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HomeMy WebLinkAbout2019-12-10; City Council; ; How Transportation System Management and Transportation Demand Management Programs Advance Mobility and Climate Goals(i) CITY COUNCIL Staff Report Meeting Date: To: From: Staff Contacts: Dec. 10, 2019 Mayor and City Council Scott Chadwick, City Manager Paz Gomez, Deputy City Manager, Public Works Paz.Gomez@carlsbadca.gov, 760-602-2751 Gary Barberio, Deputy City Manager, Community Services Gary.Barberio@carlsbadca.gov, 760-434-2822 CA Review :A:L a,-, Subject: How Transportation System Management and Transportation Demand Management Programs Advance Mobility and Climate Goals Recommended Action Receive an informational report on the use of transportation system management and transportation demand management programs to advance the city's mobility and climate goals. Executive Summary This informational report explains how transportation system management is used to manage existing traffic, and how transportation demand management is used to reduce the demand to drive, particularly during the peak commute hours. Discussion City staff made an informational presentation to the City Council on the city's Growth Management Plan on July 9, 2019, and followed up on July 16, 2019, with an agenda item to consider the city's Fiscal Year 2017-18 Growth Management Plan Annual Monitoring Report. That report analyzed traffic on various street facilities, or portions of roadways, throughout Carlsbad. In that presentation, staff told the City Council that eight street facilities in the city fell below the city's required standards for service and discussed the steps set forth in the Growth Management Plan to address those deficiencies. At the July 16, 2019 meeting, the City Council indicated a need for a detailed discussion with additional information before the City Council takes action on the matter. As a result, the City Manager asked that the matter be continued to a future City Council rryeeting to allow time for staff to prepare presentations related to: 1) The different ways the transportation system and transportation demand management programs work to manage traffic congestion and improve mobility Dec. 10, 2019 Item #17 Page 1 of 11 2) Recommendations on addressing the deficient level of service on four street facilities located outside Local Facilities Management Zone 15 3) Additional options to address the deficiencies in level of service on four street facilities affecting Local Facilities Management Zone 15, which relate to the uncompleted portion of College Boulevard This staff report covers the first of those topics. Staff will make two additional presentations at future City Council meetings to cover the other two topics. City goals In 2015 the City Council adopted amendments to its General Plan, which sets forth the vision for the growth and development of the city. This plan noted that the city's transportation system had long been focused on the automobile and acknowledged that the roadways and intersections that had been envisioned in the General Plan, approved in 1994, had largely been built out as planned. While the General Plan had previously included a Circulation Element focused on vehicle circulation, that is, on how automobile traffic could move around and through the city, the 2015 General Plan's Mobility Element focused on improving all types of mobility around Carlsbad. Specifically, "to enhance vehicle, walking, bicycling, and public transportation systems options within Carlsbad, and improve mobility through increased connectivity and intelligent transportation management." This shift in focus acknowledges that Carlsbad's roadway system is almost completed as planned and the city can no longer physically improve its roadways to ease traffic congestion in those areas where the infrastructure is built out. Meanwhile, the traffic that flows through the city has been increasing, a trend that's expected to continue. The General Plan's Mobility Element approved in 2015 set forth a vision of improvements to the transportation system intended to create more livable streets, provide viable connections between transportation options and enable people and cargo to move around the city as efficiently and reliably as possible. It also called for efforts to reduce people's demand to drive by promoting travel options other than driving alone. The City Council also approved a Climate Action Plan in 2015 as part of the city's efforts to promote a sustainable environment. This plan lists measures intended to reduce Carlsbad's greenhouse gas emissions, and one of those measures focuses on managing the demand to drive. This is why the city has moved away from road-widening projects to implementing transportation system and demand management strategies. Two complimentary strategies Transportation system management and transportation demand management share common goals: to manage and reduce traffic congestion, improve air quality by cutting down on Dec. 10, 2019 Item #17 Page 2 of 11 greenhouse gases and reduce or eliminate the need for improvements to the city's transportation infrastructure. But while they are complimentary, they are very different approaches. One is focused on enhancing the flow of traffic on the existing roadways, the other on changing commuter behavior over time. These strategies are designed to increase the reliability and efficiency of the city's roadways while providing and encouraging alternatives that can get cars off the road. Transportation system management is aimed at vehicles on the roads now Six large screens