies for TODs.
6. Corridor Working Groups
The goal of the Corridor Working Groups is create a more coordinated approach to planning for
transit-oriented development along Resolution 3434 transit corridors. Each of the transit extensions
subject to the corridor threshold process, as identified in Table-3l,-will need a Corridor Working
Group,unless the current level of development already meets the corridor threshold. . of
the corridors already have a transit project working group that maybe adjusted to take on this role.
The Corridor Working Group shall be coordinated by the relevant CMAs., and will include the
sponsoring transit agency,the local jurisdictions in the corridor, and representatives from ABAG,
MTC, and other parties as appropriate.
The Corridor Working Group will assess whether the planned level of development satisfies the
corridor threshold as defined for the mode, and assist in addressing any deficit in meeting the
threshold by working to identify opportunities and strategies at the local level. This will include the
key task of distributing the required housing units �-iehs-to each of the affected station sites
within the defined corridors c ^.,*';„aa i:n Tah,a 3_;The Corridor Working Group will continue
with corridor evaluation= station area planning, and.any necessary refinements to station.
locations until the corridor threshold is met and supporting Station Area Plans are adopted by the
local jurisdictions.
S:\aoetzlResolution 3434 TODpolicv.doc
• Memo to POC—Resolution 3434 Update
July 8, 2005
Page 8
MTC will confirm that each corridor meets the Jobshousing threshold prior to the release of
regional discretionary funds for construction of the transit project.
Dar EIAG
3A3J
S:\goetz.\Resolution 3434 TOD policv.docl-.\4cOAd'h4lxx]RN121:q
EXHIBIT B ATTACHMENT A
CONTRA COSTA TRANSPORTATION AUTHORITY
COMMISSIONERS: June 17,2005
Hon. Jon Rubin,Chairman
Metropolitan Transportation Commission
Janet Abe/son 101 Eighth Street
Chair Oakland,CA 94607-4700
Donald Freitas
Vice-Chair RE: MTC's Draft Transit Oriented Development(TOD)Policy
Dear Chair Rubin:
Charlie Abrams
Maria Alegria At its meeting of June 15,2005,the Authority directed that a letter be sent to your
Commission expressing our appreciation for the response of your Planning and Operations
Newell Arnerich Committee(POC)to our letter of May 19,2005 and the concerns raised therein. POC's
John Gioia recommendations would(1)focus the proposed TOD policy solely on housing targets within
Y2 mile of prospective transit stations rather than on the much greater jobs housing target, (2)
Federal Glover consider in more detail the feasibility of specific numerical targets for housing, and(3)defer
Mike Metcalf adoption of the policy for one month to slightly adjust the housing targets. We support the
development of realistic housing numbers for the eBART corridor and urge you to take
Brad Nix sufficient time to do so.
Julie Pierce We acknowledge the significant effort invested by POC Chair Jim Spering,Commissioner
Viramontes Mark DeSaulnier, and your staff—Executive Director Steve Heminger,Deputy Therese
McMillan and James Corless—who met with East County and BART elected officials,
Authority staff and BART staff to review our concerns in more detail. We appreciated their
Robert K.McCleary vocal support for the eBART project. We also appreciated the field tours by MTC
Executive Director Commissioners and staff of the prospective eBART station sites and discussions with local
officials leading up to POC's June 10,'meeting. In our view,these steps gave us an
opportunity to further explain our very real concerns about the policy as originally proposed,
and its potentially devastating impact on the feasibility of eBART.
The Authority continues to be very supportive of transit-oriented development where it is
Hookston Square feasible and consistent with local plans. We are working closely with BART to develop a
34 78 Buskirk A ve corridor plan for eBART, including land use development patterns,to provide reasonable
Suite 100 assurance of a financially feasible eBART. In that context,we request that MTC not adopt
Pleasant Hill final numerical housing targets for eBART station areas until we have completed our
CA 94523 estimates of both what is realistic for the corridor housing targets,and what is necessary to
comply with BART's requirements for "Ridership Development Plans".
PHONE:
9251407-0121 We appreciate and support POC's proposed changes to your draft TOD policy,and ask that
FAX.- you work collaboratively with us,BART,and East County jurisdictions to promote both
9251407-0128 %_01
completion of the lona-awaited extension of BART service,and feasible TOD and housing
around eBART stations.
h ttp.-11Www cc ta.net
Sincerely,
1'.
