Department of Transportation
New Transportation Performance
Measures for Transportation
Analysis and Thresholds for CEQA
Council Meeting
November 3, 2014
Transportation Performance Measures
Department of Transportation
• Overview of New Performance Measures
• Staff Recommendations on CEQA Thresholds
• Overview of OPR’s Draft CEQA Guidelines
Implementing SB 743
• Summary of Recommendation from the
Planning Commission, TAC and MSC
• Implementation of the New Performance
Measures and CEQA Thresholds
2
Transportation Performance Measures
Department of Transportation
Recommendation:
1.
Find that:
> the adoption of New Transportation Performance Measures and Thresholds of
Significance for CEQA is not a “project” pursuant to the California
Environmental Quality Act (CEQA), State CEQA Guidelines Sections 15060
(c)(3) and 15378;
> the thresholds are promulgated pursuant to State CEQA Guidelines Section
15064.7;
> the thresholds have been formally subjected to a public review process; and
> the thresholds are supported by substantial evidence as summarized herein;
and
2.
Adopt a resolution replacing two existing Transportation Performance Measures
with five new Transportation Performance Measures and Set Thresholds of
Significance for CEQA for the new measures.
3
New Measures Public Review
Department of Transportation
Draft
Measures
Proposed
Measures
•
•
•
•
Transportation Advisory Commission (Feb & Mar 2014)
Municipal Services Committee (March 2014)
Community Meeting (March 2014)
Planning Commission (April 2014)
• Transportation Advisory Commission (May, June, Sep
2014)
• Planning Commission (May, June, July, Sep 2014)
• Community Meetings (June 2014)
• Municipal Services Committee (July & Oct 2014)
4
Transportation Performance Measures
Department of Transportation
• The Mobility Element is focused on three main
policy objectives, as refined from the 2004
General Plan and extensive community input:
• Enhance livability
• Encourage walking, biking, transit, and other
alternatives to motor vehicles
• Create a supportive climate for economic viability
5
Current Thresholds
Department of Transportation
• Intersection Level of Service (LOS) - Volume
to capacity ratios are the primary measures.
• Street Segment Analysis - Volume-based
analysis of change in traffic on street
segments to assess impact.
6
Current Mobility Metrics
Department of Transportation
Land Use Impact Analysis
• Intersection Level of Service (LOS)
• Street Segment Impacts
Transportation System Performance
• Average Vehicle Ridership (AVR) – TRO Goal
of 1.5 for regulated sites
• Annual ARTS Ridership
• Green City Action Plan – Urban Environmental
Accord Indicators
• Arterials average travel time & speeds
7
What’s right with the present system?
Department of Transportation
• Familiar
• Responds to many people’s “hot button”
issues
• Established basis for funding and
mitigation
• Syncs up with other agencies
8
Why consider changes to the system?
Department of Transportation
• Not-so-good reflection of
people’s real experiences
• May be producing
unintended
consequences
• Not well-aligned with
adopted policies
• Not consistent with the
vision of Land Use and
Mobility Element Update
9
Transportation Performance Measures
Department of Transportation
Five Proposed Measures with CEQA Thresholds
1. Vehicle Miles Traveled Per Capita
2. Vehicle Trips Per Capita
3. Prox. & Quality of Bike Facilities
4. Prox. & Quality of Transit Facilities
5. Pedestrian Accessibility & Quality
10
Transportation Performance Measures
Department of Transportation
Metric
VMT Per
Capita
Description
CEQA Threshold
Vehicle Miles
Traveled
(VMT) in the
City of
Pasadena
per service
population
(population +
jobs).
Any increase in Existing
Citywide VMT per Capita
22.6
11
Transportation Performance Measures
Department of Transportation
Metric
VT Per
Capita
Description
CEQA Threshold
Vehicle Trips
(VT) in the
City of
Pasadena
per service
population
(population +
jobs).
