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HomeMy WebLinkAbout2000-03-27 City Council (18)City of Palo Alto C ty Manager’s Repor TO:HONORABLE CITY COUNCIL FROM:CITY MANAGER DEPARTMENT: PLANNING AND COMMUNITY ENVIRONMENT DATE: SUBJECT: MARCH 27, 2000 CMR:175:00 ADOPTION OF A RESOLUTION AUTHORIZING SUBMITTAL OF AN APPLICATION TO THE VALLEY TRANSPORTATION AUTHORITY FOR A TRANSPORTATION FUND FOR CLEAN AIR GRANT FOR .THE PALO ALTO/STANFORD SHUTTLE INTEGRATION PROJECT REPORT IN BRIEF The Santa Clara Valley Transportation Authority (VTA) is accepting applications for projects for the 2000/01 Transportation Fund for Clean Air (TFCA) Program Manager funds, for programs and projects that reduce air pollution. Among the types of projects eligible for funding are local shuttle services to rail and .ferry terminals and projects that support voluntary trip-reduction programs. Council has directed staff to work with Stanford to extend the Marguerite noontime service further into Downtown Palo Alto and link it with the new Palo Alto Shuttle. Staff believes that this effort, a Palo Alto/Stanford Shuttle Integration Project, should be a very strong candidate for TFCA funding. It is recommended that Council authorize the submittal of the grant application for VTA 2000/01 TFCA funds for this project. CMR:175:00 Page 1 of 4 RECOMMENDATION Staff recommends that Council adopt the attached Resolution (Attachment A) authorizing the submittal of an application to the Santa Clara Valley Transportation Authority for TFCA Program Manager funds for the Palo Alto/Stanford Integration Project, in the amount of $76,050. BACKGROUND Under Assembly Bill 434 (Sher 1991), the Bay Area Air Quality Management District (BAAQMD), in conjunction with the Department of Motor Vehicles, imposed a $4.00 surcharge on motor vehicle registrations in order to provide funding for BAAQMD’s Transportation Fund for Clean Air. The Fund is used to implement strategies to reduce air pollution from motor vehicles. Forty percent of these funds are returned to the counties in which they are generated, via the Program Manager Fund, and is allocated according to county priorities. (The remaining 60 percent is retained in the Regional Fund administered directly by the Air District.) In Santa Clara County, the staff of the VTA Congestion Management Program issues the call for projects. In mid-December 1999, VTA staff issued a call for projects for TFCA Program Manager funds. The deadline for submittal of applications to the VTA was February 4, 2000. Due to the short time line, staff submitted the application discussed in this report per the VTA guidelines, which stipulated that a formal resolution of the Council would be obtained prior to any action by the VTA Board. The VTA Board is scheduled to take action on the TFCA project list in early May, with BAAQMD approval anticipated in early July. DISCUSSION When Council approved an 18-month pilot project for the Palo Alto Shuttle in August 1999, Council directed staff to "develop partnerships and apply for grant funding to augment City resources during and after the initial period" and "continue to work with Stanford University to extend the Marguerite Express further into the Downtown." Further, in an earlier review of the shuttle project, Council gave direction to staff.to design a system utilizing compressed natural gas-(CNG) powered or electric powered vehicles for the shuttle pilot project. The purpose of extending the Downtown Express, already a very successful noontime route between the Stanford Campus and the Downtown, was to expand the service market to more destinations downtown and to offer Palo Alto residents and downtown employees access to the Stanford Museum, Stanford Medical Center and Main Campus. The Downtown Express also stops at the new Palo Alto Medical Foundation (PAMF) and Town and Country Village. The lack of service to the Palo Alto Medical Foundation by the City’s Crosstown Shuttle has been the most frequent criticism of the new City shuttle service, especially from CMR:175:00 Page 2 of 4 seniors. The Downtown Express currently goes to the new PAMF campus, but the two shuttles currently do not share common bus stops in the Downtown. These goals could be accomplished by adding a clean-fueled vehicle (an electric or CNG vehicle) to the existing Marguerite Downtown Express so that it could be extended the full length of Downtown Palo Alto, while maintaining a frequency of service at or better than existing levels. In discussions with representatives from Stanford’s Parking and Transportation Services and the City’s shuttle consultant, Nelson\Nygaard Associates, it became clear that both the Downtown Express and the Palo Alto Crosstown Shuttle would become much more effective if (a) their hours could be integrated with each other, (b) they could serve the Palo Alto Medical Foundation campus, and (c) they made timed transfers with Caltrain throughout the midday. The resulting project--the Palo Alto/Stanford Shuttle Integration Project--is described in Attachment B, and would include these elements: 1. Reschedule the Crosstown Shuttle for timed transfers with Caltrain. 