Yk.
TI,
Janet Abelson
Chairperson
C.C. Authority members;Irma Anderson;Mark DeSaulnier
EXHIBIT C - ---- -
TRANSPLAN Committee
East Contra Costa Transportation Planning
Antioch * Brentwood 9 Oakley * Pittsburg & Contra Costa County
June 7, ?005
Jon Rubin
Chair
Metropolitan Transportation Commission
101 Eighth Street
Oakland CA 94607
Dear Chair Rubin:
I am writing to express our serious concerns with the Draft Transit-Oriented Development Policy
drafted by the Metropolitan Transportation,Commission. I hope MTC will consider this input as
it prepares for its Planning and Operations Committee meeting on June 10*
The TRANSPLAN Committee is a joint powers agency that coordinates the transportation
interests of the five local jurisdictions of eastern Contra Costa County. TRANSPLAN is
composed of local elected officials and planning commissioners. We are the designated regional
transportation planning committee for eastern Contra Costa, within the countywide
-. transportation planning and growth management program overseen by the Contra Costa
�, Transportation Authority. It is our region in which the planned eBART system is being
developed, in a collaborative effort between our local jurisdictions, BART, and the Contra Costa
Transportation Authority.,
It is regrettable that MTC apparently has declined our request to extend its deadline for
approving the final policy for a few more months, to give our local staffs and policy-makers a
chance to fully understand the policy and gauge its impacts on our communities.
Following are the specific concerns we have with the Draft TOD Policy.
First, we believe the policy is unnecessary. The eastern Contra Costa jurisdictions already are
working with BART on ridership development plans to generate as much ridership as possible
for eBART. This work,-in-progress will meet the needs of both BART and the local
jurisdictions, and is being developed cooperatively as part of the eBART project development
process. East Contra Costa appreciates the funding contribution MTC has made to this effort.
The planning effort will address the "three key elements" of your draft TOD policy(corridor
level goals, local station-area plans that address land use and other items, and corridor working
groups that bring together various agencies). Since we are addressing these items in our work
with BART, the MTC policy is unnecessary.
-letter to Jon Rubin, MTC
-June 7 2005
Second, we question whether the $96 million in eBART funds from Regional Measure 2 should
even be subject to the TOD Policy, which MTC states will be applied to "regional discretionary"
fiends. By MTC's own definition, funds allocated to a specific project through a ballot measure
are committed not discretionary. In MTC's ".2005 TiArn1voi"1Lt'(1011 I111pr'OVC'11?et1t PI-ogt•an7," thicnok
financial discussion in Appendix 12 differentiates between "committed" funds, which include
voter-approved ballot measures, and"uncommitted discretionary funding available to undertake
new projects and programs." The document explains that committed funds consist of those
committed "by law, voter mandates or recent MTC programming actions." Similarly, in MTC`s
"Alfoi-)ing C'osts:.A Transportation Finncling Guide.for the San Francisco Bny Area," none of the
voter-approved measures, whether bridge-toll or county sales-tax,are listed as "discretionary."
Nor did the voters, to our knowledge, approve MTC's TOD goal of"developing vibrant transit
villages" when they passed Regional Measure 2. While it may be a worthy goal where it is
applicable, the TOD goal should not be a factor in allocating committed funds approved by
voters in. Regional Measure 2. 1 also note the legislation that led to Regional Measure 2 --
Senator Perata's bill, SB 916 -- specifically indicated the eBART funds would be conditional on
meetinp, BART policies, not MTC policies.
Third, we see an inequity in MTC applying this new policy to the eBART Corridor, when MTC
historically has allocated substantial funding for rail extensions in other areas that, as far as we
know, did not have to comply with such a policy.
Fourth, the Draft TOD Policy does not seem to include any information that ties the TOD
development targets to ridership targets on eBART. This makes the development targets in
MTC's policy seem arbitrary and unrelated to the ridership targets on which we are working with
BART. Even if the target development numbers in MTC's TOD policy are achievable, that does
not mean they are necessary for a viable eBART system. This comment 1*s based on
TRANSPLAN staff's understanding of how MTC and its consultants developed the target
numbers. If this understanding is inaccurate please let us know.
Fifth, the TOD policy appears to impose land-use planning requirements on local governments.
