Loading...
HomeMy WebLinkAbout1991/05/28 Item 11 COUNCIL AGENDA STATEMENT Item 11 Meeting Date 5/28/91 ITEM TITLE: Report on Transportation Control Measures (TCM) to meet requirements of californi~~C)kan Air Act of 1988 Director of Public works nrv SUBMITTED BY: REVIEWED BY: City Manager Jv)4; (4/5ths Vote: Yes___No~) The Cal ifornia Air Resources Board (ARB) considers the San Diego region as having a "severe" air pollution problem. As a "severe" area, the California Clean Air Act of 1988 requires a substantial reduction in the rate of increase in vehicle trips and trip lengths by 1997, a vehicle ridership of 1.5 persons per vehicle by 1999 during commute hours, and no net increase in vehicle emissions after 1997. Both SANDAG and the Air Pollution Control District (APCD) have been developing Transportation Control Measures (TCM) to meet these requi rements that wi 11 be i ncl uded in the Regi ona 1 Ai r Quality Pl an. TCM's are strategies that reduce vehicle trips, vehicle use, miles travelled, vehicle idling, or traffic congestion to reduce vehicle emissions. These strategies being developed will address a number of factors that affect air quality, including: land use/transportation coordination; jobs/housing balance; as well as quantitative reductions in both work and non-work travel. This report will update Council on the status of TCMs to reduce work trips, and focus on two trip reduction ordinances being developed by the APCD (Regul at i on XIV) and SANDAG as part of its Transportation Demand Management (TDM) program. At its meeting on April 26, 1991, the SANDAG Board adopted its TCM Pl an, subject to certain further detail ed anal ys is by SANDAG staff, and transmitted the Plan to the APCD for review and comment. The APCD has held public workshops on its employer trip reduction ordinance, Regulation XIV. A workshop on Regulation XIV was held in the Chula Vista Council Chambers on May 6, 1991, and staff comments (Exhibit 1) were submitted to APCD at that time. The current schedule calls for the Air Pollution Control Board (APCB) which is the County Board of Supervi sors, to cons i der adopting Regul at i on XIV, and possibly other TCMs, in July 1991. RECOMMENDATION: That Council accept this report; direct staff to schedule a Council workshop in June 1991 to discuss both the SANDAG and APCD trip reduction programs, and to invite representatives from both SANDAG and APCD to attend this workshop. BOARDS/COMMISSIONS RECOMMENDATION: Not applicable. DISCUSSION: The relationship among the organizations responsible for implementing the California Clean Air Act of 1988, and the programs being developed to implement that Act, are outlined on Exhibit 2. A brief explanation of Exhibit 2 follows: 1.1..-1 Page 2, Item 11. Meeting Date 5/28/91 The Cl ean Ai r Act contai ns requi rements for poll ut i on control from vari ous sources including industrial source control, stricter vehicle emission standards, vehicle inspection, indirect/area control, cleaner fuels, land use planning and air quality relationships, and transportation control measures (TCM). The State Air Resources Board (ARB) is responsible for implementing the Clean Air Act state-wide and for developing TCM guidelines. In the San Diego area, the Air Pollution Control District (APCD) is responsible for developing TCM criteria based on the TCM gUidelines to implement the Clean Air Act. SANDAG is responsible for developing a TCM plan for approval by the APCD. The SANDAG TCM plan contains four major components: a transportat i on demand management (TOM) program which seeks to increase vehicle occupancy and meet the Clean Air Act requirements of 1.5 or more persons per vehicle during commute hours by 1999; a transportation capacity expansion program which supports the TOM program by provi di ng a lternat i ves to the s i ngl e occupant vehicle; a transportation systems management program (TSM) that seeks to reduce vehicle idling by improved traffic flow; and an indirect source control program that seeks air qual i ty elements wi thi n the general pl ans of 1 oca 1 jurisdictions, emphasizing changes to land use policies that are conducive to alternate travel modes. The