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HomeMy WebLinkAboutMINUTES - 10261993 - H.8 TO: BOARD OF SUPERVISORS Contra FROM: HARVEY E. BRAGDON - i Costa DIRECTOR OF COMMUNITY DEVELOPMENT `� .... County DATE: October 26, 1993 SUBJECT: TRI-VALLEY TRANSPORTATION PLAN/ACTION PLAN WORKSHOP SPECIFIC REQUEST(S) ORRECOMMENDATION(S) & BACKGROUND AND JUSTIFICATION RECOMMENDATIONS Approve the preferred alternative as defined during the October 19, 1993 workshop for Tri-Valley Transportation Plan/Action Plan as follows: PREFERRED ALTERNATIVE • Road improvements beyond 2010 - medium priority, with improvements- on Vasco 'Road corridor to four lanes, and auxiliary lanes on I-580; • . Transit improvements beyond 2010 - high priority, with high levels of service transit service through new urban developments (e.g. Dougherty Valley, North Livermore, East Dublin) and to Concord and Dublin BART lines, and commuter rail from the Central Valley to the Bay Area communities; • Higher densities - medium priority, with new development redistributed to allow increased densities near transit stations and along high frequency transit lines; • Reduced rate of development from 2010 levels - high priority, with future land use development reduced to year 2000 projected levels; • Reduced LOS standards - medium priority, with relaxation of LOS standards on Vasco Road, and on freeways and State Route 84 in conjunction with the development of deficiency plans (pursuant to Alameda and Contra Costa County CMP policies) ; • Increased Transportation Demand Management Measures (TDM) - high priority, with extensive TDM measures such as: HOV lanes CONTINUED ON ATTACHMENT: x YES SIGNATURE RECOMMENDATION OF COUNTY ADMINISTRATOR _ RECOMMENDATION OF BOARD COMMI APPROVE OTHER SIGNATURE (S) : ACTION OF BOARD ON October 26 , 1993 APPROVED AS RECOMMENDED x OTHER x APPROVED as recommended with the clarification that any reduced rate of development below year 2010 level should follow the concepts approved by the Board of Supervisors on December 8 , 1992 , requiring all jurisdictions to adjust land use densities consistent with the Tri Valley Transportation Plan . VOTE OF SUPERVISORS I HEREBY CERTIFY THAT THIS IS A X _ UNANIMOUS (ABSENT TRUE AND CORRECT COPY OF AN AYES: NOES: ACTION TAKEN AND ENTERED ON THE ABSENT: ABSTAIN: MINUTES OF THE BOARD OF SUPERVISORS ON THE DATE SHOWN. Contact: Daniel J. Pulon(646-2378) ATTESTED October 26 . 1993 cc: Community Development Department (CDD) PHIL BATCHELOR, CLERK OF THE BOARD OF SUPERVISORS AND OUNTY ADMINISTRATOR DP\:Ad1/2WKSP.B0S J BY (3ANO , DEPUTY TRI-VALLEY ACTION PLAN/TRANSPORTATION PLAN WORKSHOP October 26, 1993 Page -2- on freeways, ramp metering with HOV bypass lanes, mandatory trip reductions for all employers to achieve Average Vehicle Ridership levels (AVR) of greater than 1. 35 employees per vehicle, Peak Period Congestion Pricing (e.g. Mileage Interval Electronic Charge/Collection Points, parking charges for single occupancy vehicles, employer-provided subsidies for commute alternatives, telecommuting (e.g. Telecommute Work Centers and Home-Based Telecommuting) , ridesharing programs, alternative work schedules (e.g. 9/80 or 4/10 work weeks, and flextime for transit users) . FISCAL IMPACT None. The Board's recommendation is for planning purposes only. Any financial impact of implementing the final Plan will be identified when it is presented to the Board for adoption. BACKGROUND/REASONS FOR RECOMMENDATIONS The Tri-Valley Transportation Council (TVTC) , consisting of elected members of jurisdictions in Contra Costa and Alameda Counties, has been involved in transportation planning efforts in developing a comprehensive 20-year Transportation Plan/Measure C-1988 Action Plan (Plan) in the Tri-Valley area. These planning efforts involved computer modelling of future land uses and transportation improvements based on jurisdictional General Plans. Modelling results have yielded the conclusion that, with year 2010 land use and transportation improvement assumptions, most of the regional arterial road facilities will function below the desired levels of service (LOS) standards. The Plan will consist comprehensively of area strategies focusing specifically on future transportation conditions. To assist in the development of those strategies the TVTC has requested that its members and Planning Commissions provide jurisdictional preference of transportation strategies for the TVTC