As far as we are aware, MTC lacks the authority to do this. Another reflection of this is found in
a staff memo from MTC relating to the TOD policy. On page 2 of the"Memo to POC--
Resolution 3434 Update"dated May 13, 2005, MTC staff states "MTC ivill not require an);
IA in inininium ainount Of q-ffo dable housing the corridors... " We are not aware MTC has the
authority to require affordable housing. If MTC has been granted the authority through statute
to impose such requirements on local govenvnents, please let us know.
Sixth, the TOD policy (as far as we are aware) was developed without input from the
jurisdictions of eastern Contra Costa County, who stand the most to lose from it. Given that the
eBART Corridor is one of the "case study corridors" MTC used to develop the policy, it would
have been useful to gain eastern Contra Costa's input before MTC wrote the policy. As it is, our
role is limited to commenting on a policy that is already developed. MTC staff has indicated
they are now meeting with local planners, from eastern Contra Costa jurisdictions. Such
of
consultations would have been helpful earlier in the process before the TOD policy was written.
-letter to Jon Rubin, MTC
-June 7,2_005
Seventh and lastly, Nve believe there are other aspects of the eBART system that will have a
greater impact on ridership, such as the nature and location of the transfer point between eBART
and BART, the exact station locations, and frequency and quality of service, to name a few. The
TOD policy has been developed without knowing any of these details.
These criticisms aside, TRANSPLAN shares your belief in the need to coordinate land use
planning and transportation planning. We are confident this need will be addressed through the
ongoil'101 collaborative efforts between eastern Contra Costa County and BART. MTC's Draft
1__')
TOD Policy is unnecessary in the eBART Corridor, and the policy suffers from problems of
substance, process, timing, and inadequate communications.
If you have questions about this letter, please feel free to contact me. You also may have your
staff contact John Greitzer, TRANSPLAN staff, at(925) 335-1,4101. This issue will be on the
agenda of the TRANSPLAN Committee at its next monthly meeting on June 16.
Sincerely,
Ile
C
L
Aiulette Beckstrand
Chair
TRANSPLAN Committee
C: Members,'FRANSPLAN Committee
Members.eBART Partnership Policy Advisory Committee
Mark DeSaulnier,MTC Contra Costa County
Irma Anderson, N4TC Contra Costa Cities
Members,TRANSPLAN Technical Advisory Committee
City Managers of Antioch, Brentwood,Oakley and Pittsburg
Steve Heminger,MTC
Toni Margro,BART
Robert McCleary,Contra Costa Transportation Authority
Barbara Neustadterl,TRANSPAC
Patrick Roche,Contra Costa County
Ellen Smith, BART
EXHIBIT D
TRANSPAC Transportation Partnership and Cooperatian
Clayton, concord, Martinez; Pleasant Hill, Walnut Creek and Contra Costa County
1407 Oakland Boulevard, Suite 100, Walnut Creek, California 94596-4300 (925) 407-0351
The Honorable Jon Rubin, Chair May 24, 2005
Metropolitan Transportatian Commission
101 Eighth Street MAY 2 7 2005
Oakland, California 94607
Dear Chair Rubin:
In February2005, TRANSPAC, the Regional Transportation Planning Committee for Central
Contra Costa, sent a letter (copy enclosed) to then MTC Chair Kinsey expressing serious
concerns about MTC's Transportation and Land Use Platform. At its May 12., 2005 meeting,
TRANSPAC had a lengthy discussion with James Corless of your staff regarding MTC's Draft
Transit Oriented Development (TOD) Policy for Resolution 3434 projects which evolved from the
Transportation and Land Use Platform discussions.
