HomeMy WebLinkAboutAgenda Packet 1991/07/25
Thursday, July 25, 1991
4:00 p.m.
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Council Conference Room
Administration Building
ReS(Ular MeetinsUWorksession of the City of Chula Vista City Council
CAU.ED TO ORDER
1.
CAll THE ROIL:
Councilmembers Grasser Horton ~ Malcolm _, Moore -' Rindone -'
and Mayor Nader _'
BUSINESS
2.
REPORT
RECYCIJNG STATUS - An overview of recycling program implementation
to date, as well as upcoming decision points and necessary public hearings
for next year. Staff recommends Council accept the report. (City Manager)
CAll THE JOINT MEETING Willi THE GROWTIi MANAGEMENT OVERSIGHf COMMITrEE TO ORDER
3.
CAll THE ROIL:
Boardmembers Christensen ~ Hann _, Hillock ~ Hyde ~ Jimenez
_, Palmer ~ Peter ~ Tarantino _' and Chairperson Fuller _'
4.
REPORT
THE GROWTIi MANAGEMENT OVERSIGHf COMMITrEE REVIEW 1990
GMOC REPORT - Staff recommends Council accept the report and direct
staff to docket required resolutions and ordinance amendments to
implement recommendations.
* * * Adjourn the Joint City CouncillGMOC Meeting * * *
ORAL COMMUNICATIONS
This is an opportunily for the general pub/U; to address the city Council on any subject matter within the Council's
jurisdiction t1IJ1t is not an item on this agendLL (State law, Iwwever, generaJIy prohibits the City Cowu:il from
taIdng action on any issues not included on the posted agendJ:L) If you wish to address the Council on such a
subject, please complete the yellaw "Request to Speak Under Oral Communications Form" available in the lobby
and submit it to the City Clerk prior to the meeting. Those who wish to speak, please give your name and address
for record purposes and follaw up action. Your time is limited to three minutes per speaker.
OlliER BUSINESS
5. C1IT MANAGER'S REPORTfS)
a. Scheduling of meetings.
Agenda
-2-
July 25, 1991
6. MAYOR'S REPORTCS)
7. COUNCIL COMMENTS
ADJOURNMENT
The meeting will adjourn to The Regular City Council Meeting on August 6, 1991 at 4:00 p.m. in the City
Council Chambers.
COUNCIL CONFERENCE AGENDA STATEMENT
Item
Meeting Date
c:{
7/25/91
ITEM TITLE:
Recycling Status Report
Stephanie Snyder, Principal Management Assistan~
Athena Lee Bradley, Conservation Coordinator ALl?
SUBMITTED BY:
REVIEWED BY:
Ci ty Manager0(1 ~ ~
-O~
(4/5ths Vote: Yes___No-X-)
BACKGROUND:
The purpose of this report is to provide an overview of recycling
program implementation to date, as well as the upcoming decision points
and necessary public hearings coming before Council over the next year.
RECOMMENDATION: Accept the report.
BOARDS/COMMISSIONS RECOMMENDATION: A copy of this report has been
provided to the Resource Conservation Commission, and will be formally
reviewed at its August 12, 1991 meeting. Additionally, copies of the
report will be provided to the Growth Management Oversight Committee
and the Chula Vista 21 Committee for their information.
DISCUSSION:
Attached is an executive summary and comprehensive report on integrated
waste management activities for the City of Chula Vista, including
source reduction, recycling, and composting.
Fiscal Impact: None as a result of this report.
J-I
ATTACHMENT A
EXECUTIVE SUMMARY
This report will describe the current status of recycling in the City,
mandates and influences driving the City's need to implement additional
source reduction and recycling programs, and program options to meet
these mandates. It is expected that presenting such an overview in a
workshop setting will allow Council to provide general policy direction
to staff and will give Council a more comprehensive understanding about
future agenda items.
Three forces are guiding the way that Chula Vista disposes of its
waste, the California Integrated Waste Management Act of 1989 (AB 939),
County landfill capacity and new amendments to the County Solid Waste
Ordinance. The County Solid Waste Ordinance presents a new issue for
Council in that it outlines specific timetables for prohibiting the
disposal of recyclable material at the County landfills.
The Ordinance specifies material types by residential, commercial and
industrial sources that must be separated from the wastestream and
recycled or composted. Chula Vista will first be impacted in March of
1992, when the City will be required to either enforce the mandatory
recycling ordinance or be subject to penalties. Enforcement is not an
issue the City has had to deal with in the past. It raises questions of
staff resources, logistics, and community opposition. It demands the
development of creative ways to educate and involve the public in a
positive way.
Chula Vista has already established a very successful single family
residential Curbside Recycling Program, as well as an Office Recycling
Program for the Civic Center. The Office Recycling Program also has a
business outreach component that will target local businesses for
assistance in establishing their own office recycling programs.
Development of future recycling programs in the City is going to be
significantly impacted by factors such as diversion requirements of AB
939 and the timeline mandated by the County Ordinance. Staff will be
developing program plans to be brought to Council for decision during
the next year. These programs include: curbside "greens" (yardwaste)
collection; backyard composting; industrial recycling; commercial
recycling; and residential multi-family. Other issues to be addressed
include: source reduction; designing for recycling (space allocation);
and procurement.
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ATTACHMENT B
RECYCLING STATUS REPORT
INTRODUCTION
Chula Vista's "disposal" future is being directed by three powerful
forces: the California Integrated Waste Management Act of 1989 (AB
939), County landfill capacity and the County Solid Waste Ordinance.
There has been Council discussion and action in the past year on both
of the first two issues, the State mandates of AB 939 and the problems
associated with assuring Countywide landfill capacity. (AmOre detailed
discussion of these factors is included in Attachment C.)
The most recent factor to influence the City's decisions on current and
future recycling programs has only been recently introduced: changes to
the County's Solid Waste Ordinance which outline specific timetables
for prohibiting the disposal of recyclable material at the County
landfills.
NEW INFORMATION AFFECTING LOCAL LANDFILL DISPOSAL
On June 11, 1991, the San Diego County Board of Supervisors adopted a
"mandatory recycling ordinance", amending the County Solid Waste
Ordinance. This action is a result of a 1988 Board decision to
encourage and assist the voluntary establishment of programs which
would produce a 30 percent reduction in the amount of wastes going to
County landfills in three years. Board action to mandate recycling was
taken at this time primarily because the 30 percent reduction has not
been met voluntarily.
The Ordinance specifies material types by residential, commercial and
industrial sources that must be separated from the wastestream and
recycled or composted. It provides a timetable for phasing in the
requirements throughout the region and allows a series of warnings and
penalties. Chula Vista will first be impacted in March, 1992.
The County intends to enforce the ordinance through random inspections
of vehicles entering County-owned landfills to determine the contents
and origins of the vehicles. However, there is a provision that cities
which "adopt and diligently enforce" similar and approved recycling
ordinance provisions for solid waste collectors and generators will be
exempt from inspections and resulting fines.
If Chula Vista does not adopt and enforce a mandatory ordinance, refuse
vehicles from the City will be subject to inspections at the landfill.
Violators would then be warned, followed by fines beginning at $25.00
per truck, up to $100.00 per truck. If the violating vehicles continue
to bring mixed waste containing recyclables to the landfill, after
three warnings they will not be allowed to dump.
Enforcement is not an issue the City has had to deal with in the past.
It raises questions of staff resources, logistics, and community
opposition. It demands the development of creative ways to educate and
eJ-3
involve the public in a positive way. Some ideas include: resident,
neighborhood, and business contests to offer awards for those who
recycle; promotion of volunteer opportuni ties; and increased
involvement of block associations and other neighborhood organizations.
Additionally, outreach to area schools will promote the active use of
environmentally-oriented curriculum and activities.
Staff is also exploring other more "positive" , creative and
economically viable options for encouraging program participation,
including establishment of a "volume based" rate system (e. g., variable
can). Such systems, widely used in the Pacific Northwest, set an
established refuse fee based on the size container (or weight)
generated by the customer. This method incorporates a clear incentive
for recycling and reduction of wastes.
CURRENT STATUS OF RECYCLING PROGRAMS
Up to this point, this report has provided the backdrop for explaining
the influences affecting Council's previous direction on recycling, and
those areas of concern for upcoming programs. It is now important to
focus on the success of existing programs, and plans for future source
reduction, recycling, and yard waste programs which will meet City,
County, and State goals.
Curbside Re~cling
Under Council's direction, the City's Curbside Recycling Program was
expanded to all single-family attached and detached homes receiving
curbside refuse collection services in February, 1991 (approximately
22,900 households). The participation rate is excellent--82 percent! An
average of 260 tons of recyclables are being collected each month.
Since September, 1989, in addition to landfill space savings, over 5
millon kilowatt hours of electricity have been saved through recycling,
as well as 22,000 trees from newspaper recycling.
Resident concern with the recycling fee was expressed following the
initial expansion of the Curbside Program. Following staff explanations
regarding the necessity of recycling, the unavoidable costs that need
to be paid somehow, and the fact that money generated from the program
goes to off-set these costs, most concerned residents appeared to
understand the City's need to implement the service and charge
residents directly. Citizen complaints have become negligible and staff
continues to receive inquiries about materials, markets, etc.
Beginning August I, 1991, the County will award "Tonnage Diversion
Grants" to all cities for the diversion of residential recyclables
(excluding yard wastes). These grants are non-competitive and will pay
$7.75 per ton awarded on a quarterly basis. Based on the average
monthly tonnage from the City's Curbside Recycling Program, these
grants could amount to approximately $24,000 the first year.
01-1-
The establishment of the diversion grant is part of the County's plan
to assist cities in generating revenue which can be used for
enforcement activities, as an alternative to fines at the landfill for
lack of enforcement.
City Office Recycling Program
The City's Office Recycling Program was formally initiated in July,
1991. Over 500 Civic Center employees are now able to recycle their
paper products, and glass, aluminum, and plastic beverage containers.
The Program is funded through a County of San Diego Technical
Assistance Program (TAP) grant for the period of one year. The Urban
Corps of San Diego, also operating under a TAP grant, will provide
weekly collection services. The grant provided funds for training
materials and supplies, including an employee handbook, decals, and
recycling bins. Staff developed and implemented the program, employee
trainings, and will monitor the program.
Also as part of the TAP grant awarded to the City, staff is developing
an office recycling guide to be distributed to area businesses. Twelve
local businesses of varying sizes will be targeted for implementation
of office recycling. A business recycling baseline will also be created
in order to track office recycling programs implemented in the City.
Staff will work with the Chamber of Commerce to market the office
recycling guide, and to begin implementation of recycling in business
offices.
FUTURE RECYCLING PROGRAMS
Curbside Recycling Program
As mandated by the County Solid Waste Ordinance, the City will need to
address the development and enforcement of a "mandatory recycling
ordinance. " The ordinance would need to be adopted and in place by
March 1, 1992. Enforcement of the ordinance would allow for a three
month "warning" period, to be followed by levying of fines for
noncompliance three months from enactment.
Although a detailed report on this issue will be brought forward to
Council in the near future, one option for the City under a mandatory
recycling ordinance would be to hire additional staff to enforce the
ordinance. Similar to code enforcement procedures already operating in
the City, a "Recycling Enforcement Officer" could issue a series of
warnings to individuals who do not separate their recyclables from
their trash. These warnings could be followed by a more stringent
enforcement; if violations continue, fines could ensue.
An alternative to having City staff enforce the ordinance would be to
have the hauler become the enforcing agent. This option would have the
benefit of having fewer direct costs to the City, however, it could
potentially impact refuse collection costs that are already rapidly
increasing. An enforcement mechanism using a combination of both
options may also be viable.
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Staff will be developing a mandatory source reduction and recycling
ordinance over the next two months. This ordinance would apply to all
sectors of the City--residential, industrial, and commercial. It will
specifically outline which materials must be recycled wi thin each
sector, as well as the County's timeline for implementation of
recycling programs. Also contained in the ordinance will be the
recommended method of enforcement. Because of the sensitive nature of
such an ordinance, staff will take steps to ensure widespread public
notification of the intended action, including the Chamber of Commerce,
major businesses, etc.
As fulfillment toward AB 939, it is expected that the single-family
Curbside Recycling Program will divert approximately 4 percent of the
wastestream by 1995. The high participation in the program will clearly
continue to benefit the City as it implements recycling in other
sectors. As office workers, restaurant and construction employees and
others are asked to recycle, many individuals will react with
enthusiasm because they are already accustomed to "separating their
wastes."
Key Issues, Decisions and Action Dates:
*
Mandatory Recycling Ordinance
November, 1991
*
Enforcement
March, 1992
"Greens" Recycling
The separation of yardwaste ("greens") for mulching, composting, and/or
as a biofuel, is a simple, and cost-effective method for reducing a
significant portion of the municipal solid wastestream. Yard waste
comprises about 20 percent of the wastestream.
As required under the County Ordinance, greens collection for single-
family and multi-family dwellings must begin by January, 1992.
Collection must be curbside (for single-family), but does not have to
be once per week, as with residential recycling. Thus, if the City
concluded that curbside collection every other week would meet the
needs of the City, this is allowed.
Several options are available for program design. One of the most cost-
effective approaches is one in which residents place a special decal on
a container (provided by the resident) and place the container onto
the sidewalk next to their recycling and refuse containers. It is
estimated that the costs associated with residential greens collection
runs between $1.50-to-$2.00 per household. Markets for the mulched or
composted material are still in their infancy, but are nonetheless
growing. As consumer interest in "organically" grown foods increases,
reliance on natural compost instead of petroleum based synthetic
fertilizers should rise. Addi tionally, the increased use of
alternative, cleaner fuels, including "bio-mass" will improve the
market for yard and wood wastes.
o(--t
As directed by Council, staff has drafted a Request for Proposals in
order to contract for collection (and processing) of separated
residential yard wastes. It is anticipated that the RFP will be
distributed toward the end of fall, with a proposal to begin a phased-
in residential single-family greens recycling program by June of next
year. The RFP would also include the collection of greens from multi-
family units, to be phased-in under the County Ordinance mandated
timeline.
Enforcement of yard waste recycling under the County Ordinance is to
begin January 1, 1993. Through public education and ease of service
(Le., weekly or bi-weekly curbside collection) public opposition
should be minimal. Other cities that have instituted yard waste
collection have a very positive response from citizens who are usually
eager not to have such a large volume of materials end up in the
landfill. It is anticipated that greens recycling will divert 8 percent
of the City's wastestream toward fulfillment of the AB 939 goals.
Key Issues, Decisions and Action Dates:
*
Request for Proposals
November, 1991
*
Enforcement
January, 1993
Backyard Composting Program
Voluntary backyard composting is a low-staff, no-cost approach toward
waste reduction. It will also help to promote "greens" recycling
through "getting the word out" about yard waste recycling in the City.
Through fliers, residents can be informed about the benefits of
backyard composting, and the availability of composting bins. Residents
can then fill out a coupon on the flier to order a composting bin from
a local vendor. Composting bins can be sold at cost to residents, and
come with an instruction guide.
Staff could work with community garden clubs, homeowner and renter
associations and other civic clubs to promote backyard composting, and
even community composting at neighborhood gardens. Although voluntary,
all backyard composting activity will assist toward meeting the City's
AB 939 diversion goals and help meet the County's mandates.
Key Issues, Decisions, and Action Dates:
*
Begin Implementation of Pilot Program
October, 1991
Industrial Recycling Program
Industrial recycling poses different challenges for implementation than
do other recycling programs in the City. Due to the diverse nature of
industrial wastes, recycling for this sector is not conveniently "put
out to bid." Standardization of recycling collection is not practical,
as most industries haul their own refuse to the landfill or recyclers.
01-7
Staff plans to develop an industrial recycling guide for distribution
to all area businesses. Information to be contained in the guide will
include a listing of the recyclable materials designated under the
County Ordinance and a listing of local recyclers. Staff will also be
developing a "Materials Exchange Program" through which industries
could list waste products that may be utilized by other industries in
their manufacturing processes.
The County has reported a sharp increase in the recycling of
construction and demolition wastes since the landfill disposal fee was
applied to containers and trucks by weight, instead of volume. For most
clean loads of construction debris, recycling is a more cost effective
alternative. As the disposal fee continues to rise, this should
increase industry recycling even further.
Enforcement for industrial recycling will begin October I, 1992. Staff
will work directly with the industries, the Chamber of Commerce, and
industry associations in order to gain cooperation from local
industries. Additionally, as noted above, the secondary materials
market for demolition and construction materials is relatively strong.
This will provide a strong incentive to industries to recycle.
It is anticipated that industrial recycling will divert 6 percent of
the City's wastestream toward fulfillment of the AB 939 goals.
Key Issues, Decisions, and Action Dates:
*
Enforcement
October, 1992
Commercial Recycling Program
Commercial recycling will create many special challenges to staff. The
diversity of offices, restaurants, and other hospitality and service
establishments will necessitate recycling programs that can be both
implemented on a City-wide scale, but yet are "tailored" to each
individual establishment. Large, medium, and small businesses all have
special needs stemming from the size and nature of the establishment,
in addition to the diversity of recyclable materials generated.
As directed by Council, staff will be exploring the option of going to
bid for collection services for commercial establishments.
Several options exist:
1) An RFP could be awarded to a single provider of services;
2) An RFP could be awarded to multiple providers, e. g., one
provider could offer services to all restaurants, another to all
motels, another to offices, or the city could be divided up in
quadrants, awarding contracts to collectors by quadrant;
3) No RFP would be developed, leaving open opportunities for all
service providers to compete on a "free market" basis.
~-~
Each option has certain advantages. Awarding a contract to a single
provider would allow the City to closely monitor the recycling
activities of area businesses. Additionally, the City could collect
franchise fees for the service. Having multiple providers under
contract would potentially provide these same advantages.
