HomeMy WebLinkAboutMINUTES - 01102006 - C.01 TO: BOARD OF SUPERVISORSti-6 Contra
'FROM: TRANSPORTATION, WATER AND
INFRASTRUCTURE COMMITTEE _ Costa
(Supervisor Mary Nejedly Piepho, Chair) �o '� County
DATE: January 10, 2006
SUBJECT: Review of the West County Subregional Transportation Mitigation Program Update
SPECIFIC REQUEST(S)OR RECOMMENDATION(S)&BACKGROUND AND JUSTIFICATION
RECOMMENDED ACTION:
APPROVE comments on the West County Subregional Transportation Mitigation Program Update and
AUTHORIZE County staff to transmit the comments to the West Contra Costa Transportation Advisory Committee,
as recommended by the Transportation, Water and Infrastructure Committee and DIRECT County staff to provide
for greater community outreach during the fee adoption process, West County area. (Districts I, II)
FISCAL IMPACT:
NONE to the General Fund. The West County Subregional Transportation Mitigation Program Update will ensure
the collection of new fees to mitigate impacts due to new development.
Continued on Attachment: ® SIGNATURE:
❑ RECOMMENDATIONO COUNJAINISTRATO:RRECOMMENDATION OF BOARD COMMITTEE
❑ APPROVE [IOTHE ^�
SIGNATURE(S): Su rv' o ary Nejedly Piepho S pervisor Feder/all D.Glover
ACTION OF BOARD ON /6, p2o 0 6
APPROVED AS RECOMMENDED OTHER ❑
I hereby certify that this is a true and correct copy of an action
taken and entered on the minutes of the Board of Supervisors on
VOTE OF SUPERVISORS the date shown.
UNANIMOUS(ABSENT
AYES: NOES: ATTESTED: VGl wct Y Ag 0'Z DOL
ABSENT: ABSTAIN: JOHN SWEETEN,Clerk of thkyoard of Supervisors and County
Administrator
G:AGrpData\TransEng\AOB\WCCTAC\
WCCTAC Fee Update TWIC Report to BOS.doc By Z Deputy
Orig.Div:Public Works(Transportation Engineering Division)
Contact: Chris Lau (313 2293)
cc: S.Kowalewski,TE
S.Goetz,CDD-Transportation Planning
J.Greitzer,CDD-Transportation Planning
SUBJECT; Review of the West County Subregional Transportation Mitigation Program Update
DATE: January 10, 2006
PAGE: 2 of 4 .
REASONS FOR RECOMMENDATIONS AND BACKGROUND:
The Subregional Transportation Mitigation Program (STMP) was first adopted by the West Contra Costa
Transportation Advisory Committee (WCCTAC), the West County cities, Contra Costa County, and the Contra
Costa Transportation Authority (CCTA) in 1997 (via a Cooperative Agreement and local jurisdiction/County
Ordinance), The program consisted of developer fees in the amount of$700 per residential unit and$.20 per square
foot for commercial/industrial/office space. The fees charged were considerably lower than what would have been
allowed by the Nexus Analysis. [California legislation requires that charges on new developments bear a reasonable
relationship (nexus)to the needs created by,and the benefits accruing to that development. California courts have
long-used that reasonableness standard or nexus to evaluate the constitutionality of exactions,including developer
fees.] The three projects that were partially funded in the 1997 program were: the Highway 4 West divided
highway, the El Cerrito BART Parking Structure, and the Richmond Intermodal Station.
INFORMATION ON THE PROGRAM UPDATE
In the Update to the program, the Nexus Analysis/justification is built into the description of each project. The
updated STMP program is a 25-year program. ABAG's Projections 2003 provided the growth projections in
households and employment for West County. These statistics and standard trip generation rates from the Institute
of Transportation Engineers Trip Generation Handbook allowed the consultants to estimate the total increase in peak
hour trips in the morning commute period(28,571 trips). Richmond and Hercules account for over 75 percent of the
new trips. The following table shows the growth number of new a.m.peak hour trips in the next 25 years(2005 to
2030)for the West County jurisdictions:
Richmond 58.5%
Hercules 18.1%
Pinole 7.8%
El Cerrito 5.6%
San Pablo 5.2%
Rodeo-Crockett 4.8%
A list of projects needed to accommodate future traffic was prepared by the WCCTAC Technical Advisory
Committee(TAC). Eleven projects are currently on the list. In general,because most projects mitigate both existing
and future deficiencies,the amount of STMP funding varies from 27.5%to 50%of the project cost. The consultant
team includes a firm that specializes in studying the"reasonable relationship between the impacts of the new growth
and the fees proposed"(the nexus). It has been determined that there is a"rough proportional benefit"between the
proposed fees and the projects receiving the funds.
UPDATED PROJECT LIST
The eleven projects recommended by the TAC (and the STMP funding amount) are:
SUBJECT; Review of the West County Subregional Transportation Mitigation Program Update
DATE: January 10, 2006
PAGE: 3 of 4
1. Richmond Intermodal Station- $15,000,000.
2. Interchanges on I-80 at San Pablo Dam Road and at Central;and on Highway 4 at Willow-$14,280,000.
3. Capital Corridor Improvements (Hercules train station and track/safety improvements) - $13,255,000.
4. Ferry Service from Richmond and/or Hercules/Rodeo - $12,650,000.
5. BART access and/or parking improvements - $25,330,000.
6. Bay Trail Gap Closure - $1,510,000
7. San Pablo Dam Road Improvements in Downtown El Sobrante - $1,900,000.
8. San Pablo Avenue Corridor Improvements - $1,650,000.
9. N. Richmond Road Connection Project- $4,000,000.
10. Hercules Transit Center Relocation - $1,650,000.
11. Del Norte Area Transit Oriented Development Project - $6,875,000.
Project number 6, 7 and 9 are located in the unincorporated West Contra Costa County area and would benefit from
these improvements. Specific project descriptions can be found in the attached program update.
There area diverse range of projects represented, and many of the projects are also in Measure J—the renewed
transportation sales tax measure in Contra Costa County. With the recent shortfall in transportation funding, the
developer fees will help the projects make up any funding gaps.
