HomeMy WebLinkAbout0306.091,
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May 30, 1991
THE HONORABLE CITY COUNCIL
AND PLANNING COMMISSION
PALO ALTO, CALIFORNIA
THE SUBJECT OF
THIS REPORT
ISA
COUNCIL PRIORITY
pun! .. of 'egtonal Ur OU"li~y. Tra",.pcztatiop, &114 Lalld 0 ••
rl'n,iaq , •• u ••
MeBbers of the Council and Commission:
RePOrt in Brief
This is an informational report and requires no Council action.
This report transmits resource material for the June 3, 1991 joint
study session of the City Council and pl~nninq Commission~
Additional staff reports prepared. as background for the study
session are included in this packet. They are Draft Bay Area '21
Clean Air Plan (CMR:301:91, May 30, 1991) and Metropolitan
Transportation Commission's Draft Regional Transportation Plan for
the San Francisco Say Area (CMR~302:91, May 30, 1991). An agenda
for the study session is also included, which suqqests the issues
to be discussed.
Background
The nine-county say Area region is facing a convergence of
regulations and policies stemming from the Federal Clean Air Act,
the California Clean Air Act, the updated Regional Transportation
Plan, and the state-mandated county-level Conqestion Management
programs. Implementation of these various statutes, plans, and
programs is occurring at the same time the state and the region are
formulating proposals for regional and subregional institutional
changes to better deal vith growth, land use, and economic
decislonlii.
The interrelationships of these regional air quality,
transportation, and land use issues will be addressed at the joint
study session of the City council and Planninq Commission on June
J, 1991. Representatives of the Bay Area Air Quality Manaqement
District, the Metropolitan Transportation Commission, and the santa
Clara County Congestion Management Agency .. i 11 be present to
discuss their respective plans and p~oqrams.
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PisguBBion
The plans being developed by the th~ee Agencies represented at the
study sea.ion will ask Bay Area reaidants to change their travel
.behaviors and auto-dependent lirestyles. Econollaic, social and
institutional constraints can render this very difficult.
Attac:hBent #1 lists some potent.tal decisions which may confront Bay
Area residents as the measures proposed in these plans are
aplemented.
Accordinq to the report of the Bay Vision 2020 Commission, which
was the subject of a previous joint city council-Planning
co .. ission study session, clean air standards cannot be achieved
until there is a linkaqe between housing, transportation I land use
and air quality decision making. Only then will the reqion be able
to bring jobs and housing closer together, by planninq, financing,
and constructing the types of transportation facilities that have
the least adverse impact on air quality, and encouraqinq the higher
density development needed to make mass transit feasible.
For more than two y~ars, the Association of Bay Area Governments
(ABAG), the Bay Area Air Quality Management District (BAAQMD), and
the Metropolitan Transportation Commission (MTCJ have been
cooperatively preparing the draft Clean Air Plan for the Bay Area
('91 CAP). The plan is intended to satisfy requirements of the
1.988 California Clean Air Act (CCAA}. Authored:by AssSlllblYlllan
ByrOl, Sher, the CCAA sets the most compr-ehensive clean·. air
standards in the nation. The standards to be attained are more
strict than those contained in the federal Clean Air Act Amendments
of 1990. A 1988 companion measure to the CCAA.. sponsored by
Assemblyman cortese .. provided for a cooperative process between MTC
and the BAAQMD for preparing the transportatio~ control measures
(TCM) portion of the Clean Air Pla~.
Tbe '91 CAP imposes new controls on industrial and other stationary
sources of air pollution. Because the california Air Resources
Board has designated the Bay Araa as a non-attainment area
(·severe·~ for ozone and carbon monoxide, the provisions of the
CCAA. require that the clean air plan also inclUde both
transportation control Eeasures (TCMS) and indirect source control
(lSC) measures. Indirect sources ~re facilities and land uses
Which generate or attract motor vehicle traffic such as residential
and industrial developments, shopping centers.. recreational
facilities, and office complexes. A difficult issue is the
potential cont'lict between the i!ir district's obligation to develop
ISC programs and local government's responsibility for basic land
use decisions. Attachment #2 provides additional information on
indirect source controls.
CKR:306:91
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Attachment 13 1s an overview of the Santa Clara county Congestion
Manaqe.ent prograa, prepared as a working d.ocument duriny the
development of the program.. The Congestion Management Proqram
(CKP) is a result of state legislation developed in 1989 and
approved by the voters with the passage of Proposition 111 in June
1990, authorizing a state qas tax increase which provided for
increased transportation funding. The legislative intent for CMPs
is the reduction of congestion through a combination of
transportation i.provements, land-use planninq decisions, trip
reduction proqrams, and transi~ service improvements.
Nine basic elements of the CMF are outlined in the attached
overview. The draft ~se year CMP must be completed by June lO,
1991. The final base year CMP, subject to environmental iJllpact
analysiS., must be completli!d by November 1991. The. Metropolitan
Transportation commission will review the draft and determine its
consistency with the Regional Transportation Plan.
Tbe atP must also be rp.sponsive to the Bay Are.s Air Qualitv
Management District's air quality plan require.ments. To accomplish
this., stronqer trip reduction programs than required by the CMP
legislation may be necessary.
The CJIIP leqislaticm requires cities to evaluate the impacts of
land-use decisions on regional transportation facilities such as
state highways and county ~xpressways. The Conqestion Management
Aqency's annual monitoring proqram will revie ... local land use
decisions to determine conformance with CMP standards.
The concept underlying the fOr:Dulation of the CKP supports ball!lnced
qrowth within the already urbanized parts of the County.,
anticipating and accommodatinq it while solvinq infrastructure
problems., and relying on a -botto41-\:iP" (city level) approach to
land use management within a -top-down-(Ck~) structure. In many
cases., there will be a need for interjurisdictional planning. The
concept is responsive to the work of the Bay Vision 2020 Commission
and anticipated state legislation that 'Will mandate reqional
planning~ The critical position assumed by the CMP is further
illustrated in Attachment #4.
Litigation
Litigation brought aqainst the Xetropolitan Transportation
Commission., the California Air ResourceS Board and the Bay Area Air
Quality Manaqement District in 1989 by the Sierra Club and Citizens
for a Better Environment alleged that MTC had not fully complied
with the 1977 federal Clean Air Act and the process to meet the
standards outlined in the 1982 Bay Area Air Quality Plan.
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The action against MTC centered on the ·conformity requireaent-in
the 1982 Plan, which was designed to ensure th~t transportation
aqenciea allow only those projects to proceed that will racilitate
rather than impede progress toward cleaner air. At the core of the
dispute vas the mathematical aodel used to analyze how proposed
hiqhway projects affect oir quality.
Another point raised in the litigation is whether it is enough to
be making reasonable further progress toward attainment ot ambient
air standards, without actually achieving them.
During the pendency of this litigation, the 1990 Amendments to the
federal Clean Air Act have been enacted, laying the qroundwork for
the development of new procedures to be ~ollowed.
Next stepp
Formal City Council review and action on the Draft Regional
Transportation Plan is scheduled tor June 10, 1991. Action on the
'91 Clean Air Plan and the santa Clara County conqestion Management
Program will be schedule~ soon after.
Respectfully submitted,
{f¥~~~: ~ VICCI R IN
Assiatan to the city Manager
~~~
JUNE FLEXING
Assistant City Manaqer
Attachments:
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KENNETH R. SCHREIBER
Director o~ Planninq , Community
Environment
1. Potential Travel and Land Use Impacts
3. Indirect Source Controls
J. overview, Santa Clara county conqestion Management Program
4. OMP Relationship to Other Planninq Processes
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Related CKR5:
301:91, Hay 30, 1991
302 :-91, Hay 30, 1991
00: Chris Brittle, Manaqer of Planning, Metropolitan
Transportation Commission
Toa Perardi, Director of Planning, Bay Area Air Quality
Manaqement District
Michael Evanboe, Executive Director, £anta Clara County
Congestion Management Agency
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Potential Travel and Land Use Impacts
Cbanges in:
What route to follow for eacb trip.
What time of day to make each trip.
What mode to use (or each trip.
What place to carry out the activity intended lor each trip.
Whether or DOt to link trips into multi-purpose "chaios-.
Whether or not to make each trip.
Size &lid makeup or household vehicle neets.
Where to live.
Where to work.
Location and number of new residential unIts.
Location and number of Dew Jobs.
In-and out-migration from a region.
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INDIRECT ~
SOURCE
CONTROLS
"An iTulinc:t M)~ iI any fa.dliiy, buUdilig, Btrudul't or in. .. !1J:Jlto.tio~ or
combination tIwwJ(. Ul1Ji,cA. ~ or Cltract. mobik !OUI"ct activuy thal
nsulla ~ emiaaions o(tu\)' pollUfQ.nt for whida.thre is G s:t4tt: amburtt air-Quality
sUuu:lard." -California Air Resources BOIIM (ARB).
Examplts of indJ red sources (1&) included by the Board (ARB) are empioy
ment sltes. &hopping centers, sports facilities.. 5ChooTs, apartment!, housing
development.!!, airporl&. cOmmercial or industrial development and parking lots
and garages..