With the number and diversity of commercial establishments in the City,
an open system may be prove advantages from a staff perspective, as it
would require less monitoring of contract compliance, legalities, etc.
The City of San Diego uses an open system for commercial recycling
which seems to be meeting the needs of the business community well.
Many of the major office complexes in the San Diego are recycling, with
a variety of haulers offering services.
Allowing the "free market" to work in offering recycling services to
commercial establishments would still allow staff to monitor recycling
activities, through the database on business recycling in the City
being developed under this year's TAP grant award. Services provided to
commercial establishments may be more tailored made to the particular
establishment, since businesses would be able to choose the vendor to
best suit their needs.
Enforcement of commercial recycling in the City under the County
Ordinance is to begin July 1, 1993. Enforcement of commercial recycling
in the City will require creative planning and implementation. Staff
will develop a comprehensive public relations campaign targeting area
businesses. The campaign will focus on the benefits of recycling,
including reduced disposal costs, environmental awareness, and positive
public image.
Through the City's current TAP grant award, staff has begun to develop
an ongoing dialogue with the Chamber of Commerce. During the fall of
this year, staff will begin to work directly with area businesses in
establishing recycling programs, offering advise and consultation where
needed. Working closely with the business community will be the only
way to achieve compliance with the mandatory ordinance.
It is anticipated that commercial recycling will divert 5 percent of
the City's wastestream toward fulfillment of the AB 939 goals.
Key Issues, Decisions, and Action 'Dates:
*
RFP Decision
January, 1992
*
Enforcement
July, 1993
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Residential Multi-family Recycling Program
The establishment of recycling collection services for residential
multi-family units will require a great deal of advanced planning and
careful implementation. As with commercial establishments, multi-family
dwelling units vary in terms of size, design, and demographics. These
characteristics all impact the type of collection services that can be
offered.
As directed by Council, staff will be exploring the option of going to
bid for collection services for multi-family establishments.
As with commercial recycling, several options exist:
1) An RFP could be awarded to one, single provider of services;
2) An RFP could be awarded to multiple providers, e.g., the City
could be divided up in quadrants, awarding contracts to collectors
by quadrant;
3) No RFP would be developed, leaving open opportunities for all
service providers to compete on a "free market" basis.
Again, as with commercial recycling each option would have certain
advantages. Because the City's single-family residential recycling
program has been awarded to a one hauler, it may be prudent to award
multi-family recycling to one hauler as well. Additionally, the large
percentage of multi-family housing in the City may be best serviced by
one or a few designated providers.
Dividing the City into service quarters and awarding a contract to a
single provider for each quarter would allow for more competitive
bidding and services, but still allow for contractual accountability.
Addi tionally, this could provide for more expedi ted program
implementation, as opposed to a single hauler attempting to provide
service to the entire City.
Enforcement for residential multi-family recycling under the County
Ordinance is scheduled to begin July 1, 1993. In order to take
advantage of the Tonnage Diversion Grants offered by the County,
however, the City may wish to begin pilot projects in residential
multi-family units prior to that date. It is anticipated that
approximately 4 percent of the City's wastestream will be diverted
through a residential multi-family recycling program to meet the AB 939
mandates.
Key Issues, Decisions, and Action Dates:
*
RFP Decision
January, 1992
*
Enforcement
July, 1993
d-jJ
Source Reduction
All of the City's recycling and composting programs will incorporate
source reduction. Staff will promote waste reduction ideas and
guidelines in its public and business awareness campaigns. Guidebooks
developed for commercial and industrial recycling programs will contain
specific outlines on source reduction options.
Designing for Re~cling
As part of the City's comprehensive approach to waste management, staff
will develop guidelines for space allocation and design to allow for
recycling at multi-family dwellings, and commercial and industrial
establishments. An ordinance requiring the design for space allocation
will also be formulated.
Procurement
"Closing the loop" is an essential component of any comprehensive
recycling program. Many paper products containing recycled content are
now being purchased for use by the City. Staff is developing an
ordinance to expand upon this current use, both in terms of the
diversity of recycled products purchased, and the volume. As part of
the City's Office Recycling Program, all employees are being informed
about the importance of using recycled products.
County Technical Assistance Program Grant Proposal
Staff is developing a grant proposal under the 1992-93 funding period
for the County's Technical Assistance Program. The proposal will
request funds to expand upon the City's current business outreach
recycling project (funded under this year's TAP), targeting additional
businesses for office recycling program establishment, and
incorpora ting pro j ects to serve the hospi tali ty sector, and area
industries.
Key Issues, Decisions, and Action Dates:
* Adoption of Resolution Supporting the Grant
Proposal August, 1991
CONCLUSION
The ideas, issues, and programs discussed in this report will be placed
on a City Council agenda for action in individual reports and public
hearings over the next year. This presentation shows the relationship
between the issues and resulting decisions. It also provides some
background reference material for the future agenda items. (See
Attachment D.) In conclusion, it should give a framework for
stimulating thoughts on policy direction and preparation for further
discussion on the future of recycling in Chula Vista.
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ATTACHMENT C
Kev Factors Affectina Recvclina Proarams in Chula Vista
The California Integrated Waste Management Act of 1989 (AB 939)
In October, 1989, the California Integrated Waste Management Act of
1989 (AB 939) was enacted. This law requires cities to playa primary
role in solid waste management. AB 939 mandates that all cities and
counties divert 25 percent of the wastestream being disposed at
landfills by 1995, and 50 percent by 2000. Under the law, penalties of
up to $10,000 per day can be levied by the state against jurisdictions
failing to prepare and adopt reasonable plans and programs designed to
achieve these goals, as well as failing to achieve the goals.
Cities are required to prepare and adopt two plans by January 1, 1992:
A Source Reduction and Recycling Element (SRRE) and a Household
Hazardous Waste Element (HHWE). These "elements" will then be included
in a County-wide Integrated Waste Management Plan to be submitted to
the state by January 1, 1994. The County's plan will include elements
from all cities and a Countywide facility siting plant to provide
disposal capacity.
When complete, the City's SRRE and HHWE documents will present a
comprehensive analysis of Chula Vista's current wastestream generation
and disposal methods. The reports will fully describe proposed plans to
reduce the City's waste generation by the mandated 25 percent and 50
percent goals, as scheduled. The plans will include source reduction,
recycling, composting and landfilling programs for all sectors of the
City--residential, industrial, and commercial.
County Landfill Capacity
All cities in San Diego County (with the exception of San Diego) are
served by a system of County owned and operated, subregionally-Iocated
landfills. Uniform disposal fees provide incentive for users to access
the most conveniently located landfill at the least expensive transport
cost. Countywide landfill lifespan is currently around 10 years.
Serving Chula Vista and other South Bay cities, the Otay Landfill is
scheduled to reach capacity by 1998.
Over the past three years the County has increased disposal fees
("tipping fees") by approximately 25 percent each year, bringing the
fee to the current $23.00 per ton. As landfills throughout the County
near closure, new sites are sought, and other revenues are generated
from the disposal fees (including recycling surcharges), the fees are
expected to continue to rise at least $5.00 per ton per year.
Additionally, landfilling as a disposal option will become increasingly
more costly as distances from urban areas to disposal sites are
increased; transportation costs rise due to air quality mandates
(including potential requirements for the use of alternative fuels);
land prices continue to rise; and, environmental regulations become
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increasingly more difficult and
"NIMBYism" and community concern
impacts.
costly to mitigate.
will compound all of
Moreover,
the above
The implementation of comprehensive source reduction, recycling and
composting programs will increase the options available to the City for
its disposal future . Diverting recyclable materials from Otay will
potentially increase the life of the landfill.
Comprehensive source reduction, recycling and composting programs also
allow for more local control over an issue that will continue
to dramatically impact the City. These programs create relatively
"clean", beneficial jobs locally, in collection and processing. Unlike
landfilling, recycling and composting operations are relatively
environmentally inert. Community opposition to recycling operations is
usually not pervasive.
Although landfill disposal will always be necessary, through reducing
our need to landfill, we decrease our dependence on County-owed
disposal facilities, relying instead on more locally-based
alternatives. More revenues will thus stay in the hands of local
businesses. Local control over programs will also be more directly
accountable for costs, requiring creative funding and program
development, but in the long run more stable costs.
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ATTACHMENT D
Chronoloav of Kev Action Dates
for City Council Review
1991
Public
H9aring
August
(AB 939)Local Enforcement Agency Designation -
Letter of Intent to State
October
Technical Assistance Program (TAP)
Grant Application
(AB 939) Preliminary Draft Elements
(SRRE & HHWE)
x
Backyard Composting Program - Pilot Program
Implementation
November
Mandatory Source Separation ("Recycling")
Ordinance/Enforcement Program
x
"Green" Material Program-RFP
December
(AB 939) Adoption of Final SRR and
HHW Elements
x
1992
January
Multi-Family Recycling Program - RFP
Commercial Recycling Program - RFP Decision*
April
"Green Material" Recycling Program - Contract Award
x
July
Multi-family Recycling Program - Contract Award
x
* May involve formal Council Review or public hearing depending on decision.
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COUNCIL CONFERENCE AGENDA STATEMENT
Ite':; 4f
SUBMITTED BY: Director of Planning
Meeting Date-",':il! 101
~ \:t2.\~1
ITEM TITLE:
REVIEWED BY:
(4/Sths Vote: Yes_No X)
Attached is the Growth Management Oversight Commission's 1990 Report which is scheduled
to be reviewed on July 25, 1991, at 4:00 p.m.
This meeting will give the GMOC an opportunity to discuss their review of the City's
compliance with the Quality of Life Threshold Standards for 1990 with the City Council.
RECOMMENDATION: That Council accept the 1990 GMOC Report and direct staffto docket
the required resolutions and ordinance amendments to implement the recommendations.
BOARDS/COMMISSIONS RECOMMENDATION:
The Planning Commission, on July 10, 1991, voted 4-0 to accept the 1990 GMOC Report as
recommended with the addition of a Visual Impact Threshold Standard.
The Montgomery Planning Committee, on July 10, 1991, voted 5-0 to accept the 1990 GMOC
Report with the addition of a Visual Impact Threshold Standard.
DISCUSSION:
The GMOC approved their 1990 Report and recommended Statements of Concern regarding
schools, water and air quality on June 27, 1991. On July 10, 1991, the Planning Commission
and Montgomery Planning Committee met in joint session with the GMOC. The Planning
Commission and Montgomery Planning Committee voted to accept the 1990 GMOC Report and
to recommend that the GMOC give consideration to adding a Visual Impact Threshold to the
Threshold Standards Policy next year. The concern is the increasing amount of visual pollution
occurring from graffiti, trash, cluttered drainage channels, erosion of banks, and animal
sediment in various parts of the City.
Staff will review the City's current programs regarding visual pollution with the GMOC during
the next review period and include a recommendation for the Planning Commission,
Montgomery Planning Committee and City Council consideration.
4J-I
Page 2, Item' ~
Meeting Date 7~
-
The other major concerns of the Planning Commission and the Montgomery Planning Committee
were how to increase the number of parks on the west side of the City and the continuing
problem of overcrowded schools.
The GMOC continues to be uncomfortable with its role regarding the Economic Threshold. The
economic monitoring function of GMOC should be shifted to the newly created Economic
Development Commission. The Economic/Fiscal Threshold would be renamed Fiscal Impact
Threshold Standard and would deal solely with the fiscal impacts of growth, including reports
on collection and expenditure of development impact fees. If Council concurs, an amendment
to the Economic Threshold Standard could be included in the implementation of the 1990 GMOC
Report.
The ordinance adopted by Council on May 7, 1991 (No. 2447) changing the GMOC to a
Commission technically terminated the existing members' term of office as of June 30, 1991.
Council will need to appoint 8 members to the Growth Management Oversight Commission prior
to the start of the next annual review in October, 1991.
The next annual review will change the review period from a calendar year to a fiscal year basis.
As such, the next GMOC review will need to start sometime in October, 1991. This will enable
the GMOC to complete its report and recommendations prior to City budget adoption. It also
will enable the GMOC to review data from various City departments and other public agencies
on a fiscal year basis which is the normal time period for local government operational reports.
FISCAL IMPACT: None. Future implementing actions will contain additional fiscal impact
reVIew.
(GMOCRPT.A1l3)
.. ...
,,-~
~
M.EMQRAti!HIM
DATE: July 1, 1991
TO: The Honorable Mayor and City Council
FROM: Growth Management Oversight Commission
SUBJECT: 1990 GMOC Report
The GMOC is pleased to present its 1990 Report to the Mayor and City Council.
In many respects, 1990 was a significant year with respect to the City's
growth and development. The GMOC was very pleased with the Council's strong
leadership in adopting the first Growth Management Program and Ordinance for
the City of Chula Vista. We believe this program is an excellent step in
defining the prerequisites for the City's future growth.
We also acknowledge the preparation of the first mid-range Development
Forecast by the Planning Department which is now being used by City
departments and outs i de agenci es in prepari ng thei r Threshol d Status Reports
for GMOC. These forecasts will help all of us plan for the future rather than
simply letting it happen with unexpected consequences.
Other noteworthy events which occurred in calendar year 1990 are further
detailed in the 1990 GMOC Report. Highlights of the report include:
1. The City is in compliance with the following threshold standards:
Police
Fire and Emergency Medical Services
Parks and Recreation
Sewer
Drainage
Traffic
Economic/Fiscal
Libraries
2. GMOC recommends that the City Council issue Statements of Concern
for the following threshold standards:
Air Quality
Schools
Water
3. GMOC repeats our recommendation from 1 ast year to amend the Parks
and Recreation Threshold.
4. GMOC is recommendi ng changi ng the Traffi c Threshol d Standard from
the Intersection Capacity Utilization method to the 1985 Highway
Capacity Manual method.
1..J
The Honorable Mayor and City Council
Page 2
July 1, 1991
During the course of preparing the 1990 Report, the GMOC met ten (10) times
from February 14 to June 27, 1991. As a general observation, we found the
written reports submi tted for eva 1 uat i on of threshol ds whi ch are the sole
concern of the City (i.e., police, fire, economics, libraries, sewer,
drainage, traffic and parks and recreation) were timely and adequate. The
information prepared by staff on the City Recycl ing Program was very good.
The report from Park and Recreation staff was equally as good and very
complete.
The GMOC is concerned that the reserve sewage capacity in the San Diego Metro
system set aside for Chula Vista may not be available when we need it in the
future. We have asked the Engineering staff to help us obtain information on
this concern from the City of San Diego.
In the course of our del iberations, the Commission continues to be concerned
about the deficiencies in park acreage on the west side of the City. We are
repeating our recommendations from last year's report with respect to changing
the parks and recreat i on threshold since no action has been taken as of th is
date. Innovative steps need to be taken to alleviate the serious shortage of
park lands in the older part of the City.
The traffi c threshold standard is proposed to be improved. The GMDC has
learned that the 1985 Highway Capacity Manual (HCM) method of measuring
traffic congestion is less theoretical and more empirically based than the
Intersection Capacity Util ization method. We have included in our report a
recommended traffic threshold standard based on the 1985 HCM method together
with a complete report discussing the recommended change.
The annual fiscal/economic report provided by the fiscal consultant was beyond
the oversight level of our review. We suggest that staff consider using the
fiscal/economic data used in preparing the City's annual budget for our
thresho 1 d revi ew next year. We also noted in our report that the sales tax
revenue per capita in Chula Vista continues to be near the bottom of cities in
the County. We need to stress economic development in order to continue city
services at optimum levels.
We were most happy to learn of the City's success in obtaining the $6.85
mi 11 i on grant from the State Library Bond Program to buil d the Montgomery
Library. This library was desperately needed by citizens in the Montgomery
community and will certainly enrich the quality of life in the community.
The GMDC noted that the information provided to us by the San Diego County Air
Pollution Control District (APCD) was much improved from last year. We would
still like to receive information on industrial pollution and enforcement
actions by APCD on industries in Chula Vista. We are hoping for better
information from APCD in the future.
The GMOC noted the improved coordination between the City and the
districts with the creation of the Inter-Agency Water Task Force.
promises to improve the exchange of vital information between all
entities to better address our long range water needs.
water
This
three
'1"'t
The Honorable Mayor and City Council
Page 3
July 1, 1991
The situation with school overcrowding still requires further improvement.
The Chula Vista Elementary District is taking steps to more forcefully
articulate the position of the District regarding funding of new facilities.
Clearly there is a continuing need for action at the pol icy level to address
the facility needs of our school district.
In conclusion, GMOC wishes to compl iment the staff from
agencies who provided support during our review process.
helpful and made our task more enjoyable and productive.
all departments and
They were extremely
Sincerely,
/
:-::I~"/l- <c'J7~
Susan Fuller
Chairperson, GMOC
WPC 9493P
Ij-S
PRELIMINARY
GMOC SCHEDULE
A. Start Dev. Forecast
B. Distribute Forecast
C. Agency Reports Deadline
D. Meeting No.
1. Ori entat ion
2. Data Review
3. Data Review
4. Data Review
5. Data Review
6. Workshop
7. Data Review
8. Data Review
9. Data Review
10. Data Review
II. Prel iminary
12. Final Report
13. Joint Meeting
Planning Commission
- Montgomery
WPC 9575P
@
July 2, 1991
August 2, 1991
September 13, 1991
October 3, 1991
October 27, 1991
October 31, 1991
November 7, 1991
November 21, 1991
December 5, 1991
December 19, 1991
January 9, 1992
January 23,. 1992
February 6, 1992
February 20, 1992
March 5, 1992
March 18, 1992
. .