POTENTIAL FEES AND REVENUES
In 1997, the Nexus Analysis showed that WCCTAC could legally establish fees (i.e. residential at $2,345 per
dwelling unit) whose revenues would total $24.5 million; however, the established fees were set lower (i.e.
residential at $700 per dwelling unit) and it was anticipated that $5.1 million would be raised over the life of the
program (1997 to 2010) at the reduced fee level.
If the full fees justified by the nexus are approved by WCCTAC and the other partners,the updated program would
generate approximately$95 million over 25 years. Examples of fees in the Update are(based upon$3,507 per peak
hour trip):
Single family residential $2,595
Multi-family residential $1,648
Hotel $1,964 per room
Office $3.51 per thousand square feet
Casino $21.32 per thousand square feet of gaming area
Industrial $2.45 per thousand square feet
NEXT STEPS
1. The WCCTAC Board conceptually approved the update at the October 28,2005 meeting,and authorized
WCCTAC Staff to make presentations to the Cities/County.
2. The WCCTAC Board will review the revised Cooperative Agreement and Ordinance for the updated
program in January 2006. Following the January 2006 WCCTAC meeting, WCCTAC Staff will
schedule a second series of meetings with the Cities/County to approve the Cooperative Agreement and
Ordinance.
3. Final adoption and implementation of the Updated STMP by April 1, 2006.
SUBJECT: Review of the West County Subregional Transportation Mitigation Program Update
DATE: January 10, 2006
PAGE: 4 of 4
COMMENTS TO WEST CONTRA COSTA TRANSPORTATION ADVISORY COMMITTEE AND COUNTY
STAFF
The Transportation,Water and Infrastructure Committee on December 12 received a report on this program update
and have the following comments to be forwarded to the West Contra Costa Transportation Advisory Committee:
1. The County would like to know if additional segments of the Bay Trail could be eligible for funding from
this mitigation program, specifically the Rodeo-to-Crockett segment and the West County portion of
Crockett-to-Martinez segment
2. The County suggests that the program update express that an achievement of a better jobs/housing balance in
West County could help increase fee revenues and reduce/alleviate traffic congestion.
Lastly, the Transportation, Water and Infrastructure Committee requests that County staff make every effort to
provide greater community outreach during the fee adoption process, such as additional posting of notices for fee
increases within the County Building Inspection Department.
The Committee recommends the Board of Supervisors approve these comments and authorize County staff to
transmit the comments to the West Contra Costa Transportation Advisory Committee.
CONSEQUENCES OF NEGATIVE ACTION:
Transportation, Water and Infrastructure Committee comments will not be forwarded to the West Contra Costa
Transportation Advisory Committee.
DRAFT
2005 Update of the
Subregional Transportation Mitigation
Program (STMP)
For the West Contra Costa Transportation
Advisory Committee (WCCTAC)
April 25, 2005
P L E A S A N T 0 N . S A N T A R 0 S A
DRAFT
2005 Update of the
Subregional Transportation Mitigation
Program (STMP)
For the West Contra Costa Transportation
Advisory Committee (WCCTAC)
April 25, 2005
Prepared by:
TJKM Transportation Consultants
5960 Inglewood Drive, Suite 100
Pleasanton CA 94588-8535
Tel: 925.463.0611
Fax: 925.463.3690
JAJurisdiction\C\Contra Costa County\277-002 STMP Update\Report\R042505.doc
TABLE OF CONTENTS
CHAPTER 1. INTRODUCTION AND SUMMARY.......................................................................................1
INTRODUCTION...................................................................................................................................................1
SUMMARY...........................................................................................................................................................1
Chapter 2—Expected Growth In Households,Employment and Peak Hour Trips...................................I
Chapter 3—Project List and Priorities.........................................................................................................2
Chapter 4—STMP Previous Collections and Potential Yield From 2005 Update.....................................2
Chapter 5—Program Costs and Fee Calculation........................................................................................2
Chapter6—Nexus Findings.........................................................................................................................2
CHAPTER 2. EXPECTED GROWTH IN HOUSEHOLDS,EMPLOMENT AND PEAK HOUR TRIPS
INTHE WCCTAC AREA...................................................................................................................................4
HOUSEHOLDGROWTH........................................................................................................................................4
EMPLOYMENTGROWTH......................................................................................................................................4
TRIPGENERATION..............................................................................................................................................5
CHAPTER 3. SELECTION AND COST OF PROJECTS..............................................................................7
PROJECTDESCRIPTIONS......................................................................................................................................7
1. Richmond Intermodal Station.................................................................................................................7
2. Interchanges on I-80 at San Pablo Dam Road and Central Avenue and on Highway 4 at Willow......8
3. Capitol Corridor.......................................................................................................................................9
4. Ferry Service to San Francisco from Richmond andJor Hercules!Rodeo.............................................9
5. BART Access and l or Parking Improvements.......................................................................................9
6. Bay Trail Gap Closure...........................................................................................................................10
7. San Pablo Dam Road Improvements in Downtown El Sobrante.........................................................10
8. San Pablo Avenue Corridor Improvements..........................................................................................10
9. North Richmond Road Connection Project..........................................................................................11
10. Hercules Transit Center......................................................................................................................11
11.Del Norte Area Transit Oriented Development project(public improvements)..................................12
CHAPTER 4. STMP PREVIOUS COLLECTIONS AND 2005 UPDATE POTENTIAL FEE
REVENUES........................................................................................................................................................13
COLLECTIONSTO DATE....................................................................................................................................13
POTENTIAL FEE REVENUES FROM 2005 UPDATE..............................................................................................13
CHAPTER 5. PROGRAM COSTS AND FEE CALCULATION................................................................14
UPDATED COST PER TRIP ESTIMATE.................................................................................................................14
OTHERFACTORS IN STMP UPDATE.................................................................................................................15
CHAPTER6. NEXUS FINDINGS...................................................................................................................16
CHAPTER 7. STUDY PARTICIPANTS........................................................................................................17
TJKM TRANSPORTATION CONSULTANTS PERSONNEL......................................................................................17
THEREED GROUP.............................................................................................................................................17
PERSONS/AGENCIES CONSULTED/WCCTAC --TAC MEMBERS.....................................................................17
LIST OF TABLES
TABLE I:HOUSEHOLD GROWTH IN WEST CONTRA COSTA COUNTY-2005 TO 2030.............................................4
TABLE II:EMPLOYMENT GROWTH IN WEST CONTRA COSTA COUNTY-2005 TO 2030..........................................5
TABLE III:NEW A.M.PEAK HOUR TRIPS IN WEST CONTRA COSTA COUNTY-2005.To 2030...............................6
TABLE IV:STMP PROJECTS AND AVAILABLE FUNDING.........................................................................................7
TABLE V:DISTRIBUTION OF FUNDS RECEIVED TO DATE......................................................................................13
TABLE VI:2005 COST PER TRIP ESTIMATE...........................................................................................................14
TABLE VII:2005 RECOMMENDED STMP RATES AND FEES AND FEES..................................................................15
CHAPTER 1. INTRODUCTION AND SUMMARY
Introduction
This analysis provides the technical basis for establishing the required nexus between anticipated
future development in West Contra Costa County and the need for certain local and regional
transportation facilities. The specific tasks performed in preparing this analysis and their results are
summarized below. The West Contra Costa Transportation Advisory Committee's(WCCTAC)
Subregional Transportation Mitigation Program(STMP) was established in 1997. This is the first
update of the STMP program to ensure that the various aspects of the program reflect current
conditions. For the 2005 STMP update,WCCTAC retained a team led by TJKM Transportation
Consultants to update technical aspects of the program.
