HomeMy WebLinkAbout2016-08-23; City Council; ; Approve resolution to authorize execution of MOU between SANDAG and city of Carlsbad for a Carlsbad Transportation Demand Management ProgramCA Review P-«___
CITY COUNCIL
Meeting Date
To:
From:
Staff Contact:
Subject
August 23, 2016
Mayor and City Council
Kevin Crawford, City Manage\VV
Lolly Sangster, Program Manager
lolly.sangster@carlsbadca.gov or 760-602-2772
Approve a Resolution to Authorize the Execution of the Memorandum of
Understanding between the San Diego Association of Governments and
the City of Carlsbad, California, for a Carlsbad Transportation Demand
Management Program.
Recommended Action
Approval of a Resolution to authorize the execution of the Memorandum of Understanding
(MOU) between the San Diego Association of Governments (SANDAG) and the City of Carlsbad,
California, for a Carlsbad Transportation Demand Management (TDM) Program.
Executive Summary
This action authorizes the city to work with SANDAG to write a Transportation Demand
Management Program, consistent with Measure K, Action K-1 in the city's Climate Action
Plan. This action is also consistent with the Mobility Element ofthe city's General Plan as well as
aligning with the Council goal to become a leader in multimodal transportation systems and
creative approaches to moving people and goods through and within Carlsbad.
Discussion
The approval of the SANDAG MOU will start a collaborative and innovative approach to develop
a TDM Program. A TDM Program was identified in the Mobility Element of the General Plan as a
way to help people utilize the infrastructure in place for a more balanced use of travel that
includes transit, ride-sharing, walking and biking. When the number of vehicle miles traveled are
reduced it helps the city meet state goals for reducing greenhouse gases, while supporting a
community goal of promoting a sustainable environment, as identified in the Climate Action Plan.
It also aligns with the Council's goal to become a leader in multimodal transportation systems
and creative approaches to moving people and goods through and within Carlsbad.
Working with the SANDAG's TDM program experts will create an opportunity for the city to lead
the Carlsbad community and the region in attaining the active transportation goals adopted by
the city. The development of the TDM Program over the next two years will start with training
workshops for both staff and external stakeholders on what programs and services are available
to inform, encourage and incentivize organizations to understand and use all transportation
Item #1 August 23, 2016 Page 1 of 24
options. This will help the community determine which travel mode options could and should be
optimized to create a balanced transportation system in Carlsbad.
Based on the feedback collected during the training workshops, the TDM team will help the city
develop a TDM Ordinance and Implementation Manual that will convey applicability of the
various TDM travel options, requirements for reducing vehicle miles traveled, and monitoring.
The Implementation Manual will be converted into an interactive PDF that allows users to
seamlessly navigate through available TDM strategies based on a development's or employer's
unique characteristics. Finally, a commuter benefit program will be customized for City of
Carlsbad employees to help them recognize opportunities to reduce single occupancy vehicle
travel to and from work, and to and from the many amenities and services in Carlsbad.
Carlsbad Municipal Code Section 3.28.100 allows for the purchase of goods and/or services
through cooperative purchase agreements established by another agency when that agency has
made their purchase in a competitive manner. The purchasing officer has agreed with staff's
conclusion that it would be advantageous and in the city's best interests to use SANDAG's Service
Bureau compared to the traditional RFP approach since they pre-qualified the consultants based
on this specific discipline listed in this scope of work.
Fiscal Analysis
The MOU between SANDAG and the City of Carlsbad shall be a 'not to exceed' amount of
$250,000. Up to $220,000 shall be for consultant services based on the framework identified by
the stakeholders. Up to $30,000 shall be for SAN DAG Service Bureau costs. Funds for the MOU
are available in the current Fiscal Year Operating Budget for Public Works.
Next Steps
Staff will work with the SANDAG TDM experts to select a consultant (through SANDAG's TDM on-
call consultant list) and implement the tasks listed in the MOU, which include: educational
trainings, collaborative development of a TDM Program, an Ordinance, and Implementation
Manual. Staff will return to the City Council to adopt the program developed by staff and
community stakeholders.
Environmental Evaluation (CEQA)
Pursuant to Public Resources Code section 21065, this action does not constitute a "project"
within the meaning of CEQA in that it has no potential to cause either a direct physical change in
the environment, or a reasonably foreseeable indirect physical change in the environment, and
therefore does not require environmental review.
Climate Action Plan Consistency
This TDM Program is consistent with Measure K of the Climate Action Plan. Action K-1 states
"Adopt a citywide transportation demand management {TOM} plan, as described in the General
Item #1 August 23, 2016 Page 2 of 24
Plan Mobility Element, detailing a mix of strategies to reduce travel demand, specifically of single
occupancy vehicles."
Public Notification
Community stakeholder involvement as included in the MOU with SANDAG.
Exhibits
1. Resolution authorizing execution of the MOU between SANDAG and the City of Carlsbad,
California, for a Carlsbad Transportation Demand Management Program.
2. Integrating Transportation Demand Management Into the Planning and Development
Process -short version, www.sandag.org/TDM.
Item #1 August 23, 2016 Page 3 of 24
,--t •/( ;' (_ ,,
RESOLUTION NO. 2016-167
A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF CARLSBAD,
CALIFORNIA, APPROVING THE EXECUTION OF THE MEMORANDUM OF
UNDERSTANDING BETWEEN THE SAN DIEGO ASSOCIATION OF
GOVERNMENTS AND THE CITY OF CARLSBAD, CALIFORNIA, FOR A
CARLSBAD TRANSPORTATION DEMAND MANAGEMENT PROGRAM.