The Bay Area has cot attained the 'health-based stale air quality standards
for ozone and carbon monoxide. Molar venides are respon5lbte for .approxi
mately 'h a1£ the emiui01!Ii of ozone precursors and mOTe than 80 pereent of the
carbon monodde in the Bay Area, and simJ1srly impactotner areas of the State.
To attain the State aiT Q.u.alit., standards, the Cahfcn-nie Clean Air Art of 1988
(CCAA) requires that the Cl~an Air Plans prepared by nonatt.ainment areu
include both tran sportation C1;Introl meaSl!TE:S ITeMs) and IS measures. (TCMs
indude "'an,. -P"f!k8Y to retWct. rlChide trip., !)thick ~ uthick mik. tralJehit
hkicle idlin6. 01' traff~ CtJtlge3Wm for liu PUI'pOSe of rtrlucing motor l1ehick
tmission.&. .,
AirpoDution eontrol measures in earlier Bay Area Ajr Quality Plans had only
minor effects QfI the perceptions and activit~es orthe general pubJl~. Most have
been putintD place with little a.wareness and nQ action OIl the part of the e.verage
person. The publie doei know that ceTt.aln products have been changed. How
manypeopleknow~ forinstanee, that ears !Wld in California must meet emission
eontrol standards that. are more stringent. t.h an those in the ot},er 49 states and
have reduced emissions to about a tenth of what they were w:ithout control
devices~
Now,lIoweveT, implementation of many ofthe'l'CMs and IS control measures
would affect the activitiesormost peop' e.. We may wen f'in d thllt as ... of the single
occupant. automobile, ia some situations, will become more costly and less
coTlve~jent tlum itis now. We will have greater availability of .. variety of travel
modes; we w111 be en~ur~ to use public transit, walk. bicytTe and ridesnare.
Many activities which require getting from One place to anoth er, the refore, will
be alfected
ARB GUIDANCE
The ARB bas prepared a document., "'California L1<ean Air Act. Guidance
for the Development of ludirect Source Control Prov:ams", to aid local
air di5t.rkt.s in preparing dean air plans for areas which have not Ilttain.ed th e
state air quality standanl&.
The ARB ~mmend.s c:hancterizing ISs by type and liiize, then estimating
potential emissions lUld poSliible. emi6Sions red.uction. Usi.nC this informa.tion,
the eontrol program am prioriti::e phuing in th-e $Curees.
The ARB lists four approaches ... hieh local district. may take to
coutrol ISs:
L Permit prtlgn.ms (or new or modified SOurces which spec.ify air quality
mitigation requirements;
2. Source--specifie regulations or ordinan~s for new or e.xisting SOl,l.rces;
.3. Increased pa:rt:kipation in the Califomia Environmental Quality Act (CEQ,A)
process by bo~ the air distrkts and loaf govemme,nts through Tederinillg
f("-.IilUWod .. JH¥l" 8)
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ATTACf!MENT 2
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INDIRECT SOURCE (J',= "'go"
"'8ig1tifit:rmr projtcl."~ commenting more orten a.nd mote
aubr.tantianyon project!. and using liLigBtioD to ensure
mitiption, and
.... 'Coordinatio:J: by the air distriet and lo-cal govern lIIents
oflandwe, transportation and air quali ty policies. using
the local general plan as _ (oc.aJ poinl
The CEQA approach wou.ld bw1d on existing practices
and could be imp1emented almost imrne-diately. Thro per
mit and lIOun:e-speemC approacnes W11J take longer to
develop and implement,. and the coordinated approa(:h
even longer. AD should be ccmptetely in ptac:e by 199"'-
TM best cwoiZable mit~Km IM.03UTts Mould bot reo
quint:!. {or aU pr0j«t8 whU:Ia an! tkUrmj1Ud to ha De OJ
Bi6nifi.conI air qU4lity impgd. TN /Jim o(rJuw mmsUTt,S
.hould ~ lO{osluo: shift in trip.from ,irtgk-oecupa7l1 eaN
10 r... polIutina modu . ",oil<ing. bi<ycting •• ronsil or
rlduharin.g • attd to e1imbu:te lM need for trip. by 'UcA.
mmns tU rn.i;ud km41UeS~ tekcomm.unicalioo and. uli.[I(rj
urviee.
T& fund IS programs, the 8ir di strkts eo~ld Bsstss ret!5
.... hen isauing permits, to pay (or administrative .eost!
wbich are pot otherwise covered. and possibly air qual it)'
impact fee& to stdlsidize alternative mPdes oft;ravel
BAAOMD'S APPROACH
The Bay Area Air Quality Management District
CBAAQMD) has prepared. clre.tt or an ludirect Sou.rce
Control Procram to be cons.idend fOT 'indus-ion in the
Bay Area '91 Cl ...... .\ir PIaD.
The BAAQMD int2nds to USE-'the approach of de legating
.5 mud! as possible of the implemen tatiOQ of'the program
tocities and eountie .. To be apprO'Yed i'or de1egation, a 1oca1
government would have toadopt. control program at. least
as stringent as the Air District's minimum standards.
ConditiODs would include:
• An air quality element, approved b)I the-Distrirt, in
eluded in the loeal general plan;
Addition or air quality project. impad analysis, mitiga
tion me.astITe.S and tIlorutoring requirements to conditions
for bw1dinl: permits, use pe-rnUts:and otner local plan
ning and Zllning requirernenta;
• eoneetion of air quality impact (or mitigationj fees;
Pennit fees to pay for processjng and monitoring the
EOITORlAL POLICY: ":l1 e B&.,. Area M ON ITOR provides
.n impartial, indepondent view of agenc.,. decisions &nd
aeriYitiesand other important Bav Area is'5ues. The selee.
ticn of material and viewpoints represented are chosen
byl WVBA to provide a comprehensive view of me topics.
Information is ;athered from many SOLlrces::: LWVBA
C8/11lO1 be respons'"bre for their ltCCurac.,..
The Bay AIu MONiTOR ts praduced as an ed UcatHlllsl
project by the LWVSA. tt receives gra n.ts .a nd s L1pport
from the BAAQMO. BARTO. EBMUD. EBRPD. GGBKTD
and MTC. Forfurtherinformatian contact LwvaA t41 51
283-7093.
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Use ofrevenues conected fer Distrkt-8ppro~'ed iocal air
Quaiity projects, perhap!i also transferal to Ole District
to cover ~5t.s of regional altematives and mitigation
monitoring. a.nd _
DeveJopme,lt by the District of' erit.eria for approving
local programs and adoption o(procedures to review the
perl'orIllance of local governments to whom the imple
mentation authcTity has been de1egaUd.
For cities and co-.mties whicll choose not UI seek delega
tion or-whose commit.menLs are pot adequate rordelegation,
the District ..... 11 adopt a permit. program. This prog-ram
WQu1d t.enre as a mln~mum guid~ to locaI i'>"e.mmlmts u.
whom 18 eonfro,l powen have been. deleg'lltEd. The Dlstriet
would also provide u-chnical auiEtance to cities I11ld counties
which a~ept d"legation.
Implementation ·",.lTI be pba~d in, beginning with new
or modified sources ,....[th the greatest impact and lastly
in c1udingexisti ngsources which arenotalready covered by
TCMs.
LOCAL POWERS
The qu-tstion "has; arisen whether Ole Air District.. in
adopting is control pTOgr-ams, wnI inrringe upon local
governments' land use powers_ The ARB "has det.ermined
that air ~ist.rlcts and lou' governments huld tOI"lCUTTtnt
jurisdiction. the air districts requiring air quality impact
mitigat.lons and the Jo,e.al governments determining per
mis:sive uses of land within theirbound3.ries. This tradi
tional relationship, .... hich has beP.n wen deve1op<Od for
direct sources, such as manufacturing, gas stations anddry
clt:!.8.ning, has not beeo upset
Loc4Ut~. ~hid. cc«pt tkrijiUiiin ~ wi11 fin.d thot theIr
-IS Conlrol proerG""''''~ TCM prozramt 4nd Co..,-a-
00n JitmDlf!1rUnt Progrcun.. overlap eaeIa otM"~ 101m
pfTWi8ionI8UlJing m.I)'" liu:uz. on.: {un.r:!W'l. B7 int~roting
tM mitigation ofairqlUJ1ity itnpa.ctl and lraff;c. ClJragf!otion
into tMir total pla.n.nU\i f!/'foI"U. comm.u.nities can de<n.fuj)
progra.rm which corifonn to Wcc1 conditWros. are' i1l har
mony willa regicJruUprogram$(J..rui e'nhance bolh. t.he.ir ide.'l
titks and their citizens' q~ ofllfe, AS
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SANTA CLARA COUNTY
CONGESTION MANAGEMENT PROGRAM
OVERVIEW
The objecIive of 1IYs dorument is 10 provide !he CMA Governing Board with an
overview 01 Santa Clara County's proposed Congestion Management Program (CMP).
I inCludes 1IYs ilIrodliCtion which provides background informa1ion on !he CMP and its
elements. as weD as 8 discussion of isSues related 10 the OVstan CMP. Following !he
rnrocluclion. a summary 01 each 01 the program's elements is presented. This summary
in<:Iude<I B genr.a1 c!escrip!ion 01 eacll element, how l is nnked \0 Olher elements. major
decisions to be made. and a timetable for decisions.