to pursue from the matrix of potential alternatives (Attachment "A") , or from their own strategies not in the matrix. All alternatives would be financially constrained to existing revenue mechanisms or revenues from the proposed regional transportation impact fee (developer fee) . Each alternative is described according to how it would vary from the "Expected" land use and transportation network (see Attachment "B") scenario, which is a reflection of the existing or draft plans and policies of the participating jurisdictions. The Board of Supervisors and the San Ramon Valley Regional Planning Commission participated in workshops on October 19 and October 20, respectively, to discuss these alternatives and to select an alternative preference of those identified on Attachment "A, " or a blended alternative based on each body's priorities. Both bodies opted to blend aspects of each alternative to formulate a "hybrid" alternative. The following are the individual and net preferred priorities that the Board and Commission established for consideration in developing the Plan: BOARD OF SUPERVISORS BOS Net SRVPC Bishop Smith Torlakson Preferred Preferred ALTERNATIVE STRATEGIES 1. Road Improvements Beyond 2010 Expected NONE LOW HIGH MEDIUM HIGH 2. Transit Improvements Beyond 2010 Expected MEDIUM HIGH HIGH HIGH HIGH 3 . Higher Densities LOW MEDIUM HIGH MEDIUM MEDIUM 4 . Reduced Development From 2010 Expected HIGH LOW HIGH HIGH MEDIUM 5. Reduced LOS Standards LOW LOW HIGH MEDIUM NONE 6. Increased TDM HIGH HIGH HIGH HIGH MEDIUM 7 . Growth Management HIGH* *(The San Ramon Valley Planning Commission Developed this additional aspect that requires developers to finance the infrastructure to comply with established LOS standards) TRI-VALLEY TRANSPORTATION PLAN/ACTION PLAN WORKSHOP October 26, 1993 Page -3- Board of Supervisors Workshop Summary Board preference for road improvements beyond the 2010 assumptions varied from none to high. A medium preference for road improvements would focus additional road capacity where congestion levels would be most severe or where operational improvements could significantly improve congested conditions. Substantial increases in road capacity are needed on the Vasco Road corridor to accommodate the significant increase in commuter traffic between Eastern Contra Costa and the Tri Valley area. At a minimum, the effectiveness of providing four lanes of capacity on Vasco Road should be evaluated in the Plan, in consultation with the Transplan Committee' s Action Plan activities in Eastern Contra Costa. The Plan should also test the effectiveness of constructing auxiliary lanes on I-580 between Livermore and I-680. Board preference for transit improvements beyond the 2010 assumptions was generally high. Opportunities exist to test high levels of transit service coordinated with the major urban development proposed north of I-580 to encourage transit use and reduce dependency on automobile travel. Providing a high level of -transit service to these areas with BART technology could not be accomplished with the financial constraints of the Plan. However, a new BART station constructed in West Dublin along the planned Dublin extension could effectively serve this area and should be tested. High frequency trunk-line bus service connecting complementary development in Dougherty Valley, East Dublin, North Livermore with the East Dublin BART station, Bishop Ranch, and BART stations on the Concord line could be effective and should be tested. Commuter rail from the Central Valley to San Jose should be pursued rather than improvements on Route 84 beyond those assumed for 2010. Board preference for higher densities varied from low to high. All Board members wanted higher densities tied to complementary transit service. The Board further specified these higher densities should only be obtained by redistributing the growth in proposed new developments and not by increasing densities in addition to this growth. A 1991 study by the Institute of Urban and Regional Development (UC Berkeley) of four major residential projects within one-third mile of East Bay BART stations found commute ridership on BART ranged between 28 and 40 percent, compared with 8 percent transit use for all commuters in the East Bay. Densities for these developments ranged from 33 to 43 dwelling units per acre. The Institute observed that recent residential development constructed in the vicinity of suburban