WHEREAS, the City Council of the City of Carlsbad, California has determined that the city has
worked with the San Diego Association of Governments (SANDAG) on many regional active
transportation projects; and
WHEREAS, SANDAG is a regional government agency with member agencies in the San Diego
region including Carlsbad; and
WHEREAS, SANDAG has extensive expertise in Transportation Demand Management (TDM)
services, has developed a TDM guidebook and workshop series, and has a desire to support member
agencies with integration of TDM into the development process; and
WHEREAS, Carlsbad desires to develop a formal TDM Program to support policies included in
its General Plan and Climate Action Plan; and
WHEREAS, in order to expedite development of the formal TDM Program, Carlsbad desires to
enter into an MOU with SANDAG in order to access on-call professional services via the SANDAG Service
Bureau to develop the Carlsbad TDM Program.
NOW, THEREFORE, BE IT RESOLVED by the City Council of the City of Carlsbad, California, as
follows:
1. That the above recitations are true and correct.
2. The authorization and approval of entering into a Memorandum of Understanding
between the SANDAG and the City of Carlsbad for a Carlsbad TDM Program in an amount
not to exceed $250,000, and attached hereto as Attachment A.
Item #1 August 23, 2016 Page 4 of 24
PASSED, APPROVED AND ADOPTED at a Regular Meeting of the City Council of the City of
Carlsbad on the 23rd day of August, 2016, by the following vote, to wit:
AYES: Hall, Wood, Schumacher, Blackburn, Packard.
NOES: None.
ABSENT: None.
(SEAL)
Item #1 August 23, 2016 Page 5 of 24
MEMORANDUM OF UNDERSTANDING
BETWEEN THE SAN DIEGO ASSOCIATION OF GOVERNMENTS
AND THE CITY OF CARLSBAD
FOR CARLSBAD TRANSPORTATION DEMAND MANAGEMENT PROGRAM
SANDAG CONTRACT NO. 5004878
This D(lemorandum of Understanding {"MOU") is made and entered into effective as of this
~ay of August 2016, {the "Effective Date") by and between the San Diego Association of
Governments {"SANDAG"), acting through its Service Bureau, and the City of Carlsbad
{"CARLSBAD"), collectively "the Parties."
RECITALS
The following recitals are a substantive part of this MOU:
WHEREAS, SANDAG is a regional government agency with member agencies in the
San Diego region including CARLSBAD; and
WHEREAS, SANDAG has extensive expertise in Transportation Demand Management {TOM)
services, has developed a TOM guidebook and workshop series, and has a desire to support member
agencies with integration of TOM into the development process; and
WHEREAS, CARLSBAD desires to develop a formal TOM program to support policies included
in its General Plan and Climate Action Plan, and
WHEREAS, SANDAG on-call consultants have experience in developing formal TOM
programs including TOM training and implementation strategies, and
WHEREAS, in order to expedite development of the formal TOM program, CARLSBAD
desires to enter into an MOU with SANDAG in order to access on-call professional services via the
SANDAG Service Bureau to develop the CARLSBAD TOM program, including those key tasks
described in General Scope of Work, attached to this MOU as Exhibit A.
AGREEMENT
THEREFORE, the Parties agree as follows:
CARLSBAD AGREES:
1. CARLSBAD will serve as Project Manager and will be responsible for:
a. Providing project oversight and, in coordination with SANDAG, direction to the SANDAG
TOM consultant to develop the CARLSBAD TOM Program; and
b. Developing the consultant scope of work and schedule for use by SANDAG; and
c. Participating in the selection of a consultant; and
Item #1 August 23, 2016 Page 6 of 24
d. In consultation with SANDAG staff, directing the work of the consultant; and
e. In coordination with SANDAG, reviewing and approving consultant tasks and
deliverables; and
f. Reviewing invoices and providing input to SANDAG regarding payment for consultant's
services.
2. CARLSBAD will reimburse SANDAG for costs incurred for work associated with Project tasks
including, but not limited to, SANDAG fully loaded labor costs including the Service Bureau
Regional Information System fee, SANDAG reimbursable costs, and for contracted consultant
services.
SANDAG AGREES:
1. SANDAG will serve as Contract Manager and will be responsible for administering the
consultant services including:
a. Working with CARLSBAD to finalize the scope of work for consultant services; and
b. Procuring the consultant according to proper procurement procedures and
administering the consultant task order; and
c. Managing the consultant to ensure project timelines are met and tasks and deliverables
are completed in a satisfactory manner to both SANDAG and CARLSBAD; and
d. Providing contract oversight to ensure the proposed work is consistent with the project
scope of work in addition to the terms and conditions provided in the agreement
between SANDAG and the consultant;
e. Reviewing and providing input to CARLSBAD on consultant tasks and deliverables; and
f. Paying consultant invoices after obtaining approval from CARLSBAD; and,
2. SANDAG will provide general guidance to CARLSBAD to develop the TDM Program; and
3. SANDAG will attend up to 18 Project Team meetings; and
4. SANDAG will send quarterly invoices to CARLSBAD in order to be reimbursed for all payments
made directly to consultant and for SANDAG related costs.
THE PARTIES MUTUALLY AGREE:
1. Any correspondence required or permitted under this MOU, including invoices, may be
personally served on the other party, by the party giving notice, or may be served by
certified mail, return receipt requested, to the following addresses:
2 Item #1 August 23, 2016 Page 7 of 24
For SANDAG Service Bureau
401 B Street, Suite 800
San Diego, CA 92101
Attention: Cheryl Mason
Email: cheryl.mason@sandag.org
Phone: (619) 699-1951
For CITY OF CARLSBAD
1635 Faraday Avenue
Carlsbad, CA 92008
Attention: Lolly Sangster
Email: lolly.sangster@carlsbadca.gov
Phone: (760) 602-2772
2. The term of the agreement is the effective date of the agreement through August 31, 2018,
unless extended by written agreement of the Parties.
