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HomeMy WebLinkAboutReso 1991-16402 RESOLUTION NO. 16402 RESOLUTION OF THE CITY COUNCIL OF THE CITY OF CHULA VISTA AMENDING SECTIONS 3.12 AND 3.2 OF THE CITY'S GROWTH MANAGEMENT PROGRAM The City Council of the City of Chula Vista does hereby resolve as follows: WHEREAS, this item includes an amendment to Growth Management Program as recommended by the Growth Management Oversight Commission in its 1990 report; and, WHEREAS, the Planning Commission, Montgomery Planning Committee, and Growth Management Oversight Commission recommended approval of the proposed amendments as part of their review of the 1990 GMOC report on July 10, 1991; and, WHEREAS, in addition, the Planning Commission held a public hearing on the proposed amendments on October g, 1991, and voted 5-0 to recommend approval of the amendments; and, WHEREAS, the Council finds that the proposed amendments are categorical ly exempt from environmental review under Class 5 of the CEQA Guidelines. NOW, THEREFORE, BE IT RESOLVED that the City Council of the City of Chula Vista does hereby adopt the proposed amendment to Sections 3.12 and 3.2 of the Growth Management Program contained in Exhibit "B", a copy of which is attached hereto and incorporated herein by reference as if set forth in full. Presented by A~Br~~to ~m~ ~ Robert A. Leiter Boogaard City Attorney Director of Planning Resolution No. 16402 Page 2 Growth Management Pro~ffn Sections 3.2 and 3.12 Resolution No. 16402 Page 3 3.2 TRAFFIC 3.2.1 Ri~fing Threshold Policy Goal 1. To provide and maintain a safe and efficient street system within the City of Chula Vista. 2. To establish a performance measurement methodology enabling the City to accurately determine existing levels of senrice for motorists. 3. To define a level of service value that represents a high quality of traffic flow under constrained operating conditions during peak periods of traffic activity. 4. To establish a performance standard which is consistent with the Regional Growth Management Standards. 5. To maintain consistency in terms of LOS ratings between the previous Intersection Capacity Utilization CICU) methodology and the 1985 Highway Capacity Manual (HCM) methodology. Objective 1. Ensure timely provision of adequate local circulation system capacity in response to planned growth, maintaining acceptable levels of senrice (LOS). 2. Plan new roadway segments and signalized intersections to maintain acceptable standards at buildout of the General Plan - Circulation Element. Threshold Standard 1. City-wide: Maintain LOS 'C" or better, as measured by observed average travel speed on all signalized arterial segments except that during peak hours a LOS of "D" can occur for no more than any two hours of the day. 2. West of Interstate 805: Those signalized intersections which do not meet the standard above may continue to operate at their current (year 1991) LOS, but shall not worsen. Notes to Standards: 1. Arterial segments LOS measurements shall be for the average weekday peak hours, excluding seasonal and special circumstance variations. 2. Urban and suburban arterials are defined as surface highways having signal spacing of less than two miles with average weekday traffic volumes greater than 10,000 vehicles per day. Arterial segments are stratified into three class~cations: Resolution No. 16402 Page 4 Class I arterials are roadways where free flow traffic speeds range between 35 mph and 45 mph and the number of signalized interactions per mile are less than four. There is no parking and there is generally n access to abutting property. Class II arterials are roadways where free flow traffic speeds range between 30 mph and 35 mph, the number of signalized intersection per mile range between four and eight, there is some parking and access to abutting propervies is limited. Class III arterials are roadways where free flow traffic speeds range between 25 mph to 35 mph and the number of signalized intersections per mile are closely spaced. There is substantial parking and access to abutting property is unrestricted. 3. The LOS measurements of arterial segments at freeway ramps shall be a growth management consideration in situations where proposed developments have a significant impact at interchanges. 4. Circulation improvements should be implemented prior to anticipated deterioration of LOS below established standards. 5. The criteria for calculating arterial LOS and defining arterial lengths and classifications shall follow the procedures detailed in Chapter 11 of the 1985 Highway Capacity Manual (HCM) and shall be confumed by the City Traffic Engineer. 6. During the conduct of future Traffic Monitoring Program field surveys, intersections, experiencing significant delays will be identified. The information generated by the field surveys will be used to determine possible signal timing changes, geometric and/or traffic operational improvements for the purpose of reducing intersection delay. 