cover one wall in the city's Traffic Management Center at the City of Carlsbad Faraday Center. They show video images of key intersections around the city, charts showing how many cars are passing given points and other up-to-the-minute data. A technician monitoring this data can adjust the timing of traffic signals to manage·slowdowns caused by traffic accidents, or other unpredictable problems. On one busy corridor, along Rancho Santa Fe Road, an automated system adjusts the timing of traffic lights in real time to try to prevent avoidable congestion. It also flags unexpected problems, including equipment malfunctions, so that the technician can step in to try to keep traffic moving. The Traffic Management Center and the adaptive traffic signals pilot project along Rancho Santa Fe Road are examples of transportation system management, which uses technology and infrastructure to move people and goods through an area as efficiently as possible. The strategy enables the city to get the best performance possible from our existing transportation infrastructure when widening roadways would be inconsistent witli the General Plan's Mobility Element. Transportation system management is useful when: A roadway is approaching congestion, but increasing the physical capacity of the roadway may not be feasible or desirable • Increasing the capacity of a roadway is too costly or ~nvironmentally damaging • Traffic congestion exists only at specific bottlenecks, which can be addressed with improvements to the system Examples of transportation system management strategies that can improve traffic flow include: Coordinating traffic signal timing Improving vehicle detection and monitoring Limiting access to main thoroughfares Setting aside lanes for public transit vehicles or multi-occupant vehicles, either permanently or only during peak hours Limiting on-street parking Creating one-way street networks to reduce turning movements and congestion Designating turn-only lanes Putting railroad tracks above or below streets (e.g., in a trench) Dec. 10, 2019 Item #17 Page 3 of 11 Deploying a system that directs commuters to available on or off-street parking The adaptive signals along Rancho Santa Fe Road, which use artificial intelligence and data on traffic flow to make minute adjustments to signal timing, are an example of using cutting-edge technology to manage transportation. Staff recently expanded the adaptive signals pilot program to include weekends in a step toward rolling it out across the city. All these transportation system management efforts are focused on managing today's traffic and transportation infrastructure to try to make it flow more efficiently and reliably. Transportation demand management is aimed at reducing the demand to drive The city recently launched the Carlsbad Connector, an on-demand service that shuttles commuters between the Carlsbad Poinsettia Coaster train station and nearby workplaces. City staff have also been trying to encourage parents to use carpools to get their children to and from school. These are examples of transportation demand management strategies. Unlike transportation system management, which tries to help traffic flow efficiently and safely, transportation demand management is an effort to reduce the demand to drive, particularly during the morning and evening rush hours. And while transportation system management affects all travelers through an area, the city's current transportation demand management is focused on people commuting to and from work or school. That's because those trips are predictable, scheduled and adjustable, unlike, for example, a quick trip to the supermarket or an emergency trip to a doctor's office. Those daily trips to and from work or school are also the main cause of the normal weekday traffic congestion that can slow traffic to a crawl. Building new roadways or physically widening existing ones will not provide the lasting effects that can be realized by reducing the number of single-occupancy vehicles. Transportation demand management includes a collection of elements designed to cut down on the demand to drive, particularly during the peak commute hours. Those elements include: Providing ridesharing services like the Carlsbad Connector, which help commuters travel that "last mile" from a transit station to their destinations Working with employers to offer alternate work schedules and encourage and support the use of public or alternate forms of transportation Requiring non-residential developments to create plans for getting employees to and from work in ways that cut down on single-occupancy vehicle trips Getting vehicles off the road through transportation demand management, particularly during those peak commute hours, reduces traffic congestion and air pollution, improving the quality of life for Carlsbad's residents and workers. Dec. 10, 2019 Item #17 Page 4 of 11 Simple steps can be effective in this effort. For example, providing secure bicycle parking and showers can encourage workers to bike to work. Providing a subsidy for public transit can make taking a train or bus more financially appealing. Offering dining options and services such as dry cleaning at a work site reduces the need to drive to run errands. Allowing telecommuting and flexible work schedules lets workers stay at home and reduces vehicle use and idling. And public outreach and education can encourage people to change their driving routines. Carlsbad's Transportation Demand Management Ordinance (Carlsbad Municipal Code Chapter 18.51) which became effective in April 2019, requires all new