The 2005 STMP update includes an updated project list with cost estimates for all improvement
projects to be potentially funded by STMP fees.
This report presents the results of the efforts of the project team to update the WCCTAC STMP. This
update effort involved the major tasks described below.
1. The amount of new development that will occur in the WCCTAC area between 2005 and
2030 was determined.
2. A new estimate was prepared of the trip generation that will result from development of the
expected future land uses within the WCCTAC area. Trip generation rates from the Institute
of Transportation Engineers (ITE)publication Trip Generation were utilized.
3. Future deficiencies on the transportation network were determined based on findings of the
staff of WCCTAC, its member agencies, and the consultant team.
4. A list of projects needed to accommodate future traffic was determined.
5. Updated traffic improvement project cost estimates were prepared which reflect the latest
concept designs for the projects and the latest completion status of the various projects.
6. An updated cost per trip was calculated along with the corresponding updated STMP
schedule of fees.
7. A reasonable relationship between the impacts of the new growth and the fees proposed in the
STMP was ascertained. State law requires that there must be a roughly proportional benefit
from the proposed fees to the projects supplying the funds.
Summary
Chapter 2—Expected Growth In Households, Employment and Peak Hour Trips
According to ABAG's Projections 2003,the overall estimated growth in the WCCTAC area is
estimated at 17,910 households (a 20.3 percent increase in 25 years) and 28,810 jobs (an increase of
over 35 percent). Using standard available trip generation rates,the total increase in peak hour trips
in the a.m. period is expected to be 28,571. Richmond and Hercules account for over 75 percent of
the new trips.
2005 STMP Update for WCCTAC Page 1
TJKM Transportation Consultants April 25, 2005
Chapter 3—Project List and Priorities
The recommended list of new transportation improvements to serve the WCCTAC area was
developed by the WCCTAC Technical Advisory Committee and the consultants. The WCCTAC
Board reviewed a preliminary list of projects in August 2004.The recommend list of new projects is
shown below. Costs and details of the individual projects are described in Chapter 3 of this report.
1. Richmond Intermodal Station
2. Interchanges on I-80 at San Pablo Dam Road and at Central and on Highway 4 at Willow
Avenue
3. Capitol Corridor capital and/or operational improvements
4. Ferry service from Richmond and/or Hercules/Rodeo
5. BART access and/or parking improvements
6. Bay Trail Gap Closure
7. San Pablo Dam Road improvements in downtown El Sobrante
8. San Pablo Avenue Corridor Improvements
9. N. Richmond road connection project
10. Hercules Transit Center relocation
11. Del Norte Area Transit Oriented Development project(public improvements)
The 11 projects have a total cost of$273 million. Of this amount, approximately$273 million is
anticipated to be funded by other sources or does not satisfy nexus requirements, leaving$98 million
for funding by the updated 2005 STMP.
Chapter 4—STMP Previous Collections and Potential Yield From 2005 Update
The existing STMP was adopted in 1997. A total of near$2.942 million has been collected to date, or
about$39,200 per month. Most of the funds collected have been spent on the Richmond Intermodal
project and the Highway 4 West Project.The 1997 Nexus Analysis indicated that$24.5 million could
be collected for the next 13 years if the maximum fee amounts were adopted,but WCCTAC adopted
a fee that was lower by approximately 80 percent so that$5.1 million was the expected yield. The
adopted rates amount to about$440 per peak hour trip, instead of the$2,100 indicated by the nexus
study. If these same rates were applied to the expected growth in the next 25 years,the yield would
be$12.6 million with the lower rates and$60.0 million with the full rates.
Chapter 5—Program Costs and Fee Calculation
In updating the cost per trip,the total costs of all proposed projects were determined and the outside
funding and non-eligible costs were subtracted to yield a total amount to be included in the program.
The program amount is$101,043,000,and when divided by the amount of peak hour trips generated
by the new development, 28,810,the 2005 STMP cost per trip is$3,507 if all projects were to be
fully funded. This figure is about 67 percent more than the$2,100 cost per trip determined in 1997.
A rate schedule is recommended to fund this full amount. However,WCCTAC may choose to
provide only partial funding of the project list. In 1997,the final fees were set to cover about 20
percent of the recommended program.
Chapter 6—Nexus Findings
California legislation requires that charges on new developments bear a reasonable relationship to the
needs created by, and the benefits accruing to that development. California courts have long used that
reasonableness standard or nexus to test to evaluate the constitutionality of exactions, including
2005 STMP Update for WCCTAC Page 2
TJKM Transportation Consultants April 25, 2005
development fees. Based on the analysis included in the body of this report, it can be concluded that
the future development and the need for their associated improvements meet or exceed the basic
requirements set forth in Government Code sections beginning with 66000 to govern development
fees.