2. Extend the hours of service of the Downtown express, so it operates from 9 a.m. to 3 p.m. to fully coincide with the Crosstown shuttle service. 3. Add a second vehicle (CNG or electric) to the Downtown Express, to lengthen its route and improve its frequency to every 15 minutes. 4. Route the Downtown Express through the Palo Alto Medical Foundation campus, enabling Crosstown Shuttle riders to make easy, free transfers to the Marguerite shuttles to reach the clinic throughout the midday. 5.Reschedule the Downtown Express for timed transfers with Caltrain. 6.Improve key shuttle stops in Downtown Palo Alto (e.g., Alma!Lytton, Lytton Gardens, and the Palo Alto Senior Center) to accommodate both Stanford and Palo Alto shuttles. 7. Market and manage the services jointly as one seamless service, providing integrated connections among medical facilities, commercial districts, senior facilities, employment centers, cultural facilities, and regional transportation hubs. This coordinated service could be the first step toward an integrated local transit system serving the Palo Alto/East Palo Alto/Menlo Park/Stanford area. ALTERNATIVES TO STAFF RECOMMENDATION If the Council decides not to pursue this grant, staff will advise VTA staff to withdraw the application from consideration. RESOURCE IMPACT The cost of the shuttle integration project is $76,050, which includes the full incremental cost of expanding the service hours and adding a second shuttle bus to the Downtown Express. This funding will supplement the existing financial contributions made by the CMR: 175:00 Page 3 of 4 City ($14,000) and Stanford University ($24,700) to the current Downtown Express service. No additional City funds would be required. Since TFCA funds are disbursed on a reimbursement basis, if this grant were secured, City funds would need to be appropriated for the project expenditures and then reimbursed by the VTA. POLICY IMPLICATIONS The project described in this report is consistent with the Council approval of the Palo Alto Shuttle Pilot Project (CMR 333:99), and also consistent with a number of Comprehensive Plan Transportation policies including Policy T-4, Provide local transit in Palo Alto; Program T-13, Establish a jitney bus system similar to Stanford University’s Marguerite Shuttle; and Policy T-6, Improve public transit access to regional destinations including those within Palo Alto. ENVIRONMENTAL ASSESSMENT An application for funds is not considered a project under the California Environmental Quality Act (CEQA); therefore no environmental assessment is needed at this time. Staff will prepare an environmental assessment for the Palo Alto/Stanford Shuttle Integration Project for submittal to the Council at the time of Council approval of the project initiation. ATTACHMENTS A. Resolution authorizing the submittal of TFCA grant application B. TFCA grant application--Palo Alto/Stanford Shuttle Integration Project PREPARED BY: Gayle Likens, Senior Planner DEPARTMENT HEAD: G. EDWARI~ GAWF Director of Planning and Community Environment CITY MANAGER APPROVAL: I~MILY HARRISON Assistant City Manager Project Advisory Committee, Palo Alto Shuttle Chris Christofferson, Stanford University Leslie Quintero, Stanford University David Jury, Palo Alto Medical Foundation Chamber of Commerce Peter Cipolla, VTA CMR:175:00 Page 4 of 4 ATTACHMENT A RESOLUTION NO. RESOLUTION OF THE COUNCIL OF THE CITY OF PALO ALTO AUTHORIZING THE SUBMITTAL OF AN~APPLICATION TO THE SANTA CLARA COUNTY VALLEY TRANSPORTATION AUTHORITY (VTA) FOR_FUNDS FROM THE TRANSPORTATION FUND FOR CLEAN AIR 40% PROGRAM MANAGER FUND FOR THE PALO ALTO/STANFORD SHUTTLE INTEGRATION PROJECT WHEREAS, the Bay Area air Quality Management District (BAAQMD) is authorized to impose a surcharge on motor vehicle registration fees within its jurisdiction, and WHEREAS, the surcharge provides funding for the Transportation Fund for Clean Air (TFCA), which is used to implement strategies to reduce air pollution from motor vehicles, and WHEREAS, the Valley Transportation Agency is the Program Manager for TFCA 40% fund