APCD trip reduction ordinance (Regulation XIV) is only one TCM element proposed to reduce vehicle trips, and it corresponds to the commute travel reduction program in the SANDAG TCM plan. The SANDAG Board cons i dered the TCM pl an at its meet i ng on April 26, 1991. The Board adopted the plan for transmission to APCD for comment, but directed SANDAG staff to return to the Board in May with more information and analysis in the following areas: consider a greater market based approach to promoting and impl ement i ng the TCM pl an ; analyze in greater detail proposed capital improvements; provide greater detail on funding components of the plan; and to consider implementing the TCM plan in phases with emphasis given to larger employers first with regard to the commute travel reduction program. Although many of the proposed TCM strategies will require significant changes to individual behavior and land use planning, the trip reduction program perhaps will require the greatest change in individual travel behavior. Exhibit 3 compares the SANDAG commute travel reduction program with the APCD counterpart, Regulation XIV. Although, both programs are designed to achieve the 1.5 or more persons per vehicles during commute hours by 1999, and both apply to employees with 11 or more employees, the approaches are different. In general, Regulation XIV is more restrictive in its requirements, and the SANDAG program allows greater flexibility for an employer to design a program to meet the air quality objectives. For example, Regulation XIV would require employers who do not meet the 1.5 average vehicle occupancy to institute paid parking at the work site for employees who do not rideshare. The initial fee would be $50 per month per employee, increasing to $100 per month after 2 years if th 1. 5 object i ve has not been met. (Parki ng fees woul d be retained by the employer, and could be used for administrative costs relative to Regulation XIV, or to pay other fees required under the Regulation). Regulation XIV also requires a 100% transit subsidy for employees wishing to use transit, a guaranteed ride home for employees ride sharing, and flexible work hours for ri deshari ng employees. The SANDAG TOM plan presents employer determined actions designed to achieve the vehicle occupancy objective which may include paid parking, but it is not a requirement. Regulation XIV also establishes certain fees that an employer must pay to APCD which will be used 1.1.-2.. Page 3, Item ~ Meeting Date 5/28/91 by APCD for its administrative costs to implement the program, and to be used to fund future trans i t expans i on plans and ri deshari ng programs. These fees include a Trip Reduction Plan fil ing fee and a Trip Reduction Operating Fee. The SANDAG pl an does not establ i sh a fee structure and proposes to fund the TDM program through motor vehi cl e regi strat i on fees and addi t i ona 1 revenue measures which may require new legislation. Another di fference between the two programs is the proposed i nst i tut i onal structure for implementing the program. Under Regulation XIV, APCD is responsible for implementing and enforcing the program, or delegating implementation to a local jurisdiction if the jurisdiction adopts an equivalent ordinance. The SANDAG TDM program would establish a Program Board which would be represented by local jurisdictions to implement the program and ordi nance in cooperat i on with Ca lTrans, MTDB, and other relevant agenci es; APCD would still be responsible for enforcing violations of the Regional TOM ordinance and Air Quality Plan. As an example of how Regulation XIV would affect the City of Chula Vista as an employer, a recent survey for the Air Quality Emergency Abatement Plan indicated that out of 518 employee respondents at the Civic Center/library work site, only about 45 employees participated in some form of ridesharing (car pool, transit, bicycle, etc.). Under the Clear Air Act Requirements, by 1999, this figure would have to increase to about 250 to achieve the 1.5 average vehi cl e occupancy object i ve. Under the Regul at i on XIV fee structure, the annual trip reduction filing fee would be $800 plus a