Of the$371 million worth of needed improvements identified in this analysis, over$121 million in
outside funding sources have been identified. These outside sources primarily include Contra Costa
County Measure J, which is the extension of the one-half percent sales tax levied for transportation
improvements. Measure J, which is intended to fund improvements which will correct both existing
and future deficiencies,is a partner to the STMP extension, which by law must only fund future
transportation deficiencies associated with new development. Measure J was approved by Contra
Costa County voters in the general election on November 2,2004. Of the total deficiencies identified
in the 11 proposed STMP projects, only about 27 percent of the funding comes from the STMP. Over
$150 million worth of costs of the i 1 projects fails to satisfy the nexus requirements and was not
included in the program.
The methodology of this report ensured that only the portion of the projects included in the STMP
project list is necessitated by the growth in traffic between 2005 conditions and 2030 conditions.
Thus, there is a reasonable relationship between the proposed use of the STMP and the proposed land
use development projects on which the fee will be imposed. In the same manner there is a reasonable
relationship between the need for facilities included in the STMP and the proposed land use
development projects.
2005 STMP Update for WCCTAC Page 3
TJKM Transportation Consultants April 25, 2005
CHAPTER 2. EXPECTED GROWTH IN HOUSEHOLDS, EMPLOMENT AND
PEAK HOUR TRIPS IN THE WCCTAC AREA
Household Growth
ABAG's Projections 2003 was used to determine the residential and employment growth in the West
County area between 2005 and 2030. The growth in households for the WCCTAC area is shown in
Table I.
The overall residential growth for the area is estimated at 17,910 households, representing a 20.3
percent increase for the 25 year period. Richmond is projected to have about 61 percent of the
residential growth, and Hercules is anticipated to have nearly 19 percent of the growth. Hercules will
be the fastest growing area, with a 50 percent increase in households in the 25-year period.
TABLE I:HOUSEHOLD GROWTH IN WEST CONTRA COSTA COUNTY-2005 TO 2030
Households
2005 2030 Growth Share of Rate of
Growth % Growth k
EI Cerrito 13,160 13,650 490 2.7 3.7
Hercules 6,860 10,270 3,410 19.0 49.7
Pinole 10,700 12,500 1,800 10.1 16.8
Richmond 43,640 54,590 10,950 61.1 25.1
Rodeo-Crockett 4,520 4,680 160 0.9 13.3
San Pablo 9,170 10,270 1,100 6.2 3.5
Totals 88,050 1 105,960 17,910 100.0 20.3
Note: Forecasts are for each city's Sphere of Influence(SOI)except for the Rodeo-Crockett unincorporated area.
Kensington is included in the EI Cerrito SOI,Montalvin Manor and Tara Hills are in the Pinole SOI,N.
Richmond and EI Sobrante are in the Richmond SOI,and Rollingwood is in the San Pablo SOI.
Source: ABAG Projections 2003
Employment Growth
Employment is expected to grow more rapidly than residential development. A growth of over 35
percent is forecast by ABAG for the WCCTAC area, representing an actual job growth of nearly
29,000 positions. Richmond will account for 57 percent of the job growth, with Hercules accounting
for about 18 percent. Hercules job growth rates are nearly 150 percent, while El Cerrito,Pinole and
Richmond are expected to register growth of around 30 percent. The Crockett-Rodeo unincorporated
area is expected to grow by nearly 60 percent. Table II summarizes the anticipated employment
growth in the WCCTAC area.
2005 STMP Update for WCCTAC Page 4
TJKM Transportation Consultants April 25, 2005
TABLE IL•EMPLOYMENT GROWTH IN WEST CONTRA COSTA COUNTY-2005 TO 2030
Employment
2005 2030 Growth Share of Rate of
Growth % Growth %
EI Cerrito 8,170 10,300 2,130 7.4 26.1
Hercules 3,430 8,490 5,060 17.6 147.5
Pinole 6,110 7,920 1,810 6.3 29.6
Richmond 52,390 68,750 16,360 56.8 31.2
Rodeo-Crockett 3,590 5,730 2,140 7.4 59.6
San Pablo 8,460 9,770 1,310 4.5 15.5
Totals j 82,150 j 110,960 28,810 100.0 35.1
Note: Forecasts are for each city's Sphere of Influence except for the Rodeo-Crockett unincorporated area.See
Table I note for details.
Source: ABAG Projections 2003
The anticipated growth in households and employment in the WCCTAC area will result in new peak
hour trips on the transportation network. These are described in the next section.
Trip Generation
In order to determine the amount of traffic that is associated with the expected new development in
the west county area,TJKM applied trip generation rates to the components of the new growth.
As in the original STMP,the 2005 update relies on the a.m. peak hour commute period as the primary
analysis period.The a.m.peak hour period is used in order to not overburden the application of the
traffic fees on retail development. While residential uses and most employment based land uses such
as offices and business parks have similar a.m. and p.m. peak hour trip rates,retail uses typically are
three to four times as heavy in the p.m. period as the a.m.period. Use of the a.m. rates for all uses
tends to spread the fee application more uniformly.
As noted above, there is expected to be a total of 17,910 new households in the WCCTAC area over a
25-year period. Since some of these households will be in multiple family dwelling units and some
will be in single-family dwelling units,TJKM assumed an average of the trip generation rates for the
two residential land use types. The average a.m. trip rate of 0.63 trips per dwelling unit was applied
to the total number of households to yield a total of 11,285 new residential-based trips.
For non-residential uses,a trip rate that is based on numbers of employees,and is representative of
various uses such as offices,business parks,manufacturing and retail uses in the a.m. period, was
selected. The rate selected was 0.60 trips per employee. When that number is applied to the 28,810
growth in employment over the 25-year period,the number of new a.m. peak hour trips generated by
these uses totals 17,286 trips.
These figures are shown in Table III. The table shows the total of the new a.m. trips from both
residential and non-residential growth, 28,571, and also shows the amount of the new trips that are
allocated to each of the WCCTAC agencies. Richmond growth is expected to generate about 59
percent of the new trips, Hercules about 18 percent and the other areas generally between about 5 and
10 percent. The contributions of other agencies are shown in the table below.
