HomeMy WebLinkAbout2021-12-06; Traffic and Mobility Commission; ; Traffic Impact Fee Update: Draft Scope of WorkItem 5
Meeting Date: Dec. 6, 2021
To: Traffic and Mobility Commission
Staff Contact: Nathan Schmidt, Transportation Planning and Mobility Manager
Nathan.schmidt@carlsbadca.gov, 760-637-7183
Subject: Traffic Impact Fee Update: Draft Scope of Work
Recommended Action
Receive a presentation and provide input on the draft scope of work for the update of the City’s
Traffic Impact Fee program.
Summary
The City’s Traffic Impact Fee, or TIF, program is a facility impact fee program designed to fund
needed transportation network improvements throughout the City. The current citywide TIF
Program was established by City Council in March of 2008. The genesis of the TIF is the Carlsbad
General Plan Mobility Element Policy 3-P.5 which states, “Require developers to construct or
pay their fair share toward improvements for all travel modes consistent with this Mobility
Element, the Growth Management Plan, and specific impacts associated with their
development.” The authority for updating the TIF is derived from City Code and State law.
Chapter 18.42 (provided in Exhibit 2) establishes the TIF.
This item is intended to provide the Traffic & Mobility Commission an opportunity to provide
feedback on the draft scope of work which will be used as part of the request for proposals, or
RFP, process to select a consultant to prepare the TIF update study and applicable planning
documents.
Draft Scope of Work
The following draft scope of work is intended to solicit feedback from the Traffic & Mobility
Commission. The scope of work will be utilized by city staff to issue a RFP for the TIF update
from consultants. Overall, the program update will include the identification of multimodal
capital projects and their cost estimates, identification of other funding sources, a strategy and
methodology for the fee structure, a nexus study, and stakeholder outreach. This update is
expected to be completed and adopted by Spring of 2024. In addition to the TIF, city staff is
proposing to include in this contract the implementation plan for the Sustainable Mobility Plan,
or SMP, which will include refinement of the prioritization of projects identified in the SMP,
refined cost estimates and conceptual plan for the high priority projects for near term
implementation.
Dec. 6, 2021 Item #5 1
Task 1: Project Management
• Weekly meetings with City staff
• Formation of a city stakeholder outreach group
• Develop public outreach plan and identify ad-hoc planning team stakeholders
Task 2: Anticipated Public and Stakeholder Outreach
The TIF update will include outreach to the City of Carlsbad Traffic and Mobility Commission,
Planning Commission, City Council, and an ad-hoc planning committee which membership shall
be established as part of task 1. It is anticipated that the following meetings at a minimum will
be required:
• Attendance at up to three (3) Traffic & Mobility Commission Meetings
o Study Session Meeting (1)
o Mid-Project Check-In (1)
o Final presentation (1)
• Attendance at up to two (2) Planning Commission Meetings
o Study Session Meeting (1)
o Final presentation (1)
• Attendance at up to two (2) City Council Meetings
o Study Session Meeting (1)
o Final presentation (1)
• Attendance at up to four (4) Ad-Hoc Planning Committee Meetings
Task 3: Existing Conditions Review
The Consultant will conduct review of all applicable city programs, policies, documents, and
studies relevant to the Transportation Impact Fee program.
Task 4: Develop Capital Projects, Costs, and SMP Implementation Plan
The purpose of this task will be to develop a prioritized set of transportation improvements that
the City can use for the TIF and as a guide for designed and constructing projects that will
deliver the greatest degree of benefit to the City.
Task 4.1: Establish the TIF project list:
The consultant will develop a detailed analysis of strategies to implement policies and
programs. This will include a detailed matrix of near-term and long-term multi-modal
Capital Improvements based on project recommendations in the existing TIF, the
General Plan Mobility Element, the Growth Management Plan, or GMP, the Capital
Improvement Program, or CIP, and the SMP.
Task 4.2: Sustainable Mobility Plan Implementation Plan:
Dec. 6, 2021 Item #5 2
The consultant will develop a prioritized action plan for implementing the projects
identified in the SMP based on the prior prioritization analysis, concept plans and cost
estimates, and construction feasibility. The project team will reconsider the project
prioritization analysis with a focus on prioritizing projects that form complete corridors
or a backbone of active transportation corridors including both east-west and north-
south primary corridors throughout the city. Additional emphasis will be considered for
school streets which provide safe routes to school and high priority projects identified in
the Village and Barrio Master Plan.
