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HomeMy WebLinkAbout4.4 Complete Streets Policy STAFF REPORT CITY CLERK File #820-10 CITY COUNCIL DATE:December 4, 2012 TO: Honorable Mayor and City Councilmembers FROM: Joni Pattillo, City Manager SUBJECT: Adoption of Complete Streets Policy Prepared by Obaid Khan, Senior Civil Engineer (Traffic/Transportation) EXECUTIVE SUMMARY: This item seeks City Council adoption of the City of Dublin’s Complete Streets Policy. Both the Alameda County Transportation Commission (Alameda CTC) and the Metropolitan Transportation Commission (MTC) now require local jurisdictions to adopt a Complete Streets Policy in order to receive local transportation sales tax (Measure B), Vehicle Registration Fee (VRF) funding, and OneBayArea (OBAG) Grant funds. FINANCIAL IMPACT: There is no cost associated with the adoption of this resolution. The City will benefit by being able to apply for the new OBAG program funds, maintain its eligibility to receive Measure B and VRF pass-through funding for the Local Streets and Roads, as well as the Bicycle and Pedestrian projects and programs. Staff time and consultant resources will be required to fulfill complete streets resolution provisions relating to implementation and monitoring. RECOMMENDATION: Staff recommends that the City Council adopt the resolution approving the City of Dublin’s Complete Streets Policy. Submitted By Reviewed By Director of Public Works Assistant City Manager DESCRIPTION: Complete streets are generally defined as streets that are safe and convenient for all users of the roadway which includes pedestrians, bicyclists, motorists, persons with disabilities, users and operators of public transit, seniors, children, emergency responders, and movers of commercial goods. Such streets also contribute to the health of the community because they are safer by design, and because they encourage physical activity. Complete Streets can also help reduce auto trips, which improve air quality and decrease greenhouse gas emissions. ITEM NO. ____4.4_____ Page 1 of 5 Over 400 communities in the United States have committed to building complete streets, through the adoption of complete streets policies. In Alameda County, the Alameda CTC requires that all jurisdictions must adopt a complete streets policy in order to maintain eligibility for receiving Measure B and VRF pass through funding. The MTC also requires the adoption of a complete streets policy in order to meet the OneBayArea (OBAG) grant requirements. Per the Alameda CTC requirements, a local complete streets policy must be adopted by June 30, 2013, while MTC requires that a policy be adopted by January 30, 2013. One policy may be adopted to meet both requirements. Staff has developed the attached complete streets policy resolution which meets both the Alameda CTC and MTC requirements. It also adheres to the City of Dublin’s goals and policies of the General Plan. BACKGROUND The term Complete Streets means much more than the physical change to a community’s streets. These streets should be appropriate to the function and context of the street and the abutting land uses, and are the result of comprehensive planning, programming, design, construction, operation, and maintenance. A complete streets policy ensures that, from the start, projects are planned and designed to meet the needs of community members, regardless of their age, ability, or how they travel. Such streets also encourage residents to use alternate modes of transportation such as bicycling and walking, thus reducing automobile trips. In the City of Dublin, there has been a significant increase in the use of walking and bicycling in the past few years. For example, data collected by an automated counter in the bike lane on Amador Valley Boulevard near Iron Horse Trail shows an increase of 46 percent in number of bicyclists using the bike lane since 2009. During the same time period, field data shows an increase of 56 percent in bicyclists and pedestrians using the Iron Horse Trail near the Dublin Bart Station. Similarly, there has been tremendous growth in the number of people bicycling and walking in Alameda County. Counts done by Alameda CTC show that, since 2002, bicycling has increased by 75 percent and walking by 47 percent. As more facilities are built, evidence shows that even more people will likely be attracted to these modes of transportation. At the same time, transit ridership has also been increasing, and this trend is expected to continue; the Alameda Countywide Transportation Plan projects that there will be a 130 percent increase in all daily transit trips in the county by 2035. As in the entire county, the older population in the City of Dublin is growing. In the 2000 Census, residents over the age of 65 represented five percent of the population. In the 2010 Census this segment of the population increased to seven percent. The similar trend can be found at the County level and expected to continue into the foreseeable future. In 2005, ten percent of Alameda County residents were 65 and older, but by 2035, seniors will make up almost 20 percent of the county’s population. At the other end of the age spectrum, more children are walking and bicycling to school, and this trend is expected to continue as the City of Dublin’s Safe Routes to Schools program continues to grow. The City of Dublin has been actively involved in Walk and Roll to School events, and has encouraged walking and bicycling to schools by implementing Safe Routes to School projects. City staff has also been working with individual schools and the Dublin Unified School Page 2 of 5 District staff to create Safe Routes to School maps. These maps encourage children and their parents to walk and bicycle to school. To address the needs of the seniors and children, the City of