2005 STMP Update for WCCTAC Page 5
TJKM Transportation Consultants April 25, 2005
TABLE III:NEw A.M.PEAK HOUR Tarns IN WEST CONTRA COSTA COUNTY—2005 To 2030
New Peak Hour Trips Share of
From From Total Total
Households' Em to menF Trips
EI Cerrito 309 1,278 1,587 5.6
Hercules 2,149 3,036 5,185 18.1
Pinole 1,134 1,086 2,220 7.8
Richmond 6,899 9,816 16,715 58.5
Rodeo-Crockett 101 1,284 1,385 4.8
San Pablo 693 786 1,479 5.2
Totals 1 11,285 1 17,286 28,571 100.0
Source:TJKM
'Growth in households from Table 1 multiplied by 0.63,the average a.m.peak hour trip rate for
single-family and multi-family dwelling units. The Institute of Transportation Engineers Trip Generation,2003 Edition,is the
source of this information.
2Growth in employment from Table 2 multiplied by 0.60,a representative a.m.peak hour trip rate
for employment uses.
The amount of new trips is used in the calculation of the 2005 STMP update cost per a.m. peak hour
trip,as described in subsequent chapters of this report.
2005 STMP Update for WCCTAC Page 6
TJKM Transportation Consultants April 25, 2005
CHAPTER 3. SELECTION AND COST OF PROJECTS
The recommended list of projects to be included in the updated STMP is shown in Table IV below.
The projects are described in greater detail in the remaining portions of this chapter.
TABLE IV:STMP PROJECTS AND AVAILABLE FUNDING
Project Total Cost Measure J Other Unfunded Recommended
Funds Amount STMP
1.Richmond Intermodal station $36,000,000 $21,000,000 $15,000,000 $15,000,000
2.Interchanges on 1-80 at San
Pablo Dam Road and at 46,200,000 30,000,000 16,200,000 14,280,000
Central and on Highway 4 at
Willow Avenue.
3.Capital Corridor 48,200,000 7,500,000 3,000,000 37,700,000 13,255,000
Improvements
4.Ferry service from Richmond 91,000,000 45,000,000 46,000,000 12,650,000
and/or Hercules/Rodeo
5.BART access and/or parking 92,100,000 15,000,000 77,100,000 25,330,000
improvements
6.Bay Trail Gap Closure 5,490,000 348,000 5,142,000 1,510,000
7.San Pablo Dam Road
improvements in downtown EI 6,900,000 6,900,000 1,900,000
Sobrante
B.San Pablo Avenue Corridor 6,000,000 6,000,000 1,650,000
Improvements
9.N.Richmond road connection 7,950,000 7,950,000 4,000,000
project
10.Hercules Transit Center 6,000,000 6,000,000 1,650,000
relocation
11.Del Norte Area TOD 25,000,000 25,000,000 6,875,000
STMP Totals $370,840,000 $97,500,000 $24,348,000 $248,992,000 $98100 000
Project Descriptions
1. Richmond Intermodal Station
The Richmond Intermodal Station/Transit Village is located in downtown Richmond. Other public
improvements (e.g. the center platform)have already been completed using state/federal/local funds
(approximately$22,000,000). The transit village is under construction and the housing on the west
side is more than halfway complete. Funding is needed to complete the following public
2005 STMP Update for WCCTAC Page 7
TJKM Transportation Consultants April 25, 2005
improvements: parking garage, station building, the transit center, and public improvements on the
east side of the station.
Cost: $36,000,000
Other Potential Funding Source(s): Private developer contributions, state/federal transportation funds
and Measure J.
Project Nexus Discussion: The total cost of this project is $36 million,of which approximately$21
million is funded by various sources. Although in the WCCTAC area only 27.5 percent of future
traffic (see Chapter 6 for a detailed finding) is based on 25-year growth, in this case the project was
previously justified(in 1997)based mainly on future deficiencies. However,only an estimated 40
percent of the project is justified by virtue of serving transportation demands of future growth. Thus,
$15 million of the total cost of$36 million is included in the STMP.
STMP Fundine: $15,000,000
2. Interchanges on I-80 at San Pablo Danz Road and Central Avenue and on Highway 4 at Willow
I-80/San Pablo Dam Road—Upgrade and improve the interchange including provisions for
bicyclists and pedestrians. The project will enhance operations and vehicular,bicycle,pedestrian
safety in the vicinity of the interchange.
Cost: $16.7 million
1-80/Central Avenue—Modify and realign the interchange and ramp at Central Avenue.
Cost: $22.5 million
I-80/SR4 Interchange at Willow Avenue—Relocate and realign ramps at Willow Avenue to meet
current standards for improved local access and freeway movements.
Cost: $3.0 million to$7.0 million
Potential funding source(s): Measure J ($30 million);City of Hercules Redevelopment Agency;
private developer contributions; state/federal transportation funds.
Project Nexus Discussion: Improvements to the three interchanges have an estimated total cost of
$46,200,000. However,two of the interchanges—the 1-80 interchanges with San Pablo Dam Road
and with Central Avenue—are currently deficient and only 27.5 percent(25-year traffic growth
within the WCCTAC area)of their improvement costs can be assigned to the STMP. On the other
hand,the need for the Willow Avenue interchange improvements is based in large part on future
growth in the Hercules area. In this case, 50 percent of the costs are assigned to the STMP.The
breakdown of the$14.28 million STMP assignment is$10.78 million for the two 1-80 interchanges
and$3.5 million for the Willow Avenue interchange.
STMP Fundiniz: $14,280,000
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3. Capitol Corridor
Hercules Passenger Rail Station—Hercules passenger rail station(including parking, station platform,
signage and plazas, rail improvements, etc.). Capital improvements along the corridor in West Contra
Costa(track improvements,drainage,fencing, safety improvements,etc.)
Cost: $28.2 million for Hercules passenger rail station and$20 million for capital improvements.
Potential Funding Sources: Measure J ($7.5 million for the station); $3 million TCRP funds(station);
state/federal transportation funds.