3. CARLSBAD shall pay a total not to exceed $250,000 to SANDAG, of which $30,000 will be for
SANDAG Service Bureau's costs, including SANDAG miscellaneous reimbursable expenses,
and up to $220,000 for consultant services costs. For services rendered by SANDAG pursuant
to this Agreement, SANDAG shall be paid a total not to exceed $250,000. This amount shall
be known as the "Maximum Amount of the Agreement." Should additional work be
needed under this scope that exceeds the maximum amount of the agreement, CARLSBAD
shall notify SANDAG and an amendment would be issued prior to conducting the additional
work.
4. CARLSBAD shall pay SANDAG for services within 30 days after the invoice date.
5. It is agreed that SANDAG is an independent contractor and is not an agent or employee of
CARLSBAD.
6. All documents and other information developed or received by SANDAG shall be the
property of CARLSBAD. SANDAG will keep a copy of work as part of the project file and
shall provide CARLSBAD with all original work products arising from this Agreement upon
demand or upon termination of this Agreement and payment by CARLSBAD. CARLSBAD
acknowledges that SANDAG is a public agency, and as such all records, emails, documents,
drawings, plans, specifications, and other materials in SANDAG's possession, or the
possession of SANDAG's consultant, including materials submitted by CARLSBAD, are subject
to the provisions of the California Public Records Act (Government Code Section 6250 et
seq.). Any reports, information, data, etc., given to SANDAG under this Agreement that
CARLSBAD has marked as confidential or for deliverables prepared or assembled by
SANDAG that CARLSBAD requests SANDAG to mark as confidential, will not be disclosed to
the public without CARLSBAD's knowledge or a court order. Upon request by SANDAG and
written approval by CARLSBAD, SANDAG shall have the right to use such work product for
other projects.
7. SANDAG and CARLSBAD agree to hold each other and their respective elective and
appointive boards, officers, agents and employees harmless from any and all claims,
liabilities, expenses or damages of any nature, including attorneys' fees, for injury or death
of any person, or damage to property, or interference with use of property, arising out of or
in any way connected with their respective comparative fault under this Agreement.
8. Either party may at any time terminate this Agreement for any reason, or no reason, by
giving 45 calendar days' written notice of termination. Upon termination, SANDAG will be
3 Item #1 August 23, 2016 Page 8 of 24
paid the reasonable value for services actually performed, based upon the compensation
and payment provisions set forth in this Agreement.
9. This Agreement constitutes the entire Agreement between the parties and supersedes any
previous agreements, oral or written. This Agreement may be modified only by subsequent
mutual written amendment to the agreement executed by the parties.
10. This Agreement shall be construed in accordance with the laws of the State of California.
Any action commenced about this Agreement shall be filed in the San Diego County
Superior Court. In the event of any such litigation between the parties, the prevailing party
shall be entitled to recover all reasonable costs incurred, including reasonable attorneys'
fees, as determined by the court.
11. This Agreement shall be interpreted as though prepared by both parties. Article headings in
this Agreement shall not be used to alter the plain meaning of the text in this Agreement.
12. The persons executing this Agreement on behalf of the parties warrant that they are duly
authorized to execute this Agreement.
13. SANDAG proposes to assign Cheryl Mason as its Contract Manager and Marisa Mangan as its
Project Manager to provide supervision and have overall responsibility for this Agreement.
The Contract Manager and Project Manager shall not be removed from the project or
reassigned without prior approval of CARLSBAD.
IN WITNESS WHEREOF, the Parties have executed this MOU effective on the day and year
first above written.
SAN DIEGO ASSOCIATION OF GOVERNMENTS
lL-t~~ KURT KRONI GER
Department Director of Technical Services
APPROVED AS TO SUFFICIENCY
OF FORM AND LEGALITY:
Exhibit:
Exhibit A: General Scope of Work
4
Mayor
APPROVED AS TO SUFFICIENCY
OF FORM AND LEGALITY:
~u....~ Legal Counsel
Item #1 August 23, 2016 Page 9 of 24
PROJECT DESCRIPTION
EXHIBIT A
GENERAL SCOPE OF WORK
Supporting member agencies with expanding transportation demand management (TDM) policies
and programs is a recommended strategy in San Diego Forward: The Regional Plan. SANDAG staff
developed a guidebook for local jurisdictions on integrating TDM into their planning and
development processes in 2012. Subsequently, SANDAG converted the guidebook into a training
program/workshop series in 2014. CARLSBAD is seeking professional services from the SANDAG
consultant team to adapt and customize the workshop materials to inform the development of a
formal TDM program for CARLSBAD pursuant to the city's recently adopted General Plan and
Climate Action Plan.
GENERAL SCOPE OF WORK
CARLSBAD and SANDAG will use the following key tasks to guide the development of a detailed
scope of work and procure professional consultant services to develop the Carlsbad TDM program.
1. Research TDM strategies for cities, employers, and developers and provide a detailed summary
of case study research.
2. Prepare and conduct TDM training workshops for City of Carlsbad staff to enhance their
understanding of traditional and emerging TDM strategies and how they can be integrated
into a formal TDM program.
3. Coordinate and facilitate a series of internal working group sessions comprised of key city
staff, SANDAG TDM division staff, and TDM consultant to determine how the TDM program
could be applied to various developments and employment sites while also establishing
measurable program goals.
4. Conduct an agreed upon number of workshops to obtain feedback on all aspects of TDM
program development from a CARLSBAD Stakeholder Advisory Group potentially composed
of employers, business associations/chamber representatives, developers and building
association representatives, advocacy groups, and community planning groups.
5. Develop a formal TDM ordinance and implementation manual that clearly conveys
applicability, requirements, monitoring, and enforcement details as well as an administration
plan and budget.
6. Develop a customized commuter benefit program for the City of Carlsbad aimed at reducing
single-occupant vehicle trips among city employees.
The above referenced task is to be completed within two years of the executed agreement.