trip reduction operating fee of $40 per employee annually, or about $28,000. The filing fee is to cover APCD administrative costs; APCD proposes to use the trip reduction fee to fund transit improvements and other TCM's. Any revenues collected from employee parking fees could be used for filing and trip reduction fees. Regulation XIV requires separate plans to be developed for each work site, and that a transportat i on coordi nator be appoi nted by each employer to develop, market and implement the trip reduction ordinance. The transportation coordinator must spend a minimum of one hour per week per 50 employees on the program, or about 14 hours per week for the City of Chula Vista. Staff has four general concerns about Regulation XIV: restrictive approach to encourage ridesharing; limited funding options; potential high cost to administer; and establishment of an institutional structure that is representative of the regional jurisdictions. The Air Pollution Control Board, which is the County Board of Supervisors, has final authority to adopt Transportation Control Measures (TCM), including a trip reduction program. Board action on a trip reduction program tentatively is scheduled in July 1991. In order that the City might provide input and comments to the 80ard on Regulation XIV, staff recommends holding a workshop on the Regulation in June and inviting representatives from both SANDAG and APCD to attend this workshop. FISCAL IMPACT: Not applicable. File: DS-032 WPC 1441T 11-3 / " - if ~II?- ~~;. : ----........... "- ...................... ""~- - I!x If; 13 iT I F ClN OF CHUlA VISTA OFFICE OF THE CITY MANAGER May 3, 1991 Mr. R. J. Sommerville Air Pollution Control Officer Air Pollution Control District County of San Diego 9150 Chesapeake Drive San Diego, CA 92123-1095 Dear Mr. Sommerville: Subject: APCD Proposed Regulation XIV APCD has scheduled a public meeting on proposed employer-based trip reduction Regulation XIV and related amendments for Rules 25, 40 and 42 in the Chula Vista City Council Chambers on May 6, 1991. Although the Chula Vista City Council has not yet taken a position on Regulation XIV nor on other proposed Transportation Control Measures, staff has reviewed Regulation XIV and would like to comment at this time. The City Council plans to consider Regulation XIV and other Transportation Control Measures in the near future; any additional comments by our Council on these measures will be forwarded to APCD. Although Regulation XIV is designed to meet two major objectives of the California Clean Air Act - vehicle ridership of 1.5 persons per vehicle by 1991 during commute hours, and no net increase in vehicle emissions after 1997 - it appears to be overly restrictive due to specific requirements in the proposed ordinance. For example, Regulation XIV requires employers to establ i sh parking fees at the work site for those employers who do not meet the 1.5 standard. Implementation and administration of paid parking at some locations could be difficult, costly, and impact nearby neighborhoods. While el1minating free parking certainly is a disincentive to driving alone, we believe it would be better to let each employer determine strategies to achieve the desired objectives based upon circumstances and conditions at the work site. The key funding elements of Regulation XIV are the parking fees and fees related to plan submission. We bel ieve that a broader based funding program should be considered which could include parking fees, vehicle registration fees and other revenues that could require new legislation. These additional funding sources would be pursued as the program is implemented. 