Proiect Nexus Discussion: This project is among those whose justification is related to existing
conditions and deficiencies as well as needs caused by future growth. Accordingly, 25-year traffic
growth increase within the WCCTAC area, 27.5 percent, has been applied to the total project cost of
$48.2 million to result in a STMP allocation of$13.3 million.
STMP Funding: $13,255,000
4. Ferry Service to San Francisco from Richmond and/or Hercules/Rodeo
New ferry service to San Francisco from Richmond and/or Hercules/Rodeo utilizing high-speed
vessels. Funds will be used for capital improvements such as vehicles, landside improvements,
parking lighting, transit feeder service, signage, etc. Both ferry services will be in close proximity to
existing and future residential and commercial projects on West County's shorelines.
Cost: $23 million for Richmond(vessels - $12 million;terminal-$11 million); $23 million for
Hercules/Rodeo(vessels -$12 million; terminal- $11 million). Total -$46 million.
Other Potential Funding Sources: Measure J ($45 million for operations); $1 bridge toll; state/federal
transportation funds; fare box.
Project Nexus Discussion: This project is among those whose justification is related to existing
conditions and deficiencies as well as needs caused by future growth. It is assumed that a significant
portion of future ferry ridership will come from existing travelers. Accordingly, 25-year traffic
growth increase within the WCCTAC area,27.5 percent, has been applied to the total project cost of
$46 million to result in a STMP allocation of$12.65 million.
STMP Funding: $12,650,000
5. BART Access and/or Parking Improvements
As a component of BART's Smart Growth Program,funds would be used for parking, aesthetic
and/or access improvements, station capacity improvements, sidewalks, lighting/restroom
renovations,bicycle storage, expanded automatic fare collection equipment,etc. in the West County
area(El Cerrito Plaza,El Cerrito Del Norte, and/or Richmond).
Cost: $92.1 million for the West County area.
Other Potential Funding Sources: Measure J ($15 million); state/federal transportation funds.
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Project Nexus Discussion: This project is among those whose justification is related to existing
conditions and deficiencies as well as needs caused by future growth. Accordingly, 25-year traffic
growth increase within the WCCTAC area, 27.5 percent,has been applied to the total WCCTAC area
project cost of$92.1 million to result in a STMP allocation of$25.33 million.
STMP Funding: $25,330,000
6. Bay Trail Gap Closure
Close gaps in the Bay Trail in West Contra Costa County, including,but not limited to the following:
(1)the one-mile gap along the Richmond Parkway between Pennsylvania and Gertrude Avenues; (2)
the 1.8 mile gap north of Freethy to Payne Drive in Richmond; (3)the two-mile gap from Payne
Drive to Cypress Avenue in Richmond; (4)the one-mile gap from Pinole Shores to Railroad Avenue
in Pinole; and(5)the 1.8 mile gap from Railroad Avenue to Parker Avenue in Hercules.
Cost: $5.49 million
Other Potential Funding Sources: EBRPD sources,private developers,other(to be determined).
Project Nexus Discussion: This project is among those whose justification is related to existing
conditions and deficiencies as well as needs caused by future growth. Accordingly, 25-year traffic
growth increase within the WCCTAC area, 27.5 percent,has been applied to the total WCCTAC area
project cost of$5.49 million to result in a STMP allocation of$1.51 million.
STMPFunding: $1,510,000
7. San Pablo Dam Road Improvements in Downtown El Sobrante
Revitalization of the downtown business district in El Sobrante including traffic calming, additional
signals,pedestrian improvements, turn lanes,etc.that are identified in the Downtown El Sobrante
Transportation and Land Use Plan (and subsequent documents).
Cost: $6.9 million
Potential funding source (s): Measure J,County funds,other state and federal transportation funds.
Project Nexus Discussion: This project is among those whose justification is related to existing
conditions and deficiencies as well as needs caused by future growth. Accordingly, 25-year traffic
growth increase within the WCCTAC area, 27.5 percent,has been applied to the total WCCTAC area
project cost of$6.9 million to result in a STMP allocation of$1.9 million.
STMP Funding: $1,900,000
8. San Pablo Avenue Corridor Improvements
Transportation for Livable Communities infrastructure improvements on San Pablo Avenue through
West Contra Costa County and within a half-mile walking distance of San Pablo Avenue in either
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direction. Also includes improvements as part of the San Pablo Avenue SMART Corridor project
that is currently underway in Alameda and Contra Costa Counties on San Pablo Avenue.
Cost: $6 million
Potential funding source(s): Measure J,Transportation for Livable Communities, state and federal
transportation funds.
Project Nexus Discussion: This project is among those whose justification is related to existing
conditions and deficiencies as well as needs caused by future growth. Accordingly, 25-year traffic
growth increase within the WCCTAC area, 27.5 percent, has been applied to the total WCCTAC area
project cost of$6,000,000 to result in a STMP allocation of$1.65 million.
STMP Funding: $1,650,000
9. North Richmond Road Connection Project
Extend Seventh Street northward approximately 0.1 miles to connect to an eastward extension of
Pittsburg Avenue. Pittsburg Avenue would be extended eastward approximately 0.3 miles to connect
to the Seventh Street extension. The extension will facilitate truck and vehicle traffic passing through
North Richmond from the Richmond Parkway.
Cost: $7.95 million
Potential funding source(s): Measure J, state and federal transportation funds,County redevelopment
funds, County funds.
Project Nexus Discussion: This project is among those whose justification is related to existing
conditions and deficiencies as well as needs caused by future growth. However,this project mainly
aims to serve growth in truck traffic resulting from new development in the North Richmond area. It
is assumed that at least one-half of the traffic on this project will relate to new development in the
area.The STMP assignment is 50 percent of the total cost, or$4 million.
STMP Funding: $4.0 million
10. Hercules Transit Center
Relocate and expand the Hercules Transit Center on the east side of Highway 4 to provide improved
access to/from Highway 4 and improved local circulation.
Cost: $6 million
Potential funding source(s): Private developer contributions; Hercules Redevelopment Agency funds;
state and federal transportation funds.