7. Level of service values for arterial segments shall be based on the following table: Average Travel Sneed (MPH) Level of Service Class 1 Class 2 Class 3 A > 35 > 30 > 25 B > 28 > 24 > 19 C >2.2 >18 >13 D >17 >14 > 9 E >13 >10 > 7 F <13 <10 < 7 Source:Highway CanacitV Manual, SVecial ReVort 209, Transvormfion Research Board, National Research Council, Washington D.C., 1985. Implementation Measure Should the GMOC determine that the Threshold Standard is not being satisfied, then the City Councfi shall, within 60 days of the GMOC's report, schedule and hold a public hearing for the purpose of adopting a moratorium on the acceptance of new tentative map applications, based on all of the following criteria: Resolution No. 16402 Page 5 1. That the moratorium is limited to an area wherein a causal relationship to the problem has been established; and, 2. That the moratorium provides a mitigation measure to a specifically identified impact. Should a moratorium be established, the time shall be used to expeditiously prepare specific mitigation measures for adoption which are intended to bring the condition into conformance. 3.2.2 Facility Master Plan The Circulation Element of the General Plan serves as the overall facility master plan. Additionally, the City prepared an "East Chula Vista Transportation Phasing Plan" last year which provides additional information relevant to the phasing of development and necessary improvements required in the area east of Interstate 805. This detailed Transportation Phasing Plan is currently being updated and provides additional information to determine compliance with the threshold standard. 3.2.3 Project Processing Requirements Applicants shall meet the following requirements at each stage in the development process. General Devdopment Plan 1. Identify total traffic demand by land use. 2. Test traffic demand on buildont circulation network. 3. Provide project traffic dist~ibntion splits. 4. Determine compliance with General Plan. Sectional Planning Area Plan/Public Facilities Finance Plans 1. Identify phased traffic demand and demonstrate compliance with the "East Chula Vista Transportation Phasing Plan". 2. Identify on-site and off-site impacts and improvements by phase of development. 3. Provide cost estimates for all improvements. Identify whether improvements are interim or full buildout. 5. Propose finance methods for each improvement. Tentative Map 1. Conditions to dedicate the ultimate right-of-way for on-site and off-site improvements. Resolution No. 16402 Page 6 2. Conditions for required improvements by phase of development. Final Map 1. Implement conditions. 2. Provide funding. Building Pennit~ 1. Pay traffic signal fees. 2. Pay Street Development Impact Fees (DIF) or construct roadways and receive credit for DIF circulation streets in accordance with appropriate finance policies. (On site roads constructed with appropriate phase of development). 3. The construction of sewer and water lines must be coordinated with the timing of street construction. 3.2.4 Service Analysis The City of Chula Vista through the Public Works Department is responsible for ensuring that traffic improvements are provided to maintain a safe and efficient street system within the City. Through project review City staff ensures the timely provision of adequate local circulation system capacity in response to planned development while maintaining acceptable levels of senrice. Planned new roadway segments and signalized intersections will maintain acceptable standards at the buildout of the City's general plan and circulation element. The traffic threshold standard will be analyzed by the following: 1. LOS measures shall be for the average weekday peak hour, excluding seasonal and special circumstance variations. 2. The measurement of LOS shall be by the 1985 Highway Capacity Manual (HCM} method of calculation, using the City's published circulation element design standards. 3. Intersection of City arterials with fleeway ramps shall be a consideration in situations where proposed developments have a significant impact at interchanges. 4. Circulation improvements shall be implemented prior to anticipated deterioration of LOS below established standards. Circulation Street Inventory The current circulation system is depicted on Figure 8 and the buildout circulation system is depicted on Figure 9. Figure 7, numbers I through 22, lists the proposed four lane major streets and larger which are included in the 1990 Development Impact Fee. Resolution No. 16402 Page 7 Figure 7 Circulation Street Inventoff Proposed Streets Location Estimated Cost 1. State Route 125 San Miguel to Telegraph Canyon Road $ 8,858,700 North 2. State Route 125 Telegraph Canyon Road to Orange Ave 2,363,800 South 3. Telegraph Canyon Rd Paseo Del Rey to east of Paseo Ladera 1,723,0o0 4. Telegraph Canyon Rd Interstate 805 Interchange/Phase II 967,500 5. Telegraph Canyon Rd Phase I Rutgers Rd to EastLake boundary 4,174,800 6. Telegraph Canyon Rd Phase III Apache Dr to Rutgers Rd 4,258,600 7. East "H" Street Interstate 805 Interchange Modifications 2,638,000 8. East 'H~ Street EastLake Dr to State Route 125 1,052,700 9. Otay Lakes Road