11:::5 276 FOURTH AVENUE/CHULA VISTA. CALIFORNIA 92010/(619) 691-5031 Mr. R. J. Sommerville Page Z May 3, 1991 Regulation XIV proposes that employers with more than 50 employees would be the first to submit a trip reduction plan; notification to these employers would be in October 1991. Since any trip reduction plan will mean major lifestyle changes for many people, and implementing the plan will raise many questions, perhaps the initial plans should be limited to larger employers of 100 employees or IIOre. After plan development and implementation by the larger employers, any problems or modifications to the ordinance could be made before smaller employers put together their plans. We are concerned about the divergence between the APCD and SANDAG trip reduction ordinances. Achieving the objectives of the Clean Air Act will require cooperation and sacrifice by area residents; and the governmental agencies developing and implementing these transportation control measures should set an example by working out differences in a spirit of cooperation. Any trip reduction ordinance will have a major impact not only on the City of Chula Vista as an employer, but also on many businesses located in this City. " Consequently, it is important that the institutional structure overseeing the trip reduction ordinance, and other transportation control measures, be responsive to the concerns and comments of all jurisdictions and their citizens. We would encourage a structure that is representative of all area jurisdictions, and also provides an opportunity for changes if necessary as the programs are implemented. In summary, we suggest that Regulation XIV incorporate greater flexibility with regard to implementation requirements and funding, and establish an inst itut iona1 structure to admini ster the program that is representative of the affected jurisdictions. Thank you for the opportunity to present these initial comments. SinCerelY,. ~ j}.~ John D. Goss City Manager WPC 1440T cc: Honorable Mayor and City Council George Krempl, Deputy City Manager 11-10 CITY OF CHULA VISTA ........ ........ .... I- ----oc " " (SAN~AG } "" . " . " ..... " " / """ " " r------ -------.. " 'I Adopted rCM Criteria I' reM Guidelines l=t -J Plans & Programs Related to Air Quality . RTP . RTIP . CMP . . . . . . . . . . ................. APeD Reg. XIV CA Clean Air Act of 1988 I ...,._'......'.-...,...,......,.,...,.,.....,..-.-,-.-.-.-.-,-.'.-.-.-.-,.,-.-.-.-,......-,-.-.-.-.-,-..,-.-..,..'.-........,.. ...................."...,',.................................. .....................I(...R....8............................. .".....,.....,............,.. ...".,................... ...,....,...-.,.,.,...-...-'-.,.,.,..........-, ....-...-.-,.,-..-,-...-,..-,-.-.-...-,-.'.-,-.._.,. .,..........,.........",. ". ,......................., .....-.,.-..........-........._'_.,...,-.-.-....,- - ',-.-.-.'.-,-.'.-,-.-.-.'.-.-.-,'''.-,-.'.",".'."- . .. "." . .............. ,..".................... ...,..,......-.-.-.-....'.......' .....--.,...,--...,.--...,..,-- ;":':::':':':':':"':':":':-:-:':-:-:':':"'.:"'.':-. ..,:..:.:...,,:...,.:.,.:...:,.:.,.:.:.,,:.:.:-:.:.; --.--"--...................,,.........---- .".."..........."......,',...,..,..,....,..,..,.........,.... ......i.irResoofcesBoard... L_____ APeD Air Pollution Control Board ...... ...... ... ... .. ..------- -------.. TCM PLAN - - Developed by SANDAG & Approved by APCD TOM Program · · · · · · · . . . .. .. Commute Travel Reduction Program . College Travel Reduction Program . Goods Movement Program . Non.Commute Travel Reduction Program . ranslt mprovement . Vanpool . HOV Lanes . Park & Ride . Bike Facilities IiiII Indirect Source Control (Land Use) c )(H,a, r z . Industrial Source Control . Stricter Vehicle Emission Standards . Vehicle Inspection . IndirecllArea Control . Cleaner Fuels . Air Quality in Land Use Planning . Transportation Control Measure Plan Required (Severe After 1997) . TCM: Average 1.5 or more persons per vehicle during commute hours by 1999, and no net increase in vehicle emissions after 1997 . Other Measures Notes TCM: Transportation Control Measure ARB: Air Resources Board APeD: Air Pollution Control District RTP: Regional Transportation Program RTIP: Regional Transportation hnprovementPrognun CMP: Congestion Management Program. TSM: Transportation System Management EXHi[l,r 3 SANDAG TOM PROGRAM AND APCD REGULATION XIV. COMPARISON ISSUE SANDAG TDM PROGRAM APCD REGULATION XIV. AUTHORIlY Combines the legal authority of the Limits legal authority to that of the Air cities, County, and San Diego County Pollution Control Board as provided Air Pollution Control Board. under the California Clean Air Act. Cities