5 Item #1 August 23, 2016 Page 10 of 24
Integrating Transportatio~ Demand
Management Into the Planning
and Development Process
a reference for cities
prepared in partnership with HNTB
HNTB
Item #1 August 23, 2016 Page 11 of 24
Acknowledgements
.:OMMITTE7-5 AND OTHER WORKING GROUPS
Transportation Committee
Regional Planning Committee
San Diego Regional Planning Technical Working Group
Cities/County Transportation Advisory Committee
San Diego Regional Traffic Engineers Council
IT:
Antoinette Meier, Associate Regional Planner, Project Manager
Dan Martin, Principal Planner, iCommute
Maria Filippelli, Regional Planner II
Elizabeth Young, AICP, Senior Planner/Associate Vice President
Richard Hawthorne, P.E., Senior Project Manager
Anna Borrell Rovira, E.I.T., Engineer I
Integrating Transportation Demand Management into the Planning and Development Process ii
Item #1 August 23, 2016 Page 12 of 24
1. Transportation Demand Management (TDM) and San Diego Region Jurisdictions ................................... 1
2. WhyTDM? .................................................................................................................. : .......................... 3
3. How TDM Fits into the Local Planning Process ........................................................................................ 5
Long Range Plans: ....................................................................................................................................................... 5
Types of Long-Range Plans .......................................................................................................................................... 5
Mid-Range Plans: ........................................................................................................................................................ 7
Types of Mid-Range Plans ............................................................................................................................................ 7
Short Range Plans: ...................................................................................................................................................... 9
Types of Short-Range Plans: ........................................................................................................................................ 9
4. Implementation of TDM ....................................................................................................................... 10
Urban Design, Site Development and Parking ............................................................................................................ 1 0
Urban Design ............................................................................................................................................................ 1 O
Site Development ...................................................................................................................................................... 12
Trip Reduction Ordinances ......................................................................................................................................... 13
Development Agreements ......................................................................................................................................... 15
Employer Commute Trip Reduction Programs ............................................................................................................ 17
Parking Strategies ......................... _ ............................................................................................................................ 20
Developing Successful TOM Strategies and Programs ................................................................................................. 24
Table 1: TDM Strategies Matrix .................................................................................................................................. 25
5. Managing and Monitoring TDM ............................................................................................... , ........... 26
Managing TOM Programs .......................................................................................................................................... 26
Measuring the Success of TDM Strategies & Programs ............................................................................................... 26
Measuring Success .................................................................................................................................................... 27
Cash for Commuters 2007 and 2008 Program Results ............................................................................................... 27
Table 2: TDM Strategies Evaluation Matrix ................................................................................................................ .30
Appendices ................................................................................................................................................... 34
A. Resources ................................................................................................................................................. 35
Program Support .............................................................................................................................................. .-........ 35
Regional Commuter Assistance Program .................................................................................................................... 35
Parking Tools ............................................................................................................................................................ 36
Land Use Tools .......................................................................................................................................................... 36
Design Guidelines ..................................................................................................................................................... 36
Funding Opportunities for Capital and Planning Projects ........................................................................................... .37
B. Participating in TDM Outside of the Planning and Development Process ................................................... 37
C. Sample Trip Reduction Ordinance -Cambridge, MA ................................................................................ 39
D. Sample Employer Trip Reduction Ordinance -Santa Monica .................................................................... 45
6. Works Cited ......................................................................................................................................... 47
Integrating Transportation Demand Management into the Planning and Development Process iii •
Item #1 August 23, 2016 Page 13 of 24
1. Transport~tion Demand Management (TOM) and San Diego
Region Jurisdictions
The San Diego region has grown rapidly over the last 40 years with a population increase of nearly 60 percent According to the
2050 Regional. Growth Forecast, the population will continue to grow by an additional 33 percent reaching 4.4 million residents
in the next 40 years. Meeting the transportation needs of this growing population requires a comprehensive and multimodal
approach. Some solutions include capital projects like new rail infrastructure, High Occupancy Vehicle (HOV) lanes, managed
lanes, and bicycle network improvements. Other solutions include enhanced or increased public transit services such as
Bus Rapid Transit, trolley, and commuter rail. While these projects require considerable time and resources to plan and
implement, programs and services that reduce or manage travel demand (Transportation Demand Management or TDM) are
cost effective, flexible, and can be executed in shorter time frames. While TDM will not eliminate the need for new
transportation infrastructure or services, it does contribute to the effective and efficient use of the region's transportation ,
infrastructure.
Defining TDM: TOM refers to a variety of strategies that change travel behavior (how, when, and where people travel) in
order to improve transportation system efficiency and achieve key regional objectives, such as reduced traffic congestion,
increased safety and mobility, and energy conservation and emission reductions (Victoria Transport Policy Institute).
Typical TOM programs reduce Single Occupant Vehicle (SOV) trips through ridesharing initiatives such as carpooling and
vanpooling; alternative work schedules and teleworking; and the use of
transit, biking, and walking to work. However, TOM strategies should not be
limited to just commute trips. TOM strategies, programs, and plans are most
effective when considered for all trips and at all geographic levels-from a
specific site, to a neighborhood, city, and regional or state levels -creating a
comprehensive and coordinated approach.
TDM is a key component of the San Diego 2050 Regional Transportation
Plan (2050 RTP) and its Sustainable Communities Strategy (SCS) as a way to
ease traffic congestion and reduce air pollution, while improving the
commute for thousands of San Diego region residents. TOM programs play a
critical role in achieving regional Greenhouse Gas (GHG) emissions to state-
mandated levels and are incorporated into SCS, a required element of the
TDM is a key component of the
2050 Regional Transportation
Plan and Sustainable
Communities Strategy as a cost-
effective means for easing
traffic congestion and reducing
air pollution, while improving
the commute for thousands of
San Diego region residents.