Any increase in Existing
Citywide VT per Capita
2.8
12
Transportation Performance Measures
Department of Transportation
VMT and VT Per Capita Measures
• Not Replacements for LOS
• Are Measures of Accessibility and
Sustainability
• Projects may reduce VMT by substituting
shorter trips for longer ones
13
Transportation Performance Measures
Department of Transportation
Metric
Proximity
and
Quality of
Bicycle
Network
Description
CEQA Threshold
Percent of
dwelling units
and jobs
within a
quarter mile
of each of
three bicycle
facility types.
Any decrease in % of units
or employment within a ¼
mile of Level 1 or 2 Bike
Facility*
* Bike Path, Protected or
Buffered Bike Lane, Bike
Boulevard
14
Transportation Performance Measures
Department of Transportation
Metric
Description
CEQA Threshold
Proximity
and
Quality of
Transit
Network
Percent of
jobs located
within a
quarter mile
of each of
three transit
facility types
Any decrease in % of units
or employment within a ¼
mile of Level 1 or 2 Transit
Facility*
* Gold Line Station or bus
route with service every 15
minutes or less.
15
Transportation Performance Measures
Department of Transportation
Metric
Proximity
and Quality
of
Pedestrian
Environment
Description
The Pedestrian
Accessibility
Score within each
TAZ. The
Pedestrian
Accessibility
Score uses the
mix of
destinations, and
a network-based
walk shed to
evaluate
walkability.
CEQA Threshold
Any decrease in Citywide
Pedestrian Accessibility
Score*
* The number of different land
use types (destinations) within
a five minute walk
16
New Performance Measures
Department of Transportation
Planning Commission Actions
Motion Passed Supporting the Three Proximity Bases
Performance Measures:
• Any decrease in the percentage of units or employment
within a ¼ mile of a Level 1 or 2 Bike Facility
• Any decrease in the percentage of units or employment
within a ¼ mile of a Level 1 or 2 Transit Facility
• Any decrease in the Citywide Pedestrian Accessibility
Score
17
New Performance Measures
Department of Transportation
Planning Commission Actions
Motions Passed Supporting:
• CEQA Thresholds of Auto LOS D Citywide and LOS E
in TOD Areas
• Modified Street Segment Analysis: all street types and
land uses as a CEQA Threshold
Motions Passed Opposing:
• VMT and VT per Capita as CEQA Thresholds
18
New Performance Measures
Department of Transportation
Transportation Advisory Commission Actions
Motion Passed Supporting all Six Proposed Transportation
Performance Measures and CEQA Thresholds
Motion Passed Recommending the Addition of Colorado
Blvd. High Quality Transit Corridor as an Infill Opportunity
Zone.
19
New Performance Measures
Department of Transportation
Municipal Services Committee Actions
Motion Passed Supporting Vehicle Miles Traveled and
Vehicle Trips per Capita Measures and CEQA Thresholds
Support for the Bicycle, Transit and Pedestrian Proximity
Measures and CEQA Thresholds
Accept that Auto Level of Service (LOS) and Street Segment
Analysis will no longer have CEQA Thresholds and directed
staff to develop a process by which LOS and Street Segment
analysis would be applied to large development projects for
purposes of applying standard conditions of approval to
address identified effects
20
SB 743 – CEQA Changes to LOS
Department of Transportation
SB 743 was signed into law in September 2013
• Eliminates the use of Auto delay as defined by LOS
(capacity or congestion) for evaluating transportation
impacts in Transit Priority Areas and Infill Opportunity Zones
• Allows cities to adopt Infill Opportunity Zones
SB 743 requires the Governor’s Office of Planning and
Research (OPR) to identify an alternative method for
evaluating transportation impacts
• The method must “promote the reduction of greenhouse gas
emissions, the development of multimodal transportation
networks, and a diversity of land uses”
21
Transportation Performance Measures
Department of Transportation
On August 6, 2014 the Governor’s Office
of Planning and Research (OPR) released
a Preliminary Discussion Draft of Updates
to CEQA Guidelines Implementing SB 743
The report recommends amendments to
the CEQA Guidelines to replace the Level
of Service (LOS), auto delay based
standard with a Vehicle Miles Traveled
(VMT) in order to align CEQA analysis
more closely with other state goals, most
notably the greenhouse gas emission
reduction goals contained in the state’s
climate change law, AB 32.