Santa Claa County's draft Base Year CMP is scheduled for approval by !he
Congestion Management Agency (CMA) Goveming Board at its June 1991 meefing. The
Final CMP, which will W1c!ude !he complete environmenlal review, must be complete by
November, 1991. Staflis axrently working with the CMP Technical Advisory Committee
(TAe) 10 develop i:lcfMcluai elements 01 !he CMP. Major decisions regarclng those
elements will be presented 10 !he CMA Governing Board for prenminary approval as they
are developed. The pu<pOSe of this overview Is t:l provide the CMA Goveming Board
"ith a con1ex! in which to make Ihese decisions.
• should be understood !hat preparation of Sants Clara County's Congestion
ManagemeflI Program is ongoing and some Lopects of !he program described below are
stm being defined n detail. Therafore,!his should be considered a working document
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CMP "rlW(l!!lld and El,m,nt Out!\nt
The Congestion Management Program legislation was developed i1 1989 and
1990. The CMP legislatiOn was Inksd !o YOI8r approval 0/ Proposition 111, so !hat r
Proposition 111 passed the eMP legislation would become eIIecti'ie. (Proposi:ion 111
c:aJled for raising the Itate gas tax !o pro;Ide turds for W>c:reased lransportation
spending.) PropositIon 111 was apprCMld In June 1990.
The CMP legislation is complex and l Ieaws a significant amount 0/ IaIilude !o
!oc:a1 jurIsdic:Iions In preparatiOn 0/ the plans. WIllle the CMP legislation is impreclse, Its
Inten! is dear. /0 redua ~ tIuoog/I. c:ombinaIioft of~ ~ 1mId·""
p/IurlIint tUdJion.r, trjp trtfudWn prorms (TDM) Il17d onuuiI wviu ~
The eMF IegisJaljon requires that all urbanized c:ounties ., Carlfomia prepare a
Congestion Management Program (CMP) i1 order 10 receive their share 0/ the increased
gas tax nlY8n1SS approved by !he voIers i'I June 1990. The legisiation specifies that
CMPs incIvde eettain elements. O!her elements are necessary !o provide inlormation.
In the fOllowing disco I5sion. the nine basic elements proposad for Santa Clara County's
eMF are ou!Iined. The main bOdy o/!his overview presents a more detailed desaiption
0/ each element
1. SYstem Definition EiemerJ! -System definition consiStS 0/ specffying what roadways
wiD be part of !he CMP system. The CMP legislation specifies !hat all state
highways and pri'1cipaI' arterials be ncluded In !he eMP System; i'I Santa Clara
County the eMP System win Include couo!y expressways. Roadways which are
part of !he system must be moniIored!o ensure !hat !hey operate within the CMF's
acIop!ed acceptable level-of-service.
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S'lS!em lIMIklI-Sery!ce Standards E1e!TlQ!lt • This element consists of setting a
8Iandard for tnJIIIc operaIionI on the CMP roadNll)' system and chooslng a
IriIorm methocIoIogy fer evaluating ITaIIic operations.
I!l!JlS!t SIMdardsElemen! • This element consists of setting s!andart!s for tramiI
hqueocy and routing, IS wei! 1113 coordination with o!her transit systems, as weB
IS cIefinng a CMP 1ran9~ system (netwoI1<).
Irjp Reduction and Travel Demand Managemen! E1ernen! -This element consists
of dev<lIoping a IrIllISpOrtaIior. demand management (TPM) program for Santa
Clara CouIty. This will r.ducIe developing ralaled uni!oml TOM ordinances
1hrOughout the county. TOM programs are designed 10 reduce traf!ic conges!ion
by encouraging strategies such as ridesharing, transit use, site design guider.oes,
and parldng management.
5. Qafabase and MQder.oo Element -This element consists of developing •
<:OIdyWide computer model for evaluating the impacts of Iand-<Jse decisions on
!he regional transportation system. The CMA wi!! also approve small-scale
transporta!ion models used by cities 10 evaluate the impacts of development
projec:ls and General Plan 1aM-l..-se amendmenls.
6. Land-Use Analysis Program Element· This elemen! c:onsisIS of developing a pro
gram (a methodology. not a computer program) 1<> ensure that the impacts of
Jand.use decisions on the regional 1ran9portation systems are evaluated.
7. capjl;!! Improvemen! Prpgram (CIP; Element· The CIP Identifies projects whk:Il will
mprove the performance of the CMP System and help meet transl! and LOS
sIandatds. The CIP r.ducIes projects prtoritizecI fer stale funding which wiU be
submitted by the CMA 10 the Metropolitan Transportation Commission (MTC) for
i1dusion n the Regional Transportation Improvement Program (RTlP).
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8. Mar.nO! k!Q and CorIprmance E!emer4. The CMP must be ITlOi itO! ed Oil an amuaI
b8s1s. The CMA must C8I1lIy that JoceI govern i 061 lIS era Tn CO! Ifon'naIICe with the
CMP In order 10 r8O!!ive the new gas tax nMWIIJeS.
t. Dtftc!et ICY Plan Element· The CMP ieglslatioo specifies that local gowmmenls can
pepara DeIiCIeo ICY Plans fer transportation facilities which are not n CO<'\IO<mance
wfItllha CMP sIlInCIards. Deficjency Plans must inprow 0YefaII system cperaIion
and mproYB regional air quaJ'iIy. The CMAIs also responsible fer approving locally
prepared DIItIciet ICY Plans.
On!1!l! CMP !gun
Tn addition 10 Iha nine basic elements which will be ncIuded In Santa Oara
CcuI!y's CMP, there are three major issues which aIfecI: an elements, CMP liming.
envlrormenIaI review, and the relationship between the CMP and air quafrly requirements.
Each ct u-e overall Issues Is d'lSruSSed below.
CMP Tming and Sc!Jedu!e
The Co<.rrty's Draft Base Year CMP must be ccmpleted by June 30, 1991. The
Final Base Year CMP must be completed by November 1991. Once the Base Year CMP
has been prepared, the MetropoIlIan TranspoI1a1ion Commission (MTC) will review I and
determine wheIhe< • Is consistent wfItl the Regional Transportation Plan {RTl'J. • should
be noted that !he slate (CalIrans) ls required to provide certain traffic data 10 the CMA fer
!he CMP; there Is some question as 10 whether that data can be prO\lided il-time fer
ccmpIeIion of the Base Year CMP.
In future years, the CMP must be moni!ored amuaIIy 10 evalUale conIonnance,
and !he CMP Itse~ can be updated to reflect changes. As part ct this I11Orll!omg the
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CMA must deteo" io. whether local goverTllT*ll transportation and land-use plaming
decisIuns are coo IIiIIrt with the CMP. If 8 local gov8rTl1T*l1 does no! maintain CMP
standards • may lose Its new gas tax subventions 1hrough a finding fA non-<:onformanC
adopt8c! by 1he CMA.
FII8I!y, I should be noIBd !hal some eIemen1s <:A the Base Year CMP may be
developed ., more de!BiI n M\n CM? documents. For example, the Deliciancy Plan
EIemert wiD become more inporIanC aftar the initial (base year) CM?, therefor. !his
element will probably be more fully developed In the fullse; however, guidel"lfl8S for the
Oeficiency Plans will be Included ., the Sase Year eM? since Deficiency Plans WI'll have
mpiica!ions in the design fA the o!her elements. Other elements whid1 would be IufIher
evaluated in fubse years indude the TOM Element. the f.and.use Analysis Program
Element, and the CtP Element
Enyironmental Reyjew
I.klIess there is a specific exemp!ion 10 CECA by the legislature, the CMA WIll be
required 10 prepare some form 01 environmerltal review (ElR or a Negative DeclaratiOn)
as part fA the CMP. The CMA Governing Board has supported the concept 01 a
IegislaIive aXIl i iplion. Since there may be no actioo on an exemption prior to the Base
Year submittal this November, the CMA must prepare a plan for meeting the CECA
requirements.
The aJfTenl understancflflg is that the CMP envirorvnentar analysis would be
completed between submission 01 the Draft CMP (June :30, 1991) and submission 01 the
FiIaI CMP (November 1991) •• s1lOuId be understood !hal CECA con1ormance WIll have
schedule and cost Implications.
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The CMP wlllIISo be cIosefy related ID air quality. The CMF must be responsive
10 regional e1r quality guidelines and mandatory requkements h !he Regional Clean Air
Plan curenUy being prepared by Ihe Bay Area Air auarrty ManagemerC Oistl'ict
(BMOMD}. The CMP legislatiOn spec:ifias1h8l!he CMPmustconsider!he poleiltial eIIect
Of reg;ona! air quality guidelines h !he Trip Reduc:tion and Travel Demand Element, !he
De1iciaI ICY Plan Element, !he Capital ~ Program. and !he Transll Element A!
DeIic:iency Plans rwst I'lckJcIe actions which IIignlIicanIIy i'nproVe air quality In !he region
In oroer 10 comply with Carrfomia Clean /VI Ad. requiremems, a more proactive
TOM program lhan required by !he eMF legislation may be necessary. This program
could be ooordlna!ed 1tv"oug/1!he CMA. The exierC Of !his more proactive TOM program
wiD be determined il part by !he BAACMO's IoI1hc:omk1g decision regard"rng current air
quality il!he region. Preliminaly infonnaIion from !he BAAQMO i'IdicaIes that !he regioo's
air quality will be rated 'Severe", which makes I likely that !he more proaClfve TOM
programs will be necessary.