2050 RTP, per California Senate Bill 375. The SCS details how integrated land use and transportation planning will lead to
lower GHG emissions and a more sustainable future for the San Diego region.
iCommute is the TDM program for the San Diego region. iCommute programs encourage and incentivize sustainable
transportation choices by providing free online ridematching services, a regional vanpool program, transit support, bicycle
encouragement programs, the Guaranteed Ride Home program, and SchoolPool. Participation by commuters and
employers in TDM programs is voluntary in the San Diego region. In the early 1990s, TDM regulations in the San Diego
region required employer trip reduction plans. These regulations were enacted when the federal government designated
the region's air quality as "severe." In 1995, the federal government re-classified the region's air quality designation from
"severe" to "serious," and the TDM regulation~ were rescinded.
In a voluntary environment, commuters base their travel choices on a desire to save time and money, reduce stress,
improve the environment and their health, and other considerations. Employers offer TDM benefits that are easy to
Integrating Transportation Demand Management into the Planning and Development Process 1 •
Item #1 August 23, 2016 Page 14 of 24
implement and make business sense by helping to attract and retain employees and reduce overhead costs. Without
regulatory tools, the iCommute TDM strategy is to address these personal and business motivations with targeted
outreach, education and public awareness campaigns combined with the resources and incentives needed to change
travel behavior.
iCommute's partnerships with employers have proven to be the most effective method for promoting alternative travel
choices among the region's commuters. This is partly because TOM programs can be tailored to the transportation needs
of employees at their specific place of work. iCommute's initial outreach and education efforts have focused on the
region's largest employers and they have partnered with over 170 employers to promote TDM and develop customized
commute programs that meet employer and employee needs. To further assist employers, iCommute developed a
comprehensive Commuter Benefit Program Starter Kit that outlines a simple, three-step process to help employers
identify their commute design a custom program, and roll it out to their employees. The kit includes sample
policies, forms, tax deduction information, commuter program descriptions, and examples of best practices from other
companies and agencies. It also includes advice and sample materials for how to market a commuter program to
employees. iCommute staff is available to works one-on-one with employers to provide the technical assistance they may
need, such as surveying for employee travel preferences, mapping employee commute routes, and developing a
customized plan that makes business sense. These employer resources are envisioned to work together with the TDM
strategies that are presented in this reference study.
Role of Local Governments in TDM: Local governments play a critical role in TOM planning and implementation. Land
use, urban design, and parking are all under the jurisdiction of local governments and are essential in influencing
travel choice and demand. Efficient land use and urban design can reduce the need for auto travel for daily trips, and
appropriate parking supply and pricing can encourage the use of alternative modes of transportation.
Local jurisdictions in the San Diego region are in a unique position to implement a broad range of TDM strategies at many
different points in the development process. While the state and region can enact legislation and set broad policies, local
governments have the ability to guide the implementation of TDM strategies through the planning process using short
and long-range plans, and can implement TDM c+rc,+o,,,ac through development agreements, zoning, policies, and
ordinances.
Jurisdictions are becoming increasingly aware of the link between travel choices and land use patterns and policies.
They are recognizing that an individual traveler's mode choice -be it auto, carpool, vanpool, transit, walking, or biking -
is significantly influenced by how communities are designed and developed. As such, the following chapters identify how
TOM strategies can be proactively incorporated into the planning and land development process, influencing localized
land use patterns and site development to better manage and reduce auto travel demand and particularly SOV travel. The
study also outlines and
process.
examples of supportive policies that encourage non-SOV trips through the development
To support TOM goals laid out in the 2050 RTP and SCS, iCommute has developed this guidance to provide SANDAG
member agencies (policy makers, planners, traffic engineers, and land development proposal reviewers) with:
• Case studies and resources for integrating TOM throughout the various land development stages from
long-range planning to site development
• Recommendations for managing, monitoring, and evaluating the effectiveness of TDM strategies
This guide will define the value of TOM programs, describe how TOM can be integrated into many jurisdictional plans,
identify how a wide range of strategies can be applied at different stages of the development process, and discuss the
Integrating Transportation Demand Management into the Planning and Development Process 2
Item #1 August 23, 2016 Page 15 of 24
important but often overlooked task of monitoring the implementation and success of TOM strategies and policies.
Additionally, Appendix C provides recommendations and resources for promoting and encouraging voluntary public
participation in TOM programs outside of the planning and development process.
2. WhyTDM?
TOM strategies address key regional policy objectives related to quality of travel, livability, and sustainability. At the
regional level, the SANOAG iCommute program coordinates a number of programs that increase the number of people
who carpool, vanpool, use transit, bike, and walk to work, as well as
providing information on telework and alternative work schedules. However,
for TOM to be truly effective, it must be supported by land use policies and
neighborhood design that reduce the need to drive for daily tasks. Including
TOM in the municipal planning and development process offers a broad
range of economic, environmental, and public healt~ _benefits to local
governments, their citizens and businesses:
TDM maximizes returns on infrastructure spending and reduces the
need for new or widened roads -TOM is a cost-effective way to build
capacity in a community's transportation system by expanding participation
in alternative modes (carpools, vanpools, transit, biking, walking, and
teleworking) instead of widening or building new roads, which are costly to
construct and maintain.
TDM reduces parking demand -TOM incorporated into development
reduces SOV auto trips and the need for parking, reducing the cost and
burden for jurisdictions and developers to provide more parking capacity.
TDM helps to meet environmental and air quality goals -TDM
improves air quality by encouraging alternatives to the SOV, reducing
According to the 2008 Seattle
Urban Mobility Plan (City of
Seattle Department of
Transportation), the City of
Bellevue, WA was able to reduce !
the drive alone commute rate in
downtown Bellevue by
30 percent between 1990 and
2000, due to their
implementation of TDM
strategies as required by the
State's Commute Trip Reduction
Act (Washington State
Department of Transportation).
congestion, and corresponding vehicle related emissions. TDM can help to preserve green space by reducing the amount
of land needed for roads and parking facilities. TOM can reduce storm water management costs by encouraging more
efficient land use patterns (Victoria Transport Policy Institute).