IHIH1BAffllllM
DATE: July 1, 1991
TO: The Honorable Mayor and City Council
FROM: Growth Management Oversight Commission
SUBJECT: 1990 GMOC Report
The GMOC is pleased to present its 1990 Report to the Mayor. and City Council.
In many respects, 1990 was a significant year with respect to the City's
growth and development. The GMOC was very pleased with the Council's strong
leadership in adopting the first Growth Management Program and Ordinance for
the City of Chula Vista. We believe this program is an excellent step in
defining the prerequisites for the City's future growth.
We also acknowledge the preparation of the first mid-range Development
Forecast by the Planning Department which is now being used by City
departments and outside agencies in preparing their Threshold Status Reports
for GHOC. These forecasts will help all of us plan for the future rather than
simply letting it happen with unexpected consequences.
Other noteworthy events wh i ch occurred inca 1 endar year 1990 are further
detailed in the 1990 GHOC Report. Highlights of the report include:
1. The City is in compliance with the following threshold standards:
Police
Fire and Emergency Medical Services
Parks and Recreation
Sewer
Drainage
Traffic
Economic/Fiscal
Li brari es
2. GHOC recommends that the City Council issue Statements of Concern
for the following threshold standards:
Air Quality
Schools
Water
3. GHOC repeats our recommendation from last year to amend the Parks
and Recreation Threshold.
4. GMOC is recommending changing the Traffic Threshold Standard from
the Intersection Capacity Util ization method to the 1985 Highway
Capacity Manual method.
The Honorable Mayor and City Council
Page 2
July 1, 1991
During the course of preparing the 1990 Report, the GHOC met ten (10) times
from February 14 to June 27, 1991. As a general observation, we found the
written reports submitted for evaluation of thresholds which are the sole
concern of the City (i.e., police, fire, economics, libraries, sewer,
drainage, traffic and parks and recreation) were timely and adequate. The
information prepared by staff on the City Recycl ing Program was very good.
The report from Park and Recreation staff was equally as good and very
complete.
The GMOC is concerned that the reserve sewage capacity in the San Diego Metro
system set aside for Chula Vista may not be available when we need it in the
future. We have asked the Engineering staff to help us obtain information on
this concern from the City of San Diego.
In the course of our del iberations, the Commission continues to be concerned
about the deficiencies in park acreage on the west side of the City. We are
repeating our recommendations from last year's report with respect to changing
the parks and recreation threshold since no action has been taken as of this
date. Innovative steps need to be taken to alleviate the serious shortage of
park lands in the older part of the City.
The traffic threshold standard is proposed to be improved. The GMOC has
learned that the 1985 Highway Capacity Manual (HCM) method of measuring
traffic congestion is less theoretical and more empirically based than the
Intersection Capacity Utilization method. We have included in our report a
recommended traffic threshold standard based on the 1985 HCM method together
with a complete report discussing the recommended change.
The annual fiscal/economic report provided by the fiscal consultant was beyond
the oversight level of our review. We suggest that staff consider using the
fiscal/economic data used in preparing the City's annual budget for our
threshold review next year. We also noted in our report that the sales tax
revenue per capita in Chula Vista continues to be near the bottom of cities in
the County. We need to stress economic development in order to continue city
services at optimum levels.
We were most happy to learn of the City's success in obtaining the $6.85
mill i on grant from the State Li brary Bond Program to bu il d the Montgomery
Library. This library was desperately needed by citizens in the Montgomery
community and will certainly enrich the quality of life in the community.
The GMOC noted that the information provided to us by the San Diego County Air
Pollution Control District (APCD) was much improved from last year. We would
still like to receive information on industrial pollution and enforcement
actions by APCD on industries in Chula Vista. We are hoping for better
information from APCD in the future.
The GMOC noted the improved coordination between the City and the
districts with the creation of the Inter-Agency Water Task Force.
promises to improve the exchange of vital information between all
entities to better address our long range water needs.
water
This
three
The Honorable Hayor and City Council
Page 3
July 1, 1991
The situation with school overcrowding still requires further improvement.
The Chula Vista Elementary District is taking steps to more forcefully
articulate the position of the District regarding funding of new facilities.
Clearly there is a continuing need for action at the policy level to address
the facility needs of our school district.
In conclusion, GHOC wishes to compliment the staff from
agencies ~ho provided support during our review process.
helpful ad made our task more enjoyable and productive.
Sincerely,
c/~rJ<- d-;~
Susan Full er
Chairperson, GHOC
a 11 departments and
They were extremely
WPC 9493P
GROWTH MANAGEMENT OVERSIGHT COMMISSION
1990 REPORT
CITY OF CHULA VISTA
JUNE 1991
;
.
GROWTH MANAGEMENT OVERSIGHT COMMISSION
1990 REPORT
CITY OF CHULA VISTA
Commission Members
Susan J. Fuller, Chairman
Hugh Christensen
Steve Hann
Harry Hillock
Will T. Hyde
Lupe Jimenez
Nancy L. Palmer
Chuck Peter
Frank Tarantino
Robert A. Leiter, Planning Director
Bud Gray, Staff Planner
June 1991
~
TABLE OF CONTENTS
Introduction/Process
Development Forecasts
Threshold Review
fw
1
2
3
l:lmk
1. Police 3
2. Fire 3
3. Sewer 4
4. Drainage 5
5. Libraries 6
6. Economics 7
7. Parks and Recreation 8
8. Traffic 11
9. Air Quality 13
10. Water 16
11. . Schools 17
Other - Solid Waste/Recycling 20
Appendix
A.
B.
C.
D.
PropOsed Traffic Threshold Standard
Statements of Concern - Air Quality, Water, Schools
Fiscal/Economic Report - Executive Summary
Traffic Monitoring Report
GROWTH MANAGEMENT OVERSIGHT COMMISSION
1990 REPORT
CITY OF CHULA VISTA
INTRODUCTION
In November 1987, the City Council adopted the Threshold/Standards Policy for
Chula Vista. Eleven issues are addressed in the Pol icy Statement and are
discussed in terms of a goal, objectives, threshold or standard, and an
implementation measure. Adherence to these Citywide Standards is intended to
preserve and enhance the public services, environment, and quality of life of
Chula Vista residents.
To provide an independent annual City-wide threshold review, a Growth
Management Oversight Committee (GMOC) was created. The Committee was
appointed by the City Council in the summer of 1988. It is composed of nine
members with geographical balance as well as a cross section of interest
including educational development, environmental interest, and business
interest. There is also representation by the Planning Commission. In April
of 1991, the Council changed the designation of the Committee to the Growth
Management Oversight Commission.
The responsibilities of the Commission include the following: a determination
as to whether each threshold is appropri ate for its goal, whether any new
thresholds should be adopted for any issues, whether any new issues should be
added or deleted to the threshold group, whether or not comp 1 i ance wi th the
thresho 1 ds has been ma i nta i ned over the pri or year, whether comp 1 lance is
1 ikely to be maintained based on both short term and long-term development
forecasts, what the fiscal impact of compliance may be, whether the City has
been using developer fees for the intended purpose, and whether the means of
achieving compliance are appropriate.
In April 1991, the Council incorporated the threshold standards into the
Growth Management Program and Implementation Ordinance. Future development
projects in Chula Vista will include measures to assure that the threshold
standards are ma i ntai ned as growth occurs. Thi s .concurrency" pol icy will
promote the continuation of a high quality of life for existing as well as new
city res i dents.
The GMOC also reviewed the recommendations of the Resource Conservation
Commission regarding the need to improve the measurability of the threshold
standards. It was acknowledged that measurable threshold standards were
desirable and the GMOC continues to make improvements to these standards each
year.; For example, last year, the traffic, park and recreation and
economic/fiscal threshold standards were reviewed and improved. The threshold
standards for Civic Facilities, Corporation Yard, and Schools will be
addressed during the next annual review.
PROCESS
The Threshold Pol icy call s for the Growth Management Oversight Commi ssion to
meet at the beginning of each calendar year. The first several meetings were
spent reviewing the threshold pol icies and determining compl lance with those
GMOC REPORT
PAGE 2
pol icies based on reports that were received from individual departments and
agencies. Background information and presentations were made by
representatives of the three water districts, both school districts, San Diego
County Air Pollution Control District and City staff including Engineering,
Traffic Engineering, Parks and Recreation, Library, Fire, Police, Fiscal,
Administrative and Planning. As each issue was reviewed, the GMOC determined
whether or not it was appropriate to issue a statement of concern or take
other action regarding that issue. Following the completion of the individual
threshold reviews, this annual report was prepared, and adopted by the
Commission.
The next annual review is proposed to begin in the fall of 1991 so that the
GMOC report can be completed by March 1992. The original policy called for an
annual review and the first three reports have been based on a calendar year.
However, as the GMOC work has grown in volume and sophistication, the time
required to carry out the review has generally taken January to July. By
placing the review on a fiscal year basis, the GMOC can begin its work in
October and finish by the first part of March. This will enable the GMOC
recommendation to be considered by the City Council prior to Capital
Improvement Program and Annual Budget adoption. This was the original idea in
the Threshold Policy and the GMOC believes this change in schedule will better
serve the City Council.
DEVELOPMENT FORECASTS
In order to look ahead as well as back over past performance, the
threshold/standards policy calls for City staff to prepare development
forecasts at the beginning of the annual GMOC review process. These forecasts
were prepared in February and distributed to the respective agencies for
evaluation and report back to the GMOC. During the last five years Chula
Vista has averaged between 1,000 and 1,500 residential building permits per
annum. The high was 2,076 dwelling units in 1986 and the low was 664 units in
1990. In terms of population growth during the past five years, the City has
grown from 116,325 in January 1986 to 135,163 in January 1990, or an increase
of about 3,839 people per year during this time frame.
Looking at building completions and occupancy over the next 18 months, the
Planning Department has estimated that there could be up to 2,124 units
added. This would be comprised of approximately 451 units to be constructed
in the Sweetwater Authority water service area (i.e., the area generally west
of I-80S,) as well as approximately 1,673 dwelling units in the Otay Water
Distr;ct service area (comprised of those areas generally east of 1-805). The
growth projections for the Otay District area are predicated on the Otay Water
District water allocation program, which is 1 imiting issuance of building
permits to between 700 and 1,000 per year within the City of Chula Vista
portion of the Otay Water District over the next several years. This forecast
does not take into account the current recess i on, S & L failures, hous i ng
affordability, or the drought, all of which are contributing to an overall
slowdown in housing starts.
SHOC REPORT
PAGE 3
With regard to long term development forecasts, Planning Department staff has
estimated that a long term growth rate of 300 dwelling units per year could be
real ized in the Sweetwater Authority area, and 1,280 dwell ing units per year
could be constructed in the Chula Vista portion of the Otay Water District
servi ce area over the next 7 years. Thi s woul d resul tin an annual rate of
growth ranging from 1,500 to 1,600 units per year, for the duration of the
seven year forecast period.
ANNUAL REVIEW OF THRESHOLDS
ISSUES WHERE THRESHOLDS ARE HET
1. Pol ice
THE GHOC FINDS THAT THE POLICE THRESHOLD HAS BEEN HAINTAINED ON BOTH A
CUMULATIVE AND PROJECT BASIS.
In 1990, the threshold for Pol ice services was met for both Priority 1
and Priority 2 calls. The threshold for Priority 1 (emergency calls)
requires that 84% of these calls be responded to within 7 minutes and
that an average response time to all Priority 1 calls of 4.5 minutes or
less be maintained. The actual performance for 1990 indicated that 87.6%
of all Priority 1 calls were responded to within 7 minutes and that the
average response time for all priority calls was 4.13 minutes. This
indicates that the threshold standard for Priority 1 calls was met during
1990.
Wi th regard to Pri ori ty 2 calls (urgent calls) the threshold standard
requires that 62% of all Priority 2 calls be responded to within 7
minutes, and that an average response time to all Priority 2 calls of 7
minutes or less be maintained. The actual performance for 1990 was that
68% of all Priority 2 calls were responded to within 7 minutes and the
average response time was 6.25 minutes. Again, the data indicated that
the threshold for Priority 2 Police services was met.
The Police Department did not indicate any specific concerns with regard
to its abil ity to continue to meet these standards during the coming
year, based on development projections.
2. ~
lHE SHOC FINDS THAT THE FIRE THRESHOLD HAS BEEN MAINTAINED ON BOTH A
UHULATIVE NO PROJECT BASIS.
The threshold standard requires that 85% of all emergency fire and
medical emergency calls be responded to within 7 minutes. The actual
performance for 1990 was that 92.3% of all emergency calls were responded
to within 7 minutes. These data indicate that the threshold for fire
response wa~ met during 1990.
GMOC REPORT
PAGE 4
The Fire Department indicated that they did not foresee any specific
problems with meeting the Fire threshold standard during 1991, based on
the development projections that were provided.
Fire Department staff is developing a plan to open a fire station in the
eastern territories to enable the City to maintain the present level of
service.
3. ~
THE GMOC FINDS THAT THE SEWER THRESHOLD HAS BEEN MAINTAINED ON BOTH A
CUMULATIVE AND PROJECT BASIS.
There were no major problems attributable to new growth in the City
during calendar year 1990 with respect to the established thresholds for
sanitary sewers. The City design capacity for sewers has been revised to
limit the flow in sewers up to 12" in diameter to 50% full and to 75%
full for sewers larger than 12". The City has also allowed flow up to
75% full in 8", 10" and 12" diameter sewers if it can be shown that
ultimate development has already occurred.
However, there were two major developments in the planning stage during
1990 which would discharge into sewers flowing near or over design
capacity. These are the Palomar Trolley Center and the Scripps Memorial
Hospital expansion. Since sewers along Industrial Blvd. have peak flows
over design capacity, use of a sewage holding tank would be required for
a development in th is area pri or to construct i on of a planned re 1 i ef
sewer. Since a portion of the sewer lines on "G" Street and "H" Street
are flowing near or over design capacity at times of peak flow,
preparation of a technical report analyzing impact of flows from the
Scripps Memorial Hospital expansion and recommending necessary
improvements was required.
The City is using several methods to identify and determine the cause of
peak flows exceeding City standards in existing sewers. The City's sewer
TV inspection crew continues to monitor problem sites in order to
determine if the condition of the sewer lines has affected the flow.
The Wastewater Master Pl an prepared in 1989 i nc 1 udes an anal ys is of
current and projected future flows for all City trunk lines and provides
recommendations for construction of new and upgraded sewers and
preliminary cost estimates. In addition, adequacy of sewers must also be
iddressed in the environmental documents of proposed new developments.
Sewage facilities identified through these methods may be considered for
inclusion in the Capital Improvement Program or the Sewer Rehabilitation
Program. Construction work on Phase III of the Sewer Rehabilitation
Program has recently been completed based on information obtained by TV
inspection of sewer lines. New developments will be required to pay a
proportionate share for the construction of new sewers needed.
GMOC REPORT
PAGE 5
The City is currently under contract for preparation of the Telegraph
Canyon Sewer Basin Improvement and Financing Plan. This plan is to
estimate current and ultimate sewage flows, recommend necessary sewerage
system improvements, and determine fees or a funding mechanism to finance
these improvements.
With respect to sewer capacity, the City's total daily wastewater flow
into the Metro Sewage System is approximately 12.8 million gallons per
day (mgd). This includes 10.5 mgd of metered flows and 2.3 mgd of
unmetered flows which discharge to the Spring Valley Sanitation
District. The installation of six new permanent metering stations during
the current fiscal year will enable the Spring Valley flows to be more
accurately measured.
The City's existing sewage capacity reservation with Metro is 19.2 mgd
including the Montgomery area. The Engineering Science plan predicts
that the flow rate would reach the available capacity by the year 2000.
However, since the plan uses an existing flow of 13.5 mgd for 1990, 0.7
mgd more than the actual flows, the projected dates for reaching capacity
flow will need to be re-evaluated.
It is projected that the ultimate average daily wastewater flow of 25.1
mgd will be reached in about the year 2020. A consultant is currently
completing a study which will evaluate wastewater treatment, disposal and
reclamation alternatives and determine the most cost-effective method of
providing for the City's current and future needs. Additional technical,
financial and legal consultants will be retained in FY 91-92 to aid in
the decision-making process.
The Citv of San Dieao Water Utilities Deoartment was asked to comment on
the availabil itv of future sewer caoacitv to accommodate Chula Vista's
olanned arowth as oroiected in the Develooment Forecasts. There is a
concern reaardina the ability of the Metrooolitan Sewaae System to
accommodate Chula Vista's future flow rates in accordance with our 19.2
mad sewer caoacitv reservation. The City of Chula Vista has not received
a resoonse from the City of San Dieao reaardina this matter.
4. Drainaae
THE GHOC FINDS THAT THE DRAINAGE THRESHOLD HAS BEEN MAINTAINED ON A
CUMULATIVE AND PROJECT BASIS.
No major problems can be attributed to new growth in the City during
calendar year 1990 concerning the threshold standards for drainage. One
reason for this is that developers have constructed detention basins such
that downstream flows are not increased. Each new subdivision is
required to construct all drainage facilities to handle storms of a
certain magnitude and discharge the flows into a downstream facility.
The Environmental Impact Report for each development must address any
possible drainage problems either on-site or off-site. The developer is
required to implement mitigation measures, if necessary.
GHOC REPORT
PAGE 6
In addition to the construction of drainage facilities, developers will
shortly be faced with a need to obtain National Pollution Discharge
El imination System permits for each grading operation affecting an area
of five acres or more. The requirements for these permits will be based
upon the need to prevent pollutants from reaching drainageways.
The permits are to be issued by both the Regional Water Quality Control
Board and this City. Details of this aspect of the NPDES program are not
fully worked out yet, but the EPA regulations callout November 16, 1991
as the date when applications must be submitted.