Task 4.3: Detailed Concepts and Cost Estimates:
Conceptual plans and Opinions of Probable Construction costs will be prepared for the
projects identified in Task 4.1 and 4.2. For specific projects, quantities will be derived
for major cost items including roadway paving materials, sidewalks, bike lanes with
enhanced striping treatments such as buffered bike lanes and green conflict zones,
sidewalks, Class-I multiuse trails, retaining walls, bridge structures, and traffic signal
modifications. For general treatments, quantities will be estimated on a per unit length
basis, or for a typical application that could be installed at several locations.
Task 4.4: Develop detailed implementation and funding strategy:
Develop a detailed implementation strategy with a focus on devising realistic funding
strategies for design and construction of recommended projects. The implementation
strategy will build upon the project prioritization process and serve as a blueprint for the
city for a phased implementation of the multimodal improvement projects identified in
the plan. This strategy will include an engineering feasibility analysis of top-priority
projects covering the preliminary cost estimates, conceptual improvement plans,
roadway cross sections and identification of funding sources. The identified top priority
projects will then be added into the CIP for future implementation, with the council’s
approval.
Task 5: TIF Nexus Study and White Paper on Best Practice Research on Traffic Impact
Mitigation Fees
Task 5.1: White Paper on Best Practice Research on Traffic Impact Mitigation Fees
This task may be conducted concurrently with the Nexus Study as developed in task 5.2,
the Consultant will perform and analysis of best practices in TIF throughout the State of
California. At a minimum, the white paper will include methodologies to structuring a
TIF, examples of projects funded, strategies to obtain political and community support
for the fee, application of new and innovative analysis techniques such as Multi-Modal
Level-of-Service, or MMLOS, and lessons learned from execution of the TIF after
adoption.
The white paper shall also include guidance on up to four alternative fee structures
including a VMT based TIF program. The nexus for a VMT based program would be a
Dec. 6, 2021 Item #5 3
VMT reduction goal consistent with the CEQA thresholds established by a lead agency
for SB 743 purposes. The main difference from a fee program based on a traditional
metric such a vehicle level of service (LOS) is that the VMT reduction nexus results in a
capital improvement program (CIP) consisting largely of multimodal projects such as
bicycle, pedestrian, and transit projects
Task Deliverable: White Paper on the Latest Best Practice Research on TIF
Task 5.2: Nexus Study:
Pursuant to AB 1600, the Consultant will prepare a Nexus Study to ensure that adoption
of a new TIF program in the City of Carlsbad demonstrates the proper “nexus” or link
between the fees being charged, the benefit of the facilities to mitigate new
development impacts, and the proportional cost allocation. The Consultant will assess
the following items, at a minimum, as part of the Nexus Study:
• Existing Land Use
• Projected Future Land Use Development and Demand Variables through 2035
• Existing Transportation Infrastructure
• Project future facilities and transportation infrastructure needs through 2035
• Evaluation and consideration of a Citywide TIF versus a district based fee.
After completion of the analysis, the Nexus Study will then identify the maximum TIF the
City of Carlsbad can legally charge, eligible uses for mitigation fee funds, reporting
requirements, and administrative and monitoring costs. The Consultant will also assess
and offer guidance on re-calibrating the existing City of Carlsbad fees and standards to
accommodate a Traffic Impact Mitigation Fee.
Task Deliverable: Nexus Study for Traffic Impact Fee Program
Task 6: Transportation Impact Fee Ordinance and Fee Calculation Tool:
Based on the findings and deliverables in prior tasks, the Consultant will prepare a
memorandum that details the development of a TIF. The memorandum, at a minimum, will
include:
• Future facilities eligible for TIF funding per the Nexus study results
• A methodology of the fee and fee structure by applicable land use category
• Updated administrative, monitoring, and reporting requirements
• Ordinance language for the TIF
In addition, the Consultant will develop an interactive TIF calculation tool. This tool will have
the capability to estimate fees for new developments based on Vehicle Miles Traveled.
Task 6 Deliverables: Memorandum on the TIF and Interactive Fee Calculation Tool, Final Traffic
Impact Fee Ordinance
Dec. 6, 2021 Item #5 4
Next Steps
Following the Traffic & Mobility Commission’s initial review of the proposed draft scope of
work, staff will prepare an RFP to select a consultant team to prepare the TIF Update. It is
anticipated that the scope of work will be adjusted based on feedback provided by the
consultant team during the RFP selection process and as part of the initial project planning
process.