in Santa Clara County, and WHEREAS, the City of Palo Alto is a supporter of clean .air and wishes to take action to enhance air quality within the San Francisco Bay Area, and WHEREAS, the City of Palo Alto intends to submit an application to the Valley Transportation Agency for TFCA 40% Funds for the enhancement of Marguerite Express and Palo Alto Crosstown shuttle services between Downtown Palo Alto and the Palo Alto Caltrain station and the Stanford University campus during the midday to provide better, and NOW, THEREFORE, the City Council of the City of Palo Alto does RESOLVE as follows: SECTION i. The City Council hereby authorizes the City Ma’nager to file an application with the Valley Transportation Agency for funding from the Transportation Fund for Clean Air 40% program Manager fund for the Palo Alto/Stanford Shuttle Integration project. SECTION 2.The City Council further authorizes the Mayor to execute funding agreements with the Valley Transportation Agency for said projects if said applications are approved for funding. 000317 syn 0090528 SECTION 3. The City Council finds that a request, for funds is not considered a project under the California Environmental Quality Act (CEQA), and therefore,no environmental assessment is needed at this time. INTORDUCED AND PASSED: AYES: NOES: ABSENT; ABSTENTIONS; ATTEST:APPROVED: City Clerk APPROVED AS TO FORM: Senior Asst. City Attorney Mayor City Manager Director of Planning and Community Environment Director of Administrative Services 000317 syn 0090528 ATTACHMENT B Application for Funds 2000/2001 Transportation Fund for Clean Air (TFCA) Program Manager Funds (40%) Santa Clara County Section 1 - identification: Agency: Address: Contact: Phone: Email: City of Palo Alto 250 Hamilton Avenue, Palo Alto, CA 94301 Gayle Likens Title: Senior Planner 650/329-2136 Fax:650/617-3108 ga¥1e likens@city.palo-alto.ca.us Project Name: Palo Alto/Stanford Shuttle Integration Section 2 - Funding Request: Local matching funds are’ not required, but credit will be given for local matching funds in the scoring process in the following ratios: 30% + = 15 pts, 25% = 12.5, 20% = 10, 15% = 7.5, 10% = 5,~<10% = 0. REVISED: Fund Source TFCA 40 % Funds Requested Local Match (source: City of Palo Alto) Other Match (source: Stanford University) TOTAL Amount $76,050 $14,000 $24,700 $114,750 Section 3 - Cost Effectiveness Please complete the appropriate attached Data.Worksheet for your project type. Please note: projects showing TFCA Cost Effectiveness scores greater than $50,000/ton are ineligible. Section 4 - Project Narrative: On a separate sheet, please address the following questions as completely as possible: 1.Please provide a general overview/description of the project. 2.Where will the project be located/implemented? 3.How and to what extent will the project reduce traffic congestion? 4.How and to what extent will the project reduce Vehicle Miles Traveled? Single Occupant Vehicle (SOV) trips? Cold starts? 5. Does the project address more than one eligible project category? How? ATTACHMENT D Who will benefit from the project and how widespread do you expect the benefits to be? How many county residents will benefit from the project? What specific communities/groups will benefit (i.e. business, employers, bicyclists, pedestrians, the elderly, commuters, etc.)? 7. Has your agency implemented a project similar to the proposed project in the past? If so, briefly describe your experience (did the project meet expectations, did it stay within budget, etc.). 8. How and to what extent does the project encourage a shift away from Single Occupant Vehicles to shared-ride or non-motorized modes of transportation (including telecommuting)? 9. Will this project provide other benefits that are not covered by the questions above (for example, reduces road water runoff)? If so, please describe those benefits in detail. Section 5 - Multi-Agency/Public-Private Partnerships El This project is being sponsored and implemented by a single agency. UI This project involves cooperation between public agencies. Please list below each agency involved in the project and describe in detail the. level of involvement (financial, in-kind) of each agency. This project involves cooperation between public agencies and private entities. Please list below each agency/entity involved in the project and describe in detail the level of involv.ement (financial, in-kind) of each. See Attached Section 6 - Certification I am authorized by my agency to apply for these funds on its behalf. I understand that, if the project is funded, my agency will enter into an agreement