The permit from the Regional Water Qual ity Control Board which the City
operates under provides for implementation of a Best Management Practices
Program covering this activity to be started January 31, 1992.
Developers will be required to dedicate land and construct facilities
necessary to serve their proposed developments. Facilities benefiting an
extensive area with multiple owners may be financed through assessment
districts.
5". Libraries
THE GMOC FINDS THAT WITH THE APPROVAL OF THE STATE LIBRARY FUND GRANT OF
$6.85 MILLION TO CONSTRUCT A NEW LIBRARY IN MONTGOMERY. THE CITY HAS
ACHIEVED CONFORMANCE WITH THE LIBRARY THRESHOLD ON A CUMULATIVE BASIS.
The threshold standard for libraries requires that 500 sq. ft. of library
space (adequately equipped and staffed) be provided per each 1,000
population. Based on a population estimate of 135,163 as of December 31,
1990, a total of 67,582 sq. ft. of library space would be required,
whereas currently 57,329 sq. ft. is provided in the Chula Vista Public
Library as well as two branch libraries. This results in a shortage of
library space of 10,253 sq. ft. The objectives contained in the
threshold for libraries recommends that the City supplement the Central
Library facility by providing branch library facil ities in the
Montgomery/Otay area and in the area east of I-80S.
On August 16, 1990 the City Council adopted a resolution (I) authorizing
Library staff to prepare a pre-application and application for California
Library Construction and Renovation Bond Act Funds; (2) Approving the
proposed Orange and Fourth Avenue park site for the library and (3)
~ppropriating $114,500 for the required professional design services for
the applications submission.
On November 21, 1990 the Chula Vista Public Library filed a Preliminary
Appl ication with the Cal ifornia State Library to apply for Cal ifornia
Library Construction and Renovation Bond Act funds for the construction
of a 35,000 sq. ft. library in the Hontgomery/Otay Planning Area. The
Bond Act authorizes $75 million in bonds to be issued for public library
construction and renovation, including new buildings. The Bond Act
provides that the funds be awarded on a 65% State/35% local matching
basis by a five person board.
GMOC REPORT
PAGE 7
The City's final application was approved on April 24, 1991 and the City
will receive $6,850,515 in State funds. Construction of the 35,000 sq.
ft. library at Fourth and Orange Avenues could be completed by February
1994.
The Chu1a Vista Public Library has also been allocated $200,000 in the FY
1990-91 Capital Improvement Program to hire an architect to begin design
work on a 24,000 sq. ft. 1 ibrary to be built at the corner of H Street
and Pas eo Ranchero in the Sweetwater/Bonita Planning area. The Library
intends to begin the architect selection process in the Spring of 1991.
An additional $266,000 has been requested in FY 1991-92 to complete the
design work through construction drawings.
Work on a 4,000 sq. ft. store front library in Eastlake Village Center
has been put on hold since the East1ake Development Company has not yet
finalized construction plans for that commercial complex.
6. Econoroi cs
THE GMOC FINDS THAT THE ECONOMIC THRESHOLD HAS BEEN MAINTAINED ON A
CUMULATIVE BASIS.
The economics threshold standard was revised last year (1989 GMOC REPORT)
by the Ci ty Counci 1 to provide the GMOC wi th an annual fi sea 1 report to
show an evaluation of the impacts of growth on the City in terms of
operations and capital improvements and to also provide the GMOC with an
annual economic monitoring report to provide an analysis of economic
development activity over the previous year as well as looking at future
conditions. The GMOC is to evaluate the fiscal and economic effects of
growth and report any adverse impacts or recommended actions.
The Annual Fiscal and Economic Report was prepared for the GMOC. In
order to have accurate data, the fiscal year 1989-90, which ended June
30, 1990, was analyzed.
The report revealed the beginning effects of the recession on certain
revenue accounts, however, the implementation of the Publ ic Facil ities
Development Impact Fee during 1989-90 provided a new source of revenue
from new development. The largest dollar increase in expenditures was in
the Police Department which showed an increase of $1,670,961, or 11.8
percent.
The fiscal impact analysis of forecasted growth reveals a fiscally
positive result based upon the 12 to 18 month development forecast. The
annual net impact (revenue minus expenditures) is projected to have a
surplus of $135,000. This produces a revenue/cost ratio of 1.13 which is
generally considered a favorable result.
GHOC REPORT
PAGE 8
The five to seven year forecast also projects positive results, but to a
lesser extent. The estimated revenue/cost ratio is 1.06 which is still
on the plus side, but not as large as the short term forecast.
In terms of economic activity, indicators showed continued steady growth
wi th respect to taxable sales transactions and increases in assessed
value of property (plus 13.3%). Residential construction dropped by 36.5
percent between calendar year 1989 and 1990. This is due to the
recession and also to Otay Water District's water allocation program.
The GHOC felt that future reports should address the fees collected by
the City through the Transportation Development Impact Fee, Public
Facilities Development Impact Fee and the Park Dedication Fee and
document how such fees were spent and/or credits granted to developers
where facilities were built in lieu of fees.
The GHOC also concluded from the Annual Fiscal and Economic Report that
there are no significant fiscal or economics problems that warrant
special attention. The conclusions of the report found that the growth
that occurred over the last 12-month period had a positive fiscal impact
on the City's fiscal well-being. The report also forecasts that over the
next 12-18 months and the next five to seven years, the same relationship
is projected to continue. This forecast will be reviewed each year and
future forecasts will be revised accordingly.
With respect to the long-term, the report suggests paying close attention
to the need to expand both industrial and retail growth in order to
maintain a positive revenue/cost relationship to support city services.
In future years, the GHOC will continue to monitor the fiscal/economic
impacts of growth to see how well the forecasts track over time and
identify structural problems before they become serious.
This is a pioneering effort and will involve a certain degree of
refinement of the analysis in the future. The GHOC would point out that
the analysis shows a significant fiscal difference between
Commercial/Industrial and Residential growth from a fiscal point of
view. The commercial/industrial type of growth is positive on City
revenues and a certain amount of Commercial/Industrial growth is
absolutely necessary to support city services.
7. Parks and Recreation
THE GMOC FINDS THAT THE PARKS AND RECREATION THRESHOLD HAS BEEN
MAINTAINED ON BOTH A PROJECT AND CUMULATIVE BASIS.
The Parks and Recreation threshold is a population based standard calling
for 3.0 acres of neighborhood and community park land to be provided for
every 1,000 residents east of I-80S. last year, the GMOC recommended
that the threshold standard for parks be revised to include a consistent
standard for all new development. The GMOC recommendation is that the
goal is to have the three (3) acres per 1,000 population city-wide.
GHOC REPORT
PAGE 9
At the end of 1989, the City had a population of 131,603 and park acreage
totalling 299.15 acres, for a ratio of 2.27 acres per 1,000 population.
At the end of 1990, based upon population estimates of 135,522 and park
acreage totalling 317.65 acres, the population ratio increased to 2.34
acres per 1,000 population. For the area east of I-80S, based on a 1990
estimated population of 36,448 and park acreage of 188.5 acres, the
population ratio is 5.17 acres/l,OOO people. Therefore, the existing
threshold standard has been met and actually exceeded.
In 1990, two new City parks were constructed. Sunbow Park, a four acre
neighborhood park was completed by the developer of Sunbow and Discovery
Park, a 14.5 acre community park was completed by the Rancho del Rey
developer.
In 1991, a number of renovation and construct ion projects should be
completed. Hemorial Park, Norman Park Senior Center, Parkway Community
Center, Parkway Pool, Lorna Verde Pool, Community Youth Center and Tennis
Courts at two high schools will be improved. In addition, construction
of Eastlake Community Park and Terra Nova Park expansion should begin.
For Fiscal Year 1989-90, the City collected $144,030 in PAD fees, of
which $19,110 was from west of 1-805. The PAD fees were increased by
Council on April 24, 1991, and this should provide additional funds for
park construction projects in future years.
With respect to last year's GHOC recommendations, the following indicates
the current status of each:
a. Revise Dark threshold standard west of 1-805.
The Parks and Recreation Department report to Council
dated April 2, 1991 recommended that staff be directed to
bring back for future Council consideration changes to the
Threshold Standard. The GHOC would repeat its same
recommendation from last year's report regarding changing
the threshold standard for parks to include a standard for
new development west of I-80S, as well as addressing park
deficiencies for existing residents west of 1-805.
AdoDt a sDecific definition of net usable acreaae when calculatina
Dark acreaae.
b.
Parks and Recreation Department is working to refine the
suggested net usable acreage criteria recommended by GHOC
and will bring appropriate changes to the Parks Dedication
Ordinance to Council at a future date.
GHOC REPORT
PAGE 10
c. The City Council should adoot a reauirement that all new
multi-family residential develooment oroYide oriyate recreational
areas (i.e.. tot lots) wherever oossible.
The Parks and Recreation Department has requested
inclusion of small grassy areas and a tot lot when no
private recreational facilities are shown for new
apartments. Staff has been directed to prepare changes to
the appropriate City code to make this recommendation a
requirement and bring the item back to the City Council
for approval.
d. Park fees should be charaed for all new residential develooment.
rather than only for develooments which reauire tentative mao
aooroval. At the oresent time. aoartment oroiects are not charaed
PAD fees.
PAD fees can only be assessed for residential development
on a subdivision map or parcel map per State law.
However, staff is researching other ways for assessing
apartment projects, a park fee at the building permit
stage for smaller residential as well as commercial and
industrial projects. Parks and Recreation Department is
working on a "Park Benefit Fee" and a Park Development
Impact Fund to address this need.
e. Park Acauisition and Develooment (PAD) Fees should be used solelY
for acouisition and develooment of new Darks rather than for reoair
and maintenance of existino Dark facilities.
PAD fees cannot be used for maintenance due to State law.
Such fees have been used to renovate existing neighborhood
and community parks, recreation centers and for
development of new parks. Due to the shortage in PAD fees
to construct new parks west of 1-805, the City Council
concurred with the Parks and Recreation Department and
Parks and Recreation Commission that PAD fees shall
continue to be used for upgrades and enhancements to
local/neighborhood parks and community parks and
facilities, recreation centers/pools/gyms and specialty
parks since these facilities are of a community-wide
benefit and use.
The GHOC wishes to re-emphasize the need for the City to complete the
necessary work to implement last year's recommendations as set forth in
'a' through 'd' above.
New Recommendations:
a. In addition, the GHOC recommends that the City adopt a long range
plan to expand existing parks Dr provide additional new parks in the
area west of 1-805 to meet the needs of existing residents, with a
GMOC REPORT
PAGE 11
goa 1 of meet i ng the standard of three acres per 1,000 people on a
Citywide basis within 20 years. The implementation of this plan
should be funded by new revenue sources in addition to PAC fees.
b. The GMOC supports the Parks and Recreation Department proposal to
charge fees to non-residents of Chula Vista for reservation of park
facilities for groups only.
8. Traffic
THE GMOC FINDS THAT THE TRAFFIC THRESHOLD HAS BEEN MAINTAINED ON BOTH A
CUMULATIVE AND PROJECT BASIS.
The GMOC reviewed a report entitled 1990 Traffic Monitoring Report (See
Attachment D). The report provides an assessment of the current
operational status of 109 signalized intersections based on existing
conditions. The report findings disclosed an improvement from last
year's conditions at critical intersections.
The report revealed that of 109 intersections, a total of seven
intersections experienced congested operations with levels of service
ranging from D to E. This compares with last year's report which found a
total of 13 intersections operating with levels of service ranging from D
to E. The improvement may be in part, due to the connection of SR 54
from 1-5 to I-80S in December of 1990.
The Traffic Monitoring Report also addressed the methodology that the
city uses in assessing traffic conditions throughout the City. The City
has been using the Intersection Capacity Utilization (lCU) method for
cal cul at i ng capacity and 1 evel s of service at signalized intersections.
The ICU method is a short-cut procedure to manually determine the
critical volume to capacity ratio of the intersection. By way of
contrast, the 1985 Highway Capacity Manual (HCM) technique completely
redefines LOS as a function of vehicle Stopped Time Delay. In addition,
the HCM method also provides a measurement for the direct calculation of
delay based upon:
Volume
Saturation Flow Rate
Lost Time
Cycle Length
Phase Time
Progression
The actual de lay experi enced by the motori st when travel i ng along a
segment of the street system with four or five signal ized intersections
is the essence of the HCM method. The HCM method is superior to ICU
because signal timing, progression, and cycle lengths have a greater
impact on Level of Service than the ICU's simplistic volume/capacity
ratio. With ICU, low V/C ratios do not necessarily indicate good levels
GHOC REPORT
PAGE 12
of service, and high V/C ratios do not necessarily indicate poor levels
of service. The GHOC agrees with the change from ICU to HCH recommended
by the JHK Report and the City Traffic Engineer and recommends that the
City Council adopt the revised Traffic Threshold Standard attached to
this report. The new Traffic Threshold Standard does not lower the LOS
Standards that have been in existence since 1987.
The cost of monitoring the existing system is estimated to be
considerably less (perhaps 50%) than previous traffic monitoring studies
because much of the work can be automated.
After this new traffic threshold standard has been put in place, the GHOC
will reevaluate its effectiveness on an annual basis.
The two GHOC recommendations made last year regarding changing the
Traffic Threshold Standard No. 3 and replacing language in item 3, Notes
to Standards in the Threshold Standards were both adopted by the City
Council on April 23, 1991.
H Street Corridor
The GHOC also reviewed the H Street Corridor Report prepared by the City
staff. The report addresses: (1) the relationship between growth and
development in the Eastern Territories Pl anni ng Area and the resul tant
traffic activity on H Street; and (2) documents the importance of
redesignating H Street between Hilltop Drive and Third Avenue as a
six-lane major street.
The conclusions of the report are as follows:
Exi st i ng roadway capacity on H Street (for four lanes) adequately
serves current travel demand with the exception of poor level of
service on H Street and Hilltop Drive during the PH peak hour.
The interaction of trips resulting from current and future Eastern
Territories Planning Area development contributes significantly (in
excess of 50 percent of traffic activity on H Street west of I-80S
in Years 1990, 1995 and buildout).
The remaining buildout of the Eastern Territories Planning Area
represents a smaller share of all traffic (52 percent) than what
exists today (56 percent) on H Street west of I-80S. However, it is
recognized that this contribution is still significant in the
long-term (forecasted to be in excess of 50 percent).
The recommendations of the City staff regarding H Street Corridor are:
;
Near-Term Heasures
Focus future geometric improvements at signalized intersections
where impediment to traffic flow are greatest. This measure may
forestall the need for mid-block widening.
GHOC REPORT
PAGE 13
Prohibit on-street parking along critical mid-block segments to
increase capacity and improve traffic flow.
Lona-Term Measure
Study a General Plan amendment for a six-lane facility.
Adopt a minimum roadway width standard to minimize impacts of future
widening on adjacent properties.
For segments west of Fourth Avenue, the City shall require roadway
widening in addition to right-of-way dedication to implement the
modified roadway width standard as a condition of development.
For the segment between Third Avenue and Fourth Avenue the City may
defer mid-block widening and focus on improving intersection
capacity.
The GHOC is concerned that future increases in traffic on H Street may
contribute to a threshold standard problem in the future unless
mitigation measures are carried out by the City.
THRESHOLDS REFLECTING STATEMENTS OF CONCERN
1. Air Oual itv
THE GMOC RECOMMENDS THAT THE CITY COUNCIL ISSUE A STATEMENT OF CONCERN TO
THE AIR POLLUTION CONTROL DISTRICT (SEE ATTACHMENT Bl.
The APCD provided the GMOC a summary of the requirements of the
California Clean Air Act of 1988. The Act requires the APCD to prepare a
new plan for smog, carbon monoxide, and nitrogen dioxide that meets State
standards and submit the plan to the State Air Resources Board by June
30, 1991.
The APCD staff is complimented on providing a much improved report to the
GMOC this year which contained considerable information regarding the
State Clean Air Act of 1988 and regional planning regarding the status of
compliance.
One of the requirements of the plan is transportation control measures.
Since on-road motor vehicles are the predominant source of smog-forming
pollution (hydrocarbon and oxides of nitrogen), the State law requires
that regional air quality plans reduce emissions from all sources of at
least 5 percent per year until attainment. To meet the State standards
of 5 percent emission reduction per year, emissions of both reactive
organic gases and oxides of nitrogen need to be reduced by 65 percent by
2000. Some of this reduction will be achieved by industrial and new
motor vehicle controls, but to achieve the 5 percent reduction will
require implementation of all feasible transportation control measures,
GHOC REPORT
PAGE 14
which include as a minimum a single passenger vehicle trip reduction
program, a parking management program, a truck operation program, an
alternative transportation mode capacity expansion program,
transportation system management, land use and an indirect source review
program.
The Indirect Source Review Program (an indirect source is any source
which, by itself does not necessarily emit air pollution but generates
pollution by the fact that it attracts vehicle trips) will be of
particular interest to Chula Vista. The indirect source control
regulation adopted by APCD will be delegated to Chula Vista only if we
adopt an air quality element or otherwise implement air quality programs
conforming to the APCD indirect source control regulation. This
regulation will need to be carefully reviewed by the City prior to
adoption by APCD and the State Air Resources Board.
Last year the GHOC recommended to Council that a Statement of Concern be
transmitted from the City of Chula Vista to the APCD concerning several
issues.
The three concerns from last year were as follows:
a. A aeneral lack of leadershio bv the APCD in dealina with the imoacts
of arowth on air Dollution.