East Bay BART stations ranges from 20 to 72 dwelling units per acre. Available research suggests that viable bus service needs areawide residential densities averaging at least 8 dwelling units per net acre and employment densities need to reach 20 jobs per acre. Higher densities should also be evaluated by the Plan in conjunction with mixed land uses to increase the portion of walk and bicycle trips. Board preference for reduced development from 2010 growth varied but was generally high. Data prepared by the TVTC shows that in order to meet proposed LOS standards with the transportation improvements assumed for 2010, future development would need to be reduced to year 2000 levels. However, development reductions of this magnitude may eliminate the revenues needed to construct some of the improvements required to achieve proposed LOS standards and other goals. Board preference for relaxed LOS standards varied from low to high. Data prepared by the TVTC shows that even with unlimited funds to construct additional transportation improvements proposed by the member jurisdictions, violations of proposed LOS standards would occur on portions of the freeways and Vasco Road with the growth assumed by 2010. Due to right-of-way and environmental constraints, complying with proposed LOS standards will not be possible, which was something anticipated by and allowed for in the Measure C- 1988 Growth Management Program. A medium emphasis on relaxing LOS standards would mean relaxing such standards on the state highways and on Vasco Road. For the state highways, the Plan should include deficiency plans pursuant to the Congestion Management Programs of the affected counties. Board preference to increase TDM measures was high. The Plan should evaluate HOV priority treatments to all major roadway improvements, including HOV lanes on freeways and ramp metering with HOV bypass lanes. Consistent with a high emphasis on transit improvements, the Plan should evaluate employer-based strategies such as transit subsidies, parking charges for single occupancy vehicles, and alternative work schedules to encourage the use of available transit services. TRI-VALLEY ACTION PLAN/TRANSPORTATION PLAN WORKSHOP October 26, 1993 Page -4- Planning Commission Workshop Summary The Commission reached a consensus on all strategies. A major emphasis should be placed on providing as much road capacity and transit service as possible to meet proposed LOS standards. Higher densities should only be encouraged in the areas north of I-580 planned for major urban development in coordination with and complementary to high levels of transit service. Higher densities should not be allowed in existing developed areas. Proposed LOS standards should not be relaxed. The Commission added a growth management strategy , defined as requiring new development pay for the infrastructure necessary to comply with the Plan's LOS standards. High priority should be placed on using TDM measures to increase Average Vehicle Ridership beyond 1. 35 employees per vehicle. County staff points out that this strategy is similar to the Growth Management Element of the County's General Plan. Staff Comments The preferred alternative represents an "averaging" of the responses from individual Board members which results is some internal inconsistencies. The desire for more road and transit improvements beyond the 2010 assumptions can not be obtained if future development is reduced to the levels projected for year 2000. Any evaluation of reduced development in the Tri Valley area should be done in conjunction with the ability to finance desired transportation improvements as well as meeting other non-transportation goals such as affordable housing and economic development. The TVTC will likely "average" the responses from all participants and reveal additional inconsistencies. These inconsistencies will need to be resolved during the consensus building process at the TVTC. CONSEQUENCES OF NEGATIVE ACTION Without identifying a preferred alternative, the Board will not be able to effectively describe their expectations for the Tri Valley Transportation Plan /Action Plan. 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RS E ;<o:<;>:;;:::; E :;::«:>o«<:<::<: E <>:>:>o:>::>::>;:» Eco d rr w E w w� w O to i� �- V N V M o ,= a d) d miof 4 C4 E N �0 yr s� 10 .