Project Nexus Discussion: This project is among those whose justification is related to existing
conditions and deficiencies as well as needs caused by future growth. Accordingly, 25-year traffic
growth increase within the WCCTAC area, 27.5 percent, has been applied to the total WCCTAC area
project cost of$6.0 million to result in a STMP allocation of$1.65 million.
STMP Funding: $1,650,000
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11.Del Norte Area Transit Oriented Development project(public improvements)
Planning, engineering, environmental studies,and construction of the public transportation-related
improvements at the El Cerrito Del Norte BART station's Transit Oriented Development project.
Funding will provide improvements including,but not limited to: parking facilities; bicycle,
pedestrian, and/or bus transit access improvements; signage; lighting; improvements to station access
or station waiting areas; ADA improvements; improvements to adjacent streets, street crossings,or
signals; and/or Ohlone Greenway improvements.
Cost: $25 million
Potential funding sources: Private developer contributions; state and federal transportation funds (for
example, Transportation for Livable Communities funds); Measure J funds.
Project Nexus Description: This project is among those whose justification is related to existing
conditions and deficiencies as well as needs caused by future growth. Accordingly, the 25-year
traffic growth increase within the WCCTAC area, 27.5 percent,has been applied to the total project
cost of$25 million to result in a STMP allocation of$6.875 million.
STMP Fundin¢: $6,875,000
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CHAPTER 4. STMP PREVIOUS COLLECTIONS AND 2005 UPDATE POTENTIAL
FEE REVENUES
Collections To Date
The STMP was approved in 1997 and the first funds were received in April of 1998. Between April
of 1998 and July of 2004 a total of$2,942,031.39 has been collected, including$97,255.90 in
interest. For this 75-month period,the average monthly receipts have been approximately$39,200.
During this period,the funds were allocated as shown in Table V.
TABLE V:DISTRIBUTION OF FUNDS RECEIVED TO DATE
Pro ect Allocation Percent Pa ment Balance
Richmond Intermodal $ 232,697.54 7.91 $ 135,391.31 $ 97,306.23
Highway 4 West $ 2,393,722.86 81.36 $2,100,435.39 $293,287.47
EI Cerrito Plaza BART Parking $ 232,697.54 7.91 $ 0 $232,697.54
WCCTAC Administration $ 38,782.92 1.32 $ 34,137.94 $ 4,644.98
CCTA Administration $ 44,130.47 1.50 $ 43,576.70 $ 553.77
Total $ 2,942,031.34 100.00 1 $2,313,541.34 $628,490.00
Source: CCTA
If this monthly rate of receipts would continue for a 20-year period,the total receipts would be over
$9.4 million in current dollars,not including any interest. This is one measure of the amount of funds
that could be received over a 25 year period beginning in 2005 if the same fees would prevail and the
same rate of development were to continue.
The Nexus Analysis prepared in 1997 indicated that the fees established at that time should yield
about$5.1 million over 13 years (1997 to 2010). This calculates to an average of about$33,000 per
month, so the actual receipts of about$39,200 per month, including interest, are conservatively close
to the original estimates.
It should be noted that the 1997 Nexus Analysis showed that WCCTAC could legally establish fees
whose revenues would total$24.5 million. However,at the time it was felt that it was appropriate to
reduce the financial burden on both commercial and residential development. Single-family
residential fees were established at$700 per unit instead of the allowable $2,345. Multi-family
residential fees were reduced from$1,002 to $560. Retail,office and industrial fees were established
at$0.20 per square foot, instead of allowable rates ranging from$1.37 to$2.88 per square foot of
development.
Potential Fee Revenues From 2005 Update
As noted above,the 1997 Nexus Analysis justified a total cost of$24.5 million in funds to be paid by
the fee. This amounts to a rate of about$2,100 per peak hour trip. However,the amount of fee
actually enacted amounted to about$440 per peak hour trip,or about 20 percent of the maximum
amount. As noted in Table III,there is an estimated 28,571 a.m.peak hour trips associated with the
expected growth in development in the 25-year period beginning in 2005. Using the 1997 rates,this
amount of trips would account for$12.6 million at the reduced rate of$440 per trip over the 25-year
period or$60.0 million at the full rate of$2,100 per peak hour trip.
Recommendations for the fees associated with the 2005 STMP update are described in the next
chapter.
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CHAPTER 5. PROGRAM COSTS AND FEE CALCULATION
Updated Cost per Trip Estimate
Table VI presents a summary of the STMP improvement project costs,required adjustments to
account for past STMP activities,the projected future trips to be added by new development,and the
resulting estimated STMP improvement cost per trip. The total cost of the STMP projects to be
included is $370,840,000. Adjustments to the fee are as follows:
• Outside Funding-$121,848,000: These are anticipated funds from outside sources that will
offset the costs of projects in the STMP. See Table IV for details.
• Exceeds Nexus- $150,892,000: These are funds that exceed the nexus test described in
Chapter 3 and 6.
These adjustments are applied to the fee calculation as shown in Table VI. The updated fee
calculation is based on trip generation estimates in Table 3 and the cost estimates of the STMP
improvement projects presented in Table IV. The updated cost per trip is $3,507,using a total STMP
project cost of$101,043,000 and a total of 28,810 new a.m. peak hour trips. The STMP improvement
projects cost and the STMP portion of these costs as well as the calculated new STMP cost per trip
are shown in Table VI.
Table VII presents the new STMP schedule of fees. The land use categories in this fee schedule
reflect the current situation with the STMP.