The GHOC still has not received any information from APCD
as to major sources of air pollution in the City of Chula
Vista. The GHOC is particularly interested in major
industrial facilities such as SDG&E, Rohr, etc. We are
interested in knowing if there are any industrial uses in
violation of APCD standards and, if so, what is being done
to enforce regulations.
b. A lack of direction bv the APCD to the local aaencies in how to deal
with the imDacts of local arowth on air Dollution.
APCD is proceeding with the new Regional Air Quality
Strategy required by the State Clean Air Act of 1988 and
this plan is scheduled for completion in the third quarter
of 1991.
~.
A concern reoardino the imDacts on air Dollution bv the DroDosed new
Dower D 1 ant and auomentat i on of the exi st i no Dower D 1 ant at the
South Bav site bv San Dieoo Gas and Electric.
This concern is on hold since APCD staff has indicated to
the GHOC that SDG&E has wi thdrawn the app li cat i on for the
proposed augmentation in the South Bay as a result of the
proposed merger.
GMOC REPORT
PAGE 15
Last year the GMOC also made four recommendations as follows:
a. That the APCD uodate the San Dieao County Air Ouality Manaaement
Plan at the earliest oossible date. and orovide direction to local
aaencies as to how they can ensure that reaional air aualitv
standards are met on a local basis.
This recommendation will be met by APCD's current effort
to prepare the new regional Air Quality Strategy which is
in process and due to be completed this year for
submittal to the State Air Resources Board.
b. That the APCD work with the California Eneray Commission to
ensure that air Quality is not adyersely imoacted by the new
Dower olant and auamentation of the South Bay olant orooosed
by San Dieao Gas and Electric.
The procedure regarding this recommendation is for the
appl ication to be filed directly with the State Energy
Commission and then the Energy Commission goes to the Air
Pollution Control District to determine the type of
permits that are required.
c. Jhat the APeD identify the maior sources of air oollution in Chula
Vista. includina an eyaluation of the imoacts of landfills (methane
emissions) on air Quality.
The APCD reports that methane emi ssions from landfill s
does not contribute to the regional ozone problem. The
i nformat i on requested 1 ast year concerni ng major sources
of pollution in Chula Vista is still a concern since the
APCD has not furnished the GMOC the requested information.
d. That the City suooort the use of efficient mass transoortation as a
means of mitiaatina air Quality imoacts.
The last recommendation regarding the use of efficient
mass transportation has been endorsed by the APCD in its
adopted Transportation Control Measures Criteria entitled
Alternatiye Transportation Mode Capacity Expansion.
The GMOC also noted that APCD historically has not enlisted the support
of cities in controlling industrial sources of air pollution.
According to the APCD staff, about 90 percent of the total amount of air
pollution coming from industrial sources in Chula Vista is coming from
SDG&E's boilers.
GMOC REPORT
PAGE 16
The GHOC would like to receive information about the Air Quality in Chula
Vista and any information as to what is actually being done in the
investigation of air pollution. City staff offered to meet with APCD to
simplify the request for information.
There has been much improvement from 1 ast year and the GHOC recommends
more frequent communication and exchange of information on a regular
basis. The City needs much more guidance in responding to APCD air
quality program. At present, the City receives no information from APCD
regarding enforcement activities or periodic inspections.
2. Water
THE GMOC RECOMMENDS THAT THE CITY COUNCIL ISSUE STATEMENTS OF CONCERN TO
BOTH THE SWEETWATER AUTHORITY AND THE OTAY WATER DISTRICT (SEE ATTACHMENT
ID...
The GMOC was briefed on efforts of the Inter-Agency Water Task Force to
address drought rel ated issues. It was noted that the Ci ty of Chul a
Vista had saved 14.1 percent over the previous year.
Some of the things that may be done in the future include:
1) Improve collection of run-off because during periods of
rainfall, much of the water is lost to the ocean.
2) Use reclaimed water. The County Water Authority has plans for
200,000 acre feet by the year 2010.
3) Study desalination of sea water, although this could be four to
five times as expensive as imported water, at present.
4) Changes in the types of landscaping and 1 ifestyle which can
produce significant reductions in water use.
last year's GMOC report identified the ar2as of concern as:
a.
A concern about the lona-term water suoolv situation. and the need
to coordinate efforts amona the Water Districts and the Citv.
The Inter-Agency Water Task Force was formed to do a better
job of coordinating efforts to provide water service to
address the long term water supply situation. Additional
water has been stored in the Sweetwater Reservoir for a
1992 drought reserve. The Sweetwater Authority has a
better reserve now than two years ago.
The orooosed Bavfront oroiect mav create orobl ems for the exi st i na
facilities of the Sweetwater Authoritv.
Rohr Industries corporate headquarters building of some
265,000 square feet will have fire flow demands of 5,000
gallons per minute. The water district does not have that
b.
GMOC REPORT
PAGE 17
kind of delivery capacity since there was no need for it in
the past. Rohr will be upgrading the water supply system
from existing Sweetwater Authority storage reservoirs on
Oxford Street and at Bonita Valley to provide the required
5,000 gpm fire flow. These improvements will be paid for
by Rohr and are estimated to cost approximately $.5 million.
3. Schools
THE GMOC RECOMMENDS THAT THE CITY COUNCil ISSUE STATEMENTS OF CONCERN TO
BOTH THE SWEETWATER UNION SCHOOL DISTRICT AND CHUlA VISTA ElEMENTARY
SCHOOL DISTRICT (SEE ATTACHMENT Bl.
a. Sweetwater Union High School District
The 1990 report from Sweetwater Union High School District included
only the eight schools located within the City of Chula Vista.
Previous reports included the entire district and was based on the
CBEDS data, giving the GMOC information on the housing of students
in addition to the count.
Sweetwater Union High School District reported that they are in
compliance with the threshold standards. The curr.ent capacity of
the four high schools within the Chu1a Vista area of the district is
7.084 students, and the current student population is ~
students, so there is capacity for the students. However, this
capacity includes re10catab1e trailers that have a capacity of 960
students.
The key statistic with respect to the four junior high schools
within the Chu1a Vista area is that the total capacity is 5,886
students and the current student population is 5,867 students.
While there is city-wide capacity this year, the Bonita Vista Junior
High is over capacity by approximately 208 students.
The following measures are under consideration to alleviate
overcrowded conditions:
The anticipated opening of East1ake High School in the Fall of
1992.
Boundary adjustments in the attendance areas for the Bonita
Vista High and Bonita Vista Junior High Schools.
Proposed boundary adjustments in the attendance areas for the
Montgomery High and Southwest High Schools.
The anticipated opening of the Youth Facility at Chu1a Vista
High School.
GHOC REPORT
PAGE 18
The anticipated construction of 10 new classrooms at Chu1a
Vista Junior High School.
It is ant i ci pated that wi th these changes the enroll ment 1 eve 1 s at
Bonita Vista Junior, Bonita Vista High and Castle Park High will be
brought down to more acceptable levels.
Based on the Sweetwater Union High School District reports and
conclusions, the GHOC has determined that conditions have not
changed significantly from last year.
The District also reported that there are 44,000 people attending
adult school classes, which is an average of about 5,600 students
per day. In the last two years, the District has added 22
classrooms to accommodate these students.
The GHOC is also concerned that the airport master plan study of
Brown Field and the proposal to locate a twin port international
airport at the U.S.-Mexico border on Otay Mesa may be contributing
to overcrowded schools in Chula Vista. The reason for this concern
is because the high school district is apparently unable to obtain
State approval of new school sites on Otay Mesa until the airport
issues are resolved. In the meantime, the district is experiencing
continued growth but is unable to construct new schools in the Otay
Hesa portion of the district. Thus, the remaining areas of the
district such as Chula Vista may continue to be impacted until
relief is provided by the construction of new schools.
b. Chula Vista Elementary Schools
Last year in response to the City's 12 to 18 month growth forecast,
the District identified seven of the 12 schools in the western
portion of Chula Vista projected to be over capacity by
approximately 481 students. This growth was accommodated through a
combination of busing, facilities modifications and program changes.
This year, the City estimated that within the western portion of
Chula Vista, 135 children would be generated by new development.
This growth will contribute to further overcrowding of the affected
schools.
The opening of Clear View School which is located in
area in September 1991 will provide additional
children) and some relief for western area schools.
New development within the Eastern Territories is provided school
facil ities through the voluntary establ ishment of Mello-Roos
Community Facilities Districts. Approximately 502 new students are
projected over the next 12 to 18 months.
the Terra Nova
capacity (550
GHOC REPORT
PAGE 19
The report from the Chula Vista City School District staff described
a number of activities the District is undertaking to keep abreast
of changing conditions.
The new school planned in the Rancho del Rey Community will be
postponed for a year due to the economic slow down and the water
allocation policy of the Otay Water District.
The GHOC. is concerned about the continuing overcrowded school
conditions in western Chula Vista. The GHOC noted that Clear View
School will be opening on time and that the District is using a
number of strategies to address the overcrowded conditions including
individual school growth studies, residency verification, and
pursuing redevelopment money. The District has also been more
forthright in stating their concerns regarding the impact of new
projects in western Chula Vista such as Trolley Square, "H" Street,
Scripps Hospital expansion on the school district.
Concerns were also expressed by the District regarding the impact of
the General Plan Amendment and re-zonings of the central portion of
Chula Vista which generated a recommendation that the City include a
condition to require compl lance with school district facil ity
mitigation recommendations. Their recommendation was also made to
the Planning Commission at their April 10,1991 meeting following
review and action on this General Plan Amendment.
The GHOC commends the Chula Vista Elementary School District for
their outstanding report. The GHOC strongly emphasizes the need for
policy level solutions between the City Council and the Chula Vista
Elementary School District Board for the problems identified in the
District's report to the GHOC.
c. School Unification
The latest information indicates that the County School Board
approved two petitions for unification and the election could occur
as early as June 1992.
The GHOC re-emphasizes the discussion regarding school district
unification from last year's report which stated, "The GHOC, without
taking a position at this time on the issue of school district
unification supports the idea of a study on the advantages and
di sadvantages of establ i shing a Unified School District grades K-12
for the Chula Vista area. This study would be a significant
undertaking which is beyond the scope of the GHOC but we feel would
be beneficial to the cOlll1lunity in light of the difficulties facing
both districts in meeting the educational needs of the cOlll1lunity."
GHOC REPORT
PAGE 20
OTHER AREAS REVIEWED BY GMOC
Solid Waste and Recvclina
In the GHOC Second Annual Report, it was determined that based on a review of
the information regarding AB 939 (Solid Waste Management Act of 1989), that it
was not necessary to recommend adoption of a specific standard for solid waste
management. It was also concluded that the City should establish baseline
information regarding local solid waste generation within the. City of Chula
Vista as soon as possible, in order that it can properly evaluate whether the
required reduction under AB 939 are being met.
The GMOC received excel1'ent reports from City staff on the recycling program
adopted by the City. The GHOC determined that there is no need for further
review of this function. The City is encouraged to promote the use of
recycled materials because they are essential to a successful recycling
program.
WPC 9230P
,
THRESHOLD-ANNUAL REVIEW SUMMARY
, ,
Iss e
Threshold
Comp li ance
Met
Statement of
Concern to
Responsible
Agency to
Achieve
Compliance
Adopt and
Fund Tactics
to Achieve
Conformance
Additional
Infonnationl
Data Needed
for Complete
Verification
Threshold
Change
Re d d
."
u cORlllen e
1. Police X
2. Fire & Emergency
Medical Services X
3. . Sewer X
4. Drainage X
5. Li bra ri es X
6. Economics X
7. Parks & Recreation X X
8. Traffic X X
9. Air Quality X
10. Water
a. Sweetwater Authority X
b. Otay Water District X
11. Schools
a. Elementary X
b. High School X
ATIACHMENT A
PROPOSED TRAFFIC THRESHOLD STANDARD
JUNE 1991
TRAFFIC
.
GOALS
To provide and maintain a safe and efficient street system within the
City of Chula Vista.
To establish a performance measurement methodology enabling the City to
accurately determine existing levels of service for motorists.
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.
To establish a performance standard which is consistent with the Regional
Growth Management Standards.
To maintain consistency in terms of LOS ratings between the previous
Intersection Capacity Utilization (ICU) methodology and the 1985 Highway
Capacity Manual (HCM) methodology.
OBJECTIVES
1. Ensure timely provision of adequate local circulation system capacity in
response to planned growth, maintaining acceptable levels of service
(LOS).
2. Plan new roadway segments and signalized intersections to maintain
acceptable standards at build-out of the General Plan Circulation Element.
THRESHOLD STANDARDS
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 '0" can occur for no more than any two hours of the day.
West of 1-805: Those signalized arterial segments which do not meet the
standard above, may continue to operate at their current (Year 1991) LOS,
but shall not worsen.
Notes to Standards
Arterial segment LOS measurements shall be for the average weekday
peak hours, excluding seasonal and special circumstance variations.
Urban and suburban arterials are defined as surface highways having
signal spacing of less than 2 miles with average weekday traffic
volumes greater than 10,000 vehicles per day.
Arterial segments are stratified into three classifications:
Class I arterials are roadways where free flow traffic speeds
range between 35 mph and 45 mph and the number of signalized
Notes to Standards (continued)
intersections per mile are less than four. There is no parking
and there is generally no access to abutting property.
Class II arterials are roadways where free flow traffic speeds
range between 30 mph and 35 mph, the number of signal i zed
intersect i on per mil e range between four and ei ght, there is
some parking and access to abutting properties 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.
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.
Circulation improvements should be implemented prior to anticipated
deterioration of LOS below established standards.
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
confirmed by the City Traffic Engineer.
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.
Level of service values for arterial segments shall be based on the
following table:
Level of Service
Averace Travel Soeed CMPHl
-
.
A
B
C
D
E
F
Class I
~ 35
> 28
~ 22
> 17
~ 13
< 13
Class 2
Class 3
> 25
~ 19
~ 13
> 9
)" 7
'( 7
~ 30
~ 24
~ 18
~ 14
~ 10
< 10
Source: Highway Capacity Manual, Special Report
209, Transportation Research Board,
National Research Council, Washington
D.C., 1985.
-2-
Imolementation Measures
Should the GHOC determine that the Threshold Standard is not being
satisfied, then the City Council shall, within 60 days of the GMOe'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:
I. 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.
WPC 5631E
-3-
ATIACHMENT B
STATEMENTS OF CONCERN
AIR QUALITY
WATER
SCHOOLS
JUNE 1991
GMOC
"STATEMENT OF CONCERN" REGARDING AIR QUALITY
(AIR POLLUTION CONTROL DISTRICT)
I. CONCERNS
The Growth Management Oversight Commission (GMOC) has concluded that:
a. There has been improvement in the 1 eadersh i p by the APCD i n deal i ng
with the impacts of growth on air pollution, but the APCD still has
not provided information to the City of Chula Vista regarding air
qual ity problems in the City and what can be done to correct these
problems.
b. There is still a concern regarding the lack of information on air
quality provided by APCD to the City of Chula Vista; and
c. There has been no response to the City's request for a response from
APCD regarding the City's Development Forecasts.
II. RECOMMENDATIONS
GMOC recommends that the City:
Request the APCD to update the San Diego
Management Plan at the earliest possible
information to local agencies as to how they can
air quality standards are met on a local basis.
b. Request the APCD to provide the City with information to identify the
major sources of air pollution in Chula Vista, including an
evaluation of the impacts of landfills (methane emissions) on air
qual ity.
County Air
date, and
ensure that
Qua 1 ity
provide
regi ona 1
a.
c. Support the use of efficient mass transportation as a means of
mitigating air quality impacts.
d. Expand air qual ity planning efforts by regularly consulting with the
APCD to identify ways to improve air quality in the Chula Vista area.
.
WPC 9406P
B-1
GMOC
"STATEMENT OF CONCERN" REGARDING WATER
(SWEETWATER AUTHORITY)
The Growth Management Oversight Commission (GMOC) recognizes the efforts of
the Sweetwater Authority to conserve water and plan for long-term water
supplies, including its revised water rate structure based on water usage
which will discourage water wasting.
I. CONC ERNS
The proposed Bayfront project
facil ities of the Sweetwater
should work closely with the
problem.
II. RECOMMENDATIONS
WPC 9406P
The GMOC has concluded that:
a. There is still concern about the long-term water supply situation,
and the need to coordinate efforts among the water di stricts in the
City; and,
b.
may create
Authority.
Sweetwater
problems for the existing
The Redevelopment Agency
Authority to avoid supply
GMOC recommends that the City:
a.
Request the Sweetwater Authority to provide
regarding water conservation programs,
information regarding water consumption,
understandable to the typical consumer.
Request that the Authority work closely with the City of Chula Vista
Redevelopment Agency to ensure that projects within the Bayfront will
not create problems with existing facilities and supplies.
information to
as well as
in a manner
consumers
specifiC
that is
b.
c.-
Request that the Interagency Water Task Force pay close attention to
ways to increase the reliability of long-term water supply and
distribution in the Chula Vista planning area due to the continuing
drought.
Together with the Authority take a strong leadership position on the
water issue to make the state more aware of the necessity of the need
for long range planning for water projects such as the State Water
Project.
d.
,
B-2
GMOC
"STATEMENT OF CONCERN" REGARDING WATER
(OTAV WATER DISTRICT)
The Growth Management Oversight Convnission (GMOC) acknowledges the work that
the Otay Water District has done and progress that has been made within the
last year on the following:
a. Facilities Master Plan.
b. The water permit allocation system.
c. Cooperative efforts to work with the Sweetwater Authority.
d. Construction of water storage facilities which will be in place by
1992.
e. Water conservation programs.
I. CONCERNS
The GMOC is still concerned that there is a problem with the long-term
water supply situation and the way it may impact on Chula Vista
residents. More work needs to be done on the regional level to increase
the reliability of future water supplies.