TDM is adaptable and dynamic -TDM can be customized for specific events, neighborhoods, corridors, work sites,
and time frames. Unlike new infrastructure, TDM programs can easily adapt and respond to economic and population
changes.
TDM provides benefits to the public:
• Reduced costs for commuters. TDM is not only cost effective for local governments but access to low-cost
commuting alternatives can cut individual transportation costs by half or more. A 2011 report issued by the U.S.
Census Bureau estimates that individuals who ride public transportation in urban areas can save on average $778
per month (U.S. Census Bureau). 1 Financial incentives for ridesharing are available to reduce costs through the
1 Based on the national average gas and parking rates in June 2010.
Integrating Transportation Demand Management into the Planning and Development Process 3 •
Item #1 August 23, 2016 Page 16 of 24
SANDAG iCommute program, and employers are allowed to offer payroll
tax savings for transportation assistance up to$135 a month per employee
for transit passes or vanpool vouchers.
• Reduced costs for businesses. Pre-tax programs offer savings to
employers as well as employees. Transit subsidies can be deducted as a
business expense. When funds are removed from paychecks before taxes
are applied, employers save on payroll taxes.
• Saves time. Carpools and vanpools can get commuters to work and
back faster than driving alone by using HOV lanes and HOV bypass
facilities.
• Improves public health. Biking or walking to work or transit increases
physical activity, and reduced vehicle emissions improve air quality.
• Benefits employers and employees. Research demonstrates that
adding commuter benefits to employees' compensation is a low-cost
TOM works at the scale of an
individual, but has significant
impact across a community -if
just one solo driver with a
20 mile round-trip commute
left their car at home and took
transit one day per week all
year, that change could result
in a reduction of 1,040 annual
vehicle miles traveled and
nearly 1,000 pounds of CO2
(Federal Highway
Administration).
benefit that can help to attract and retain employees, and increase employee productivity. TOM can reduce
employer overhead costs too. Teleworking and alternative work schedules reduce office space requirements and
parking demand, and many companies are finding that it costs less to pay employees not to drive than it does to
provide them with free or cheap parking spaces. Offering cash to employees who choose not to drive alone to
work can amount to significant reductions in parking acquisition and maintenance costs.
• Encourages sustainable development. TOM contributes to Leadership in Environmental and Energy Design
(LEED) certification.
• TDM increases safety. Reduced traffic congestion and complete streets can make roadways safer for all users,
including bicyclists and pedestrians.
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3. How TDM Fits ·in(o the Local Planning Pr C=SS
While SANDAG provides the regional framework to connect our land use
to our transportation system, local governments regulate land use,
development, and parking-all of which are key factors in determining
travel choice. The planning and development processes are key points at
which TDM can be introduced -influencing how people travel to and
from a new development from the day it opens (European Platform on
Mobility Management). Therefore maximum benefits are achieved when
both transportation efficient development (mixed use development that
supports the use of alternative modes) and TDM strategies are planned
and implemented comprehensively at the local level.
Broad TDM policies and goals are sometimes included in a local
General plans that encourage
transit oriented development
patterns and bicycle networks
are best supported by design
guidelines that require
pedestrian consideration at
intersections and parking
policies that minimize free
parking in business districts.
government's long-range transportation plans, but TDM is not generally integrated throughout the local planning process
and comprehensive implementation of TDM strategies can fall short of desired outcomes. This section will identify
opportunities for local governments to incorporate TDM into all stages of the planning process with case studies from
around the world, highlighted throughout. These experiences will help illustrate how a multi-layered approach to
planning provides the largest impact. For example, general plans that encourage transit oriented development patterns
and bicycle networks are best supported by design guidelines that require pedestrian consideration at intersections and
parking policies that minimize free parking in business districts.
The strategies discussed in this and other sections in this report are potential resources for jurisdictions in the San Diego
region. The general descriptions of various TDM measures provided in this section and TDM strategies shown in
Chapter 4 demonstrate how other jurisdictions within the United States and internationally have successfully used TDM to
further their goals. Nationally, the powers granted to regulate and administer development and transportation
infrastructure vary widely by jurisdiction. In some locations, counties have the authorities granted cities, so a reference to
·Arlington County, VA, or Montgomery County, MD (both good TDM examples), should not preclude a jurisdiction in the
San Diego area from considering or using similar approaches.
Long R n .:·e Pla•1s:
Long range planning activities guide future growth, affect how transportation and land use are integrated, and influence
the perceived success or benefit of locating infrastructure or development in particular areas. Incorporating TDM into long
range plans is the first step in the integration of TDM into the many levels of jurisdictional plans. It includes identifying the
desired location and form of future land development and the planning and ultimately financing of transportation
infrastructure. The general alignment of transit lines and the balance and mix of commercial and residential development
are often determined in these plans, and begin to set the scene for effective SOY alternatives in later stages of the
planning and implementation processes.
Types of L.Jn~1-R3nge Plans
There are a number of different long range plans where TDM policies and direction can be provided including General Plans
and Climate Action Plans.
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General Plans: Broad TOM goals and policies can be included in the transportation/mobility/circulation element of the
General Plan by encouraging complete streets (roadways that are designed for all users to include transit, cyclists,
pedestrians, and Americans with Disabilities Act compliance [National Complete Streets Coalition]), as well as in the land
use element by encouraging the types of development (Transit Oriented Development and Smart Growth) that promote
multimodal versus auto-oriented communities2•
General Plan, San Diego. CA: ifhe Mobility Element of the City of san Diego's General Plan includes a
section that is ded"ICatt3d 1.'e TOM (Seffi)n J:}. The p1an lays out eight broad TDM pollcres that cover the
folJowing topks:
a. markefing and promotior,i of TDM to employers and employees
b. development and design stafldards that are conducive to alternative transportation
c. the provision of TDM programs and amenities such as car and bike sharing
General Plan, San Francisco, CA: lhe City of sar:i Francisco's Transportation Element recognizes that
successful IDM program implementation requires partnerships between the public and pi:ivate sectors and
outlines low cost strategies tli!at will benefit both public and private entities. Understandklg that support
from the busil"less community Js critical to IDM success, a :key objective of the TOM portion of their
transportation element is to "Oe¥alop and implement programs in the public and private sectors, which
wiU support rongemon management and air quality objecl:1Ves, maintain mobUlty and ef.lhance business
vitallty at mintrnum cost'.