with the program manager (VTA) to implement the project within budget, on schedule, and to 15rovide the necessary record-keeping for monitoring and audit purposes. ~ /~Date: J~sept)/Kott, ~hief Transportation Official revised Attach D to c-shuttle application 2-4-00 D-1 TRIP REDUCTION, BICYCLE AND SHUTTLE PROJECTS DATA WORI~SHEET Project Sponsor: Project Title: Project Sponsor Contact: Project Sponsor Phone #: General Project Information City of Palo Alto Palo Alto/Stanford Shuttle Integration Gayle Likens 650/329-2136 Cost Effectiveness Inputs Total Project Cost: TFCA Cost 40%: TFCA Cost 60%: Total TFCA Cost: $114,750 $76,050 $o $76,0,50 Emission Reduction Data Step I - Data For Calculation of Emissions for Eliminated Trips A B # Trips/Day (l-way)Days/Yr 207 250 C Trip Length (1-way) 11 Miles Step 2 - Calculation of Emissions for New Trips to Access Transit or Ridesharing (if any) A B C # Trips/Day (1-way)Days/Yr Trip Length (1-way) 0 (all walking)250 N/A Step 3 - Calculation of Emissions for Shuttle or Vanpool Trips (if any) Specify Vehicle Type: Van, Shuttle, Bus Specify Model Yr(s). Note: if more than one vehicle, use fleet average A B # Trips/Day (1-way)Days/Yr 250 CNG/Electric Shuttle 2000 C Trip Length (1-way) 3 Please explain methodology for estimating # trips reduced, & average trip length DATA0001 .xls Revision Date: 12/15/99 Revised 3/10/00 Palo Alto/Stanford Shuttle Integration Project TFCA Application For Funds 2000/2001 Santa Clara County Program Manager Funds (40%) Supplemental Information Section 3: Cost Effectiveness Please see the attached Data Worksheet and supporting spreadsheet that defines the methodologies used for calculating each figure. Section 4: Project Narrative 1. Project Overview The Stanford/Palo Alto Shuttle Integration Project builds upon the success of two small existing shuttles to begin working toward an integrated shuttle network serving Stanford, Palo Alto, Menlo Park and East Palo Alto, and providing key connections among VTA, Samtrans, Caltrain and the Dumbarton Express. Representatives of all eight of these jurisdictions have been working for the past four years toward this goal as the Try Transit Committee. This project will be the first actual transit service sponsored and managed by more than one member of the group. Existing services Stanford Marguerite Since 1977, Stanford University has independently operated its Marguerite shuttle service. The service grew incrementally over time and was completely restructured in 1995. Since 1995, additional routes have been added and some frequencies have been improved. The result is one of the most successful private shuttle systems in the United States, serving over a million riders a year at an average cost of $1.70 a passenger ride. Among the routes that Stanford has offered is the Downtown Express, which currently connects the Medic.al Center and Main Quad to Downtown Palo Alto every twenty minutes. The service has four primary goals: Provide Stanford faculty and staff improved access to downtown’ shops, restaurants, businesses and services form the Stanford campus without having to bring a car. Allow downtown Palo Alto residents access to the Stanford Museum and Medical Center. Support the University’s comprehensive trip reduction efforts by ensuring employees will not need a car during the day to take care of personal and work business. Facilitate alternative means of travel to work for Stanford faculty and staff and downtown employees by providing convenient access during the day. R.ev TFCA shuttle application 3-13-00.doc "Page 1 of 7 The route is moderately successful, serving 29,000 passengers a year at an average cost of $1.20 a passenger ride. The current route has three significant disadvantages, however: It has only one stop in downtown Palo Alto, at the far. edge of the business district. Passengers heading to the center of the district or to the opposite end have a five- to fifteen- minute walk. It runs only every 20 minutes, less frequent than other Marguerite routes which operate every seven to fifteen minutes. Stanford’s experience with its major route adjustments between 1995 and the present have shown that its employees and students are only attracted in significant numbers to services that run every 15 minutes or better. Improved frequencies are especially important at the lunch hour when most employees must accomplish their trip within a very limited time period. The route does not provide service to the new Palo Alto Medical Foundation complex that opened at the beginning of this year on E1 Camino Real. The Palo Alto Shuttle In December 1999, the