� P St m � IN �Yl t0 Q �t36F� d to the zato �>Q s w G 4 to 6 1r ko as Yam ��' a toa 40 to , t a t to to to � d to m ,� �0 g g ko d to N ¢ 46toSA d1 Q p Od d $� vt 6 � "�.a N L a-,V ((6 G TO: BOARD OF SUPERVISORSContra :.�� - -• FROM: TRANSPORTATION COMMITTEE Costa _ DATE: November 30, 1992 r' County SUBJECT: Report on proposed agreement addressing future land use entitlements in the Tri valley area SPECIFIC REQUEST(S) OR RECOMMENDATION(S) is BACKGROUND AND JUSTIFICATION RECOMMENDATIONS 1. Endorse, in concept, the proposed agreement addressing future land use entitlements in the Tri Valley area and authorize the Chair of the Board of Supervisors to transmit comments on the proposed agreement (see Exhibit A) to the Tri Valley Transportation Council; 2. Authorize County staff to work with the Tri Valley Transportation Council in drafting an agreement for the Board's consideration; and 3. Refer the proposed agreement to the Contra Costa Transportation Authority to determine if a requirement for participation in the Measure C-1988 Regional Transportation Mitigation Program should be imposed on any development approval granted prior to completion of the Measure C-1988 Action Plans. FISCAL IMPACT None. BACKGROUND/REASONS FOR RECOMMENDATIONS The attached principles of agreement addressing future land use entitlements in the Tri Valley area (see Exhibit B) was prepared CONTINUED ON ATTACHMENT: XX YES SIGNATURE RECOMMENDATION OF COUNTY ADMINISTRATOR X RECOMMENDATION OF BOARD COMMITTEE APPROVE OTHER 1-� ,ld � kxsa SIGNATURE(S) : Rob Schroder Tom Torlakson ACTION OF BOARD O APPROVED AS RECOMMENDED _ OTHER VOTE OF SUPERVISORS I HEREBY CERTIFY THAT THIS IS A UNANIMOUS (ABSENT - TRUE AND CORRECT COPY OF AN AYES: NOES: ACTION TAKEN AND ENTERED ON THE ABSENT: ABSTAIN: MINUTES OF THE BOARD OF SUPERVISORS ON THE DATE SHOWN. Contact: S.Goetz, CDD, 646-2131 Orig: ;Community-Development Department ATTESTED cc: GMEDA PHIL BATCHELOR, CLERK OF County Council (via CDD) THE BOARD OF SUPERVISORS Danville (via CDD) AND COUNTY ADMINISTRATOR Dublin (via CDD) Livermore (via CDD) BY , DEPUTY Pleasanton (via CDD) San Ramon (via CDD) Alameda County (via CDD) C-C i1� Agreement Addressing Future Land Use Entitlements in the Tri Valley Area November 30, 1992 Page Two pursuant to direction from the Dougherty Valley Specific Plan Policy Roundtable. The Roundtable requested staff to work with the Tri Valley Transportation Council, (TVTC) to outline a contractual agreement that would condition future land use entitlements to comply with the recommendations of the Tri Valley Transportation Plan. This request was generated by a concern that approval of any major land use entitlement in the area prior to completion of the Tri Valley Transportation Plan would diminish the effectiveness of that Plan. As you may know, the TVTC is a joint powers agreement between Contra Costa County and the cities of Danville, Dublin, Livermore, Pleasanton, San Ramon and Alameda County. The TVTC is preparing a Tri Valley Transportation Plan to address regional transportation problems in the Tri Valley area created by future growth. The Plan has been designated by the Contra Costa Transportation Authority to serve as the Action Plan for Regional Routes in the San Ramon Valley area pursuant the Measure C-1988. The TVTC has request each city/town council and Board of Supervisors review this outline and submit comments for consideration by the TVTC to consider at their December 16th meeting. Although the principles described in Exhibit B are largely consistent with the growth management requirements of Measure C-1988, it goes further to require cities and counties to condition current development applications to comply with Measure C-1988 Action Plans before the content of these Action Plans are known. Currently, the County is only obligated to apply such conditions on development approvals made after completion of the Measure C-1988 Action Plans. The principles also appear less flexible than the growth management requirements contained in Measure C-1988. Existing growth management requirements apply a "good faith effort" test to determine compliance. No city or the County will be required to accept an Action Plan for Routes of Regional Significance that creates a fundamental conflict with that jurisdiction's socioeconomic or environmental character. The principles described in Exhibit B require adoption of the Tri Valley Transportation Plan recommendations, regardless of a potential conflict with the County's priorities. Community Development