Dublin has made significant improvements in the transportation infrastructure. Some of the on-going programs and recently completed key projects include: annual sidewalk repair program that repairs and upgrades sidewalks and curb ramps; Alamo Canal Trail I-580 undercrossing; sidewalk replacement along Village Parkway in front of Dublin High School (a cooperative project with the Dublin Unified School District); pedestrian ramp installation and accessibility improvements in front of Fredericksen Elementary School; construction of traffic signal upgrades at San Ramon Road and Shannon Avenue intersection; and the installation of a new traffic signal at the Amador Valley Boulevard and Brighton Drive intersection. Regional and County Complete Streets Policy Requirements Both MTC and Alameda CTC have recently enacted requirements that local jurisdictions must have an adopted Complete Streets policy in order to receive or be eligible for certain transportation funding. Both of these requirements take effect in 2013. The MTC and Alameda CTC requirements are described below:  MTC Requirements: With Resolution 4035, MTC established the requirement that any jurisdiction that wishes to receive OBAG funding must, by January 31, 2013, either adopt a complete streets policy resolution that is consistent with regional guidelines, or have a general plan circulation element that is in compliance with the state Complete Streets Act (explained further below).  Alameda CTC Requirements: The current Master Program Funding Agreement (MPFA) between Alameda CTC and the City of Dublin, which was signed in May 2012, and allows the distribution of Measure B and VRF pass-through funding, includes a complete streets policy requirement. Local jurisdictions must adopt a complete streets policy that includes ten required elements, by June 30, 2013. Staff has developed the required policy elements to be consistent with the Alameda CTC’s complete streets policy and be complementary to the MTC requirement, so that the City of Dublin only needs to adopt one policy to be in compliance with both the Alameda CTC and MTC requirements. Development and Description of Complete Streets Policy Resolution The attached complete streets policy resolution (Attachment 1) is based on Alameda CTC’s resolution template. Staff has made changes to the template to better reflect the City of Dublin’s vision on complete streets, goals and policies in the transportation planning documents, and local design and maintenance standards. The template was further modified to elaborate circumstances when an exception to the policy could be claimed. These exceptions will enable the City to cost effectively and justifiably implement the policy, while maintaining local land use context and priorities. Furthermore, the attached resolution was developed in consultation with staff from the Community Development Department. This coordination also ensured that the draft policies are consistent with the upcoming update of the Circulation and Scenic Highways Element of the General Plan. Existing Efforts Supportive of Complete Streets in the City of Dublin Page 3 of 5 The City of Dublin already has several existing policies that support complete streets. These include policies within larger plans such as Dublin General Plan and the Bikeways Master Plan, as well as Specific Plans and guidelines such as the Downtown Specific Plan and the Fallon Village Design Guidelines. Some of the Key documents are listed below: The Dublin General Plan recommends an integrated multimodal circulation system that encourages pedestrian, bicycle, transit and other non-automobile transportation alternatives. City of Dublin Bikeways Master Plan recommends the completion and/or construction of 33 on- street and 27 off-street bikeways. The City of Dublin Parks and Recreation Master Plan calls for off-street paths linking community amenities such as parks, schools, open space areas, neighborhood retail and other destinations. The Downtown Specific Plan’s guiding principle calls for enhancing the multimodal circulation network to better accommodate alternative transportation choices including BART, bus, bicycle, and pedestrian transportation. The Eastern Dublin Specific Plan’s goal requires the provision of a circulation system that is convenient, efficient and encouragers the use of alternative transportation modes as a means of improving community character and reducing environmental impacts. Future Complete Streets Policy Requirements The California Complete Streets Act of 2008 (Assembly Bill 1358), which took effect in January 2011, requires cities and counties to include complete streets policies as part of their general plans. This must be done at the time that any substantive revisions of the circulation element in the general plan are made. To be eligible for future transportation funding cycles, MTC’s Resolution 4035 requires that local jurisdictions must have updated their general plan to comply with the state’s Complete Streets Act by October 31, 2014. The City of Dublin’s MPFA with Alameda CTC also requires that it comply with thestate act, but there is no deadline for this action. The City of Dublin is in the process of updating its General Plan’s Circulation and Scenic Highways Element and will incorporate the complete streets policies as part of this update. The General Plan update is expected to be completed by the summer of 2013, thus ensuring that the City remains compliant with the MTC Resolution 4035 and the Complete Streets Act of 2008 requirements. NOTICING REQUIREMENTS/PUBLIC OUTREACH: A copy of this staff report and the complete streets policy resolution was provided to the Alameda CTC’s Citizen Watchdog Committee members James Paxon, Chair, and Erik Jensen. A copy was also provided to the East Bay Bicycle Coalition. ATTACHMENTS: Page 4 of 5 1. Resolution Approving the Complete Streets Policy Page 5 of 5 Resolution No. -12 A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF DUBLIN * * * * * * * * * * * ADOPTING A COMPLETE STREETS POLICY WHEREAS, the term “Complete Streets” describes a comprehensive, integrated transportation network with infrastructure and design that allows safe and convenient travel along and across streets for all users, including pedestrians, bicyclists, persons with disabilities, motorists, movers of commercial goods, users and operators of public transportation, emergency responders, seniors, children, youth, and families; and WHEREAS, the City of Dublin recognizes that the planning and coordinated development of Complete Streets infrastructure within and across the city boundaries provides benefits for local governments in the areas of infrastructure cost savings; public health; and environmental sustainability; and WHEREAS, the City of Dublin acknowledges the benefits and value for the public health and welfare of reducing vehicle miles traveled and increasing transportation by walking, bicycling, and public transportation; and WHEREAS , the State of California has emphasized the importance of Complete Streets by enacting the California Complete Streets Act of 2008 (also known as AB 1358), which requires that when cities or counties revise general plans, they identify how they will provide for the mobility needs of all users of the roadways, as well as through Deputy Directive 64, in which the California Department of Transportation explained that it “views all transportation improvements as opportunities to improve safety, access, and mobility for all travelers in California and recognizes bicycle, pedestrian, and transit modes as integral elements of the transportation system”; and WHEREAS , the California Global Warming Solutions Act of 2006 (known as AB 32) sets a mandate for the reduction of greenhouse gas emissions in California, and the Sustainable Communities and Climate Protection Act of 2008 (known as SB 375) requires emissions reductions through coordinated regional planning that integrates transportation, housing, and land-use policy, and achieving the goals of these laws will require significant increases in travel by public transit, bicycling, and walking; and WHEREAS, numerous California counties, cities, and agencies have adopted Complete Streets policies and legislation in order to further the health, safety, welfare, economic vitality, and environmental wellbeing of their communities; and WHEREAS, the Metropolitan Transportation Commission, through its One Bay Area Grant (OBAG) program, described in Resolution 4035, requires that all jurisdictions, to be eligible for OBAG funds, need to address complete streets policies at the local level ATTACHMENT 1 through the adoption of a complete streets policy resolution or through a general plan that complies with the California Complete Streets Act of 2008; and WHEREAS, the Alameda County Transportation Commission, through its Master Program Funding Agreements with local jurisdictions, requires that all jurisdictions must have an adopted complete streets policy, which should include the “Elements of an Ideal Complete Streets Policy” developed by the National Complete Streets Coalition, in order to receive Measure B pass-through and Vehicle Registration Fund funding; and WHEREAS, the City of Dublin therefore, in light of the foregoing benefits and considerations, wishes to improve its commitment to Complete Streets and desires that its streets form a comprehensive and integrated transportation network promoting safe and convenient travel for all users while preserving flexibility, recognizing community context, and using design guidelines and standards that support best practices. NOW, THEREFORE, BE IT RESOLVED, by the City Council of the City of Dublin State of California, as follows: 1. That the City of Dublin adopts the Complete Streets Policy attached hereto as Exhibit A, and made part of this Resolution, and that said exhibit is hereby approved and adopted. 2. That the next substantial revision of the City of Dublin General Plan’s Circulation and Scenic Highways Element will incorporate Complete Streets policies and principles consistent with the California Complete Streets Act of 2008 (AB 1358) and with the Complete Streets Policy adopted by this resolution. PASSED, APPROVED AND ADOPTED this __th day of _______, 2012, by the following vote: AYES: NOES: ABSENT: ABSTAIN: ______________________________ Mayor ATTEST: _________________________________ City Clerk ATTACHMENT 1 Exhibit A This Complete Streets Policy was adopted by Resolution No. -12 by the City Council of the City of Dublin on December 4, 2012. COMPLETE STREETS POLICY OF THE CITY OF DUBLIN Vision: To create and maintain a safe and efficient transportation system that promotes the health and mobility of the City of Dublin citizens and visitors, support better access to businesses and neighborhoods and foster new opportunities. A. Complete Streets Principles 1. Complete Streets Serving All Users and Modes. The City of Dublin expresses its commitment to creating and maintaining Complete Streets that provide safe, comfortable, and convenient travel along and across streets (including streets, roads, highways, bridges, and other portions of the transportation system) through a comprehensive, • integrated transportation network that meets the requirements of adopted current transportation plans and General Plan; and serves all categories of users; including pedestrians, bicyclists, persons with disabilities, motorists, movers of commercial goods, users and operators of public transportation, emergency responders, seniors, children, youth, and families. 