II. RECOMMENDATIONS
GHOC reconvnends that the City:
a. Request the District to provide information to consumers regarding
water conservation programs, as well as specHi c i nformat ion
regarding water consumption, in a manner that is understandable to
the typical consumer.
b. Request that the Interagency Water Task Force pay close attention to
ways to increase the realiability of long-term water supply and
distribution in the Chula Vista planning area due to the continuing
drought.
c: Together with the District take a strong leadership position on the
water issue to make the State more aware of the necessity of the need
for long r:ange planning for water projects such as the State Water
Project.
d,
.
Request the Di stri ct to
facil ities to achieve
capab il i ty .
cont i nue efforts to increase water storage
the required IO-day emergency storage
WPC 9406P
B-3
GMOC
.STATEMENT OF CONCERN" REGARDING SCHOOLS
(SWEETWATER UNION HIGH SCHOOL DISTRICT)
I. CONCERNS
The GMOC has continued concerns regarding overcrowding of existing high
school facilities. Even though EastLake High School (Fall, 1992) will
alleviate some of the capacity problem, there is a need for the City of
Chula Vista to continue to work with the District. to expand school
capaci ties.
In addition, the Commission is concerned that
District regarding overcrowding problems have
from last year. The GMOC, therefore,
recommendations.
the conditions within the
not changed significantly
would repeat its 1989
II. RECOMMENDATIONS
GMOC recommends that the City:
a. Continue to work closely with the Sweetwater Union High School
District in its efforts at achieving legislation at the state level
which will provide adequate funding for needed school facilities.
b. Request the Sweetwater Un i on Hi gh School Di strict accelerate the
planning and construction of Rancho del Rey Junior/Middle School, as
well as other needed facilities in the southern part of the
District. It is recognized that the slow down in new construction
has delayed the progress in opening new facilities.
c. Request the Sweetwater Union High School District continue to work
closely with the City on ensuring that smaller size development
projects participate in the annexab1e community facilities district.
Also, that appropriate mitigation measures be placed on rezones and
other discretionary actions requested by developers which are not
constrained by the payment of school fees only.
d. Continue to cooperate in providing current and precise school data on
envi ronmenta1 documents and di scretionary land use app1 i cat ions to
the Sweetwater Union High School District.
e~ Request that the Sweetwater Union High School District implement
strategies such as residency verification, site growth solutions, and
alternative calendars to address the overcrowded conditions until
such time as new schools are opened.
WPC 9406P
B-4
GMOC
"STATEMENT OF CONCERN" REGARDING SCHOOLS
(CHULA VISTA ELEMENTARY SCHOOL DISTRICT)
I . CONCERNS
The GMOC has continued concerns regarding the following conditions
elementary school facilities in Chula Vista:
a. That overcrowding of the schools is continuing, and in the area west
of I-80S is getting worse.
b. The ability of the District to finance construction of new schools
and rehabilitation of existing schools in the developed areas west
of I-80S is continually getting worse, and the State is not
providing adequate funding for school facilities.
c. The conversion of existing single family neighborhoods to
multi-family use has contributed to overcrowding of schools in the
northwest part of the City. This should be carefully addressed as
part of the implementation of the General Plan and Amendments that
relate to rezonings.
II. RECOMMENDATIONS
The GMOC, while noting the efforts made by the District to address the
overcrowded conditions, finds these same conditions warrant a restatement
of last year's recommendations.
GMOC recommends that the City:
a. Continue to work together with the Chula Vista Elementary School
District in its efforts at achieving legislation at the State level
which will provide adequate funding for needed school facil ities,
including lowering the requirements for passage of school bonds to
majority vote.
b. Communicate with the School District to inform them of new
residential developments, particularly on the west side of the City.
c. Establish meetings to seek policy level solutions between the City
Council and the School Board on issues related to school facilities
and growth.
d. Work closely with the District to ensure that appropriate mitigation
measures (e.g., inclusion in annexable Community Facility Districts)
be placed on rezones and other d i scret i onary actions requested by
developers whi ch have signifi cant adverse impacts on school
enrollments that cannot be mitigated by impact fees.
8-5
e.
Assure that adequate schoo 1
accommodate children generated
proposed.
facilities will be provided to
by Bayfront Project, if approved as
f. Request that the District:
WPC 9448P
1. Consider the feasibility of school expansion at sites with
adequate land area to accommodate such expansion.
2. Maximize to the extent possible, the use of school facilities
through multi-track scheduling and other innovative methods.
3. Work to change State law to lower the required vote on school
construction bonds to a simple majority.
4. Evaluate methods to qualify students housed in relocatable
classrooms as counting toward the overcrowded condition by the
State.
8-6
ATIACHMENT C
EXECUTIVE SUMMARY
. ANNUAL FISCALIECONOMIC REPORT
JUNE 1991
EXECUTIVE SUMMARY
GROWTH MANAGEMENT OVERSIGHT COMMISSION
ANNUAL FISCAL AND ECONOMIC REPORT
MAY 1991
In 1990 the economics threshold of the City's Growth Management Program was revised to read:
a. The GMOC shall be provided with an annual fiscal Impact report which provides an
evaluation of the Impacts of growth on the City. both In terms of operations and capital
Improvements. This report should evaluate actual growth over the previous 12-month
period. as well as projected growth over the next 12-18 month period. and 3-5 year
period.
b. The GMOC shall be provided with an annual "economic monitoring report; which provides
an analysis of economic development activity and Indicators over the previous 12-month
period. as well as projected growth over the next 12-18 month period. and 3-5 year
period.
The Planning Department retained the local government fiscal consulting firm of John McTighe
& Associates to prepare this annual report. John McTighe & Associates has prepared fiscal
analyses for all of the major development projects In the city over the past eight years. John
McTighe & Associates also assisted P&D Technologies with the preparation of the fiscal analysis
of the General Plan Update prepared in 1989.
FISCAL IMPACT ANALYSES
The fiscal Impact analyses were prepared using the same basic fiscal Impact models that have
been used to analyze the fiscal Impacts of proposed development projects and the General Plan
Update. In the case of the analysis of the fiscal Impact of the actual growth "over the previous
. twelve month period; the analysis actually covers the period between July 1989 through June
1990. In order to have accurate expenditure and-revenue amounts that could be analyzed. It was
necessary to use the most recently completed fiscal year. That Is fiscal year 1989-90. which
en~ on June 30. 1990. Since the Impact of growth on the City's revenues and need to provide
services is generally not Immediately felt (except for development fees and planning & building
processing). the use of the actual expenditures and revenues of the City Is believed to be an
accurate reflection of the impact of growth on the Clty.s fiscal well being.
Prevloul Twelve Month Period
This analysis has reviewed the changes In the City's actual expenditures and revenues between
fiscal year 1989 and fiscal year 1990. The analysis has examined the changes In the Individual
depanments and activities and the various revenue accounts in the general fund and selected
special funds.
The analysis shows uneven results on both the expenditures and revenues. It makes panicular
note of the growth in the Planning and Public Works Departments 'related to new development
in the City. The significant 49% increase in the expenditures of the Planning Department were
related to the additional expenditures for the Otay Ranch joint planning project and Increases In
department staff and consultant services to process the general plan update and several large
scale projects that were in process during 1989-90. Much of these costs were directly offset
by reimbursements from the affected developers. In terms of dollar increases, the largest was
in the Police Department which showed an increase of $1,670,961, or 11.8%. Approximately
half of this increase was attributed to Inflation, while the other half was a result of additional
staffing to maintain the population to staff ratio.
Those revenues that are directly related to new development showed an overall decline between
1988-89 and 1989-90 as the amount of new development slowed from the previous year.
However, the City implemented the Public Facilities Development Impact Fee during 1989-90
which provided a new source of revenue from those developments which did receive building
permits In that year.
Twelve to Eighteen Month Forecast
The fiscal impact analysis based on the current twelve to eighteen month forecast projects that
the combination of residential and non-residential development contained in that forecast will
have fiscally positive results on the City's operations and maintenance budget. The annual net
impact (revenue minus expenditures) after buildout of this forecast is projected to be a surplus
of approximately $135,000. This produces a revenue/cost ratio of 1.13 which is generally
considered a favorable result. One reason for the relatively high ratio is the amount of office
and industrial acreage contained in the short term forecast.
Three to Five Year Forecast
The "three to five year forecast" is actually based on the five to seven year growth forecast
presented to Growth Management Oversight Commission earlier this year. This fiscal analysis
also projects positive results on the City's fiscal condition, but to lessor extent. At buildout of
the forecast, It is projected that the new development will cause an annual surplus of
approximately $490,700. This produces a revenue/cost ratio of 1.06 which is still positive,
but less so than from the shorter term forecast.
2
ECONOMIC MONITORING REPORT
The economic monitoring report has documented a number of demographic and economic
Indicators In an allempt to track the economic progress of the City and to forecast, where
possible, the economic future. Since this Is the first attempt at a comprehensive economic
monitoring report, there may be certain Indicators included that the GMOC does not wish to have
included In future reports. Ukewise, there may be other indicators that have not been included
that the Commission may wish to see tracked in the future.
The work now being performed by the City's Community Development Department In support of
the newly created City Economic Development Commission should assist the GMOC's efforts at
providing forecasts of future economic development activities. Unfortunately, that work is now
only in its formative stages and has not been able to provide any concrete information that could
be included in this year's economic monitoring report.
The economic Indicators that have been tracked show that the City's overall economic health
remained strong during the period between fiscal year 1988-89 and 1989-90. Taxable sales
transactions grew by 5.8% between the second quarters of 1989 and 1990. However, it should
be noted that the Chula Vista sales tax revenue per capita is still among the lowest in the county.
The assessed value of property within the City grew by 13.3% between fiscal year 1989 and
fiscal year 1990, while the residential building permit activity dropped significantly by
36.5% between calendar year 1989 and calendar year 1990. This latter reduction in building
permit activity is a reflection of the building slowdown resulting from a combination of the Otay
Water District's water allocation policy and the onset of the current recession during 1990.
Comparison of office and industrial building activity show that the amount of office space in the
City grew by some 88,000 square feet (+8.1%) between the second quarter of 1989 and the
second quarter of 1990, with vacancy rates increasing from 2.1% to 4.00%. Industrial space
grew by 566,901 square feet (+8.9%), while vacancy rates decreased from 6.3% to 3.9%. No
comparable Information could be found for retail space within the City. However, the Inventory
kept by Coldwell Banker Commercial Real Estate as of April 1991 showed a vacancy rate of
4.1%. The continued strong demand for retail, office and industrial space reflected in these
figures has led to the somewhat high volume of non-residential projects that were seen in the
current twelve to eighteen month growth forecast discussed previously. It could be anticipated
that as these new projects build out, the City will see noticeable increases In vacancy rates as
the amount of non-residential space will exceed the demand until initial "lease up. of the new
3
~, . projects has occurred. . How long this takes will depend to a large extent on the recovery from
the current recession, a factor the City has no control over.
The 1992 economic monitoring report will include comparative information from the detailed
results of the 1990 Census. This information will become available later this year and will
help in building an overall social and economic profile of Chura Vista of 1990 compared with
other cities in the region and with itself in 1980.
4
ATIACHMENT D
EXECUTIVE SUMMARY
TRAFFIC MONITORING PROGRAM
JUNE 1991
.
- .
.
EXECUTIVE SUMMARY REPORT
CITY OF CHULA VISTA GROWTH MANAGEMENT PLAN
YEAR 1990 TRAFFIC MONITORING PROGRAM
Prepared For
City of Chula Vista
Department of Public works
276 Fourth Avenue
Chula Vista, California 92010
Prenared Bv
JHK & Associates
8989 Rio San Diego Drive, Suite 335
San Diego, California 92115
May 1, 1991
CITY OF CHULA VISTA GROWTH MANAGEMENT PLAN
YEAR 1990 TRAFFIC MONITORING PROGRAM
EXECUTIVE SUMMARY
1. BACKGROUND
In 1988 the City of Chula Vista adopted a Growth Management Plan. This plan was based
on a series of threshold standards regarding the operational aspects of the existing infrastructure on
a city-wide basis. The pllIpose of the Growth Management Plan is to assist the City of Chula Vista
in assessing the environmental. fiscal and operational effects of land developments. Traffic was
one of the elements included in this Growth Management Plan. The Year 1990 Traffic Monitoring
Plan (TMP) analysis is based on the current '7raffic Element" as shown on Table S-1.
In response to the adopted Traffic Threshold Standards, the City of Chula Vista Public
Works Department developed a request for proposal (RFP) to perfonn the initial Traffic
Monitoring Program for Year 1989. JHK & Associates (JHK) was retained by the City to conduct
this important monitoring project. To establish a more substantial data base, the City of Chula
Vista selected JHK to conduct a similar study for Year 1990. The primary focus of the Year 1990
TMP project was to again determine the current operating condition of all signalized intersections
throughout the City. A study area map highlighting the location of the 109 project intersections for
the Year 1990 TMP is shown on Figure 1-1. This project also required an analysis of the existing
conditions at the 22 freeway ramp intersections on Interstate 5 and Interstate 805 within the City of
Chula Vista.
The following sections summarize the most critical elements of each of the topics addressed
during the completion of the Year 1990 Traffic Monitoring Program.
This Executive Summary is divided into the following sections:
1. Project Summary
2. Intersection Data Collection Summary
. 3. Summary of Signalized Intersection Performance
4. Summary of Freeway Ramp Intersection Performance
5. Conclusions and Recommendations - Year 1990 Traffic Monitoring Program
6. Review/Critique Current LOS Procedures and Traffic Threshold Ordinance
7. "H" Street Corridor Analysis
8. Analysis of Eastem Territories Growth Impacts
9. Procedural Guidelines for the Preparation of Traffic Impact Study Reports
S-1
Table S-1
CITY OF CHULA VISTA GROMH MANAGEMENT PLAN
ADOPTED TRAFFIC ELEMENT
lJQAL:
To provide and maintain a safe and efficient street I)'SIeIII within the City of OIula Vista.
OBJECTIVF~
1. Ensure timety provision of adequate local circulaliOllI)'llem c:IplICity in raponse to planned growth. maintain-
ing acceptable levels of service (LOS).
2. Plan new roadway segments and signalized intersections to maintain ICCepIable standards 8! build-out of the
General Plan . Circulation Element
THRE.e,HOLD STANDARD:
1. City-wide: Maintlin LOS 'C' or better at aU signalized intersections. with the exception that LOS 'D' may occur
8! signalized interSeCtions for a period not to exceed a total of two hours per day. (P)
2. West of I-80S: Those signalized intersections which do not meet Standard 111 above. may continue to operate at
their current (1989) LOS. but shall not worsen.(p)
3. City-wide: No intersection shaD operate at LOS ~!ltr' as measured for the average weekday peak hour.(p)
Notes to Standards:
1.
LOS measurements shaD be for the average weekday peak hour. excluding seasonal and special circumstance
variations.
2.
The measurement of LOS shall be by the lCU (Intersection Capacity Utilization) calculating utilizing the City's
published design standards. .
'. Tbemwurement of LOS atsignaliUd intCisectionsoiatyaiieri3lSandfRieqy ramps Shaiitie a grOwth>.. ............
managemeot consideration in situations where proposed iieveJopmeiltsbaveII significant impact at inter- . . ... ... . .. .
changes . .....:. :.... .' .... '. '..>:.:. '., ...::....... ..:.:...:..:.....:::.::.:-.:.:.>.:.....:.:..:-..:.::.:.. . ...:..., ." . ..'
:;/.....;.;......-... ....::_.~....;: . .... .. ......... .................,-;-..,-..:...:-.:...:.;.:.;.;.;.;.;,:.:.;.:.:.:.;.;.;.:.,.:..,....... . ...,........:..:'......:.;.:.;.;.....-.,..."..;.-.:-,....
...-...'.-....'-......'
3. ':.
4.
Circulation improvements should be implemented prior to anticipated deterioration of LOS below established
standards.
IMPl,EMENT A TIONMEASURES:
.
Should the GMOC determine that the Threshold Standard is not being satisfied. then the City Council shal1, within 60
days of the GMOC's repon. schedule lII1d hold a public hearing for the purpose of adopting a moratorium on the accep-
tance of new tentative map applications. based on aU of the fonowing criteria:
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 specifica1ly identified impact.
Source: City ofOuln Vista Growth Management Plan Exhibit" A" Trnffic Element November 17 1987, as revised by
rnx & Associates Year 1989 Traffic Monitoring Program Final Repon.
S-2
~z
...... -...
.
...
.~
.
...
.~
...
'.
.
5-3
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I
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I
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.
-
.
fI:l
~
~
E:
Iloo
~
-<
tl
-<
~
i
.
@
.
2. INTERSECTION DATA COLLECTION SUMMARY
The City of Chula Vista Growth Management Plan identified 109 anerial intersections and
22 freeway ramp interchanges to be studied for the Traffic Monitoring Program. This project
required a minimal amount of data collections. Most of the intersection turning movement data was
obtained from the City of Chula Vista Traffic Engineering Division. For 20 of the 109 project
intersections, JHK was directed to collect field data as a supplement to the data provided by the
City. Data collection at these 20 critical locations was conducted during the flI'St two weeks of
February 1990.
To perfonn the intersection data collection effon, the JHK Project Team supervised a staff
of 8 to 12 trained temporary personnel. The"data collection process consisted of manual turn
movement counts during three time periods: AM, Mid-Day, and PM. The AM, Mid-Day, and PM
count periods consisted of 2-hour counts (7:00 to 9:00 a.m., 11:30 a.m. to 1:30 p.m., and 4:00 to
6:00 p.m.). Data was recorded in IS-minute increments during the count period to ensure that
during the data reduction process the peak hour volumes could be detennined accurately.