Exhibits
1. Current Traffic Impact Fee Program Study
2. Municipal Code Chapter 18.42: Traffic Impact Fee
Dec. 6, 2021 Item #5 5
Exhibit 1Dec. 6, 2021 Item #5 6CITY OF CARLSBAD TRAFFIC IMPACT FEE UPDATE March 2008
Exhibit 1Dec. 6, 2021 Item #5 7CITY OF CARLSBAD TRAFFIC IMPACT FEE UPDATE TABLE OF CONTENTS I. INTRODUCTION .......................................................................................... 1 II. TRAFFIC IMPACT FEES AUTHORITY AND JUSTIFICATION ................... 3 Ill. PURPOSE OF THE TRAFFIC IMPACT FEE ............................................... 4 IV. TRAFFIC IMPACT FEE UPDATE METHODOLOGY ................................... 4 V. SUMMARY AND CONCLUSION ................................................................. 11 Appendix A. TIF Technical Support January 2006 by RBF Consulting B. Project Cost Estimates
Exhibit 1Dec. 6, 2021 Item #5 8I. INTRODUCTION General The Traffic Impact Fee {TIF) is a facility impact fee program designed to fund needed circulation improvements within the City. The genesis of the program is the Carlsbad General Plan which requires that the City ensure the provision of an adequate circulation infrastructure to serve its projected population. One of the stated objectives listed in the Circulation Element of the General Plan is "To implement and regularly update developer fee programs for the financing of circulation facilities." Prior to 1978, City road improvements were funded through a combination of sources including property tax revenues, Federal and State Grants, Assessment Districts and direct developer construction. In 1978, the California State voters passed Proposition 13 seriously reducing the amount of property tax revenues that could be generated and used to fund road construction projects. From 1978 to 1986, the reduction in road construction funding combined with rapid growth in land development produced serious deficiencies in the City's circulation infrastructure. The resulting traffic congestion was a prime motivator in the development of the City's Growth Management Program (GMP) in 1986. The GMP was designed to ensure that development does not occur unless and until adequate public facilities and services exist or will be provided concurrent with the new development. Specific performance standards were established for each of the eleven critical public facilities needed to serve development including circulation facilities. Adoption of the GMP performance standards, combined with the loss of property taxing authority brought about by Proposition 13, significantly shifted the financial burden for constructing new roads onto new development. In addition to an increased use of assessment district financing, new methods of developer funding were implemented including the use of Community Facility Districts (CFO), Bridge and Thoroughfare Districts (B&TD) and Traffic Impact Fees (TIF). This report addresses updating the City's TIF program. The first City TIF was adopted in April of 1986 to fund needed circulation improvements for the southern third of the City. In July of 1986, a second TIF was adopted by the City Council to fund needed circulation improvements for the remaining northern two thirds of the City. In October of 1991, the two TIF programs were consolidated into the current citywide TIF program. Page 1
Exhibit 1Dec. 6, 2021 Item #5 9This update to the TIF program adopted in 1991 is needed to reflect numerous changes which have taken place since 1991 including: • Completion of projects on the 1991 TIF project list • Revision to City and regional land use development patterns • Changes in transportation network construction assumptions • Changes in transit ridership and multimodal transportation use assumptions • Improvements in traffic modeling programs • Voter approved TransNet Extension Ordinance TransNet Extension In addition to establishing an updated fee program as needed to fund the improvements, this update to the TIF program also addresses one of the requirements included in the TransNet Extension Ordinance approved by San Diego County voters in November of 2004 {TransNet Extension Ordinance). The TransNet Extension Ordinance extends the current half-cent sales tax to fund regional transportation improvements for another 40 years starting in April of 2008. The TransNet Extension Ordinance is projected to generate $14 billion in revenues for local and regional transportation improvement projects. For Carlsbad to remain eligible to receive its local share of the TransNet Extension sales tax revenue, the City must comply with Section 9 of the TransNet Extension Ordinance which is known as the Regional Transportation Congestion Improvement Plan {RTCIP). The RTICP requires each local agency in the San Diego Region to contribute $2,000 in exactions from the private sector for each newly constructed residential housing unit, excluding affordable housing units as defined in the Ordinance, to ensure that future development contributes it share of the funding needed to pay for the Regional Arterial System. The Regional Arterial System (RAS) is a list of arterial roadways throughout the County which is