Telegraph Canyon Rd south to 1,096, S00 DIF Boundary 10. Bonita Road Otay Lakes Road to Central Avenue 64S,000 11. Bonita Road Central to San Miguel 704,400 12. San Miguel Road Bonita to State Route 125 2,516,600 13. East "H" Street State Route 125 to San Miguel 1,251,300 14. East "H" Street San Miguel to Hunte Parkway 6,192,000 15. Orange Avenue Oleander to eastern DIF Boundary 2,709,000 16. Palomar Street Oleander to eastern DIF Boundary 5,934,000 17. Telegraph Canyon Rd Eastern boundary of EastLake I 5,160,000 to Hunte Parkway 18. EastLake Parkway Telegraph Canyon Rd to southern 5,005,200 boundary 19. Hunte Parkway East "H" Street to Telegraph Canyon 3,378,600 Road 20. Hunte Parkway Telegraph Canyon Road to Orange 4,211,900 21. Orange Avenue EastLake to Hunte Parkway 3,096,000 22. Paseo Ranchero Rd Telegraph Canyon Rd to southern 3,405,600 boundary There are additional circulation element streets that will be added in future updates. Resol uti on No. 16402 Page 8 Circulation Resolution No. 16402 Page g Figure 9 Future Circulation System Resolution No. 16402 Page 10 3.2.5 ,Adequacy Analysis The City of Chula Vista monitors and controls traffic improvements through a number of mechanisms. In 1989, the City authorized preparation of a comprehensive Transportation Phasing Plan for eastern Chula Vista (ECVTPP). The City also recently completed a comprehensive traffic monitoring report. At the present time, the ECVTPP is being updated. Based upon the 1990 GMOC Report, the City Council adopted a new traffic monitoring methodology to replace the Intersection Utilization (ICU) method. The new methodology is the 1985 Highway Capacity Manual CHCM) method and was adopted by Resolution No. 16403 on November 5, 1991, 1991. All future projects will be evaluated in accordance with the HCM methodology. Each year, the GMOC will review the City's street system operations for conformance to the levels of service contained in the traffic threshold standard utilizing the HCM methodology. This annual review will be in addition to the evaluation performed on individual projects as part of the environmental review process. Eastern Chula Vista Transportation Phasing Plan - SurnnlaIy As indicated, the City analyzes traffic with both the monitoring program and the Eastern Chula Vista Transportation Phasing Plan (ECVTPP) information. - The first ECVTPP, which was prepared in June 1989, serves as the City's master plan for phasing street improvements in the eastern portion of the City, This plan projects the allowable levels of develop- ment which can occur in the eastern territories of the City prior to making specific street improvements, It also identifies the various improvements necessary to maintain an acceptable level of service on the cifeulation system, The key facility need identified in the first EGVTPP is the future construction of SR 125, Cumulative development, approximately 9,100 EDUs, will necessitate the construction of this critical north-south roadway before additional development of the eastern portion of the planning area can occur. The ECVTPP identifies future needs for facilities based upon development projections and identifies thresholds that will require new or improved facilities to be constructed in response to development, This phasing plan enables the city and property owners to plan for financing of needed facilities and provides an "early warning" system for future improvements, It provides notification to other public agencies when development is expected to occur that will ereate additional demands for other public facilities and services. The EGVTPP is currently being updated to reassess and evaluate projected traffic from new development, The initial findings of this updated study are discussed under EGVTPP update, ECVTPP Update In order to prepare an updated EGVTPP, it was necessary to validate the travel forecast model, This ealibration was accomplished by beginning with the City of Chula Vista's 1987 Travel Forecast Model which was used for the Circulation Element of the General Plan, Then, the City's existing land use information from 1987 to 1990 was updated by Traffic Analysis Zone (TAZ), The roadway network and all intersections within the Eastern Territories were surveyed to document 1990 conditions, The Resolution No. 16402 Page 11 1987 SANDAG roadway data file was then updated to correspond to observed 1990 roadway charac- teristics. A series of 1990 travel forecasts was prepared until the travel forecast projected daily traffic volumes which were consistent with 1990 observed ground counts in the Eastern Territories. The preliminary phasing of development for purposes of testing the ability of the roadway system to operate within the limits established by the threshold standard was conducted initially using two approaches. The first, combined all projects with approved final and tentative subdivision maps into an "approved" category of development. The second, used the projected phasing of development based upon input received from the development community regardless of the entitlement