City of Palo Alto began a shuttle service of its own, follow~n,~g an extensive planning process that included VTA participation. The shuttle operates on two lines: The Embarcadero Shuttle runs half hourly at peak hours and serves Embarcadero Road residents and Bayshore office parks; the Crosstown Shuttle runs half hourly during the midday and on Saturdays, serving a rich variety of residents and community facilities throughout the city. Both services connect with Caltrain, VTA, Samtrans and the Dumbarton Express at the University Avenue mtdtimodal station. The service was funded using a one-time pilot project grant from the City’s General Fund. Over its four weeks of operation, both routes have already begun to reach their performance projections, and ridership continues to climb. The Embarcadero Shuttle is even experiencing capacity problems on several runs. ]’his project focuses on improvements to the Crosstown route, which currently serves these many key markets: Direct access for the majority ofPalo Alto’s senior population, including direct service to the City’s Senior Center and three major senior care facilities, including facilities supporting primarily low-income seniors. The Main Library and Arts Center, which offer daytime programs of interest to a broad spectrum of Palo Alto residents. Residential neighborhoods which were unserved or under-served by existing VTA routes. Three commercial districts, including the entirety of Downtown. Six schools. The Mitchell Park Library and Community Center The Downtown multimodal center, with connections to Caltrain, VTA, Samtrans and the DB. Rev TFCA shuttle application 3-13-00.doc Page 2 of 7 The chart below shows ridership on the Crosstown Shuttle during the first month of lts existence. Crosstown Shuttle Ridershit , January 2000 TOTAL R!DES Week 1 Week 2 Weekday Rides 384 365 Saturday Rides 84 124 Grand Totals 468 489 AVERAGE DAILY RIDES Weekdays Saturdays Week 1 77 84 Week 2 73 124 Week 3 359 128 487 Week 3 72 128 Week 4 386 48 434 Week 4 77 48 MONTH 1,494 . 384 1,878 MONTH 75 96 While the service has been very successful since its kickoff, it suffers from these three problems: Given the lack of available funding and the length of the route, the Crosstown Shuttle could not be extended to serve the new Palo Alto Medical Foundation complex that opened at the beginning of this year on E1 Camino Real. The lack of connection has been the only source of complaint about the new shuttle, especially from the senior population. Due to space constraints at the train station, the Palo Alto Shuttle has not been able to share a bus stop with the Stanford Marguerite, limiting the transfer opportunities between the two services. Currently, passengers wishing to transfer must walk approximately two blocks and go through various pedestrian runnels to reach the appropriate shuttle stop. The City Council has been clear that the initial full funding was one-time only. They have given direction to seek support from grants, Stanford, the private sector and other sources in order to continue the service. Currently, both the Marguerite Downtown Express and the Palo Alto Crosstown Shuttle are funded entirely by the City of Palo Alto and Stanford University. The Proposed Project The proposed project seeks to expand and integrate these two services into a seamless, interconnected system. Specifically, Stanford and Palo Alto propose to do the following: Reschedule the Crosstown Shuttle so that it coordinates better with Caltrain, meeting every train between 9 am and 3 pm. Since northbound and southbound trains arrive at the Palo Alto station at 0:28 and 0:59 after the hour, respectively, and the proposed service will run every half hour, perfectly timed transfers will be possible. 2.Add a second vehicle to the Downtown Express so that (A) it can be extended the full length of downtown Palo Alto, while (B) improving the headways to every 15 minutes. Rev TFCA shuttle application 3-13-00.doc Page 3 of 7 o o o Reroute the Downtown Express so that it serves the new Palo Alto Medical Foundation complex. Reschedule the Downtown Express so that it also provides timed transfers with Caltrain, pulsing into the station at the same time as the Crosstown Shuttle. Provide improved bus stops in downtown Palo Alto, so that both lines can share bus stops including at key locations such as the train station, Senior Center and’ Lytton Gardens senior care facility. Market and manage both services jointly as one seamless service, providing integrated connections for the first time among a rich variety of markets: Medical Care: Commercial Districts: Senior Facilities: Employment Centers: Cultural Facilities: Transportation: Stanford Hospital, Stanford Children’s Hospital, Palo Alto Medical Foundation Downtown Palo Alto, Midtown, Town & Charleston Center Lytton Gardens,. Palo Alto Senior Center, Stevenson House all of Stanford’s major employment areas and Downtown Palo Alto Stanford Museum, City Hall, Main Library, Art Center, Mitchell Park Library and Community Center Caltrain, VTA, Samtrans, Dumbarton Express Country Village, Channing House, Future Improvements The City of Palo Alto and Stanford University have been discussing with Menlo Park and East Palo Alto the possibility of a single shuttle network serving this intense node of activity. If this joint pilot project is successful, the next step will be to integrate Menlo Park’s Midday Shuttle into the mix. Then, the four communities will work to integrate their core commute period services, expand the coverage area and improve frequencies. Any future changes will be planned’ in coordination with the other public transit operators in the area to ensure better performance for all systems rather than competition among them. 2. Project Location The project is located in the City of Palo Alto and on the stanford University campus, an unincorporated area of Santa Clara County. See attached map. 3. Reducing Traffic Congestion Downtown Palo Alto is one of the most congested locations in Santa Clara County, and it is especially congested during the midday lunchtime period. Besides improving mobility, among the goals of the project are to reduce congestionat the following key intersections, among others: Rev TFCA shuttle application 3-13-00.doc Page 4 of 7 E1 Camino Real and Embarcadero Road E1 Camino Real and University Avenue University Avenue from Alma Street to Webster Street Newell Road and Embarcadero Road Middlefield Road and Oregon Expressway Middlefield Road and East Meadow Middlefield Road and Charleston Based on the standard calculations, the proposed service is expected to eliminate 51,636 auto trips a year or 207 a day. The largest single trip pair will be Stanford employees traveling to downtown Palo Alto. Based on existing ridership statistics, it is expected that 48,000 Stanford employees will make this trip every year, or 190 a day. The result will be 158 daily vehicle trips eliminated at E1 Camino/Embarcadero and the series of congested intersections along University Avenue in downtown. 4. Reduction of VMT, SOV trips and Cold Starts Because some of the transit trips will be local rather than involving regional transit, we have reduced the default trip length, of 16 miles down to 11 miles. With an average trip length of 11 miles, the service would be expected to reduce 1,165,750 private vehicle miles traveled per year. The shuttle service itself will travel approximately 52,000 revenue miles a year. Because this service is aimed at home-end Caltrain connections, errand-running, lunch and. medical appointments, we have assumed that 100% of the passengers will be accessing the ¯ service via foot or bicycle, and that it will not generate additional vehicle trips. Since some of the shuttle trips will replace short errand-running trips by personal vehicle, 100% of the shuttle rides may not avoid a cold start. That is, a small percentage of the projected riders would have made their remm vehicle trip before their car engine cooled for more than an hour. The project is also expected to have an indirect effect in increasing ridership on commuter transit services, including the Marguerite’s other routes, the Embarcadero Shuttle, and existing VTA, Samtrans and Caltraln services. These benefits are not calculated here, but they are expected to be significant, especially given the significant trip reduction programs in place at Stanford, City of Palo Alto and the Palo Alto Medical Foundation. A primary goal of the service is to eliminate another barrier against commuter ridesharing by reducing employees’ needs to have a car at the worksite. 5. Addressing Eligible Project Categories The proposed project meets three of the eligible project categories: Support of voluntary trip reduction programs: Stanford University, Stanford Hospital, the City of Palo Alto and the Palo Alto Medical Foundation all have robust,’ voluntary trip reduction Rev TFCAshuttle application 3-13-00.doc Page 5 of 7 Existing public transit New Crosstown Shuttle New Downtown Express Shu~lle Downf Senior Center cal~rdih Stanford ShopiC-enter Hospital’ Mitchelt~ San AntonioStation San AntonioShopping Centor P~LO Io Al~o/S~anford Shuffle |n~egrafion Proiec~ Not to Scale ~,.elson~nygaard