adopted by the San Diego Association of Governments (SANDAG). The current RAS as adopted by SANDAG includes 12 roadways in Carlsbad, as listed on Table 1 below. TABLE 1 RAS ROADWAYS IN CARLSBAD NAME LIMITS Cannon Road Carlsbad Boulevard to Buena Vista Drive Carlsbad Boulevard Eaton Street to La Costa A venue Carlsbad Villaqe Drive 1-5 to Carlsbad Boulevard Colleqe Boulevard City Limits to Palomar Airport Road El Camino Real SR 78 to Olivenhain Road Faraday Avenue Melrose Drive to Colleqe Boulevard La Costa Avenue 1-5 to El Camino Real Melrose Drive City Limits to Rancho Santa Fe Road Palomar Airport Road Carlsbad Boulevard to Business Park Drive Poinsettia Lane Carlsbad Boulevard to Melrose Drive Rancho Santa Fe Road Melrose Drive to Olivenhain Road Olivenhain Road Los Pinos Circle to Rancho Santa Fe Road Page2
Exhibit 1Dec. 6, 2021 Item #5 10Funds collected in conformance with the RTCIP must be used to construct improvements on the Regional Arterial System. By identifying a portion of the fees collected via the TIF program for use in conformance with the RTCIP, the City will be programming the funds for use on RAS roadways in the City of Carlsbad. As described below, this report recommends updating the TIF program to include eleven roadway segment projects, eleven intersection projects, and the ongoing sidewalk construction program and the City's Transportation Management and Monitoring Program. Seven of the eleven roadway segment projects and all eleven of the intersection projects are on the RAS and, therefore, the recommended fee update will enable the City to fund the needed improvements while at the same time satisfying the requirements of the RTCIP. II. TRAFFIC IMPACT FEES AUTHORITY AND JUSTIFICATION The authority for updating the TIF is derived from City Code and State law. Chapter 18.42 of the Carlsbad Municipal Code establishes the Traffic Impact Fee. As part of this update, the sections of Chapter 18.42 that define the fee and use of the fees are proposed to be amended. Under City Code Section 18.42.01 O Purpose and Intent subsection (a), it states that "It is the city council's intention to review the designation of circulation and the amount of the fee on an annual basis. In reviewing the improvements and amount of the fee, the city council shall consider, among other things, any changes to the land use designations or intensity of development, changes in the amount of traffic generated or anticipated, inflation and increases in cost of materials and labor." The annual review is conducted each year during the preparation and approval of the City's Capital Improvement Program (CIP) budget and typically consists of the adoption of the CIP budget and approval of the annual construction cost index increase to the TIF. Because of the accumulation in changes in land use since 1991, the recent surge in construction costs and the implementation of the RTCIP, this year's review requires an update to the TIF program. The State requirements governing levy, increase and use of facility impact fees are contained within various sections of the State Government Code collectively known as the Mitigation Fee Act. The Mitigation Fee Act requires that any City action to establish, increase or impose a fee as a condition of a development project requires the following: • Identify the purpose of the fee • Identify the use to which the fee is put • Determine that there is a reasonable relationship between the fee's use and the type of development project on which the fee is imposed • Determine there is a reasonable relationship between the need for the public facility and the type of development project on which the fee is imposed • Determine there is a relationship between the amount of the fee and the cost of the public facility or portion of the public facility attributable to the development project on which the fee is imposed Page 3
Exhibit 1Dec. 6, 2021 Item #5 11The Mitigation Fee Act includes numerous other provisions regarding the procedures for establishing and increasing facility impact .fees and for using and accounting for facility impact fee revenues. Of particular note is the requirement that the establishment or increase of a facility impact fee requires that the City hold a public hearing at which oral or written presentations can be made prior to adoption of the fee or an increase in the fee. The City must place any facility impact fee revenues into a separate fund and use the fee revenues exclusively for the purpose for which they were created. Every five years, the City must make certain findings with respect to the fund and whether the funds are committed or uncommitted. Ill. PURPOSE OF THE TRAFFIC IMPACT FEE The purpose of the TIF is to provide a mechanism to mitigate for direct and indirect traffic impacts caused by new development, expansion of new development, or redevelopment on property located within the City of Carlsbad. For purposes of this study, direct traffic impacts are those impacts caused by a development that directly lead to a failure in a circulation performance standard necessitating the construction of new road or intersection improvements. In