status. Roadway System Performance Testh~g Following the travel forecast model validation, the roadway system was tested based upon the land use phasing information and approaches described above. The first test of the roadway system used the 'approved' projects, those with approved final and tentative subdivision maps. The existing roadway conditions and programmed improvements contained in the conditions of approval for these projects as well as the Capital Improvement Budget improvements were incorporated to the roadway network. The SANDAG 1995 Series 7 land use forecast and street network assumptions were used for areas outside of the City of Chula Vista. At least one intersection is projected to fail in maintaining compliance with the City's adopted threshold standard. This intersection is Telegraph Canyon Road / Crest Drive / Oleander Avenue. A second intersection, East 'H" Street / Hidden Vista / Terra Nova Shopping Center main enu'ance, is projected to be at or near the level of service which fails to meet the adopted threshold standard. These intersections will need close monitoring to ensure conformance with the threshold standard is maintained. It should be noted that the projected daily traffic volumes in the ECVTPP update may exceed those shown in the Circulation Element of the General Plan. This is due to enhanced geometrics at intersections which reflect the functional capacity of roads as opposed to the planning level of analysis performed in the General Plan. The Circulation Element Level of Service C volumes are generalized in nature and do not incorporate the special enhancements(such as additional turning lanes) at key intersections throughout the City. The second test of the roadway system used the phasing projections provided by the development community regardless of the level of entitlement received. The existing roadway conditions and programmed improvements contained in the conditions of approval for these projects as well as the Capital Improvement Budget improvements were incorporated in the roadway network. The SANDAG 1995 Series 7 land use forecast and street network assumptions were used for areas outside of the City of Chula Vista. Travel forecasts were performed for the years 1994 and 1995 based on developer supplied phasing assumptions. Both of these forecasts assumed Otay Ranch development of the western parcel which is south of Telegraph Canyon Road based upon their submitted development application. The 1994 forecast projects a potential failure at East H Street / Hidden Vista / Tenca Nova Shopping Center main entrance. The forecast identifies this intersection to be at or near the threshold standard. Resolution No. 16402 Page 12 Close monitoring is needed to ensure conformance with the threshold standard. The 1995 forecast again projected the same potential problem at East H SWeet / Hidden Vista / Tenca Nova Shopping Center main entrance as well as projecting that Telegraph Canyon Road / Crest Drive / Oleander Avenue and East Orange Avenue / Oleander Avenue will both fail to meet the adopted performance standard. Additional Network Testing Additionally, an interim four lane at grade expressway facility for State Route 125 from East Orange Avenue north to State Route 54 was tested to determine if it would relieve the traffic congestion identified in both earlier roadway tests. This improvement included signalized intersections with standard configurations at East Orange Avenue, Telegraph Canyon Road, East H Street, San Miguel Road and an interchange at State Route 54. In summary, an interim facility along State Route 125, as described above, would not provide mitigation in either case for the overall roadway network. In this configuration, State Route 125 does relieve some traffic congestion near Interstate 805, however, due to the at~activeness of this facility a large volume of traffic is shifted away from other roadway facilities. The shifting of this traffic volume creates a failure to maintain compliance with the threshold standard at the at-grade intersections along State Route 125. -- 3.2.6 S. mmary and Recommo. lldations Presently, the circulation system is working in conformance with the threshold standard. Those initial improvements identified in the original ECVTPP are being planned and constructed. The original ECVTPP projected that by increment 5, (or 9,100 dwelling units, 172 acres of industrial and 85 acres of commercial development), it would be necessary to construct State Route 125 as a 4 lane freeway from Telegraph Canyon Road, north, to State Route 54. The update to the ECYI'PP is projecting that, based upon demands generated from projects with approved f'mal and tentative subdivision maps, the total traffic generation is approaching the threshold requirement for State Route 125. The threshold for the construction of SR 125 which was first presented in the original ECVTPP has been validated as part of the update to the original study. A review of the proposed development which will take place prior to the need for State Route 125 and the fees which are to be collected