As you may be aware, TRANSPAC, in concert with the Contra Costa. Transportation Authority
(CCTA}, has followed this issue closely. TRANSPAC's jurisdictions are generally supportive of
the goals of transit oriented development but remain concerned about MTC's role in the land use
planning development process and its possible use of a regional funding hammer to meet stringent
development thresholds. While TRANSPAC understands that MTC presumes that TOD enhances
communities, the collective experience of TRANSPAC's jurisdictions does not support the idea
-- that market forces can be manipulated regardless of a desire to change land use patterns,
While TRANSPAC still believes that MTC should not have any local land use authority, which
should remain the province of directlyelected county and city representatives, TRANSPAC
acknowledges that MTC has addressed a number of our issues in its attempt to craft a TOD policy
to foster transit ridership. TRANSPAC is also pleased to note that MTC has revised its perceived
0 ro
one size fits all" approach and has proposed significantly lower corridor thresholds to be
averaged over a type of transit corridor. However, TRANSPAC believes that, given the
character of many local communities, the thresholds are still too high for many communities to
meet within the required half-mile station radius. The focus on the immediate half-mile radius
also seems overly stringent. A review of BART's ridership origins should clearly indicate the
corridors that are used on a by-station basis. This information should be used as part of MTC's
assessment of ridership generation in the development of a reasonable and achievable TOD
policy. 4:
TRANSPAC suggests that the use of planning factors, rather than specific land use designations
and companion zoning within the half-mile radius may be more amenable to market forces.
Another approach might be to offer financial' to achieve TOD goals rather than to
penalize the residents and employers of a transportation corridor based on the. poor or non-
participation of a single jurisdiction. It might also have been helpful to provide guidance on how
to resolve jurisdictional land use conflicts at "borders" and how to ensure that development
rewards devolve to all jurisdictions in the planning process.
While we appreciate that MTC is working with BART to "harmonize" the respective TOD
policies of each agency, the application of MTC's land use policies to the eBART project in
Eastern Contra Costa is a serious concern. Regional Measure 2 (RM2) with its requirement for
the application of BART's land use policies was approved by the voters in March 2004. In May
20051 MTC released its draft TOD policy without the same level of public notification as the
RM2 ballot measure and requires, with no exceptions, the application of another level of land use
policies to the eBART project as well as the other Resolution 3434 projects. We respectfully
suggest that the world has continued to rotate in the intervening year and that a better course of
action might have been to support the BART/local jurisdiction/CCTA planning process already
underway in East County, rather than insist on the application of MTC's policies on top of
BART's requirements.
As you may surmise, TRANSPAC is an ardent supporter of the eBART project in Eastern Contra
Costa. eBART is a critical component of congestion relief in Central Contra Costa and its
construction is important to thousands of commuters. As a result, TRANSPAC is concerned
about the feasibility of the marketability study completed for eBART. And as stated at our
meeting, TRANSPAC believes there needs to be an up-to-date, in-depth analysis of the
marketability of the required threshold development in the eBART corridor. The market operates
on its own timetable and development evolves into its own time. Sound development practice
demands up-to-date information.
It was also noted at our meeting that in some communities, residents have objected to Council-
approved high-density development and have successfully sfully initiated referenda to overturn local
jurisdiction approvals. In addition, we noted some environmental organizations also have actively
opposed higher density developments in urbanizing East County locations. MTC's draft TOD
policy does not provide guidance or assistance in how these kinds of situations can be resolved. ( /.
We suggest that MTC must acknowledge that citizen voices and the ballot box still rule. While
TRANSPAC understands MTC's need to generate transit ridership, the TOD policy, at a
minimum, needs to incorporate local concerns and should be vetted and tested by development
professionals before it is implemented to ensure that transit projects do not become victims of
unintended consequences" and are able to effectively respond to market forces.
Neither the CCTA nor TRANSPAC received a specific response to our respective letters and
some of the issues raised in those letters remain unaddressed Vie request that MTC respond to
the specific points raised in each letter so that we- can assure our constituents that th&,ir voices
have been heard at the regional level. We look forward to continuing this important dialogue with
MTC.
Sincerely,
Charlie Abrams/
Chair
cc: TRANSPAC Representatives
TRANSPLAN Representatives
Janet Abelson, Chair, Contra Costa Transportation Authority
Pat Anderson, City of Oakley, Chair, Mayors' Conference
Federal Glover, Chair, Contra Costa Board of Supervisors
Scott Haggerty, President, Association of Bay Area Governments
Marland Thomson, Chair Bay Area Air Quality Management District
Mark DeSaulnier, Contra Costa County MTC Representative
Irma Anderson, Contra Costa Cities MTC Representative
Gwen Regalia, City of Walnut Creek,ABAG
Bob McCleary, Executive Director, Contra Costa Transportation Authority
Steve Heminger, Executive Director, MTC
Therese McMillan, Deputy Director, Policy, MTC
James Corless, Senior Planner, MTC
TR.ANSPAC TAC
W:MTC Trans Land Use Platform 5 25 05 final.doc
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