CMP Element Summary
In !he taX! wNch foIows, each Of !he nine elements i1 SanIa Clara County's CMP
is described. These descriptions lncIude Information 00 !he element's importance, its
inkagelD O!her elemerCs, and issues surrounding preparation Of1he element FIIlaIIy, a
brief descriplion Of dedsioo IS which need 10 be made regarding each element. and timing
for 1hose decisions is presenled. Tuning for eIemenIs is presen!ed il three categories:
Base Year Tasks must be completed before June 30, 1991; Amual Tasks must be
1 ReIer 10 -.", 11191 _ paper pt'I!p<W9d by CIoIA _ tilled: 111< ~ lJdwun :n..
CiI1ifomiII Air ~Aa of 198.S _ ~ M"",,_ Ptm. ''11''_.
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peOOnned ead1 year stMing n the 1991-1992 CMP year; and Future Year Tasks may be
per1cnned at wrious times n the future.
1 • CUP System Deftnltlon Element
The CMP legislation requires the CMA to designate a system of roadways as 1he
CMP ~ The IegisIa!ion also djsQ vas 1ransiI as an Impor1anI part of the overan
lr8nsporIIdIon system. however 1ilere is no IIlCp!icit directive n 1119 legislation to designate
a "Transit System' while 1here is expflCit d"1fediw to esl8bIish a roadway system. Because
of the ~ of lransit n serving 1he county's transportation needs, 1he CMA Staff
r8COllHI>etids expllciltf defining a transit system ilthe CMP Transit Standards Element.
l should be noted that both roadways and Iransit will be i'1cIuded In !he system which
is part of !he countyw;de transportatiOn model and is evaluated In the 1and-use analysis
program.
The reason for defining a roadway system is to specify roadways for ievel-of
seMce monitoring. The legislation is relatively specific wi!h respect to what roads must
be hduded il1he CMP System. It states that all Stale highways and principal arterials
must be part oI1he CMP System. However, 1he dafiniIion of pmcipal arterials is Ie1t 10
i1cWiduaI counties. The legisla!lon also specifies \hat roadways can be added to !he
CMP Syatem n 1he future, however, once a roacIway has been made part of the system
I may not be removad.
The CMA TechIlicaj Advisory CommIttee (rAe) develOped a proposed CMP
Syatem whic:I1 i1cIudes all state highways, ~ expressways, and pMcipal artenals
(defined as six-lane facililie6, or non-resIdentiai arterials wi!h average daiTy traffic (ACT)
of 30,000 vehicles per day). A large portion of !he designated system is State hi9/1W8ys
and ccunty 8lCpI 1SWays. The system was revi9wed by local jurisdictions, and !he CMA
7 '.20,1.1.
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GoY8miIIg eo.d gave preIminaty approval for !he system on Oeoambef 1 e, 1990. FI:1aI
adapIIoIl or!he CMP System wi taka place In November 1991. Fogure 1 Ilustrates the
l8CXlIMI8i oded CMP roadway system. The CMP roadway system should be consistent
wiIIl!he t.lTC's reglOnaI roadway system.
loc:&l QOII8i1'W1l8f1I will perform 1rafflc counts BIle! existing leveklf-servioe analysis
for parIS or !he CMP Systam wi!h!n 11'ieir;..orisdiclion Ca1trans will provide stmolar data for
1heIr pari or !he system. Respoosibility for data c:otIecIion end rt1OI1ito<'I1g rests wflh !he
~ which operates !he IaaTrty or harsacticn 1raIIic slgnal • should be
amphasizecI that Caftrans has expressed difticutty in provic:Wog 1rafflc volUme data for parts
or the system under Its ]urisdiction; lhis may aIIlet the complet~ or !he base year
CMP.
The System 0eIiniti0n Elemert is mkad 10 !he Level-of-5e<vi<:e Element, !he l.and
Use AnalysIs Program Element. the Dalabase and Moderong Bement, and the Monitomg
and ConI'omlance EIement
Maier P. ieJo -§ -Trming
1-1 System Defi11ition /Base Vear Task) -The CMA Governing Board gave preftminary
approval for the CMP Syst.em at its December 1990 mee1ing. Determination or the
monrtomg Ioc:atioos on !he system [ontenH!Clions and segmentS) will be developed
by1h.a TAC. Fna! adoption or !he CMPSystem Wiltake place In November 1991.
1-2 System Review (future year Taslsl -In future years the CMP System can be
revised by adding appropriate new roadways to 1he system.
8
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2 • LevlI of SeI <'fee Element
The CMP legislation requiAos !hat • 1evakI!~ standard be esIabIished by !he
CMA for !he cIesV I8!ed CMP ~ 1.ewI-of~ (lOS) is 8 measure of !he quality
of I'OIIdwar or i1tar8ection opeoaliOi ~ 1eYaI-oI.-vIce Is defined .,1etIer Iorm ranging from
LOS A (Ieest COII\j8St8d) to LOS F (most eongestecI).
The CMP IegisIatioo 19qUires !hat !he 1evek!I.S8Mc:e standard be set at LOS E or
better; however, the standard for fac:iIities which are currently operaling at LOS F can be
LOS F. Therefore lis IrnportanIII\!I! local j.JrisdIcIions to Iden!iIy !he par1S of the CMP
System which are CUITentIy operating at LOS F ., order to ensure Iha! !hey are no( herd
to a higher LOS Slandard .. !he future.
Level-of-eervioe is 8 critical part of the CMP becaus8 new gas tax subvenlions may
be wiII'ileld r a city does no! maintain !he CMA adopted LOS standard, or have a CMA
approved Deficiency Plan. There .... two important aspects of Ieveklf-seNice slandards:
establishing an acceptable standard 81ld determining what me\hod W11 be used to
measIX8 leveJ.of-servlCe, eacIl is deScribed separately below.
The LeveI-of-5efvice Bement is ~nked to !he Database and Modefing Element, the
L.and-Use Impact Program Element, 81ld !he eM? S-,.stam Element
Estab!!sh Accep!able Leye!-of-Se!yice Standard -The TAC is considerng a
recornmendaIion Ihat LOS E be adopted as the standard for the CMP System, assumg
!he least poten!iaI for disruptive inpacIs on near-term IancI-use decisions. The TAC is
also c:onsicIemg usa of a higher LOS standard (e.g. LOS 0) for the South County area
based upon a request by south counIy cities.
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The TAO Is also consIdemg setting a higher 1evek.t-seMce IIQ!!L based on local
cfty policies. local goals would be !aken Into IICalUOI when neighboring land-use
deciaIoi IS iJ1)8CIlhem.
t Is ~ 10 ~ thai local fand.use decisions can continue 10 be made
baHd on a beIIer 1eYeklI-Hfviee standard, J desired by a city. The iltent of the CMP
sIandard Is 10 establish a minlmum level of operation for roadways of regiot'.a1
aigniIicance.
The final rec:ommendalions for eoceptabHI feveI.of-HtVice standards W11 be made
when existing c:ooditions (based on i'lIormation being COIIecI8d from !he cities, the
OOIXIIy, and the -J have been reviewed, and when the a>mrT1O(\ me1hodo!ogy for
measLri'Ig lOS has been adopted by the CMA Goveming Board.
Level-of§eryice Me\hodo!oqt -The OMP legislation required that a uni!oon method
be used to evalua!e feveI..o!-seMce on the entire OMP system The legislation gives
CMAs iii choice in the fevel.of-S8fYice rne!hodoIogy they use for the OMP. The choices
are:
o Circular 212;
o The most recent version of the Krghway Q:pocity M=l (1965 HOM); or
o A method consistenI with the most recent version of the HeM.
This choice Is important bees' ose i'ld'rviduaI cities have an inves!merII: in the particular
method they currently use 10 evaIuaIe lOS. since deveklpment decisions have been
made based on it. Beca< ose or !his issue's importance, the TAO retained Wilbur Smith
J.ssociates (WSAJ 10 evalua!e feveI.oI-seMce lechniques and 10 assist in choice of a
10 Feb. 20, ,III'.
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method. A report on ntersection Ievel-of-seNice tac:hnlques has been prepared' and
reconvnendation wiD be presented to the TAC, then bwarded to tt1e CMA GowmIng
BcIard.
MeiPr !)!!cis!9! IS -Dning
2·1 Es!ab!!sIl LOS Standard m..g. vear Task) -The TAC will devetop a preITminary
rec:ortmended LOS Standard. This standard will be reviewed when existing
c:cnditions data has been C011eded and evaluated. Then I will be presented to !he
CMA Gowming Board fo( awovaJ. Base year standards must identify all current
LOS F ntersections and segments.
2-2 Chogse LOS Methoc!oIogy (Base Year Task! -The TAC Is COO'eIltIy wOOdng closely
wfth cities evaluating LOS methodologies. The TAC expects to make a decision
on a methodology In March. Following choice of a meIhOdok>gy, speel1ic
-..rnptions end methodology software will be recommended to the TAC for
approval. The CMA Governing Board will be asked to approve the lOS
methodology 81 its April meeIIng.