non-residential developments that will generate a minimum of 110 average daily employee trips to develop and implement transportation demand management plans. Some employers have voluntarily offered commuter benefit packages to attract and retain quality workers. These three Carlsbad employers voluntarily participate in the San Diego Association of Governments' regional transportation demand management program and have been able to get about 30% of their employees to use alternative means of transportation: Thermo Fisher Scientific: The 2,000 employees at this biotechnology company get better. parking spots if they commute by carpool and have access to on-site showers and lockers for commuting by bicycle. The company also subsidizes a van pool, encourages the use of public transit and has a monthly commuting challenge and other programs to help employees break the habit of commuting alone by car. CommonGrounds: This co-working space provides on-site bicycling facilities that include a repair station and a bike share program, racks, showers and lockers. Transit riders get complimentary COASTER passes and other incentives. An on-site cafe and on-site services such as dry cleaning alleviate the need to run errands during peak traffic hours. Viasat: This communications company provides on-site bikes to its 2,500 employees for short trips between buildings. It also offers shower facilities, a cafe and coffee shop as well as a fitness center, a carpool partnership and other on-site amenities to try to reduce vehicle trips. The city's practice of allowing some employees to work flexible work schedules, such as working 80 hours over nine days instead of ten, is an example of transportation demand management. The city is working to implement more flexible work schedules for its workers to get more vehicles off the road or avoid peak commute times. The city has also launched a pilot campaign to encourage carpooling to and from schools and will consider how homeowner associations could also be involved in transportation demand management efforts. How these strategies relate to the Mobility Element of the General Plan The Mobility Element of the city's General Plan calls for the city to implement transportation demand management and, specifically, traffic signal management to improve mobility and carry out Carlsbad's Community Vision. (Mobility Element Goals & Policies 3-G.5.) Dec. 10, 2019 Item #17 Page 5 of 11 It also requires new developments that add traffic to a roadway the council has exempted from meeting the levels of service required by the city's Growth Management Plan to implement transportation system and demand strategies. (Goals & Policies 3-P.9 and 3-P.11.) Transportation system management measures consist of the developer installing or improving traffic signal control systems or paying a fair share of the cost of traffic signal control system improvements. The city has not yet implemented transportation demand measures on a roadway designated as exempt. Staff could use the city's Transportation Demand Management Handbook to develop an appropriate plan for such a street facility. Such plans would include requirements for monitoring and reporting results. How performance is measured Carlsbad, like other cities, has historically tracked such factors as vehicle speeds and motorist convenience in its efforts to monitor the performance of its transportation system. The city's standards for service could be met by increasing roadway capacities. But that system is now largely built out, as noted above, and the level of service on the city's streets is expected to continue to degrade as traffic and congestion throughout the region continues to increase. Proper transportation system management can help maintain acceptable levels of service longer by making the existing system work as efficiently and reliably as possible. These strategies slow down increases in congestion, even though they can't halt the trend. For example, recently collected data show that transportation system management efforts have been helping the city's traffic flow more smoothly at lower, off-peak volumes, but, because the roads cannot bear additional traffic, peak-hour congestion is expected to occur at the same levels as before. The performance of the city's transportation system management efforts can be assessed by how well the city manages the predictable congestion of those morning and evening commutes as well as the non-recurring congestion of crashes and construction. Another benchmark is how the city handles and avoids equipment failures. More specifically, we can see the benefits of transportation system management along Rancho Santa Fe Road, where the adaptive signals pilot program has improved traffic flow along the thoroughfare and reduced delays on side streets during midday hours, if not during rush hours. Improved transportation system management has also reduced complaints about the reliability of the system, that is, traffic signal lights that are broken and flashing red, as city technicians are now automatically notified of such problems. The performance oftransportation demand management strategies is a measure of how many vehicle trips through and around the city can be avoided. It's about changing behavior, so the results can be tough to trc:ick, but initial indications from three local businesses are encouraging. Dec. 10, 2019 Item #17 Page 6 of 11 Staff will assess the impact of transportation demand management through surveys of employees to gauge their commuting habits. The city makes these surveys mandatory for employers who meet the thresholds