22
Transportation Performance Measures
Department of Transportation
The OPR report proposes the following amendments to the
CEQA Guidelines:
• Eliminate Level of Service (LOS)/Delay as a CEQA Impact
• Proposes use of Vehicle Miles Traveled (VMT) Metric for CEQA
Transportation Analysis
• Continued Analysis of Impacts Resulting from Transportation, such as
Noise, Air Quality and Safety
• Required assessment of growth inducing impacts of roadway expansion
• Applies to CEQA Only and Does Not Preclude Addressing Traffic
Congestion in Local General Plan Policies, Zoning Codes, Conditions of
Approval, Thresholds, or Fee Programs
• Addresses Phase-in of New Guidelines
23
Transportation Performance Measures
Department of Transportation
SB 743 did not authorize OPR to set thresholds, but
did direct OPR to develop Guidelines for determining
the significance of transportation impacts of projects.
OPR recommends that a project that results in
vehicle miles traveled that is greater than the regional
average might be considered to have a significant
impact. Average in this case would be measured
using an efficiency metric such as per capita, per
employee, etc.
24
Transportation Performance Measures
Department of Transportation
• OPR has proposed the following phase-in of the
New CEQA Guidelines:
• The standards will not be retroactive:
> Approved projects will be subject to mitigations exacted
under the old standard
• The new standards will only apply to Transit
Priority Areas
• Local governments may apply the standard to
other areas on an “opt-in” basis at first
• The new standards will apply statewide as of
January 1, 2016
25
Transportation Performance Measures
Department of Transportation
Transit Priority Areas
• “Transit Priority Area” means an area within one-half mile
of a major transit stop that is existing or planned
• “Major transit stop” includes rail transit stations, or the
intersection of two or more major bus routes with
frequencies of service intervals of 15 minutes or less
during the morning and afternoon peak commute periods
• According to OPR, planned major transit stops contained
in a Regional Transportation Plan (RTP) comply with the
definition above for transit priority areas
26
SB 743 Transit Priority Areas
Department of Transportation
27
SB 743 High Quality Transit Corridor
Department of Transportation
28
Modified Performance Measures
Department of Transportation
• Two existing measures replaced in CEQA
> Auto Level of Service
> Street Segment Analysis
• Continue to include in Transportation Study
Guidelines for Project Review
> Consistent with provisions of SB 743
• Modified to be consistent with General Plan
goals and Mobility Element objectives
• Methodology updated to current standard
29
Modified Intersection LOS Analysis
Department of Transportation
• Applied to Projects of Communitywide
Significance
> 50,000 Square Feet and/or 50 Dwelling Units
• LOS Methodology updated to current standard
> Defined by 2010 Highway Capacity Manual
> Uses intersection control delay to evaluate auto
congestion
• Measured for compliance with intersection LOS
caps by location
> LOS D outside TOD zones
> LOS E inside TOD zones30
Transportation Performance Measures
Department of Transportation
Signalized Intersections
Citywide – LOS D Cap
TOD Areas – LOS E Cap
31
Modified Street Segment Analysis
Department of Transportation
• Response to Planning Commission and TAC support for a
modified Street Segment Analysis
> Focused on neighborhood protection
• Applied to Projects of Communitywide Significance
> 50,000 Square Feet and/or 50 Dwelling Units
• Analysis would be limited to “Access” and “Neighborhood
Connector” street types within a residential context
• Project approval conditions would be imposed on
developments based on a “Percentage net increase of
project Average Daily Traffic (ADT) over Existing ADT”
32
Modified Street Segment Analysis
Department of Transportation
• Conditions of Approval - develop and implement a
targeted complete streets plan with input from the
affected residents, council districts and
Transportation Department
• Plan elements would discourage use of residential
streets to-and-from the project site consistent with
established Neighborhood Traffic Management
Program guidelines
33
Modified Street Segment Analysis
Department of Transportation
• Possible measures for Conditions of Approval:
• Project specific measures:
• Establish a more aggressive AVO target than TRO
• Project turn-restrictions
• Revised project access and circulation
• Complete Streets measures
• Curb Extensions
• Pedestrian and Bike Traffic signal upgrades/enhancements
• Turn-restrictions
• Neighborhood Gateways (raised medians)
• Traffic circles
• Speed humps
• Signal metering
34
Pasadena Street Types Plan
Department of Transportation
35
New Performance Measures
Department of Transportation
Implementation of the New Measures
• Begin General Plan EIR Analysis with New Thresholds
• Revise DOT Transportation Review Guidelines
• Stakeholder Outreach on Revised Guidelines
• TAC Review of Revised Guidelines – Dec. 4, 2014
• New Guidelines Take Effect – Dec. 5, 2015
36
Transportation Performance Measures
Department of Transportation
Recommendation:
1.