and County adopt Regional Regulation adopted by APes. IDM Program and Ordinance. Regulation adopted by the APCS. OBJECTIVE Assist in meeting the requirements of Assist in meeting the requirements of the the California Clean Air Act and California Clean Air Act. Conc:estion Man3e.ement Prol!ram law. PROGRAM Cities (18) and County Air Pollution Control District DEVELOPMENT PARTICIPATION Regional Growth Management Technical Committee Regional Transportation Advisory Commiltee Regional TOM Advisory Committee Regional TDM Employment Policy Subcommittee Regional TDM Tech. Subcommittee Regional TDM College & University Subcommittee Regional TDM Goods Movement\Trucking Subcommittee Regional TMA Advisory Council In consultation with: Air Pollution Control District Air Quality Strategy Development Committee City of San Diego Mobility Planning Advisory Committee SANDAG TDM PROGRAM/APCD REG. XIV COMPARISON (03.22-91) jJ.. - ~ ISSUE SANDAG TDM PROGRAM APCD REGULATION XIV. INSTITUTIONAL Balances resoonsibilities among local APCD responsible for implementation, STRUCTURE jurisdictions, APeD, Caltrans, MmB, enforcement, monitoring and audit. NCID and mAs. Implementation: Recional TDM Pro2ram Board, APeD implements. (APCD may choose appointed by the cities and County, to delegate implementation to the cities implements the Program and Ordinance and County if they adopt equivalent in cooperation with Caltrans, MIDB, ordinances.) NCTD and TMAs. Enforcement: ~ enforces violations of the M.ill enforces. (APCD required to Regional TDM Ordinance and Air delegate enforcement to the cities, if they Quality Strategy Plan. delegate implementation.) Appeals: Appeals Board, nominated by the local APeD Hearin!! Board not specified. jurisdictions and appointed by the APCB, hears appeals. Monitor & Rec:ional TOM Proe-ram Board, CMP A ~ audits Regulation. (APCS audits Audit and APeD conduct ongoing monitoring delegated jurisdictions.) and audit of Program and Ordinance. SANDAG conducts triennial audit. REQUIREMENTS Employers implement actions to Employers implement actions to achieve achieve annual Average Vehicle interim and final Average Vehicle Ridership (A VR) Targets. Ridership (A VR) Targets. Report: Employers conduct employee SUIvey Employers conduct employee survey and and file annualIDM Report to show verify its A VR calculation on an annual progress toward achievement of basis. annual A VR target. P]al1: An employer who fails to meet its An employer who fails to meet its A VR annual AVR target must file a TOM target must file a Trip Reduction Plan Plan within 90 davs after notification. containing both short-term and long-term elements within 210 days after notification. GOAL UNIT OF MEASURE Avera2e Vehicle Ridership, defined as Avera!!.e Vehicle Ridership, defined as number of employees divided by the number of employees divided by the number of vehicles used for commuting number of vehicles used for commuting to to the work site. the work site. Credits: Provides credit for use of alternative Credits for satellite offices and ~ fuel vehicles and for drive alone travel emission fleet vehicle use by ridesharers. outside the Principal Travel Period of 5:00~10:00 a.m. GOAL FLEXIBILIlY Goal varies based on employment Goal varies based on employment density density, availability of transportation and level of public transportation service resources and number of employees as as determined bv the APC Officer. determined bv ordinance. SANDAG TDM PROGRAM/APCD REG. XIV COMPARISON (03-22-91) 2 11-10 ISSUE SANDAG TDM PROGRAM APCD REGULATION XIV. EMPLOYER SIZE & Employers 50+. 