2. Context Sensitivity. In planning and implementing street projects, departments of the City of Dublin will maintain sensitivity to local conditions and needs in both residential and business districts as well as urban, suburban, and rural areas; and will work with residents, merchants, and other stakeholders to ensure that a strong sense of place ensues. Depending upon local conditions and needs, improvements that will be considered include travel lanes that accommodates commercial and transit vehicles, sidewalks, shared use paths, bicycle lanes, bicycle routes, paved shoulders, traffic signals, trails, street trees and landscaping, planting strips, accessible curb ramps, crosswalks, refuge islands, pedestrian signals, signs, street furniture, bicycle parking facilities and lockers, public transportation stops and facilities, transit priority signalization, and other features assisting in the provision of safe travel for all users, such, and those features identified in the adopted transportation plans. 3. Complete Streets Routinely Addressed by All Departments. All relevant departments of the City of Dublin will work towards making Complete Streets practices a routine part of everyday operations, approach every relevant project, program, and practice as an opportunity to improve streets and the transportation network for all categories of users, and work in coordination with other departments, agencies, and jurisdictions to maximize opportunities for Complete Streets and network connectivity within and across the City boundary. - -- - ATTACHMENT 1 4. All Projects and Phases. Complete Streets infrastructure sufficient to enable reasonably safe travel along and across the right of way for each category of users adhering to local conditions and needs will be incorporated into all planning, funding, design, approval, and implementation processes for any construction, reconstruction, retrofit, maintenance, operations, alteration, or repair of streets (including streets, bicycle paths, trails, roads, highways, bridges, and other portions of the transportation system), except that specific infrastructure for a given category of users may be excluded if an exception is approved via the process set forth in section C.1 of this policy. B. Implementation 1. Design. The City of Dublin will generally follow its own accepted or adopted design standards, including General Plan and specific plans, Standard Plans and Specifications, and Bikeways Master Plan, and will also evaluate using the latest design standards and innovative design options, with a goal of balancing user needs. 2. Network/Connectivity. The City of Dublin will incorporate Complete Streets infrastructure into existing streets to improve the safety and convenience of all users, with the particular goal of creating a connected network of facilities accommodating each category of users, and increasing connectivity across jurisdictional boundaries and for anticipated future transportation investments. 3. Implementation Next Steps. The City of Dublin will take the following specific next steps to implement this Complete Streets Policy: A. Plan Consultation and Consistency: Maintenance, planning, and design of projects affecting the transportation system will be consistent with the City of Dublin General Plan and bicycle, pedestrian, transit, multimodal, and other relevant plans. B. Stakeholder Consultation: Develop and/or clearly define a process to allow for stakeholder involvement on projects and plans including, but not limited to, commercial and transit service providers, emergency responders, bicycle and pedestrian advisory groups and/or other advisory organizations, as defined necessary to support implementation of this Complete Streets policy by the City of Dublin. C. Encourage developers and private land owners to implement complete streets in private developments through the consistent application of the complete streets elements as defined in this resolution. 4. Performance Measures. All relevant departments will perform evaluations of how well the streets and transportation network of City of Dublin are serving each category of users by collecting baseline data and collecting follow-up data on a regular basis. ATTACHMENT 1 C. Exceptions Exception Approvals. A process will be developed for approving exceptions 1. that require deviation(s) from the adopted General Plan and transportation plans and exceeds or does not qualify under the following listed exceptions in C-1. Written findings for exceptions must be included in a memorandum, signed off by the Public Works Director, and made publicly available. Exceptions must explain why accommodations for all users and modes were not included in the plan or project. C-1 Specific Exceptions: Accommodations under the Complete Streets Policy for the City of Dublin may not be necessary on transportation corridors where: A. Specific users are prohibited, such as interstate freeways or pedestrian malls. B. The cost of establishing bikeways or walkways would be excessively disproportionate to the need or probable use. Excessively disproportionate is defined as exceeding twenty percent of the cost of the larger transportation project. The twenty percent figure should be considered as a guide and not an absolute number. C. Documented absence of current and future need as determined by the local and/or regional approved planning documents. D. There is no existing or planned transit service, and therefore no need to provide transit and transit supporting facilities. E. Routine maintenance of the transportation network that does not change the roadway geometry or operations, such as mowing, sweeping, and spot repair. F. Reasonable and equivalent project along the same corridor is already programmed to provide facilities exempted from the project at hand. G. Accommodations are physically impossible to construct/implement. ATTACHMENT 1