stated above. Fourteen businesses in Carlsbad are subject to the Transportation Demand Ordinance and will be required to conduct surveys. Staff expects to receive data from these surveys in early 2021, after the first full year ofimplementation. City staff are also looking into using transit ridership figures and other sources of data to try to track results. The city has also contracted with a company called UrbanTrans to develop ways to measure the results of transportation demand management measures with surveys at participating business and other data. Conclusion As the city continues working to improve transportation conditions, it's helpful to remember how these two transportation strategies, system and demand management, interact with one another. For example, efforts to reduce the demand for driving by providing bike racks and showers at an employment center are more likely to succeed when dedicated bike lanes link the complex to a train station. More mobility options are needed to reduce demand for those predictable single-occupancy trips, but they must be planned strategically. There is a balance to be struck between transportation system and demand management efforts, and it's important to keep the city's broader mobility and climate action goals in mind. It's also worth noting that both transportation system and transportation demand management have citywide and project-by-project components. On the system side, implementing adaptive signal technology across the city is an example of the broader approach. Setting transportation-related conditions on an individual development is an example of the more granular component. On the demand side, the city is working with the San Diego Association of Governments and the North County Transit District-to try to develop options to driving alone by car across the city while also working with individual businesses to reduce the need to drive to and from their locations. A very small number of cities in the region have successful city programs for implementing transportation system management and none has a formal transportation demand management program. Many cities have begun the process and are working on programs to address traffic congestion and the related air pollution, but Carlsbad is further along than most in these efforts and has an opportunity to be a leader in how cities can effectively manage traffic now and in the future. Dec. 10, 2019 Item #17 Page 7 of 11 As part of the FY 2017-18 annual growth management monitoring report update, this item was presented to the Traffic and Mobility Commission on Dec. 2, 2019, as an informational item. Attached as Exhibit 1 are the draft minutes from that meeting. Fiscal Analysis This item is an informational presentation on the topic of transportation system and demand management and as such there is no financial impact. Environmental Evaluation (CEQA) Pursuant to Public Resources Code Section 21065, receiving an informational presentation on the work related to transportation system and demand management does not qualify as a "project" within the meaning of the California Environmental Quality Act (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. Public Notification This item was noticed in accordance with the Ralph M. Brown Act and was available for public viewing and review at least 72 hours prior to the scheduled meeting date. Exhibits 1. Draft Minutes from the Dec. 2, 2019 Traffic and Mobility Commission Meeting Dec. 10, 2019 Item #17 Page 8 of 11 December 9, 2019 All Rec"ive -Agenda Item# I·::,- For the Information of the: CITY COUNCIL Date 12-!vi CA _:f!_cc:f!._ CM __:f2coo ~ DCM (3) _:e- Re: 12/10/2019 City Council Agenda Item #17 -Transportation Systems Management (TSM) and Transportation Demand Management (TOM) Programs Honorable Mayor Hall and Members of City Council: At the 12/2/2019 Traffic and Mobility Commission meeting, the commission considered a combined agenda item that included: (1) an overview of the TOM and TSM programs, and (2) four Growth Management Plan (GMP) street facility deficiencies with recommended vehicle level of service (LOS) exemptions/expedited Capital Improvement Plan projects. You are receivingthe TSM/TDM item at your 12/10/2019 meeting, and the street deficiency matter is scheduled for your 12/17/2019 meeting. For the latter (GMP) item, the commission supported Staff's recommended actions, including exemption of three of the facilities. However, the commission also voted to recommend that you prioritize implementation of meaningful and trackable TDM and TSM programs to help mitigate congestion on the ever increasing list of exempted street facilities, pursuant to Mobility Element Policy 3-P.11. It is not evident from the Staff Report that this recommendation will be passed along, and apparently because the TDM/TSM portion of this matter was considered "information only," a representative of the commission was not asked to attend your meeting to directly relay that recommendation. Based on the discussion at the commission meeting, the TDM Ordinance is geared more toward greenhouse gas reduction and is only mandatory for developments that generate at least 110 average daily trips (ADT). Mobility Element Policy 3-P.11 requires TDM/TSM to help mitigate congestion and related traffic flow problems, but formal programs have not yet been implemented, and performance monitoring is not in place. My own view is that the programs should apply to all developments, regardless of whether they are non-residential or residential, and that any developments that add traffic should be responsible for their fair