1st year Employers 50+, 1st year PHASING Employers 1149, 2nd year Employers 25-49, 2nd year Employers 11-24, 3rd year Employers 1-10, exemot [rom report Employers of 1-10, 3 year cvcle, exempt and plan requirements. Promotional from plan requirements, and marketing program focus. GOAL SCHEDULE Increasing ~ goals over 20 years. Interim goal in 2 years. Final goal in 1- Years. A1JMINISTRATION COSTS $7 million including existing funding for $12 million (2000) Commuter Computer (2000) EMPLOYER FEES TOM Report: No fee. A VR Calculation: $50AOO/work site plus $40/emolovee for transit expansion. IDM Plan: No fee. Nole: SANDAG's Regional TDM Trip Red. Plan: $300- 700twork site plus Advisory Committee recommends the $40/emoJovee plus $5/emoJovee for # of use of motor vehicle registration fees or employees short of A VR target for transit. equivalent to fund tIle RegionalIDM Program, rather than employer filing fees or local general fund revenues. Trip Red. Update: $350-800Avork site plus Employers seNe as a conduit in S40/emolovee plus SIO/emplovee for # of partnership with government to alter employees short. commute travel behavior. TRANSIT EXPM'SION Employer support of transit occurs Employer fees fund transit augmentation FUNDING when employers, if desired, offer projected at $52 million by 1993, and $100 emplovee transoortation allowances !!!ill.iQ!! in 2000. and/or bus Dass subsidies. &panded transit is supported and funded overall as part of the Regional Transportation Plan and Transportation Control Measures Plan, rather than the employmenl tmvel element alone (20% of travel). Note: While low emission bus replacement is vel)' cost effective ($7.3/1b. ROG), low emission transit expansion provides the lowest air quality cost effectiveness of the tactics considered ($1071flb. ROG) PEAK TRAVEL PERIOD Principal Travel Period 5:00-10:00 a.m. Peak equals: 5:00-10:00 a.m. and Daily for out-of-peak credit calculation. equals: 10:01.4:59 a.m. for AVR A VR based upon 24 hour commute calculation purposes. A VR based upon travel. 24 hour commute travel. PROJECTED TRII' Employment Element: 700.000 vehicle trip/day reduced. REDUCTIONS 585.479 vehicle trips/day reduced College & University Element: 56.780 vehicle trips/day reduced Note: Trip reduction forecast Note: No data provided by APeD according to SANDAG air quality supporting projected trip reduction. travel/emissions model. Forecast includes deduction (or transit, park and ride and other alternative mode access. SANDAG TDM PROGRAM/APCD REG. XIV COMPARISON (03-22-91) 3 11-11 ISSUE SANDAG TDM PROGRAM APCD REGULATION XIV. AVR TARGEfS Employers 50+ (2000) Employers 50+ (199411996) Centre City: 1.95 AVR Central Zone Incorporated: 1.80 AVR Peak: 1.8012.00 A VR Unincorporated: 1.80 AVR Daily: 1.7111.90 A VR Intermediate Zone Employers 11-49 (2000) Peak: 1.5011.75 AVR Centre City: 1.95 AVR Daily: 1.4311.66 A VR Incorporated: 1.75 AVR Remainder of County Unincorporated 1.50 AVR Peak: 1.5011.75 AVR Daily: 1.5011.66 A VR Employers 25-49 (1995/1997) Central Zone Peak: 1.7011.90 A VR Daily: 1.6111.81 AVR Intermediate Zone Peak: 1.4011.65 AVR Daily: 1.3311.57 AVR Remainder of County Peak: 1.2011.40 A VR Daily: 1.1411.33 AVR Employers 11-24 (1996-1998) Central Zone Peak: 1.65/1.85 A VR Daily: 1.57/1.76 AVR Intermediate Zone Peak: 1.3511.60 AVR Daily: 1.28/1.52 A VR Remainder of County Peak: 1.1511.35 A VR Daily: 1.09/1.28 A VR TRANSPORTATION Emplovers Olav desie:nate TMAs to Emplovers Olav reCluest APC Officer i!rant MANAGEMENT serve as ETC on behalf of the approval for the employer to contract with ASSOCIATIONS employer. a recognized TMA to provide the responsibilities of a Transportation Coordinator. PLAN REQUIREMENTS TOM Plan must contain employer Trip Reduction Plan must be desii!ned to determined TOM actions desie:ned to achieve short-term and lonl!.-tenn AVR achieve next annual A VR Tare:et. Tare:ets. Plan may include, but not limited to: Short.term element must include: 1) alternative work hours, employee minimum $50/mo. parking fee, 2) on-site transportation allowance, guaranteed matching service, 3) minimum 50% transit ride home program, telecommuting, subsidy, 4) preferential rideshare parking, alternative fuels use, fleet vehicle use, 5) guaranteed ride home, 6) bike lockers subsidized transit passes, preferential and racks parking for ridesharers, bike/pedestrian incentives, satellite work sites, on-site Long-term element must include: 1) banking and other services, parking minimum $100/mo. parking fee, 2) 100% management, employer shuttles, transit subsidy, 3) flexible work hours for subsidized van pools, on.site matching, transit, bicyclists and pedestrians. home computer allowance, etc. SANDAG TDM PROGRAM/APCD REG. XIV COMPARISON (03-22-91) 4 11-1Z.