Department is concerned that the provision in the proposal to "require future adjustments to land use densities of new land use entitlements, if needed to meet the 'traffic service objectives' of . . . the Tri Valley Transportation Plan", may conflict with the County General Plan Growth Management Element, particularly if such an entitlement is guaranteed by a Development Agreement. A project, consistent with the land use densities of a Development Agreement, could be temporarily deferred until the traffic service objectives on regional routes are met or assured. But the project sponsor would have the capability to seek construction of the full entitlement, once compliance with the traffic service objectives is demonstrated. The net effect of the Tri Valley Transportation Plan's traffic service objectives could be to defer a project, but not permanently reduce a project's density. The significance of this issue would depend on how this provision is defined in the Tri Valley agreement. The uncertainty involved in participating in the proposed agreement could be acceptable if the transportation resources and costs in the Tri Valley area are apportioned in a fair and equitable manner. This could only be achieved if all jurisdictions participate in the proposed agreement. The Transportation Committee recommends proceeding with drafting a contractual agreement for consideration by all Tri Valley jurisdictions. The proposed agreement brings up issues regarding compliance with Measure C-1988 Action Plans that may be of interest to the Contra Costa Transportation Authority. The Transportation Committee recommends this proposed agreement be referred to the Transportation Authority for discussion. The Transportation Committee also believes development in San Joaquin County can significantly impact the effectiveness of the Tri Valley Transportation Plan. We suggest the Tri Valley Transportation Committee undertake efforts to involve San Joaquin County in the preparation of the Tri Valley Transportation Plan. tvtccont.bo I COMPONENTS OF THE TRI VALLEY TRANSPORTATION PLAN 1. "Routes of Regional Significance." - I-580 - I-680 - Alcosta Boulevard (portion) - Bollinger Canyon (portion) - Camino Tassajara/Tassajara Road/Santa Rita Road - Crow Canyon Road - Danville Boulevard/San Ramon Valley Boulevard/San Ramon Road/Foothill Road - Dougherty Road (portion)/Hopyard Road - Dublin Boulevard (including extension) - Stoneridge Drive/Jack London Boulevard - Sycamore Valley Road 2. "Traffic Service Objectives" for Routes of Regional Significance. 3. Preferred Actions for the Tri Valley Transportation Plan. a. Land use types and densities; b. Roadway expansion; c. Carpool, bus, rail improvements; and d. Trip reduction or travel demand management strategies. 4. Finance Plan for Preferred Actions. 5. Procedures to analyze the impacts of development projects on Routes of Regional Significance: a. Computerized transportation model and database to evaluate the transportation impacts of new development; b. Local requirement for a finding of consistency with Traffic Service Objectives, which must be adopted concurrently with approval of development projects; and c. Local capital improvement programs which include the projects necessary to meet or maintain the Traffic Service Objectives. 6. Annual monitoring and reporting by local jurisdictions on compliance with performance standards; 7. Procedures to revise the TVTP to mitigate the impacts of land use decisions found to be inconsistent with the TVTP (e.g. preparation of CMP Deficiency Plans, or Measure C-1988 Action Plan amendments) . r • EXHIBIT B RA DRAFT PRINCIPLES OF AGREEMENT ADDRESSING FUTURE LAND USE ENTITLEMENTS IN TRI VALLEY AREA Parties: - Alameda County - Contra Costa County - Dublin - Danville - Livermore - San Ramon - Pleasanton Purpose To ensure that any future land use entitlements granted before completion of the Tri Valley Transportation Plan (TVTP) will be required to comply with the recommendations of that plan. Provisions t 1. Require local jurisdictions to evaluate the transportation impacts of development projects using the TVTP transportation model. 