TABLE VI:2005 COST PER TRIP ESTIMATE
Actual STMP STMP Portion
STMP Portion of Change from
STMP Improvement Projects 1997 Costs Fee Adopted of 1997 STMP
In 1997 2005 Costs
All Projects $64,267,500 $370,840,000 +$306,572,500
Subtotal $64,267,500 $370,840,000 +$306,572,500
Outside Funding $39,841,000 $121,848,000 +$82,007,000
Exceeds Nexus - $150,892,000 +$150,892,000
Net Improvement Costs $24,426,500 $5,100,000 $98,100,000 +$73,
Plus Administrative Costs(3%) (Included in total) -- $2,943,000
Total STMP Funding $24,426,500 $5,100,000 $101,043,000 +$76,616,500
Total Peak Hour Trips Added by
New Development 11,589 11,589 28,810 +17,223
STMP Cost Per Trip $2,100 $4401 $3,507
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TABLE VII:2005 RECOMMENDED STMP RATES AND FEES AND FEES
Peak Hour Units of 2005 1997 Fee Rates 1997 Fee Rate
Land Uses Trip Rates Use Fee Rates' (full funding) as Adopted
(full funding)
Single-family Residential 0.74 DU $2,595 $ 1,554 $700
Multi-family Residential 0.47 DU $1,648 $987 $560
Senior Housing 0.21 DU $701
Hotel 0.56 Room $1,964
Retail 0.52 KSF $1.82 $0.34 $0.20
Office 1.00 KSF $3.51 $ 2.79 $0.20
Industrial 0.70 KSF $2.45 $ 1.89 $0.20
Casino 6.08 KSF1 $21.32
Storage facility 0.15 KSF $0.53
Church 0.45 KSF $1.58
Hospital 1.20 1 KSF 1 $4.21
Casino rates are based on square footage of the gaming area.
DU=Dwelling Unit
KSF=Thousand Square Feet
Note:Based on$3,507 per peak hour trip
Other Factors In STMP Update
Trip Adjustments The peak hour trip rate for the retail category was adjusted to account for trip
lengths as described in the 1997 study. The base a.m. rate for retail was reduced by 50 percent to
account for reduced trip lengths as compared with non-retail uses. Trip rates for the office category
were reduced froml.33 trips per thousand square feet(ksf)to 1.00 trips per ksf; industrial trip rates
were reduced from 0.90 to 0.70.
Exempt Development In the 1997 study, it was found that slightly more than 10 percent of the land
use depicted as future growth already had some level of land use entitlements and would be exempt
from the STMP payments. These exemptions were either because a)a vested tentative map had been
issued, or b) a development agreement had been completed which specifically excludes assessment of
any additional fees. It will continue to be appropriate for fees to be waived in these cases, although it
is unlikely that development agreements have been approved subsequent to 1997 that eliminate
participation in WCCTAC STMP fees.
Special Cases As was the case in 1997, it remains appropriate for developers to request a special
traffic study if it is felt that their particular land use proposal either does not fit into one of the land
use categories or if the particular development may generate less traffic than the category provides.
The methodology for conducting such a study shall be approved by the WCCTAC upon
recommendation of the WCCTAC-TAC.The appropriate governing/permitting agency shall be
responsible for reviewing and approving the individual traffic studies.
Establishment of Final WCCTAC STMP Fee WCCTAC may decide, as it did in 1997, not to levy
the full fee that has been established as a part of this study. If so,the results will be reflected in an
adjustment to this study.
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CHAPTER 6. NEXUS FINDINGS
Forecasts of future traffic volumes were made to provide the data needed to establish the reasonable
connection between new development's travel demand and the need for and costs of the proposed
projects within the WCCTAC area. ABAG's Projections 2003 was used to determine the amount of
growth in land use in the west county area between 2005 and 2030. Subsequently,traffic usage
related to the growth was calculated as described in Chapter 2.
Using the traffic generation results and the estimated project costs,the portion of the estimated
project costs that can reasonably be connected with the need generated by projected new development
has been calculated.
The following process was used to established the amount of a project that can attributed to growth
and thereby be eligible for STMP funding:
Amount of households in 2005 88,050(from Table 1)
Amount of employees in 2005 82,150 (from Table 2)
Household trips in 2005=88,050 x 0.63* 55,472
Employment trips in 2005=82,150 x 0.60* 49,290
Total trips in 2005=55,472+49,290 104,762
Growth in trips between 2005 and 2030 28,810(from Table 3)
Percent of traffic related to 25 year growth=28,810/104,762 27.5%
*Trip rates—see page 5 for details
Therefore, as noted in the Project Nexus Discussion in Chapter 3 for each of the 11 STMP projects, a
minimum of 27.5 percent of the cost of each project was assigned to the STMP,unless a lesser
amount of funds is necessary to fully fund the proposed project. In a few cases, a greater percentage
was utilized when conditions dictated.
It is noted that of the$371 million worth of needed improvements identified in this analysis, over
$121 million in outside funding sources have been identified. These outside sources primarily
include proposed Contra Costa County Measure J, which is the extension of the one-half percent sales
tax levied for transportation improvements. Measure J, which is intended to fund improvements
which will correct both existing and future deficiencies,is a partner to the STMP extension, which by
law must only fund future transportation deficiencies associated with new development. Measure J
was approved by Contra Costa County voters in the general election on November 2, 2004. In
addition,the project nexus analyses indicated that$150,892,000 of the projects does not meet the
minimum nexus requirement.Thus, of the total deficiencies identified in the 11 proposed STMP
projects, only 27 percent of the funding comes from the STMP.
The methodology of this report is to ensure that only the portion of the projects included in the STMP
project list is necessitated by the growth in traffic between 2005 conditions and 2030 conditions.
Thus, there is a reasonable relationship between the proposed use of the STMP and the proposed land
use development projects on which the fee will be imposed. In the same manner there is a reasonable
relationship between the need for facilities included in the STMP and the proposed land use
development projects.
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CHAPTER 7. STUDY PARTICIPANTS
TJKM Transportation Consultants Personnel
Chris D. Kinzel,P.E. Project Engineer
Brad Thornton Project Engineer
Dan Harrison Project Planner
Evi Pagh Word Processing/Production
The Reed Group
Robert Reed Principal
Persons/Agencies Consulted/WCCTAC -- TAC Members
Lisa Hammon,Managing Director WCCTAC
Brad Beck CCTA
Bruce Beyaert Trails for Richmond Action Committee(TRAC)
Aleida Chavez WestCAT
Rich Davidson City of Richmond
John Greitzer Contra Costa County Community Development Department
Deidre Heitman BART
Adele Ho City of San Pablo
Bruce King City of El Cerrito
Nathan Landau AC Transit
Steve Lawton City of Hercules
John MacKenzie Caltrans
Brent Salmi Pinole
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