Find that:
> the adoption of New Transportation Performance Measures and Thresholds of
Significance for CEQA is not a “project” pursuant to the California
Environmental Quality Act (CEQA), State CEQA Guidelines Sections 15060
(c)(3) and 15378;
> the thresholds are promulgated pursuant to State CEQA Guidelines Section
15064.7;
> the thresholds have been formally subjected to a public review process; and
> the thresholds are supported by substantial evidence as summarized herein;
and
2.
Adopt a resolution replacing two existing Transportation Performance Measures
with five new Transportation Performance Measures and Set Thresholds of
Significance for CEQA for the new measures.
37
Transportation Performance Measures
Department of Transportation
38
Project Approval Pipeline
Department of Transportation
Thresholds apply to:
Any new projects
which have
• Not signed a
MOU to prepare a
traffic study
AND/OR
• Not been deemed
complete.
Approved by the City Council
February 10, 2014
39
Modified Street Segment Analysis
Department of Transportation
Comparison of Existing and Modified Street Segment Analysis
Existing Street Segment Analysis Modified Street Segment Analysis
CEQA Threshold at >4.9% increase 8% to 10% above 1500 ADT with a
in ADT
minimum of 150 for ADT <=1500
Applied to Commercial and
Residential Projects
Applied only to Projects of
Communitywide Significance
Applied on All Street Types
Applied on “Access” and “Neigh.
Con.” with Residential Context
No Minimum ADT Increase
Minimum of 150 ADT Increase
Required Measures No Longer
Adequate as CEQA Mitigations
Traffic Intrusion into residential areas
addressed with NTMP Traffic Calming
Measures
40
Case Studies
Department of Transportation
• Projects with Completed CEQA Documents
• Three Different Types of Projects
• Different Areas of the City
• Findings
> Existing LOS metric not demonstrably more sensitive
than VMT/Capita and VT/Capita
41
Case Study 1
Department of Transportation
Mixed Use TOD
156-room hotel
14,000 SF retail
8,000 SF personal srvcs
38,000 SF restaurant
103,000 SF office space
5 residential units
Existing Metrics
•
•
Proj. Incr
•
•
•
•
•
•
•
Exist + Proj
880 E Colorado Blvd.
LOS 15 Ints. Studied – No Impacts
12 Segs. Analyzed – 2 impacted
42
Case Study 2
Department of Transportation
865 N. Fair Oaks Ave.
•
•
LOS 6 Ints. Analyzed – 0
Impacts
1 Seg. Analyzed – 0 Impact
Proj. Incr
Existing Metrics
Exist + Proj
• Office development
• 19,000 SF of office space
43
Case Study 3
Department of Transportation
188 S Sierra Madre Blvd.
•
•
6 Ints Analyzed – 0 Impacts
3 Segs. Analyzed – 0 Impacts
due to site access modification
Proj. Incr
Existing Metrics
Exist + Proj
• Residential Mixed-Use TOD
• 60 multifamily Units
44
Transportation Performance Measures
Department of Transportation
The Vehicle Miles Traveled (VMT) per Capita measure sums
the miles traveled for trips within the City of Pasadena citywide
model.
The Citywide VMT is calculated by adding:
1) 100% of VMT associated with trips traveling within the
City of Pasadena boundaries that are generated or
attracted by the City
2) 50% of VMT associated with trips with an end or origin
outside of the City.
The City’s VMT is then divided by the City’s total service
population, defined as the population plus the number of jobs.