To aid in the data reduction, JHK developed a computer program to determine the peak
hour and perfonn intersection capacity analysis. The field data was input into the program and the
results were summarized for each period for each of the 109 project intersections. The fiD1l
Technical Report prepared by JHK in May 1991 contains a complete summary of all data collection
activities and technical analyses.
3. SUMMARY OF SIGNALIZED INTERSECTION PERFORMANCE
An important pan of the City of Chula Vista Growth Management Plan was the accurate
determination of intersection capacities and Levels of Service (LOS). The Intersection Capacity
Utilization method simulates traffic operations of an intersection and typically summarizes the
operations by using ranges of LOS. LOS is simply a measure used to evaluate the operating
perfl?nnance of an intersection. LOS may range from A to F, with A being the best quality of
service and F the poorest.
Table S-2 summarizes the intersection capacity analysis findings for both Years 1989 and
1990 traffic monitoring programs. As shown on the table, the perfonnance of the signalized
intersections improved slightly from Year 1989 to Year 1990. This is due primarily to the
downward fluctuation in traffic volumes at specific arterial intersections during the peak periods, as
well as the implementation of new improved intersection geometrics at critical locations within the
City of Chula Vista.
S-4
Table S-2
CITY OF CHULA VISTA
GROWTH MANAGEMENT PLAN
YEAR 1990 TRAFFIC MONITORING PROGRAM
COMPARISON OF INTERSECTION CAPACITY ANALYSIS FINDINGS
JHK & ASSOCIATES . MARCH 1991
YEAR 1989 YEAR 1990
ICll-ANAL YSIS ICll-ANALYSIS
l.@vel!lli or ~ervice I~evel!li of Servi~e
lEAK HOllR A-C Jl E E A.C Jl E E
AM 108 0 0 0 109 0 0 0
Mid-Day 107 . 1 0 0 109 0 0 0
PM 95 10 2 1 102 6 1 0
:
5-5
-
.
.
V~ar 19R9 Data
The following summary information detailing the findings of the lCU analysis in relation
to the adopted Threshold Standards Policy is taken from the Year 1989 Traffic Monitoring
Program Final Repon. This information is presented for comparison pwposes.
YEAR 19!!9 TMP
. THRESHOLD STANDARD r.ONFORMANCE UST
. STANDARD NUMBER 1. City-wide: Maintain LOS C or better at all intersections;
with the exception that LOS D may occur at signalized
intersections for a period not to exceed a total of two hours
per day. (P)
Statement of Conformance
. AM Peak
. All 108 intersections operate in the LOS A-C
range in the AM Peak.
. 107 intersections operate in the LOS A-C range
in the Mid-Day Peak. while 1 intersection
operates in the LOS D range.
. Mid.Day Peak
}fTD.DAY PEAK SUMMARY
14 Third Avenue and "H" Street
Duration
~ 1&S {Hours)
0.90 D 2.00
Count Number Interseetion
. PM Peak
. 95 intersections operate in the LOS A-C range in
the PM Peak. while 13 intersections operate at
LOS D orE.
PM PEAK SUMMARY
COlin t Duration
Number Inter~ecfion ~ lJlS (Hotlr~l
14 Third Avenue and "H" Street 0.85 D 2.50
.16 Third Avenue ahd "J "Street 0.87 D 1.00
18 Third Avenue and "L" Street 0.83 D 2.75
.21 Third Avenue and Oxford Street 0.81 D 1.00
34 4th Avenue and "J" Street 0.86 D 2.50
.61 Broadway and "H" Street 0.80 D 1.00
62 Broadway and "I" Street 0.88 D 2.75
65 Broadway and "L" Street 0.88 D 2.00
.66 Broadway and Moss Street 0.82 D 1.25
.71 Broadway and Main Street 0.82 D 1.50
S-6
Year 19R9 Data (Continned)
(
82
85
94
Hilltop Orive and "H" Street
Hilltop Drive and "L" Street
Industrial and "L" Street
1.00
0.84
0.93
E
o
E
2.75
2.50
2.75
Note: .-y"bese five intersections did confonn to Threshold Standard Nwnber 1 by operating at LOS
o for a period not exceeding a total of two hours per day.
Summary Statement
In summary, of the 14 ICU calculations which indicate poor levels of service, only 13
intersections are impacted. Upon close review of the summary information listed above, it is
apparent that all 13 impacted intersections operate in the LOS 0 or E range. Further review reveals
that five of these intersections actually d2 confonn to Threshold Standard Nwnber 1 based on the
fact that these intersections (No.'s 16.21.61.66. and 71) operate at LOS 0 for a period of less
than two hours per day.
Thus. the remaining six intersections: (No.'s 14. 18.34.62.82 and 94) do not confonn to
Threshold Standard Number 1 and further analysis is required at these locations (see Standard
Number 2 below).
. STANDARD NUMBER 2
- West of I-80S: Those signalized intersections
which do not meet Standard Number 1
above. may continue to operate at their
current (1987) LOS. but shall not worsen.(p)
Statement of Conformance
The following list identifies the eight intersections which qualify for further analysis under
Standard Number 2 criteria. based on the Threshold Standards Policy.
SUMMARY OF INTERSECTIONS WHIClJ DO NOT CONFORM TO
THRESHOLD STANDARD NUMBER 2
COU!'t Numher Inter~ection Period ~ 1JlS
14 Third Avenue and "H" Street Mid-Oay .90 0
18 1bird Avenue and "L" Street PM .85 0
34 Fourth A venue and "J" Street PM .83 0
62 Broadway and "I" Street PM .86 0
65 Broadway and "L" Street PM .88 0
82 Hilltop Or. and "H": Street PM 1.00 E
85 Hilltop Dr. and "L" Street PM .84 0
94 Industrial and "L" Street PM .93 E
S-7
-
.
.
Year 19&9 Data (Continued)
Summary Statement
The leu analysis revealed that the eight intersections listed above. which are located in the
centtal portion of Chula Vista (West of I-80S). must be monitored closely to determine if current
(Year 1989) levels of service deteriorate in the future. This is due to the fact that current operations
at these intersections result in extended periods of LOS D or E conditions.
. STANDARD NUMBER 3
- City-wide: No intersection shall operate at
LOS F as measured for the average weekday
peak hour.(p)
Statement of Conformance
The capacity analysis conducted by JHK revealed that no intersection operates at LOS F
during the average weekday peak hour.
It should be noted that the intersection of Hilltop Drive and H Street (No.82) is operating at
the threshold of LOS ElF. Thus. close monitoring of this intersection is warranted and as traffic
activity increases at this location in the future. geometric modifications may be required.
Year 1990 Data
The following summary information details the findings of the ICU analysis in relation to
the adopted Threshold Standards Policy. This information is presented for comparison with the
Year 1989 findings detailed above.
YEAR 1990 TMP
THRESHOLD STANDARD CONFORMANCE LIST
. STANDARD NUMBER 1 .
City-wide: Maintain LOS C or better at all intersections;
with the exception of that LOS D may occur at signalized
intersections for a period .not to exceed a total of two hours
per day. (P)
Statement of Conformance
. Mid.Day Peak
- All 109 intersections operate in the LOS A-C
range in the AM Peak.
- All 109 intersections operate in the LOS A-C
range in the Mid-Day Peak.
- 102 intersections operate in the LOS A-C range in
the PM Peak. while seven intersections operate at
LOS 0 or E.
. AM Peak
. PM Peak
5-8
.
Year 1990 Data (~nntinu~d)
Count Number
2
37
39
53
55
60
17
Intersection
Industrial Avenue and "L" Street
Founh Avenue and "H" Street
Founh Ave. rJ" Street
Third Ave.r'H" Street
Third A ve.f']" Street
Third Avenue and Oxford Street
Hilltop Drive and "H" Street
K1l
0.90
0.81
0.83
0.82
0.90
0.84
0.96
lJlS
o
o
D
o
o
D
E
Duration
(Hour,;)
1.00
1.00
1.00
1.00
1.00
1.00
2.00
Summary Statement
In sununary, the lCU calculations indicate that a total of seven interseCtions are impacted by
poor Levels of Service (LOS 0 or E). Funher review reveals that six out of the seven interseCtions
actually dsl. conform to Threshold Standard Number 1 based on the fact that these intersections
(No.'s 2. 37, 39, 53. 55. and 60) operate at LOS 0 for a period ofIess than two hours per day.
Thus, the remaining one intersection (No.7. Hilltop Drive and H Street) does not conform
to Threshold Standard Number 1 and further analysis is required at this location. (See Threshold
Standard Number 2 Analysis shown below.)
. STANDARD NUMBER 2. West of 1-805: Those signalized intersections
which do not meet Standard Number 1 above. may
continue to operate at their current (1987) LOS, but
shall not worsen.(p)
Statement of Conformance
- Only the intersection of Hilltop Drive and "H" Street (Intersection No.7) is a candidate for
the analysis under Threshold Standard Number 2 Criteria. The following table compares the PM
Peak Hour ICU forecasts for the Year 1989 versus Year 1990.
COUnt
Numher
In' ersect ion" ~oca t i on
Year 19R9 TMP Year 1990 TMP
Peri od Kll L.!l.S Kll L.!l.S
17
Hilltop Drive and "H" Street
PM
1.00
E 0.96
E
Summary Statement
As shown on the table above. the Year 1990 level of service for the intersection of Hilltop
Orive and "H" Street remained at LOS E, while the ICU at the intersection improved to 0.95 (Year
1990) from 1.00 (Year 1989). The primary reason for this changes in ICU was a reduction in
S-9
Year 1990 Data (Continued)
Year 1990 total PM peak hour intersection entering volume by approximately 6. percent.
Additionally, JHK tested this intersection with the provision of right turn only lanes on the
southbound and the eastbound approaches. As a result of this analysis, it is recommended that the
City Tnffic Engineer install new striping for these movements to formally designate exclusive right
turn only lanes at this intersection.
. STANDARD NUMBER 3 - City-wide: No intersection shall operate LOS E or
F as measured for the average weekday peak
hour.(P)
Statement of Conformance
The capacity analysis conducted by JHK revealed that none of the analyzed intersections in
the City of Chula Vista operate at LOS F during the average weekday peak hour for Year 1990
conditions. It should be noted that the intersection of Hilltop Drive and H Street is operating at
LOS E (0.96 leU). Thus, close monitoring of this intersection is warranted and as traffic activity
increases at this location in the future, geometric modifications may be required as described in the
1breshold Standards Number 2 analysis presented previously.
~omDarison or Year 19R9 and Year 1990 Canacifv Analy~i~ Findinvs
Figure S-2 provides a comparison of the TMP results for Year 1989 and Year 1990. This
figure graphically locates each of the problem intersections as described in the previous analysis.
4. SUMMARY OF FREEWAY RAMP INTERSECTION PERFORMANCE
This section presents the freeway ramp interchanges along Interstates 5 and 805 in the City
of Chula Vista which were analyzed in this study. The City of Chula Vista identified 22 key
free~vay ramp intersections for conducting levels of service analysis for both AM and PM peak
hour. A summary of the results of the levels of service calculations for the AM and PM peak hour
for each ramp intersections is presented in Table S-3.
S-10
.c,...
.0. ..
tn
o
-
-
.
e . IIIUltztO IfTfJIRC'fION IIrFt'IIrItCl ......
I
I
LEGaID
. """ 1989 -..lnfMeclkn
@).....19tO-..'.'~_1.A.
.. """ 1989 crd 1990 PlabIem
.lnf8necllono
.
.
!!Ill,. !Ill
Figure S-2
COMPARISON OFYEAR 1989/YEAR 1990 TMP FINDINGS
", .
-
.
.
~e~tinn 4 (~nntinlled)
Table S.3
CITY OF CHULA VISTA
GROWTH MANAGEMENT PLAN
YEAR 1990 TRAFFIC MONITORING PROGRAM
IMPACTED FREEWAY RAMP SIGNALIZED INTERSECTIONS
JHK& ASSOCIATES. APRIL 1991
RAMP INTERSECTION NAME PERIOD LEVEL OF SERVICE
1-5 at "L" Street
SB Ramp at Bay Boulevard PM 1.09 F
NB Ramp at lndusttial Boulevard PM 0.92 E
1-5 and Main Street
SB Ramp PM 0.93 E
1-805 and "E" Street/Bonita Road
SB Ramp PM 1.09 F
1-805 and Telegraph Canyon Road
SB Ramp PM 1.07 F
1-805 and East Orange Avenue
SB Ramp AM 0.95 E
SB Ramp PM 1.17 F
THRESHOLD STANDARDS
The following statement summarizes the third element under the Notes to Standards section
of the Revised Traffic Element. The purpose for referencing this note is to allow City staff to
utilize the findings of this TMP study in the review of future development projects which impact
freeway interchange operations and ramp intersection levels of service.
NOf@s To Sfandards:
Note 3. The measurement of LOS at City arterials and freeway ramps shall be a growth
; management consideration in situations where proposed developments have a significant
impact at interchanges.
Results of the Year 1990 review of the' perfonnance of signalized freeway ramp
intersections is summarized above. As shown on Table S-3. a total of five of the 11 freeway
interchanges located within the City of Chula Vista are impacted by poor levels of service (LOS E
or F conditions). Table S-3 identifies these five interchanges and the seven signalized ramp
intersections which are impacted.
S-12
5. CONCLUSIONS AND RECOMMENDATIONS
The study found that a limited number of interseCtions opente poorly during certain peak
periods. The peak hour analysis of traffic flow conditions at the 109 project interseCtions revealed
that a total of seven locations experienced congested openrlons with levels of service ranging from
D to E. This compares with the Year 1989 Traffic Monitoring Program which reponed a total of
13 locations experiencing congested operations with levels of service ranging from D to E. The
improvement in system perl'ormance in Year 1990 may be panially attributable to the coMection of
SR 54 to I-S in December of 1990. The following list identifies the problem locations for Year
1989 and Year 1990 Traffic Monitoring Program Capacity Analysis:
Identification or Problem Location~
Connt
Numher Infer~ection
Year 1989 Condifinn~
14
16
18
21
34
61
62
65
.66
71
82
85
_ 94
Third Avenue and "H" Street
Third Avenue and "J" Street
Third Avenue and "L" Street
Third Avenue and Oxford Street
Fourth Avenue and "J" Street
Broadway and "H" Street
Broadway and "I" Street
Broadway and "L" Street
Broadway and Moss Street
Broadway and Main Street
Hilltop Drive and "H" Street
Hilltop Drive and "L" Street
Industrial Boulevard and "L" Street
S-13
Year 1990 Conditions
Count
Numher Intersection
2
37
39
S3
SS
60
77
Industrial Boulevard and "L" Street
Fourth Avenue and "H" Street
Fourth Avenue and "J" Street
Third Avenue and "H" Street
Third A venue and "J" Street
Third Avenue and Oxford Street
Hilltop Drive and "H" Street
S@~tinn S lrnntinu@d)
As was the case in Year 1989, all of these Year 1990 problem intersections are located west
of Interstate 805. This portion of the cin:ulation system is constrained by existing development
and the design of many of these older intersections were based on outdated standards. The
primary difficulty in this developed area of the city is the limited amount of right-of-way available
to construct additional turn lanes or throughways at many of these intersections. It is important to
recognize however, that the City Traffic Engineering department is in the process of reviewing all
City signalized intersections to determine the opportunity for providing additional exclusive right-
turn only lanes by restriping particular approaches to signaliz.ed intersections. Thus, in the future,
the City Traffic Engineering department will continue to implement improved geometric
configurations by restriping approaches to signalized intersections where oppornmities exist.
The periodic monitoring of the performance of the transportation system within ChuIa Vista
is an important element of a well balanced growth management plan. Thus, it is further
recommended that all future traffic monitoring programs include the most critical intersections
(with peak hour operations of LOS C or lower) in both Central ChuIa Vista, west of Interstate 805,
and the newly developing areas east of Interstate 805 in the Eastern Tenitories. This will ensure
that conditions of these high-volume locations, which have existing levels of service approach in
the critical limits of the Threshold Standard, are analyzed on an annual basis. The periodic
monitoring process will allow the City to establish intersection level of service trends over time.
In conclusion, this Year 1990 repon provides the City of Chula Vista with a Second
Annual Traffic Monitoring Program Data Base. Critical intersections have been identified and
potential mitigation has been discussed. The repon presents a conservative estimate of intersection
operations based on the guidelines developed by the City of Chula Vista. The intent of this
document is to provide City staff with an indication of the current status of the overall circulation
system in terms of intersection capacities and levels of service. In the future, this repon along with
the Year 1989 repon. will be used as a tool for the accurate identification of existing traffic flow
conditions in the specific areas of the City where new development or redevelopment is occurring.
Alsoi this project accurately identifies "Hot-Spot" locations which warrant close attention in the
future.
S-14
6. REVIEW/CRITIQUE CURRENT LOS PROCEDURES AND TRAFFIC
THRESHOLD ORDINANCE
During the review of the Year 1989 Traffic Monitoring Program (TMP). the City Council
requested that the Year 1990 TMP fmther examine the ICU technique for calculating capacity and
levels of service at signalized intersections as compared to the 1985 Highway Capacity Manual
(HCM). Also raised as an issue by the City Council was the question of an appropriate method for
determining future impacts from proposed developments. "acceptable" levels of service, and what
should be the horizon year for traffic impact studies. These issues associated with future planning
are discussed in detail in Section 8.
Review/Critiaue Current LOS Procedures
o ICU (Intersection Capacity Utilization) - A "shon-cut" procedure to manually determine
the critical VlC ratio.
o 1985 HCM - The 1985 HCM completely redefines LOS as a function of vehicle
"Stopped Time Delay."