2-3 Assist Wilh lOS MeIhodoIogy Implementation (Base vea, Task! -The CMA,
1trough its COO$ullant WSA. wiD assist cities in impIemen!ing the LOS methodology
chosen for use in the CMP_ This assistance will consist of directions lor use of
software, classroom training, and imited ~ to i'ldMduaJ cities.
2-4 Revise lOS S!andards CFuture Yea, Taskl -In future yean;, the CMP's JeveJ.of
swvice standarcls may be revised, but !his wiD be done very infrequently.
• __ .... 0< .... ; _ ~_ TecMiqu< E,~ Rms..t Itq><m;
0-i Iber 20, 11190,
11 ",2D.118,.
3 • ,.,..,. S1ucIuda Element
The legi'lptjoo raquns thai standards lor the frequency and I'CI.IIir9 of public
IrnIft and lor' \hi COOfdinaIion of .. and seMce provided by aepara!e operators be
h:tJcIed In 11M CMP. The legislation clearly Intends Ihat Improved 1ranSiI S8I\'k:8 be used
10 reduce (;011118811011 and WnproYe air qua1i!y. but Indudes few axp6ci! transl! requir.
menIS. ThereIanI, dewIopIng Inkages between this eiemel"t and oIher CMP elemenls,
ncIucing 11M L.and-Use EIemenI, !he roM Element, !he Oeficiency Plan EJemef"(, and air
quaJity Jmprovement etrorts, wi be i'npOOanl
The 1egIstaIior! requires 11arls~ frequency. routing. and cocrdlna!ion slandards.
Typical standards include:
o Operating frequende$ on transit routos;
o SeMc:e hours on trans~ routes;
o TI'SIlSIer agrMmenls between transl! operators;
o Schedule coordination between transl! operators;
o Minimum headways (seNice frequenc:ies); and
o Transit stop location criteria.
In addition 10 Ihese typeS of standards, as part 01 Santa Clara County's CMP a transit
system network wiD be defined. This system wiD be slmllar to !he roadway network
deIirJed il the CMP System 0efir1iIl0n Element, and will be part 01 !he countywide
transpor'.a!ion model,
Basic IrarJ< standards whi<:h re!\ecl current transit service will be Induded il1he
fi;st-year CMP. In the Mure, the standards can be expanded to relied po!sI11ial
~ 10 IransiI seMce throug/1 inp!ementaliOn 01 projects illr8ns~ c:crridcI's Of
h support of specific land-use developmenl plans,
12 'Feb.ID,1".
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A key pin of !he Tranall Standards Element wiI be the IdentlliCallc< I of 1rBN~
ecnid008, Tranall COOI\donl are being developed by the County (lIS part of the T-201 0
pia "'IOg eIiort} and on • reglonaIlev8! by !he UTC. They wiD define II/1I8S where high
c:apedIy Iran8i! -w:e ocoordnaIed with developing Iand-use patterns are fIIaIlbIe and
needed 10 __ prcjecIecIlnMII demand.
WhIle rnproved transit service has the potential 10 help reduce CO( ogestion and
~ air quaity, sufIicient fu1cfng lor boIh transit ~ projects and o::reased transit
opel!l!!u! IS wiI need 10 be Identified_ Transit ~ projects wi!! be Inc:Iuded In !he Capital
~ Plan prepared as part of the CM?
This type of pIaming effort wiD be c:\Qse1y inked to !he CMP's Land-Use • .l\nalysis
Program Element, T~ Reduction and Travel Demand Element, and 0eIiciency Plan
~
Majer Der:lsig IS -Tming
3-1 Dev!!op Transit Standards (Base Year Task) -The TAC has r6Viewecl prerominary
transit standards wtKIl are based on existing transit service patterns. These wiD
be h::fo.ided i'o the base year CMP provided 10 the CMA Governing Soard lor
approval.
3-2 Revise Trans!! S!anc!ards CfU!ur8 Year Task! -The i'oitiaJ CMP transit standards will
be revised lor MIxe CMPs based on the County's T .2()1 0 transit p!aming process,
transit corridor plans, and inkages 10 other CMP elements.
4 • TrIp fIeductIon and Travel Demand M.".gltfllent Element
TransporUIIion Oemand Man9gement (TOM) is a term used to include a large
nJIT1ber of strategies wtKIl are designed to redl.'C8 trips. TOM programs range from
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sinp1e marketing IIIIOOs (e,g. 8f1ClCUI1Iging rIcIoeShaMg) Ie more complex public policieS
(e,g. deYIIIoping .. design guIdeBnes rrtancf8d lo reduce travel demand), 1hese
programs lUll des1gnec11Io Improve !he overaI JeveI.of-servlc:e on !he CMP eystem by
redIcIng vehiCle !rips ltTough the Bfimination o/!rips, Shilling 0/ modes, CK grouping 0/
Irips,
l shoukf be emphasized !hat TOM programs are a crucial part 0/ IM8!ing
CaIilornia'" Clean Air kI requi ements; therefore, !hate is some overlap between CMP
programs and Clean Air Ad. programs,
The CMP legislation requires !hat a !rip reduc!ion and travel demand ()(dinance be
adop!ecf by aJ! cities and the oounty, Therefore, CMA staff wiD wori< with !he TAC 10
prepare a re=nmended countywide CKcfnanoe, ThIs CKdlnanca will be consistent with
MTC and BAAQMD requirements, t Wll include basic !rip reduc!ion slTategies (such as
7idesharing. encouraging bicycflng. TOM coorcfl1l8!ors, and oommute alternatiVe ncen
lives) as part of an empIoyer-based program Adcfrtional features may be added ., future
years,
In the future, as part 0/ Califomia Clean Air kI requirements. more &dvanCed !rip
redocIion strategies (Such as sits design gulderllles and indirect source review) may be
needed,
In adcfrtion 10 developing !he recommended CKdinance, !he CMA will develop
guidsilnes 10 evaluate trip reduc!ion program e!'/ecIiveness; this WI'll be an inportanI
aspect 0/ confo;mance with air qua/ity requirements as wem as proooing data for the CMP
mon~omg et:ort. 1niIiaIly, monitoring Wll assess wt.e1hef the trip reduction ordinances
are in place; later, TOM e!'/ecIiYeness in terms 0/ increasing average vehicle ridership
(AVA) Wll be evaluated.
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hi isaue at!I! 10 be addIllel ~ lithe IeYW 01 TOM 8upporI8«VfceS which the CMA
... provide to local jurisdictions. The TAC • n-tigallng the potSIlIiaI benefits 01 haWlg
• Bingle agency manage TOM HIviceI for many dItrerenI emp/cyer$ and cities In terms
01 oost-«fJCIetlc), and IXDlJam ~
The are many inkages be!Men the T", RedI don and Travel Demand EIemen!
and OCher CMP elements. These Include;
o Consideration 01 jobsIhousing balance Issues (linkage to land-Use ImpacI
Analysis Element);
o Hgh Oc:cupancy Vefjde (HO\I) Facilities Oinkage to Cap,'tal Jmprovement
Program); and
o The strong Inkage between TOM and the regional air qoafrty plan.
.... 1 TOM Orc!inance (Bass Year Task) -The TAC is developing a r8COl1'll1'lal'1
uniform TOM orCUllltlCe and tr1> redu<:Iion program. The ordinance will be part of
the base year CMP.
4-2 Adop!ion 01 roM Ordinance IVaar QJe Task) • All d!ies will be required 10 adopt
a uniform TOM ordinance by June 30, 1992.
4-3 CMA Support Setyioes /BaH Year Taskl • The TAC Is CUTl"'tIy evaluating the
benefits 01 having the Camrr-~16i' NeIWork provide TOM support seMces 10 cities
and ampIoye~ Ihroughoul the 0CAS'fty. A recDITVTl80CIaI on· TOM support
8WvIces wiI be made 10 the CMA GovamWlg Soard In Apri 1991.
15 Feb. aD, I".
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w Ana!yza Ajc Qu!!Ii!v TOM RBguirements !Amua! Ti!S!s}' The CMA stall are COO'en!Iy
8Y8IuatIng mere ac!vanCed TOM program IICIMties wI1ic:h may be required to
~ with Carlfomia Clean AIr Ad. and Ragiona1 Clean Ajc Plan. The CMA
GovernIng Board and TAC wiI be kllp! IJIHO-da!e on !his po ooess which wiD be
driYen by Bay Area Air au.nty t.Iar\agemert 0isIric:t (BAAQMO) and CaJlfornia AIr
ResourQS Board decisions.
4-5 Mgnj!or TOM E!!ec!iYeness lAooua! Taskl -The CMA wiD mon!tor TOM program
~ for puposes of cIetBrrnir1r.g local conIormance with the CMP and
gauging iIs effec:tiveness II! mee!ing California air quarRy requiremerlts.