45
Transportation Performance Measures
Department of Transportation
Street
Project Increase
Segment
to Trigger Impact
ADT
Current
Modified
100
5
150
500
25
150
1,000
49
150
1,500
74
150
2,000
98
200
2,500
123
250
3,000
147
300
3,500
172
350
4,000
196
320
4,500
221
360
5,000
245
400
5,500
270
440
6,000
294
480
6,500
319
520
7,000
343
560
7,500
368
600
8,000
392
640
8,500
417
680
9,000
441
720
46
Transportation Performance Measures
Department of Transportation
The OPR report offers guidance in setting the size of the area
to be analyzed when calculating VMT per Capita:
• “The area of analysis should be chosen to capture the full
VMT effects of the project; it should avoid truncating the
analysis.”
• “The area chosen for analysis should cover the full area
over which the project affects travel behavior.”
• “…a lead agency generally should not confine its evaluation
to its own political boundary.”
47
New Performance Measures
Department of Transportation
Specific Plan Buffer Area
48
New Performance Measures
Department of Transportation
Traffic Analysis Zone (TAZ)
Buffer Area Around Case
Study Projects
49
New Performance Measures
Department of Transportation
Half Mile Buffer Area
Around Case Study Projects
50
Transportation Performance Measures
Department of Transportation
SIGNALIZED INTERSECTION LOS CRITERIA
LEVEL OF
SERVICE
DESCRIPTION
DELAY IN
SECONDS
A
Progression is extremely favorable and most vehicles arrive during the green
phase. Most vehicles do not stop at all. Short cycle lengths may also contribute
to low delay.
B
Progression is good, cycle lengths are short, or both. More vehicles stop than
with LOS A, causing higher levels of average delay.
> 10.0 to
20.0
C
Higher congestion may result from fair progression, longer cycle lengths, or both.
Individual cycle failures may begin to appear at this level, though many still pass
through the intersection without stopping.
> 20.0 to
35.0
D
The influence of congestion becomes more noticeable. Longer delays may result
from some combination of unfavorable progression, long cycle lengths, or high
V/C ratios. Many vehicles stop, and the proportion of vehicles not stopping
declines. Individual cycle failures are noticeable.
> 35.0 to
55.0
E
This level is considered by many agencies to be the limit of acceptable delay.
These high delay values generally indicate poor progression, long cycle lengths,
and high V/C ratios. Individual cycle failures are frequent occurrences.
> 55.0 to
80.0
This level is considered unacceptable with oversaturation, which is when arrival
flow rates exceed the capacity of the intersection. This level may also occur at
high V/C ratios below 1.0 with many individual cycle failures. Poor progression
and long cycle lengths may also be contributing factors to such delay levels.
> 80.0
F
Source: 2010 Highway Capacity Manual.
51
< 10.0
Existing Intersection LOS Thresholds
Department of Transportation
52
Transportation Performance Measures
Department of Transportation
High Pedestrian Activity Areas and Existing TOD Areas
All Signalized Intersections
Citywide 330
53
Transportation Performance Measures
Department of Transportation
Originally Proposed High Pedestrian Activity Areas
Signalized Intersections
Subject to Policy Based
No CEQA Threshold
224 (68% of All Signals)
54
Transportation Performance Measures
Department of Transportation
½ Mile Radii Around Gold Line Stations
Signalized Intersections
Subject to No CEQA
Threshold per SB 743
158 (48% of All Signals)
55
Department of Transportation
158, 168 & 188 S. Sierra Madre
Blvd- Town and Country Site
Revised site plan eliminated project access for 158
S. Sierra Madre Blvd from Oswego Street, with 350
daily vehicles, and directed its traffic onto Sierra
Madre Blvd
Access for 158 S. Sierra Madre
Blvd Project Original Site Plan
Department of Transportation
• Original Site Plan
57
Revised Site Plan- Access for both 158 &
168 S. Sierra Madre Blvd
Department of Transportation
• Revised Site Plan
58
Del Mar Bl Conceptual Drawing
Department of Transportation
59
Transportation Performance Measures
Department of Transportation
60
Transportation Performance Measures
Department of Transportation
Auto Corridor Travel Time Measure
• Removed from the list of recommended transportation
measures and CEQA Threshold
• While this measure, from a technical standpoint, is
functional at the General Plan level and can provide
insights into the aggregate effect of development on travel
times staff was not able to identify substantial technical
evidence for establishing a threshold of significance to the
extent required by the CEQA Guidelines
61
Transportation Performance Measures
Department of Transportation
62
Transportation Performance Measures
Department of Transportation
Policy Based LOS Thresholds
LOS may conflict with other community values reflect in
General Plan Policies including:
• Creating pleasant and safe walking and bicycle
environments
• Developing well utilized public transportation systems
• A vision for infill development
• LOS not the best metric to demonstrate that a project is
consistent with the general plan
• The impact analysis will often ignore the effects on
pedestrians, bicyclists, transit riders and green-house
gases.