most cases, construction of mitigating improvements for direct impacts is required pursuant to a condition of development approval prior to or concurrent with the recordation of a final map or issuance or a building permit for the development. Although a development's traffic impacts may directly lead to a circulation failure, traffic from other developments may still have cause to share in the need to mitigate for such failure. Indirect traffic impacts are those impacts caused by development which, in combination with traffic generated by other future developments, leads to (but does not directly cause) a circulation performance standard failure. Mitigation for indirect traffic impacts is typically accomplished through payment of a TIF or other similar facility impact fee. Construction of the actual mitigating improvement(s) for indirect traffic impacts is undertaken at a future time by City contract using TIF revenues or by another developer utilizing a TIF reimbursement agreement. IV. TRAFFIC IMPACT FEE UPDATE METHODOLOGY General In general terms and as described below, the update methodology includes a traffic analysis to determine which roadways segments and intersections require additional improvements, the preparation of current costs estimates for the needed improvements, and the distribution of these costs based on the traffic volumes generated by development. Page4
Exhibit 1Dec. 6, 2021 Item #5 12Traffic Analysis The City of Carlsbad Growth Management Standard for circulation provides that: "No road segment or intersection in the zone nor any road segment or intersection out of the zone which is impacted by development in the zone shall be projected to exceed a Service Level C during off-peak hours, nor Service Level D during peak hours. Impacted means where twenty percent or more of the traffic generated by the Local Facilities Management Zone will use the road segment or intersection." For purposes of this analysis, only Circulation Element roadway segments and intersections are evaluated. Circulation Element roadways are the backbone of the City's circulation network and thus provide certain benefit to all developing properties in the City. Providing benefit to a property is a prerequisite for establishment of a facility impact fee such as the TIF. Evaluation of the adequacy of road segments and intersections involves evaluating projected LOS values using buildout traffic volumes and planned City standard improvements. Where the projected LOS falls below the City's adopted performance standards, additional improvements are recommended that will bring the LOS into compliance with the standards. As part of the evaluation process, the City commissioned the San Diego Association of Governments (SANDAG) to prepare an updated traffic model to develop traffic projections for Carlsbad's existing and proposed circulation element roadways. The traffic model known as the Series 10 Sub-area Traffic Model (Traffic Model) was updated by SANDAG on March 5, 2004. The Traffic Model was completed in conjunction with adjacent cities and contained detailed sub-area modeling of the cities of Carlsbad, Vista, San Marcos, and Oceanside. The City also entered into a contract with the firm of RBF Consulting to review the Traffic Model and conduct additional analysis to evaluate the adequacy of 58 arterial to arterial intersections located throughout the City. The results of the analysis were compiled into a report entitled "Traffic Impact Fee Technical Support" prepared by RBF Engineering dated January 2006, and attached as Appendix A. Project List The 1991 TIF project list, as shown on Table 2 below, included 12 arterial roadway segments, 14 arterial intersection improvements, the sidewalk construction program, and the City's Transportation Management and Monitoring Program. The total cost of the improvements included on the project list was valued at $39,900,000 (in 1991 dollars). Many of the projects on the 1991 TIF project list have been completed including 6 of the 12 arterial road segments and 11 of the 14 arterial intersections. In addition to the location specific projects the TIF revenues have been used to fund construction of the sidewalk improvements throughout the City and to prepare annual Traffic Monitoring Program report used to identify the roadway segment and intersection improvement needs of the City. The results of the monitoring report help gage the effectiveness of the constructed circulation improvements and to prioritize future project construction needs. Page 5