Climate Action Plans: A Climate Action Plan includes specific policy recommendations and actions that a local
government will use to address climate change and reduce GHG emissions. TOM strategies can assist with meeting
climate change goals by identifying cost effective transportation solutions that support reductions in vehicle miles traveled
and related emissions.
2 Assembly Bill 13.58, the California Complete Streets Act of 2008, requires cities and counties to include complete streets policies as part
of their general plans so that roadways are designed to safely accommodate all users
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Climate Adlon Plan. Menlo Park. CA: The transportation section of the Menlo Park Climate Action Plan
highllghts a variety of comprehensive TOM Strategies to include:
• TDM requirermmts for new developments
• Commuter benefit progr.ams for City employees
• Employer s4Pported shutllle system that serves as a first and last mne solution to transit
• Outreach and education programs for employers and employees
Mid-Range Plans:
Mid-range plans can include Specific or Master Plans, Corridor Plans, Parking Management Plans, and TOM Plans.
This is an opportunity for local agencies, who are the arbiters and implementers of area and site specific plans, to develop
innovative ways to incorporate TOM into developments.
Types of Mid-Range Plans
Specific Plans or Master Plans: A Specific or Master Plan establishes a link between implementing policies of the
general plan and the individual development proposals in a defined area. It provides development direction from the type,
location, and intensity of uses to the design and capacity of infrastructure; from the resources used to finance public
improvements to the design guidelines of a subdivision (State of California). TOM measures can be integrated into specific
plans to mitigate traffic impacts associated with new development, to reduce parking requirements, and provide
transportation choices for tenants and residents.
Transit Village Area Plan. Boulder. CO: This plan describes the city's vision for the development of a
160-acre Tramit Village. The goal of the TDM program for the Transit Village is 55 to 70 percent of all trips
made by alternative mode. Chapter 5 provides a framework for the Transit Village TOM program which is
based on four core elements:
• Parking Control
• Active Promotion of Transportation Options
• Sustainable Program Funding
• Performance Standards and Monitoring
Corridor Plans: A community's roadway corridors provide the economic and social connections within and between
neighborhoods and communities. The manner in which these corridors are planned and designed can create places that
offer convenient travel and a source of community pride, or can result in a place that becomes congested with traffic.
Integrating Transportation Demand Management into the Planning and Development Process 7 •
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Developing a corridor plan prior to the design of road improvements provides a vision for an entire corridor (i.e. the roadway
facilities, neighborhoods along the road, and the interface areas between the neighborhood and the roadway). The value of
a corridor plan is that it provides communities with a tool that integrates and balances mobility planning with local goals for
land use and community character (Florida Atlantic University Center for Urban and Environmental Solutions).
East Rhterside Cotridor Master Plan, Austin, TX: The City of Atl.Stin developed a Corridor Plan for
fast lwerside Drive, an important rommercia! co1Tidor from downtown Austin to the Bergstrom International
Airport. Tne plan estabfished a vision fur trans'l'Qnning an auto-oriented corridor lnto a mu1timodal corridor that
aa:ommodates all users and makes transportation alternatives a viable choice.
Parking Management Plans: The location, availability, and cost of parking are key factors in an individual's decision to
drive, take transit, walk, bike, or rideshare. Jurisdictions can use Parking Management Plans to identify strategies for
regulating public parking and/or parking requirements for new and redeveloped properties. Considerable research has
been completed that shows that parking availability and pricing strongly correlate with auto use -"Ninety-nine percent
of all automobile trips end in free parking" (1990 Nationwide Personal Transportation Survey). This fi~ding was more
recently demonstrated locally in a SANDAG public opinion survey conducted as part of the 2050 RTP and SCS-
47 percent of survey respondents who currently drive alone to work and have free parking (88 percent of all work trip
commuters) indicated that they would change their commute travel mode based on a $1 O per day parking charge
(SANDAG/True North Research). Parking Management Plans are therefore a very valuable component in an overall
approach to managing transportation demand.
Ann Arbor Downt0wn Development Authority Public Parking & transportation Demand
Management Strategies Plan, Ann Arbor. Ml: This plan was developed to gain greater efficiency from
Ann Arbor's public parking system by spreading demand and enrouraging greater use of alternative
transportation modes. The plan accomplishes this through on-street parking pricing that reflects and
responds to paoong demand whUe at the same time expanding and promoting transportation options.
Parking Management. Claremont, CA: The Oly of Claremont secured funding for a 477 space parking
facility that includes preferential parking for transit users and carpoolers. The city used a combination of
local and Federal Transit Administration (FTA) funds. This suburban ·community is developing a
transit-oriented viOage consisting of ::15 acres, that includes over 200 new hlgh-rlse residential units with
reduced parking requirements and over 150,000 square feet of retail, commercial and office space. The
parking structure will be used to consondate parking, reduc;e surface parking, support :transit oriented
development and the Claremont lnterrnodal Regional Transportation Center. Parking is prioritized for
transit users and retail customers.