63
Transportation Performance Measures
Department of Transportation
California Cities with Policy Based LOS Thresholds
•
•
•
•
•
•
•
•
•
•
San Jose
Sacramento
Roseville
Walnut Creek
El Dorado County
Yolo County
Davis
Citrus Heights
Emeryville
El Cerrito (San Pablo Avenue corridor) – LOS as an
advisory measure, not a requirement
64
Community Workshop Comments
Department of Transportation
• Support for measures which will result in
improved bicycle, transit and pedestrian
facilities
• High Pedestrian Activity Area map should
include Pasadena City College and Cal Tech
campuses
• The definition of Level 1 and 2 Bike Facilities
(bike lanes) should related to “low stress”
facilities on the City’s Bike Stress Map
65
Street Segment Analysis
Department of Transportation
Pros
• Identifies changes to vehicle volumes on all streets including residential streets.
Cons
• No minimum threshold for street Average Daily Traffic (ADT) to establish impacts.
• Impact tied to a percentage increase in traffic resulting in small increases in traffic triggering
impacts on streets with low ADTs.
• Does not accurately reflect perceptible changes to traffic volume on street with low ADT
• Metric is not consistent with the land use densities identified in the adopted General Plan and
can cause project alternatives at densities lower than adopted General Plan land use.
• Forces projects to place new driveways on streets with higher vehicular traffic and pedestrian
and bike volumes. Introductions of new driveways negatively impacts pedestrian and bicycle
environments, and increases congestion on major travel corridors leading to potential cutthrough traffic on residential streets.
• Mitigation measures proposed in 2005 for Street Segment impacts are no longer adequate
under current CEQA Guidelines.
• Segment metric and impact threshold applies to both residential and commercial projects.
Trips associated with residential projects in residential neighborhoods are not cut through
traffic per se.
66
Transportation Performance Measures
Department of Transportation
67
Transportation Performance Measures
Department of Transportation
TABLE 6 – BIKE FACILITIES HIERARCHY
LEVEL
1 (A)
DESCRIPTION
Advanced Facilities
FACILITIES INCLUDED
Bike Paths (P1)
Multipurpose Paths (PP)
Cycle Tracks (not planned)
2 (B)
Dedicated Facilities
Buffered Bike Lanes (not planned)
Bike Lanes (2, P2)
3 (C)
Basic Facilities
Bike Routes (3, P3)
Enhanced Bike Routes (E3, PE3)
Bike Boulevards (BB)
Emphasized Bikeways (PEB)
Source: City of Pasadena Bicycle Transportation Plan, 2012.
68
Transportation Performance Measures
Department of Transportation
69
Transportation Performance Measures
Department of Transportation
70
Transportation Performance Measures
Department of Transportation
TABLE 7 – TRANSIT FACILITIES HIERARCHY
LEVEL
FACILITIES INCLUDED
1 (A)
Includes all Gold Line stops as well as corridors with transit service, whether it be a single route or
multiple routes combined, with headways of five minutes or less during the peak periods.
2 (B)
Includes corridors with transit headways of between six and fifteen minutes in peak periods.
3 (C)
Includes corridors with transit headways of sixteen minutes or more at peak periods.
Source: Draft Streets Types Plan, Pasadena Department of Transportation, March 2013.
71
Transportation Performance Measures
Department of Transportation
72