5 • DatabaM and Model Element
As pall of 1he CMP process, 1he CMA must develop a uniform database on traffic
coroditiot IS and !and-uses for use in a countywide transportation model. Furthermore, 1he
CMA must approve models used by local jurisdiclionJl 10 evaluate Iraf!ic impacts on !he
CMP system.
till inportanI: to distinguish between Iarge-scaJe models {such as mc's Regional
Transportation Model and !he countywide transportation modeQ and smaI!-scsle models
(such as models developed 10 evaluate project transportation irnpads). large-scale
models are used by regional agencies or c:ooo!ies lor evaluating major Iand-use decisions
and regional transporIation facilities (lor example, estimating future traffic volumes on a
freeway or patronage on a ~ghI fiul transn ~ne). Small-scale Iraf!ic models are generally
used by cities to evaluate transportalion impaclS of specific dewlopmenl projects or a
set of projects on a more cletaJ1ed level. Often. these small-scale models do no! analyZe
major regional faciliIies such as freeways. Under !he CMP IegisIaIion, the CMA must
certify \hal tl8S8 small-scale Iraffic models are consiStent with !he large-scale transp0rta
tion models.
16 Feb. 2Q, I".
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This element Is direc;tiy inked 10 !he lOS StandardS Element. !he \.an6-Use
ItIvIIyriIs Program EJernerI. 1he MonlIOrIng and Conformanoe Element. as well as !he
TrenaI! SIar!del ds EIemet ~_
ere--The """' ....... will consist 01 hIomIation abouI Iand-use decisions,
reglOi i8I roeclway system hlproYemen!s, miliga!ion measures, and other Infoonation
MeCIed by the CMP 10 monitor changes h cities and !he COIX1Iy. lnitialiand-use data will
consist 01 Association 01 Bay Area Governments (ABAG) data is being r8Viewed by
IndMdUa! cities.
The database ",iI be updated annually by IndMduaI cities and1he COIX1Iy as part
01 1he CMP Monftofng and Conformance Element. Database guidarones and10rmat
ilformlfIion are being cIewlopecI by !he TAC. The database will be used ., the
Mot 0101 i III and Conformance Element 10 determine canformance with the CMP and will
be usecllO upcIaIe the countywide transportation model. (More detlIiIs regarding speci1ic
data which will be hcIuded n !he d ...... ase are presenled below h !he descrip!ion 01 !he
CMP Montomg and Confcrmance Element)
Co!riywide Transpo!1a!ion Mode! -The countywide transpOt1ation model will be
Gil ntegral part 01 severa! key CMP Elements. For example, !he coun!yWide transporta
tion model will be used ., !he l.ancI-Use Program ElemenIIO evaluate:
1. Q.m.lIa!iva transportation inpacts 0I1and-use cIecisioos;
2. Impacts of Iand-use deeIsions on subareas (U'lduding more 1han one
j.lrIsdicIionJ; and
3. Long-range forecaslS and trends.
The mode! will also be used h !he CapiIaJ Improvement Program Element 10 determine
how b &i ~ projeCIs h !he CIP support CMP objectives, and to idemily potential
C"PO ''I • 17 '.20, '111.
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future program areas; t coukf also be used to lMlluate air quality impacIs lor pIIpOS8S
d approving Deficiency PIan9.
The CMA Gowming Board decided i1 November 1990 to utilize 1he County's T-
2010 Transportation mocIaI. The model is CI.nlIn1Iy being updated 10 satisfy 1he
requirements d 1he CMl'_ Using 1he T-201 Q model is cosI-fffective (as development 0/
a new model would be a \'fItY expensive task). R also ensures 1haI the CMP will be
consistent with other ca.nty Itansportation pIaMing efforts.
Major [)eeisjqos -Tminq
5-1 Update T-201 0 MsvW IBRse Vear Taskl-The CMA's moderrng consultant, Santa
Clara Co<.nty'S Cen1er lor Urban Analysis (CUA), is cooen1ly updating the T-201 0
MocIellor use i1 the CMP.
5-2 Review ABAG \.and:Use Proiec!ions !Base Veer Task) -The TAC and c:ilias are
CI.nlIn1Iy reviewing Association 0/ Bay Area Governments (ABAG) Jand-use data
and projec:Iioos. This data wiD be used i1 the CMP mode' to estimate future year
lranspo<1a!ion oondi!ions.
5-3 Collect Base Vear Traffic Data !Base Vear Taskl -The cities, county, and state
need to provide traffic data lor the model The exact type 0/ data required wll
depend on 1ha 1ev81-of-service melhodoIogy c:hosel1lor !he CMP. Once the LOS
me1hodoIogy has been chosen. data collection ''''ilI begin. A preliminary deadline
lor sOOmhtaI 0/ traffic data to the TAC is Aprj 31, 1991. • should be emphasized
1ha! iI is likely 1haI!he state (Ca1!rans) will no! be able to meet Ihis SChedule which
COUld resu/l i1 SI.Cmission 0/ an ncomple!e CMP.
5-4 Calibrate and f3L!! CMP Mode! <Base Vear Task) -Once 1ha base year traffic data
Is avallable,1he modeling eonsulIant will use llo calibrate !he CMP Model The
18 F~20, 1N1.
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model willlIlen be run to ewJuate future (Year 20(0) Ir8!!ic concfiIiOnS on !he CMP
system. Model resuiIs wID be i1CIUdec:I n the base year CMP.
H BeyiSe CMP Patrtg@ and Mode! IAmua! Tas!<l • The eMf' database wID be
I8IIised on an amua1 basis 88 part d !he eMP MonitorIng and Conformanc::e
Element This data wJI be used Ie re-evaJuaIe future Ir8!!ic conditions on !he CMP
System usi1g !he countywide IranspcnaUon model .• Is expected that the Santa
Clara County CUA wit main!ajn the model IIIld run • for future CMPs.
Ii • Land-Use Analyale Program Element
The CMP must include a program for analyzing the i'npacIS Of Iand-use decisions
made by local juriscflClions on the regional transportaIion $)'Slam, and be able Ie estimate
the COSIS associated with miligaling those inpacIs. The reason for Ihls program Is !he
growing reeIizaIion that we have a IrriIed abirrty to solve lransportalion problems simply
by building ITlOClI roadways.
Until reeen!ly, Iittfe attention has been paid to the mpacts Of local land-use
decisions on regiona1 transportation faClTI!ies such as stale highways and county
expressways. This has led to major congestion proillems on those faClTrties. To address
!his problem. the CMP legislation requires ciIies to ... -aluaIe impacts Of land-use decisions
on regional 1ransportalion faCiIiIies. The ~ 01 \he CMP's Land-use Analysis
Program hc1ucIa:
1. FacoTrtale inler-jurisdic:tiona1 ooopenrtion n Iand-use decisions;
2. Sa!isfy the basic requirements 01 the CMP IegislaIion, provio"lflg gu'.deTines
and inletprelalion or the lew wI1ere needed;
3. Maintain !he feed posillon 01 !he local agencies n project speci!ic reviews;
and
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Focus CMA riMew at IarJd.use decisions to those mailers which significantly
tnpacI the CMP transpo<ta!ion system, and/or iwoIve mul!i-jurisdlctional
par1ic1pa!ion.
The CMA's amuaI monitori1g program wi r.dude the Iand-use decision making
1lI0C8SS. The CMP JegIsIa!Ion requires 1Ilat all elements at the CMP be monitored to
de\eITnine con!crrnance with the CMP. I..ancI-use decision ilformation. prOllided by locaJ
goo.er;vne.-o!s, wi! be a crftica! component at the annual monitoMg process used to
determine local conformance with the CMP standaTds. r the rnoniIcmg program finds
1Ilat fuIure de'll8Iopt'I8I' results n violalion at level at service standards a! specific
1ocaIioIIS, then, one or severa1 at !he fOllowing actions must be taken:
1. The development project must be modified to avoid the violation (content,
timing. and/or vehicle trip redu<:tion program);
2. mprovements to the transportatlon system must be made to enminale !he
vioIBIion; and/or
3. A DeIiciency Plan must be prepared and adopted by !he .-..sponsible locaJ
ju1isdiction and approved by the CIM.
A local jurisdjdlon which falls to adopt one of the measures listed ebove could fo<fe~ its
new gas tax subventions.
A c:ombtned subc:oounitlee from the Land Use and lOSIModeling subcommittees
of the lAC has sIudied Ioi.r rner-related levels at analysis for measuring 111& Impact of
new IarJd.use decisions. Each at !he Ioi.r levels is described In the fo~ text
The level r anaIysls Is expflCitly required h !he CMP legislation and requires locaJ
~ to simply repcI1 development project impacts on the CMP System. This se~
IMWaIion Is an embodil, 181 t of !he CMP Iegis!a!ion's language requimg simply a
"Program to anaIyza land use decisions.'
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The L.-l • anaJyR Is ~ In !he law, and Is • wtIY of using !he monitoring
prt.ceIS 10 pnMew future condiIions. In Level I. !he o..rnu!atiY8 mpac:t of an Iand-use
decJoioJo05 made by local juri$ddions during 1119 year wcUcI be evaluated for !he CMA.
The courtywIde • &lSPOolallon oompuIet model and/or c1her tecIYIiques ooutd be
employed for this purpCl5e.
The Level W anaIysI!Ils not apecificaIIy required, bu! Is a logical 8XI8nsion of LeYeIs
I and I. In L.-l1II, large deve/opmenl prcjec!s (which exceed .. predetennlned ttnshokI
size) would be submftIed' to !he CMA for evaluation. EvaIUIIIion WOUld be performed
using !he COII\IyWIde IranspoI1ation model or O!her ana!yticaIleCIYiquIIs.