for circulation improvements from these projects indicates that insufficient funds will be available to make the necessary State Route 125 improvements. It is recommended that the City Council direct staff to undertake a specific study to determine the appropriate improvements required to be made in the State Route 125 corridor and to present to the City Council for adoption a guaranteed funding program for these improvements which also resolves the construction timing issues. The study will focus on identifying whether an interim facility could be constructed which would meet the threshold standard and be financially feasible prior to the construction of the ultimate State Route Resolution No. 16402 Page 13 125 facility. An interim facility may include enhanced geomelxics at various at-grade intersections, such as additional through lanes, free right turn lanes, dual left turn lanes or some combination of these types of enhancements. The study will also consider the effects of providing connections to various roadway segments such as East Orange Avenue. A consideration for financing of this improvement will include the toll road privatization concept. Resolution No. 16402 _ Page 14 3.12 FI[SCdssL 3.12.1 ~x-krlng Threshold Policy Goal To provide land uses and activities which respond to the economic needs of the residents and the City of Chula Vista. Objective Use Fiscal Impact Reports (FIRs) and Public Facility Financing Plans (PFFPs) to evaluate and plan for healthy fiscal a~tributes in balance with environmental, social, and public policy criteria. 1. Monitor the impacts of growth in the community on the City of Chula Vista's fiscal well being, considering both operating and capital improvement costs and revenues; and 2. Monitor the development impact fee programs, considering the appropriate and timely use of such funds. Tlxreshold ' 1. The GMOC shall be provided with an annual fiscal impact report which provides an evaluation of the impacts of growth on the Ci~, both in terms of operations and capital improvements. This report should evaluate actual growr~ over the previous 12-month period, as well as projected growth over the next 12-18 month period, and 5 to ? year period. 2. The GMOC shall be provided with an annual development impact fee report," which provides an analysis of development impact fees collected and expanded over the previous 12-month period. Implemenlation Measure Should the GMOC determine that a potentially serious problem exists with respect to the fiscal threshold standard, it may adopt a formal "Statement of Concern" within i~s annual report Such a "Statement' requires the City Council to consider the adoption of a resolution reflecting that concern during the public hearing on the GMOC's report. 3.12.2 Facility Master Plan There is no existing Master Plan for the issue of Fiscal. However, a long range fiscal impact study was prepared by PgrD Technologies as part of the Chula Vista General Plan. Resolution No. 16402 Page 15 3.123 Project Processing Requirements Applicants shall meet the following requirements at each stage in the development process. 6eneral Development Plan 1. Prepare a fiscal report dealing with the buildout revenue-v-expenditures analysis. Sectional Planning Area Plao/Pubfic Fac~ities Finance Plans 1. Prepare a phased fiscal report dealing with revenue-v-expenditures including maintenance and operations. Tentative Map 1. Conditions to implement fiscal plan. No tentative map shall be approved unless a fiscal impact analysis has been prepared for the project which is consistent with City requirements that are in effect when the project is considered for approval. Final Map 1. Implement conditions 3.12.4 Discussion The fiscal threshold has a goal of providing land uses and activities which respond to the economic needs of the community. As part of the third annual review by the Growth Management Oversight Commission, City staff provided information end statistics covering sales tax per capita, number of business ou~ets with reta~ sales permits, median household income, assessed property valuation, etc. As a result, the GMOC recommended a revised threshold standard for fiscal issues. The recommended changes to the objective and threshold were approved by the City Counc~ and have been incorporated in this section. Resolution No. 16402 Page 16 PASSED, APPROVED and ADOPTED by the City Council of the City of Chula Vista, California, this 5th day of November, 1991, by the followin9 vote: YES: Councilmembers: Grasser Horton, Malcolm, Moore Rindone NOES: Councilmember: Nader ABSENT: Councilmembers: None ABSTAIN: Councilmembers: None Tim Nader, Mayor ATTEST: -- Beverly A:; Authelet, City Clerk STATE OF CALIFORNIA ) COUNTY OF SAN DIEGO ) ss. CITY OF CHULA VISTA ) I, Beverly A.Authelet, City Clerk of the City of Chula Vista, California, do hereby certify that the foregoing Resolution No. 16403 was duly passed, approved, and adopted by the City Council held on the 5th day of November, 1991. Executed this 5th day of November, 1991. /, ' "'~ ,' r- , ,' Beverly A/Authelet, City Clerk