shares. In addition, I believe that direct performance measures are needed (e.g., direct evidence of mode shifting away from single-occupancy vehicles) rather than indirect measures (e.g., existence of amenities that might encourage mode shifting, such as showers at work places or vague surveys). Best regards, Steve Linke, Carlsbad 1 How Transportation System and Demand Management Programs Advance Mobility and Climate Goals Paz Gomez, Deputy City Manager, Public Works Gary Barberio, Deputy City Manager, Community Services Dec. 10, 20191 Background •July 16, 2019 report noted annual traffic monitoring done to carry out city’s Growth Management Plan found eight street facilities did not meet required standards •Council asked for additional options 2 Dec. 10, 2019 Overview First of three presentations: 1.Transportation system and demand management 2.Options on addressing service deficiencies on four street facilities (road sections) 3.Options for the service deficiencies on the second four street facilities 3 Dec. 10, 2019 From cars to mobility •General Plan updated in 2015 •Previous plan focused on the automobile •Road system is largely built out as planned •But traffic will keep increasing •So focus is now on all forms of mobility and transportation system, demand management 4 Dec. 10, 2019 Mobility Element Mobility Element’s transportation vision •A network of livable streets •Viable links between transportation options •Efficient and reliable mobility around the city •Fewer single-occupant vehicles on the roads 5 Dec. 10, 2019 Climate Action Plan Climate Action Plan adopted in 2015 •Lists measures to reduce greenhouse gases •One measure calls for efforts to reduce the demand for people to drive 6 Dec. 10, 2019 Common goals Transportation system and demand management: •Manage and try to reduce traffic congestion •Improve traffic flow •Cut down on greenhouse gas emissions •Improve all forms of mobility 7 Dec. 10, 2019 Different strategies System management •enhances flow of traffic on existing roadways 8 Dec. 10, 2019 Demand management •encourages behavior shift away from single- occupant vehicle trips Helping traffic flow 9 Carlsbad’s Traffic Management Center Dec. 10, 2019 Getting the most from existing roads Transportation system management helps when •A congested roadway cannot be widened •Adding capacity is too costly, or damaging •Congestion can be relieved with improvements 10 Dec. 10, 2019 Examples of system management •Coordinating the timing of traffic signals •Setting aside lanes for buses or carpools •Limiting on-street parking •Designating turn-only lanes 11 Dec. 10, 2019 System management in Carlsbad •Advanced detection of vehicles, bikes, people •Extending left-turn bays to keep traffic flowing •Adding turn lanes with right-and left-turn green arrows •Setting up automated alarms to flag problems •Implementing adaptive traffic signals 12 Dec. 10, 2019 Traffic signals project update Mid-2011-2017: •Traffic Management Center set up •Proactive equipment upgrades •Retiming signals improves peak-hour traffic Mid-2018-present: •Adaptive software and equipment •Adaptive signals improve off-peak traffic 13 Dec. 10, 2019 Traffic signals project results Phase 1: Peak hours •Improved signal coordination •Travel times on major corridors reduced by 40% Phase 2: •Rancho Santa Fe Road pilot project completed •Improved travel times •Reduced delays on side streets 14 Dec. 10, 2019 Reducing the demand to drive alone 15 Dec. 10, 2019 Examples of demand management •Creating ridesharing services •Offering flexible work schedules, telecommuting •Providing bike racks, lockers and showers •Having dining, laundry, services at worksites •Giving incentives for not commuting alone by car •Encouraging use of public transit 16 Dec. 10, 2019 Targeting weekday commuters •Daily trips to and from work are the main cause of routine congestion •Travel times are predictable and adjustable •Reducing single-occupant vehicle trips has more lasting benefits than building new roads 17 Dec. 10, 2019 Demand management in Carlsbad •Carlsbad Connector •Requiring developers to create demand management plans •Pilot campaign to encourage carpooling to schools •Possible flexible work schedules for city staff •Employers voluntarily working to reduce demand 18 Dec. 10, 2019 When demand management is required General Plan’s Mobility Element •Requires demand –and system –management by new developments that add traffic to roadways declaredexempt from meeting level of service standards Transportation Demand Management Ordinance •Requires demand management by all non-residential projects adding 110 average daily employee trips 19 Dec. 10, 2019 Measures of performance Signs transportation system management is working: •All forms of traffic flows better •System is as efficient and reliable as possible •Unavoidable traffic increases are slowed down 20 Dec. 10, 2019 Measures of performance Signs transportation demand management is working: •Fewer vehicle trips by solo commuters •Flexible schedules and amenities being offered •Increased transit ridership •Connections between that last mile and transit •Voluntary implementations by businesses 21 Dec. 10, 2019 Next steps •Finalize ways to measure performance •Implement adaptive signal technology •Fill gaps in transportation system •Develop more options to solo commuting •Work with employers on reducing demand 22 Dec. 10, 2019 Conclusions •These strategies are intricately connected •Carlsbad is further along than other cities in using these strategies to manage transportation and reduce greenhouse gases 23 Dec. 10, 2019 Thank you 24