Level ri Is not required by law, bu! may be<:ome a pracIiea! extension of !he CMP
process. In t.evaI ri, local agencies wcUcI establish Ihe capaciIy of Ihe ITanSportation
system for ~ growth, and would make IancI-use dec:isions based on !his c:apaci!y.
lBve! 101 Is Ihe most advanced strategy iwesIigaIed by Ihe TAC and Is unlikely to be
inpIeInenlad In early years of !he eM?; lis ntBl'1ded for future consideration.
Table 1 s..mmarizes key aspedS of !he four levels of Iand-<Jse mpaa 8I'laIysls
(Table 1 Is from 1he Land-Use Impacts issues paper).
This elemel ~ Is cfrrectfy Inked to !he Database and Modeling EIemeoI, !he Cap<!a1
Improvement Program Elemen!, 1he MonItorIng and ConIo<mance EJemen!, as well as Ihe
DeIiciency Plan EJemer(.
Maior [)tri'o ... Drning
8-1 [)M!op lInd-Use Analysls Program Strategy !Base year Taskl • The TAC Is
<UrIII'IIIy WCf\Qolg with stall c:onsUIant, Jeny Goldberg .4.ssoc:iates (JGA), to
d4NeIop II lalld-use ...aIysis program for Ihe CMP. A Iand-use analysis program
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LEVELS
I
SeIf-
E"-
n
CMA
eam_
E_
m
I.cF
Projea -
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ANALYZING LAND USE IMPACTS
PROJECT
ANALYSIS
Bf ~.,...,.. foIIowiq
CMA adqIIeclp;cIe!iMs
BY~"""""'_I
CMA adqIIecl plde!iDcs
Bf ~.,...,.. wUfI CMA
<mew ~P"'i«U 1IIat_
adqIIecl-
CUMVLATIVE
ANALYSIS
_ CMAlqUlbaedoa
!lola hom local.....,..
_ CMA mcdoliDJ ood
impaas malysis b&!ed OIl
_ fl1lI!IlocaI....,..
__ periodic CMA
.-nne IIW! cvaJlWioo
booed upoo Wgc I"'>joCI -.
local apicics: OIl ee»
l_ to gOWlh plans
_ haoe beco d<vdope4
jointly by CMA and local
....,.0..
CMA
INVOLVEMENT
MOcfium
High
High
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LEGISLATIVE
IIEQIJIREMENTS
ExpIidi: "'~Wmneot
Mooilaring: 65089.3
(0)(3)
IInpIici< "'1..-.",
CMPo 6508'.(b) (1)
(BX4)
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straIegy WOII<Ing pape1' has been IIPIlfO"ed by !he TAC for <fiSlJbJtlon 10 !he CMA
Governing Board.
[)eyaIop Base year I.&!nd-!Jsa p.tabge rBase year Task) -Local ~ will
review ASAG Iand-use data and revIsa them for use il!he base year eountywide
transportation modeling effort.
CMA J..and-Usg lsv!!! of Analysis p,g,;m IBase Year Task) -The CMA Gowming
Board roost decide what IeYeI of lanckIse analysis will ~ pursued il!he CMP.
[)eye!op Land-Use Ana!yl!1s Program !Base Year Taskl -The TAC wII! draft
guider.,.,. and a IanO-use data forma! for use by Ioca! agencies n !he fand..use
analysis program. The CMA. Governing Soard will approve these guideIlnes and
!he forma! requlremerns.
6-5 1mp1emen! I.iJnd.Use Ana!YS!S Program (AoouaT Task! -The CMA will review
conformance of Ioca! Iand-us8 cIecisions using !he proceOuro defined for !he
chosen !eve! of analysis.
H Review and Revise Land-Use level of Analysis Decision (fU!ure Year Task! -n
1uture years, !he ci!les a'lC!!he elM could r9llise !he level of analysTs perfom1ed
by 1119 CMA as part of !he lancI-use mpact analysis program 10 be!!er meet !he
goals of !he legisla1ion.
7 • Capital Improvement PtOgnlm Element
Two major changes il!he 8lCisfing Cep/taJ rnprovemert Program (CIP) planning
process were iltroduc:ed by !he CMP legislation. Fi'st, all capftaI projects incIucfed n !he
MTC's RegIonal Transportation Improwmanl Program (RTlP) must be included il !he
CMP. Second,!he CMA was g1ven responsibility for acIop!1ng counIy prioriIies for
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h:Iusicn n 1he RTIP Cn prior years 1he County was responsible for adopting priorities).
The C1P must c:onform to !he RTlP formal and contain Improvements that:
1. MalnIain or Improve traffic \ewk)f-88Nice or Irans~ standards;
2. Mitigate transportalion Impacts of Iartd-uoie dec:is1ons; and
3. Support air quality mitigation measures adopted by BAAQMO.
The C1P will rJCfude transiI and roadway projects. • Wll k'ldude State highway and
frlleW8Y projects, and may nc:Iude local and county projects as wen. The CMA will, n the
future, incoo pot ale proposed project mitigation measures and Deficiency Plan actions
funded by O!hers on 1he CMP System in the CIP.
The CMA will prioritize and format the county CIP for submittal 10 the MTC lor
hciusion in 1he RTIP every two years, updating the seven-year program each time. The
CMA will utilize 1he County Transportation Plan (T·2010) as a basis lor projects and will
develop criteria for evaluation and prio<itizing of projects.
The Base Year CIP is being developed by the County Transportation Agency and
Commission lor approval by 1he Board of Supervisors. Many of the high priority projects
are left over from prior unlunded CIPs. Hence, the CMA will be called upon to review and
endorse the submittal, but no! to initiate a CIP. In Mute years the CMA's role in the CIP
process Wlll be expanded to better relale to the CMP elements, especially Ihe tand-Use
Analysis Program Element.
Preparing a complete CIP, one which can be shown to clearly affect the CMP by
reducing oongestion and Improving air quafrty. Wlll be extremely importa."!! for attracting
d"oscretionary stale transportation funcf~. The C1P iIselI is a requiremenl lor state and
federal fundlng of all types. FIIlaI1y, 1he CIP provideS an oppcMtu!1itv for examining long
term financial requilements which will allow an assessment of the need lor adcfrtionaI
pOOGc and privale transportation fundlng.
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The CIP musI also i1cIucIe, accorl1ing 10 Ihe CMP !egis!aIIon. any project proposed
fer U1CIng n Ihe 8Ia!e'. InIIIic IY8t8m8 managemenI (T'SM) program. These lncIiJde
prcjec:ts 8!lCf1 • traIIic siglalizaIion which lin! Mlded on an amual basis. They <:an be
8p041S01ed by c1ties,!he COIXlIy, or CalTratlS.
• should be noted \hat any Cl? projects which are 10 be MJded wfth federal
money musI be n cooIormance wfth 1he Federal Clean Air ~ requiremenls. The CIP
must also be n c:onformance With 1he adop!ed RegicnaI Air 0uaJlty Plan.
ThIs eielrl8lt is direelly linked 10 1he I.IInd-Use Analysis Program E1emert. the
Dptab_ and ModeUng E1emMt, Ihe De!idency P\&n Element as well as the Transn
Standards EJement.
Malor I'l!!rklons -Timing
7·1 Prepare Base Year ClP !Base Year Tasl<l -The Santa Clara County Transportation
NJenr:y will prepare county priorities fer the base yew Cl? FoIIowlng approval by
the Transportation Commissioo and the Board of SuperIIisors, !he base year C!P
wiI be submitted 10 the CMA Governing Board as part of 1he CMP.
7·2 0eyeI00 PfPo/'ss fer Prepamq fu!ur! CtPs IRne Year Task) -The TAC wilT
develop guidefrnes fer use by !he CMA n prepamg MIn year CIPs and for
developing project priorities. These guidelines will be presented to !he CMA
Governing Board for approval.
7-3 Pr!!pars CIP 1Anrt.Ja! Task) -In fuWre years, the CMA wilT prepare and approve !he
County's CIP following !he guidelines developed n Task 7-2. The C!P wil! be
IWniIIed 10 the TAC and !he CMA Governing Board fer approval as part of !heir
amuaI CMP approval process.
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704 EyaluBll! and Priorj!jze c!p Pro/ec!s Ulmua! TIIS1<l • The CMA will evaluate
proposed1r8nSpOl1alion mprovement projects submitted by the cities, COIJI'IIy, and
_ uslng the COU'IIy\'IIde transpoItaIion model This evaluation will be one tool
used to dewlap a priori!ized list 01 projects for the CIP.
8 • Monitoring ItId Conformance Element
AI elements 01 the CMP must be moniIofed on an amuaI basis by the CIM. The
pupoee 01 monlomg is to detennine local oonfoImanc:e with the CMP and 10 provide
data to update the COL<lIyWide transporta1ion model.
One 01 the most crttica! duties 01 the CMA in Mure years will be determining
wheIher or not local govarMlents are in conIormance with !he CMP. locaJ agencies
which are found no! to be in conformance with the CMP are at risk 01 losing new gas tax
subven1ions.