2. Require future adjustments to the land use densities of new land use entitlements, if needed to meet the "traffic service objectives" (performance standards) of the regional transportation system as defined in the TVTP. 3. Require sponsors of development projects to participate in the proposed TVTP regional fee program to ensure they pay their fair share of the regional transportation improvements required to serve such projects. Term To sunset when each jurisdiction incorporates the recommendations of the TVTP in appropriate General Plan policies and local ordinances, which probably won't occur until the end of 1993. ftl helor The Board of Supervisors Contra Clerk oft a Board r . ! and County Administration BuildingCosta County Administrator 651 Pine St„ Room 106 1s,o�sae-za�i Martinez, California 94553-1290 County Tan Pawn tat amid Macey G FOIft Mid District filaeart L•ohrodar,3rd Oimia lig»Wd9 M NO 41h amici Two Talrbak 54h aorict December 8, 1992 Millie Greenberg, Chair Tri Valley Transportation Council c/o Town of Danville 510 La Gonda Way Danville, CA 94526 Dear Ms. Greenberg: At our December 8th meeting, the Contra Costa County Board of Supervisors endorsed the concept of the proposed agreement addressing future land use entitlements in the Tri Valley area and authorized me to transmit these comments on the proposal. At a minimum, it is important that all jurisdictions involved in the review of significant general plan revisions in the Tri Valley area participate in the agreement. Major land use applications currently being processed should be specifically mentioned in the agreement. Without participation of all such jurisdictions, transportation resources and costs could not be fairly apportioned in the Tri Valley. The proposed agreement should consider provisions that would discourage unilateral withdrawal by a participating jurisdiction. Withdrawal of one jurisdiction could also impair the ability to fairly allocate transportation resources and costs. The proposed provision to "require future adjustments to the land use densities of new land use entitlements, if needed to meet the '.traffic service objectives' of. . .the TVTP" may conflict with the County General Plan Growth Management Element, particularly if such entitlements are included by a Development Agreement. For instance, a project consistent with the land use densities specified in a Development Agreement, could be temporarily deferred until the traffic service objectives on regional routes are met or assured. But the project sponsor would have the capability to proceed with construction of the full entitlement once compliance with the traffic service objectives is demonstrated. The net effect of the Tri Valley Transportation Plan (TVTP) could be to defer a project, but not permanently reduce a project's. County staff is continuing its research on this issue. • u. Ms. Greenberg December 8, 1992 Page Two The agreement should specify factors that would be considered by the Tri Valley Transportation Council in identifying any adjustment to land use densities to comply with the traffic service objectives. A simplified approach using an overall percent reduction in densities among all affected projects may not be appropriate. Factors such as the impact of particular projects on the regional transportation system and the economic cost to Tri Valley residents need to be considered to ensure transportation resources and costs are fairly apportioned. The agreement should include definitions of the following terms: - adjustments to land use densities - land use entitlement - development projects - sponsors - TVTP transportation model - traffic service objectives - TVTP regional fee program The provisions to terminate the agreement should not specifically mention changes to a jurisdiction's General Plan. The TVTP's recommendations may be more appropriately addressed in mechanisms other than the General Plan. The agreement should simply require changes to appropriate policies, ordinances and procedures for a jurisdiction to comply with the TVTP recommendations. As important as this agreement proposal may be to the Tri Valley Transportation Plan, the Board of Supervisors also feels San Joaquin County can significantly impact the Plan. The Board of Supervisors encourages the Tri Valley Transportation Council to coordinate preparation of the TVTP with San Joaquin County. Coordination could begin with a request to San Joaquin County to present the Draft Mountain House General Plan Amendment to the Tri Valley Transportation Council. The Board of Supervisors hopes expeditious progress can be made in developing an agreement acceptable to all jurisdictions in the Tri Valley area. Sincerely, unne Wright McPeak Chair