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Municipal TDM Plans: A Municipal TDM Plan outlines specific goals and policies for reducing SOV trips and their
impacts. These plans expand upon the broadTDM goals and policies laid out in the general plan and identify specific
programs, projects, and funding for implementation. TDM plans typically establish vehicle trip reduction goals for specific
land uses and outline actions for attaining those goals.
franspartatlon Demand Management Plan, Rockville, MD: The City of 'Rockville Traffic a111d
Transpqttation Division identified the need for a five-year TOM Plan to prioritize TOM projects funded through
their TDM f1:md. The City of Rockville collects a fee from dev~lopers to be used specifically for the
Cify of Rockville TDM fund. As e~blished in i ndMdual TOM agreements with developer applkants, the fee is
$0.1 o per square foot for commercial and retail developments and $60 per unit for resident~! development
for a ten-year period. The plan establishes vehide trip reduction goals for specific land uses and prioritizes
actions for attaining those goals.
Short Range Plans:
Short-range plans as they pertain to TDM typically seek to influence drivers' behavior for a shorter duration of time to
mitigate construction or event related traffic. However, these short-duration mitigation plans provide valua~le
opportunities for drivers to 'try-out' alternative travel modes and perhaps modify their long-term travel choices.
Types of Short-Range Plans:
TDM Plans for Construction Mitigation -TDM Plans developed for
construction projects (often as part of agency required
Transportation Management or Traffic Mitigation Plans for construction
projects) provide mitigation strategies that inform commuters of
construction activities and promote transportation alternatives during
construction. These plans provide and promote a customizable range of
travel choices. Construction mitigation related TDM efforts can help
encourage changes in typical travel mode, which may be continued by
individual travelers after the project is complete and they are
comfortable using transit, ridesharing, walking, or biking.
Construction related TOM plans
often include strategies to address
the following (Houston-Galveston
Area Council):
Commuter mode choice:
services to encourage carpool.
vanpool, enhanced transit,
biking, walking
When commuters work:
flexible work schedules
Where commuters work:
teleworking
What route commuters take:
increased traveler information
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4. Implementation of TDM
Urban Design, Site Development and Parking
This section provides a discussion on the policies and programs that realize the TDM goals laid out in the planning
process. The information in this section demonstrates how TDM strategies and measures can be integrated and
encouraged through urban design, site development, and parking management.
Urban Design
Design Guidelines -Local jurisdictions develop design guidelines to coordinate the overall development of an area so
that projects help each other succeed and result in a more livable and cohesive community. Design control measure can
advance .or transform districts, neighborhoods, or corridors as part of a larger policy or planning effort to promote multi-
modal travel and integrate TDM features into building and community design. Design guidelines can encourage
multimodal districts, corridors, Transit Oriented Development (TOD), or influence how individual buildings interact with
the streetscape and the transportation network.
ActiVe Design Gllldeliffl!,5J rtltVV YDi'k,, NY: The Adiw! Design Guidelines oollaboratively
comple"b!d by four New Yotk Qty Departments (Design & Construction, Health & Mental Hygiene,
Transportation, and City Plal'ln\nm presents design strategies that encourage active transportation
(walking and biking-to tiaasit or work) and recreation for neighborhoods, streets and outdoor
spaces. Key strategies iheltide-the follawlng:
• Mixed land uses in city neighborhoods
• Improved access 'ID transit and transit facilities
• Improved access to recreational faciflties such as parks, pla1.as and open spaces
• Improved access to full-service grocery stores
• Accessible, pedestrian-friendly streets with high connectivity, traffic calming, landscaping
and pubrrc amenities
• Facilitate biking for transportation and recreation through bicycle networks and
intrastructu re
Sustainable Building Policy, Seattle, WA: Seattle is one of the top cities in the nation for LEED
facilities and the City of Seattle is one of the largest single owners of LfED facilities in the world.
This achievement was spurred by the City's adoption of the sustainable Building Policy in 2000,
which called for new City-funded projects and renovations with over 5,000 sq. ft of occupied
space to achieve a Silver rating using the U.S. Green Building Council's (USGBC) LEED Green
Building Rating System ™ .
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Complete Streets-Complete Streets refers to design concepts and principles that focus more specifically on design of
the street for all potential users -transit, bicydists and pedestrians as well as cars. In the past, modes other than the auto
may not have been prioritized and many performance measures of our roadways have focused on moving autos.
Assembly Bill 1358, the California Complete Streets Act of 2008, requires cities and counties to include complete streets
policies as part of their general plans so that roadways are designed to safely accommodate all users.
There is no singular design prescription for Complete Streets; each one is unique and responds to its community context.
A complete street may include: sidewalks, bike lanes (or wide paved shoulders), special bus lanes, comfortable and
accessible public transportation stops, frequent and safe crossing opportunities, median islands, accessible pedestrian
signals, curb extensions, narrower travel lanes, roundabouts, and more. A complete street in a rural area will look quite
different from a complete street in a highly urban area, but.both are designed to balance safety and convenience for
everyone using the road (National Complete Streets Coalition).
Urban Street Design Guidelines, City of Charlotte, NC: With tis award winning Ur.ban Street Design
Guidelines, CharJ.otoo is using street deign to shape it,; dev.elopment patterns and provide residemts and
visitprs with viable choices for howtlray move about the city. The guidelines indude a six-step pfannfng
and design proc.ess that matches ead1 street to the existing and emergmg land use conteXt. The proCESS
helps planners design streets that are sized appropriately for their neighborhood context and select
streetscape elements tHat create an appeaHng environment and keep pedestrians, bicyclists, transit niders,
and motorists safe.
Maricopa Association of Governments Complete Streets Guide, Phoenix. Al:. The Maricopa
Association of Goverrnoonts (MAG) has developed a resource to guide street design to "ensure that
facilities for bicycles, pedestrians and transit are recognized as integral to a properlV designed and
functioning street• The MAG Complete ~treet,; Guide Includes six steps to plan for complete streets:
1. Determining the TransfX)rtation Context, 2. Identify Current Transportation Modes and Facilities,
3. Identify the Comp!ete Streets Gaps, 4. Determine other Priorities, 5. Determine the Right-of-Way and
Number of Lanes, and 6. Select Other Complete Street Elements. The guide also includes example
outcomes, perfonnance measures, strategies, and a list of potential local resources.
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