The CMA Wll provide gulderones and fo<maIs for data conec!ion in !he CMP. Cities,
the COU'IIy, and the _ will provide the monitOling da1a 10 the CMA. The efIecIiveness
and acaxacy 01 !he amuaJ monitoring process will refy upon the use 01 COOSiSlenl
S1andards and me1hods for reponing data and for evaluating performance. The TAC
proposes 1ha1 eigh1 categories 01 data be conec1ed for the annual review. These
categories are:
f. Traflie Data • This includes traffic counts and Ievek>f·service nformation; l
will be used 10 morUlar roadway lOS conformance and to update !he
countywide lranSportBtion model and the CIP.
2. Transportalion System Data • This includes improvements 10 the regional
lranSportBtion system (pIamed, fundad, and built); I WIll be used to update
!he counIywide transpoItaIion model and the C1P.
3. Laod-Use Data • This data would summarize approved development
projects and General Plan amendments i11erms 01 size (e.g. !he number
25 Feb. 20, 1 1S11 •
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5.
B.
7.
8.
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!pM [)a!a -ThIs wi) h::Iuc:Ie existence Of a TUM ordinance and Its
al!edfvel MISS; t Wll be ueed to eartiIy conIormanc:e wlIt1 the CMP and to
evaluate TUM et!ec:dYeness 1Ior lIlT quality puposes.
Trans!!. Syl!!em Data -ThIs wiI! i'lcIude data pertaJrWlg to conIormanoe with
1r8nsiI standards lncIuded i'I the CMP.
()e!icIency Plan Data -ThIs Includes a description Of the status Of any
Defidancy Plans; I wi) be \I$8d to monIIot ptOgt ess and eIfI!ctiveness Of
DeIic:iency Plans.
CMP \..and..Use Analysis Program RBSU!!s -This data wi) consist Of
transportation i'I1pact analyses Of local \ancI-use decisions and the c:osts Of
mitigating those i'npacls.
Other Data Re!eyant to the CMP -These could i'lcIude special studies on
employment data trip generation, impact Of TUM ordinance eIIecIiveness,
capital inprovemants oost-banefit SluCISS, as weI as many others. They wi)
be \I$8d to help revise the CMP to better achieve Its goal of reduCing
congestion.
The specific data, formal, and level Of detal will depend upon decisjons made for
oIher elements. As Ihese decisions are made, the TAC wiI! develop data collection
guidelines for all eight ca!egoOes Of data described above.
The CMP legislation specifies that all elements Of the CMP must be mon~ored on
an amuaI basis. Therefore the MonitOri1g and ComprlMCe Bement is direC!ly inked to
all (>!her eIemen!s of the CMP.
Major [)ecjslons -Iming
8-1 Peterrnjns Monftoring Data (Base Year Tasl<l -The TAC. \IYtlUgh Its subcomm~
teas. Is Identifying the spedlic data required 1Ior moniItlrV1g (and developing)
F •. 20. 1881.
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b a iiipOO ta!ion condlIiOns on !he OVWIIII CMP system to ccmpensate for specific locations
which do nee meet 1IWeI-of.-vloe sIandards.
Oe!!dency Plans must also cause a aignfficant Improvement n air quaf.'Iy.
lheoeloo e, Oelicieuey Plans will ikely i'lcIude inpIementation of transportation contraj
_ (TCMs) developed bylhe Bay Area ~ CuaJ!Iy Management 0isIrict (BAAOMD).
The CMP legislation speciIiBe 1hat air distrlc:Is &hal establish and periodical1y revise fiSls
of approved improvements. programs. and a::IiOns to be considered .., Oe!iciency Plans.
(The BAAQMO does no! expecI to c:ornpIeIe !heir Jist until Januaty ,992.)
0eIiciency Plan measures would include coorcrUlaled, 1ong-1erm mltigalion
measures 1hat will benefit 1he overall system and could, for example, ncIude actions
which rnprove TOM eIIec!iveness. as weD as capl!aI imp<ovements. AccordIng 10 Ihe
CMP IBgislalion. DeIiciency Plans must r.cIude an action plan 10 address Ihe specific
de!iciency and 8 schedu!e for Impleman!ation.
Local governments must prepare and approve Deficiency Plans. The CMP
legislation provides spe::ilic public notice guideflll8S for Deficien..,. Plan preparation.
Following local approvar, Ihe CMA approves or disapproves Deficiency Plans by a simnar
process.
The oountywide lrar.spa1alion mocIel will be 01 cruc:ial irnpor1ance .., da1ermlning
whe1her Ihe Deficiency Plan inproves overall system aperatiooS as we" as regional air
quality and is. 1h«Bfore. acoeptable or not.
The CMA could establish (JUide1ines 10 assist klcaJ governments .., preparing
DeIiciency Plans, These guidelhes WOUld i1dlca!e when Deficiency Plans need 10 be
prepared and wha1 kfnLl of inprovaments (for example. TCMs) can be pari of !he
DeIIcietIcy Plans.
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This eIen I8I"t is direcI!y llri<ed to the \.OS Standards EIemenI. the TOM Element.
1he IMld-lJse AnalysIs Pragam ~ the Capita! rnprovemert Progam Element, the
MoI.'tc(,ilg and Confcfm8I'Iee Element. as well as the Transit StandatdS EIemenI.
1-1 Oeye!oo [)eIicjeocv Plan Guider!!J!!§ !Base Year Iaskl • The TAC will develop
preliminary guldelines fer OeIiciency Plans and lor CMA approval c:A Defic:iency
Plans. These guidelines may be n:Iuded as part c:A the base year CMP I
approved by the TAC and the CMA These guidelines wilT be deY&loped in more
detai11n future CMPs.
9-2 Ic!en!iIy Future De!icjenc:ies CAoouaI Taskl • The CMA wiD Identify facmties whiCh
may require a DeficIency Plan In the future. This idenIfficaticn WIlT be clelermined
using the ann.sa1 n.n c:A the c:cuntywide IranspCrtation model. ft could be used 10
alert IccaJ govemmenIS that adcfrtiooal c:apiIaI improwmenIs, Jncreased trans~
service, a more eIIec!ive TOM program, and/or IanckIse changes should be
considered 10 reduce transportation iT1pac!s on the CMP system.
9-3 Review and Approve local Deficiency PIar1s !Aooua! Task) • The CMA is
responsible fer approving 0eIiciency Plans prepared by IccaJ govelTVT1ems.
Approval Wll be based 01'1 standards set by the CMA basad on the CMP
legisla!ion.
Proposed CMP Documen1 QutRn.
An cutIine c:A Santa Clara County"s prcpcsed Congestion Management ProgrlIm
1& provided on the following page.
Feb.. :20, 1".
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PROI'OSED SANTA Ci.ARA COUNTY COHClESTlON MANAGEMENT pROOIIAJI
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1. EXECVTlVE SI.IMMARV
A. &.:fcground lor Plan ~
B. CMP I'ulX* c. CMP s...rm.y
2. CMP SYSlEM DEFlNITION ELEMENT
A. CMP Sy-.. DoI'nIIIon __
B. CMPSy-..DoI'nIIIon
3. TIW'F1C 1.EVE1.-Of-SERIIICE ELEMENT
A. Lew! 01 S_ EYONaIion TecIlniqUe & ~
e. le\aI cI Sliva StandWd
4. "lRA.1\ISIT SEl'MCE STANDARDS ELEMENT
A. Transl Sy-.. 0eIIniticn
B. _ F_ and Routing
c. CooodinIIian Among Multiple 0per.IIcq
O. ~ 10r TI'ar'U O~BrCprnanl
5. 1RIP RalUCTlON AND "lRA.va DEMAND MANAGEMEtrr ELEMENT
A. DescIfptioi I '" Tr1> Reduc!lon and Travel Demand Programs
B. ~ _ TIIp ReclUCtion ElemenI & Air CIuaDIy A8qlJiramenIs
6. CMP DATABAS£ AND COUIm'WIDE TRANSPORTAllON MODel. ELEMENT
A. DiUbase DIro '~mert
8. MOdel 08\ !1cprn81 t
c. Local Mode! Ccnsistency Deatrmination Pnx:ess
7. lAND USE IMPACT ANAL'ISIS PROGRAM ELEMENT
A. IniIIaI V_laid Use Analysis Program
B. _ FUIUnI I.Ml(I.Usa Analysis Techniques
8. CAPITAL IMPRO\IEMENT PROGRAM ELEMCNT
A. Capllal ~,tpo.,..",.,. Projed EvaJua60n Me!!>oOOIogy
B. 1992 County STlP Pricmy RaconvnendaIlon
B. ClIP ANNUAl. MON1TORINCl AND CONFClRMANCE ELEMENT
A. McnIICIlng and CorIotmance StroIegy
B. Trallic LewI-d-seMce Confonnance C. T ...... _ COnIonnanca
D. TOp Reduction and T1IIY8l Demand CooIcm\ance
E. lJInd.Use Impact Analysis ConIonnaroce
F. CapIaI ~ .......... Program Conformance
10. DEl'lCIENCY PlAN ELEMENT
A. DeIiciency Plan CluIdeIines and AppmvaJ Process
11. ClIP ENIIIRONMENTAL REVIEW (to be deI8rmined)
12. TECHNICAl. APPENOIC£S
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QIZ 8C.aTXONSHI P 10 ClWftR PI.AmfINC pROCEss E;s
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tr"IIf'*f t jII"Ori.,.. •
• lr .. Llty lftatrfCU. _ ........ COl.,...,
~» Flaw of influanca, co.aunicat{on, and intoraaticn.
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