In addition to the new LOS definition, the 1985 HCM also provides an equation for the
direct calculation of delay based on the following factors:
o Volume
o Saturation Flow Rate
o Lost Time
o Cycle Length
o Phase Time
o Progression
o VIC Ratio
o Green Ratio
-
, The actual delay equation is quite complex. However, the personal computer negates the
complexity, and fmther, the computer aliows programming of the equation such that it becomes
very easy and quick to do much more engineering of signalized intersections than has ever been
possible previously.
S-15
-
.
.
Se~finn Ii (Continued)
Cnmnari~on of Year 19R9 and Year 1990 CRoaritv AnRlv~i~ . HeM MethndoJovv
To understand how these two capacity analysis techniques apply to conditions in the City
of Chula Vista, JHK conducted a comparison of ICU and HCM on the 13 most critical
intersections within the City of Chula Vista. The 13 critical intenections were identified in the
Year 1989 TMP. Table 5.-4 summarizes the results of this comparison. As shown on Table 5-4,
the HCM (Delay) method typically predicts a lower LOS as compared to the lCU method.
Table 8-4
CITY OF CHULA VISTA GROWTH MANAGEMENT PLAN
YEAR 1990 TRAFFIC MONITORING PROGRAM
COMPARISON OF YEAR 1989, 1990
lCU AND HCM CAPACITY ANALYSIS
JHK & ASSOCIATES - APRIL 1991
YEAR 1989 CONDITIONS YEAR 1990 CONDITIONS
Intersection Name ICU LOS HCM LOS ICU LOS HCM LOS
Delay Delay
(seconds) (seconds)
"L" Street and Industrial Blvd.. 0.93 E . F 0.90 D 84.3 F
"H" Street and Broadway 0.80 D 21.6 C 0.65 B 21.3 C
"I" Street and Broadway 0.88 D 40.6 E 0.62 B 7.8 B
"L" Street and Broadway 0.88 D . F 0.74 C 30.7 D
Moss Street and Broadway 0.82 D 18.7 C 0.66 B 13.2 B
Main Street and Broadway 0.82 D 58.8 E 0.83 D 56.0 E
"J" Street and Fourth Avenue 0.86 D . F 0.83 D 51.0 E
"H" Street and Third 0.85 D 44.2 E 0.82 D 48.7 E
"J" S'treet and Third 0.87 D . F 0.90 D 35.1 D
"L" Street and Third 0.83 D 38.2 D 0.75 C 57.6 E
Oxford and Third Avenue 0.81 D 58.4 E 0.84 D 63.1 F
"8" Street and Hilltop Drive 1.00 E 74.5 F 0.96 E 88.0 F
"L" Street and Hilltop Drive 0.84 D 23.0 C 0.80 C 11.7 B
S-16
,
Se~tion 6 (Continued)
However, it is recognized that exceptions exist, and each interseCtion is unique. Thus. the
following findings and recommendations are presented.
Research conducted by the national Transponation Research Board (TRB) and accepted by
the TRB Committee on Highway Capacity and Quality of Service indicated that the determination
of LOS based on capacity did not adequately represent signalized operations. The TRB determined
that the intersection volume-capacity (V/C) ratio had the least impact upon LOS of signalized
intersections and that signal timing. progression. and cycle lengths had the greatest impact.
Therefore. low VlC ratios did not necessarily indicate good levels of service. and high VlC ratios
did not necessarily indicate poor levels of service.
The basis of level of service was found to be best represented by ~lay and was agreed
upon by the TRB committee. It is recognized that the existing practice of calculating capacity and
level of service within the region is inconsistent with the research conducted nationally and does
not agree with the definition of level of service as accepted by ITE. TRB. and the FHW A. except
for those agencies which have already adopted the delay based defmition for level of service.
The Year 1990 TMP recommends the use of the Delay Methodology. as defined in the
1985 Highway Capacity Manual. as an area-wide uniform method to perform Capacity and Level
of Service analysis of signalized intersections. We found this method to best reflect observed
signalized operations. as well as to conform to the national defmition of level of service. The ICU
should continue to be used in the calculation of capacity utilization. but should not be related to
level of service.
: Applying the delay definition of LOS and the recommendation of acceptable LOS would
greatly enhance the quality of impact studies and address our regions' growth in a responsible
manner as well as meeting the requirementS of regional Quality of Life Standards. Congestion
Management Program goals. and Air Quality legal mandates.
. Delay methodology provides the best available tool for analyzing signalize intersections.
and can be easily used for both planning and operational analysis.
. Other methodologies define Level of Service by inconsistent criteria which cannot be
correlated with the delay definition.
. Software is presently available to allow quick and easy application of the delay
methodology. .
. Therefore. based on this review there should be only one definition of LOS and it should
be based on the 1985 HeM. As a result of this recommendation all future Traffic Monitoring
5-17
.
Sullon 6 (Cnn~intJ~d)
Programs and Traffic Impact Study Reports will be required to utilize the HCM Delay
methodology for calculating interseetion levels of service and system performance.
Revlpw/Critione Trarfi~ Thre~hold Ordinance
As requested in the RFP for the Year 1990TMP, JHK performed a review/critique of the
current traffic threshold ordinance adopted by the City of ChuIa Vista.
As a result of the review. the following recommendations are provided for consideration by
the City of Chula Vista:
. Conduct Average Weekday Peak Period (AM. Mid-Day, PM) Travel Tune Studies on a
System-Wide Basis.
. Prepare Network Performance Graphics with Observed Speeds and LOS.
. Collect and Analyze Peak Period Turning Movement Data at Criticallnterseetions.
. Utilize HCM Methodology to Establish LOS Fmdings.
. Modify Current Threshold Standards to Conform to HCM Methodology and LOS
Calculations.
These recommended modifications to the current TMP process have been designed to
provide a more realistic indication of network performance and an accurate reflection of observed
conditions at signalized intersections. Also. this methodology conforms with the national
definition of level of service and JHK believes that applying the delay definition of LOS would
greatly enhance the quality of the Traffic Monitoring Program.
Rernmm~nded Revi~inn~ tn Traffic IZIf~ment
; Revisions to the adopted "Traffic Element" of the Growth Management Plan were
developed through consultation with City staff. These recommended Year 1990 revisions are
intended to reinforce the goals and objectives of the current "Traffic Element". Table S-S presents
the revised "Traffic Element" as approved by the Growth Management Oversight Commission at
their meeting on May 23. 1991. A more detailed discussion of the revised "Traffic Element" is
contained in the Final Repon prepared by JHK in June 1991. Figure S-3 shows the recommended
anerial analysis network to be used in conducting the Year 1991 Traffic Monitoring Program.
S-18
(
Table S.5
CITY OF CHULA VISTA GROWTH MANAGEMENT PLAN
REVISED TRAFFIC ELEMENT. MAY 1991
GOALS
. To provide and maintain a safe and efficient street system within the City of Clula Vista.
. To establish a performance measurement methodology enabling the City to accurately
detennine existing levels of service for motorists.
. 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.
. To establish a performance standard which is consistent with the Regional Growth
Management Standards.
. To maintain consistency in terms of LOS ratings between the previous lCU methodology.
OBJECTIVES
1. Ensure timely provision of adequate local circulation system capacity in response to planned
growth. maintaining acceptable levels of service (LOS).
2. Plan new roadway segments and signalized intersections to maintain acceptable standards at
build-out of the General Plan Circulation Element
THRESHOLD STANDARDS
. City-wide: Maintain LOS "C" or bener as measured by observed average travel speed on all
signalized arterial segments except that during peak hours LOS of "0" can occur for no more
than any two hours of the day.
. West of 1-805: Those signalized arterial segments which do not meet the standard above. may
continue to operate at their current (Year 1991) LOS. but shall not worsen.
Nof~~ to Standard~
. Arterial segment LOS measurements shall be for the average weekday peak hours,
excluding seasonal and special circumstance variations.
.
. 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 the following three classifications as shown on the
attached graphic:
Class I arterials are roadways where free flow traffic speeds range between 35 mph and 45
mph and the number of signalized intersections per mile are less than four. There is no
parking and there is generally no access to abutting property.
S-19
-
.
f
Table S-S (Continued)
CITY OF CHULA VISTA GROWTH MANAGEMENT PLAN
REVISED TRAFFIC ELEMENT. MAY 1991
Class n ancrials arc roadways where free flow lraffic 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 propertlcs is limited.
Class m arterials arc roadways where free flow traffic speeds range between 2S mph to 35
mph and the number of signalized intersections per mile are closely spaced. There is
substantial parking and access to abutting property 15 unrestricted.
. The LOS measurements of arterial segments at freeway ramps shall be a growth
management consideration in situations where proposed developmenlS have a significant
impact at interchanges.
. Circulation improvements should be implemented prior to anticipated deterioration of LOS
below established standards.
. The criteria for calculating arterial LOS and defining arterial lengths and classifications shall
follow the procedures detailed in Chapter II of the 1985 HCM and shall be confirmed by
the City Traffic Engineer.
. During the conduct of future TMP traffic 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.
. Level of service values for ancrial segments shall be based on the following table:
Level of Service
Avera~e Travel Speed (MPH)
I, .oass 2 ,Class 3
~30 ~25
~ 24 ~ 19
~ 18 ~ 13
~ 14 ~ 9
~ 10 ~ 7
< 10 < 7
A
B
C
o
E
F
!:Iass
~35
~28
~22
~ 17
~13
< 13
Source: Highway Capacity Manual, Special Repon 209, Transponation
Research Board. National Research Council, Washington, D.C.. 1985.
Imnlementation Mea~lIres
. Should the GMOC determine that the Threshold Standard is not being satisfied, then the
City Council 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
I . 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
5-20
.......".~......~........
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f'
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I ..
f 0<;/":>'
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...................,~~
"
,
'f'!\\\j
~
o<;;~
~,~.,.,
'\'~\
" '
~~i
..:~
I.,.
tH?.,.
~
~.,.
/ '-~.,.
,
,
.....~
tIl
.
N
-
9'
\
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9 t'
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9. ·
----
A
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. 'II
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,
LEGEND
ArfDrInI ............,..
_.__ OaIIIArterIaII
......... CICBII Arterials
- - - CIcas. Arteric*
MInor CoIectors
c ~ Mertall\ndvsll
Roadwo\I SecIton
Note: The Year 1990 "'rterlal Segment Classlflcallons depleted on this mop ore preliminary. Field observotlon,
during luture TMP 'tudles may modify the overall network and change specific 'egment classifications
and secllon lengths,
Figure S-3
City of Chula Vista Growth Management Plan
Year 1990 Tramc Monitoring Program
Arterial Network and Segment Classification Map
.
Section ,. (Continued)
Three separate anerial classes are shown along with an identification of continuous roadway
segments to be analyzed as continuous arterial sections.
7. "H" STREET CORRIDOR ANALYSIS
This chapter was developed to address traffic concerns expressed the City Council at their
August 30, 1990, meeting during discussions growth management, directed staff to report on
impacts of Eastern Tenitories Area Growth and Development on existing and future traffic
volumes on "H" Street west of Interstate 805. Also, on March 5, 1991, the City Council directed
staff to examine the impact of increased development within the "H" Street conidor between Third
Avenue and Interstate 5. Related to the impact of Eastern Tenitories Planning Area developments
on "H" Street is the action taken by the City Council on July 11, 1989, designating "H" Street
between Hilltop Drive and Third Avenue as a four-lane major street When the Final General Plan
Circulation Element was presented to the City Council, staff recommended that "H" Street be
classified as a six-lane major street, continuously, between I-80S and 1-5. The six-lane
classification was based on forecasted volumes resulting from the implementation of the adopted
General Plan Land Use Element
To address the Eastern Tenitories Planning Area traffic impact issue and the "H" Street
four lane designation issue. staff has performed an initial traffic evaluation of existing and future
traffic conditions on "H" Street west of I-80S. The fmdings of this traffic evaluation report are
intended to provide the City Council with: (1) the relationship between growth and development
in the Eastern Tenitories Planning Area ,and resultant traffic activity on "H" Street; and (2) to
document the importance of redesignating "H" Street between Hilltop Drive and Third A venue as a
six-lane major street
Cn~llJdons
1. Existing roadway capacity on "H" Street (for four lanes) adequately serves current travel
demand with the exception of poor level of service at "H" Street and Hilltop Drive
during the PM peak hour.
2. The interaction of trips resulting from current and future Eastern Tenitories Planning
Area development contributes significantly (in excess of SO percent of traffic activity .on
"H" Street west of 1-805 in Years 1990. 1995 and buildout).
S-22
3. The remaining buildout of the Eastern Territories Planning A:'ea represents a smaller
share of all traffic (52 percent) than what exists today (56 percer.t) on "H" Street west of
1-805. However. it is recognized that this contribution is still significant in the long-term
(forecasted to be in excess of SO percent).
R@cnmmendatinns
"H" Street Roadway Classification - Six Lane Implementation Pplicy
N@ar.T@rm Measures
. Focus future geometric improvements at signalized in:e'rsections where impediment to
traffic flow are greatest. This measure may forestall the need for mid-block widening.
. Prohibit on street parking along critical mid-block seements to increase capacity and
improve traffic flow.
Lon2'-Term M@R~lIrl!
. Study a General Plan Amendment for a for six-lane facility. This would enable staff to
extract adequate rights-or-way in the future as a condition of development.
. Adopt a minimum roadway width standard to minimize impacts of future widening on
adjacent properties.
. For segments West of Fourth Avenue. the City shall require roadway widening in
addition to right-of-way dec1ication to implement the moc1ified roadway width standard
as a condition of development.
ti For the segments East of Fourth Avenue the City may defer mid-block widening and
focus on improving interseCtion capacity.
The Final R~on prepared by IHK in May, 1991 contains a complete c1iscussion of all issues
rela~ to the "H" Street Corridor Analysis.
.
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8. ANALYSIS OF EASTERN TERRITORIES GROWTH IMPACTS.
As requested by the Growth Management Oversite Committee JHK has prepared an
analysis of Eastern Territories growth impacts on existing transportation facilities with the Central
Chula Vista area west of Interstate 805. The three most critica11inks identified by the Growth
Management Oversite Committee for review during the 1990 Traffic Monitoring Program process
were ftH" Street, ftL" Street, and Palomar StreeL
"H" Street Analvsis
The segments approaching the intersection of Hilltop Drive and ftH" Street were selected
for review. These segments are representative of segments west of Interstate 805 which are
impacted by Eastern Territories growth and traffIc activity.
The roadway system adjacent to the intersection of Hilltop Drive and ftH" Street
experienced a reduction in traffic activity primary in the east/west direction do to the relief provided
by the opening of S~te Route 54 between Interstate 805 and Interstate 5 in December 1990. Year
1991 counts indicate an approximate reduction of 6 percent in the east/west volume activity along
ftH" Street near the intersection of Hilltop Drive and ftH" StreeL A corresponding improvement in
intersection Level of Service was identified a Hilltop Drive and "H" Street (Year 1989 - ICU 1.00.
LOS E and Year 1990 -ICU 0.95. LOS E).
"Lit Street Analv!Cii~
In addition to the "H" Street segments. the segments approaching the intersection of Hilltop
Drive and "L" Street have been impacted by Eastern Territories Growth and traffic activity. Both
east/west and nonh/south segments approaching the intersection of Hilltop Drive and "L" Street
showed a significant decrease in ADT volumes after the opening of State Route 54 between
Interstate 805 and Interstate 5. As described within the ftH" Street analysis, volumes decreased
due t9 the diversion of east/west traffic to the recently opened State Route 54. Traffic along "L"
Street has also decreased due to the completion of this alternative route as well. A corresponding
improvement in intersection Level of Service was identified at Hilltop Drive and ftL" Street (Year
1989 - ICU 0.84, LOS D and Year 1990 - ICU 0.80. LOS C).
An increase in the utilization of State Route 54, which connects Interstates 805 and 5 would
also explain the decrease in nonh/south ADT volumes at the intersection of Hilltop Drive and "L"
StreeL
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I
Se~tinn II (Continu~d\
PalomRr ~tre@f Analv!;i!;
At the present time there are no development projects in the Eastern Territories Planning
Area that induce measurable travel within the Orange Avenue/Palomar Street Corridor. Traffic
studies for proposed Eastern Territories developments indicated that the orientation of the majority
of trips generated from these Eastern Territories projects is primarily nonhlsouth along Interstate
80S. Future growth in traffic activity along Palomar Street will occur as a result of infill
development within the MontgomeIy Community and surrounding area west of Interstate 80S.
It is important to note that an Environmental Impact Report (EIR) has been prepared for the
Proposed Palomar Trolley Center Project to determine future impacts within the corridor. This
EIR Traffic Study is an example of the circulation improvement requirements that will be mandated
on future development projects to assure that the cumulative effect of traffic growth is mitigated
adequately.
9. PROCEDURAL GUIDELINES FOR PREPARING TRAFFIC IMPACT STUDY
REPORTS
It is recommended that the Delay Methodology, as defined in the 1985 Highway Capacity
Manual, be used as an area wide uniform method to perform Capacity and Level of Service
analysis of signalized intersections. This method best reflects observed signalized operations.
Delay methodology conforms to the national definition of level of service and is the methodology
recommended for the San Diego regions' traffic Congestion Management Program. The ICU
should continue to be used in the calculation of capacity utilization, but should be limited to the
cursory examinations of future development planning. The preliminary recommendations is to
require a minimum intersection LOS of .C" for all new development projects. Traffic mitigations
for new development should be required to achieve the minimum LOS. In such cases where the
exis~g LOS is substandard, mitigation by a private party should be such that the LOS is at least
maintained and the intersection VlC ratio not increased; thereby, the impacted intersection is not
made worse.
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