Exhibit 1Dec. 6, 2021 Item #5 13TABLE 2 1991 TRAFFIC IMPACT FEE PROGRAM PROJECT LIST # Improvement Description Status Road Se ;iments 1 Alga Road Widen south side from Mimosa Drive In use to El Camino Real 2 Avenida Encinas Widen south of Palomar Airport Road FY 2012-17 3 Carlsbad Boulevard Widen from Manzano Drive to 600 FY 2017-22 feet north of Cannon Road 4 Carlsbad Village Drive Widen from Pontiac Drive to Victoria FY 2017-22 Avenue 5 Carlsbad Villaae Drive Widen east of El Camino Real In use 6 El Camino Real Widen from Tamarack Avenue to FY 2008-09 Chestnut Avenue 7 El Camino Real Widen from La Costa Avenue to FY 2012-17 Arena! Road 8 La Costa Avenue Widen from 1-5 to El Camino Real In use 9 La Costa Avenue Mitiaation for widening In use 10 Leucadia Boulevard Construct from existing terminus east In use to El Camino Real 11 O/ivenhain Road and Rancho Santa Fe Road Widen from El Camino Real to In use Melrose Drive 12 Poinsettia Lane Widen from 1-5 to Batiquitos Lane FY 2017-22 Intersections 1 Cannon Road -1-5 Road and ramp widening, signal In use installation 2 Cannon Road -Paseo Del Norte Add one thru lane each direction In use 3 El Camino Real -Alga Road Add dual left turn, signal modifications In use 4 El Camino Real -Cannon Road Add southbound right-turn lane In use 5 El Camino Real -Camino Vida Roble Left-turn lanes In use 6 El Camino Real -Carlsbad Villaqe Drive Dual left on El Camino Real FY 2017-22 7 El Camino Real -Faraday Avenue Dual left-turn lanes on ECR. right-turn In use lanes on all legs Intersection reconstruction, add 8 El Camino Real -Palomar Airport Road left-turn, thru and right-tum lanes on FY 2009-10 all legs Close free right-turn lane, signal 9 El Camino Real -Tamarack Avenue modifications for dual left and left-turn In use phasing 10 Faraday Avenue -Orion Street Traffic Signal In use 11 Faraday Ave -College Boulevard Dual left-turn northbound and In use southbound 12 Melrose Drive -Alaa Road Dual left-turn lanes all legs 2017-22 13 Palomar Airport Rd -Colleae Boulevard Dual left-turn lane southbound In use 14 Palomar Airoort Rd -Paseo Del Norte Dual left-turns all legs In use PrOQrams 1 Sidewalk Program Complete sidewalks at various Ongoing locations throuahout the City Program to facilitate Transportation Demand Management (TOM) 2 Transportation Management and Monitoring strategies, to annually review Ongoing Program effectiveness of TIF improvement program and to facilitate annual proaramming of TIF funding Page6
Exhibit 1Dec. 6, 2021 Item #5 14To prepare the project list for the 2008 TIF update, each of the 58 intersections as noted above were analyzed to determine the projected level of service (LOS) during the morning (AM) and afternoon (PM) peak hour periods utilizing buildout traffic projections. The analysis assumed existing base intersection geometries, except in cases where there were planned improvements programmed in the City's Capital Improvement Program (CIP) or an approved development project. In such cases, the planned improved geometry was used as the basis for determination of intersection LOS. Of these 58 intersections, 34 meet LOS performance standards in their existing configurations and 13 intersections will meet LOS performance standards because of planned improvements currently included in the CIP or an approved development project. The remaining 11 intersections were found to operate at a LOS E or worse during one or both of the peak hour periods and therefore they require additional improvements beyond what is currently planned. Additional improvements were recommended and new analyses were performed to ensure that each of the failed intersections would meet acceptable LOS standards after the construction of the additional improvements. Roadway segment adequacy was evaluated against the Circulation Element classification. There are a number of roadway segments that are not fully constructed in accordance with their classifications and need to be completed and/or realigned to comply with the City's Growth Management circulation performance standard. Some of these segment improvements are also located along fully-developed properties or properties which cannot be developed and therefore a supplemental funding program is required for these facilities to be fully constructed to meet traffic demands generated by citywide growth. Based on the results of the traffic analysis and evaluation as described above, a set of new projects is recommended for inclusion in the TIF project list. Table 3 identifies the new roadway segment and intersection improvements recommended for the 2008 update of the TIF program and notes the proposed/programmed schedule for start of construction. Page 7
Exhibit 1Dec. 6, 2021 Item #5 15TABLE 3 2008 TRAFFIC IMPACT FEE PROGRAM-NEW PROJECTS Start # Improvement Description Construction Road Segments Cannon Road from 1200' east 1 Cannon Road Reach 4B of College to the easterly city FY 2018-2023 limits 2 Carlsbad Boulevard Mountain View Dr. north to FY 2018-2023 the city limits Palomar Airport Road -Carlsbad Roadway realignment and 3 construction from Avenida FY 2018-2023 Boulevard Encinas to Carlsbad Boulevard Intersections Palomar Airport Road -Paseo Del Road widening for a right-turn FY 2008-1 Norte lane along PAR from Armada to 2009 Paseo Del Norte 2 Palomar Airport Road -College Road widening for right-turn FY 2013-2018 Boulevard lanes at PAR andCollege Blvd. Palomar Airport Road -El Fuerte Road widening for a right-tum FY 2013-3 lane from W/B PAR to N/B Street El Fuerte Street 2018 Melrose Drive - Palomar Airport Road widening for a right-turn FY 2010-4 lane from S/B Melrose Drive to Road W/B PAR 2011 Add N/B to E/B right-turn lane. 5 El Camino Real -Cannon Road Widen bridge structure. Add FY 2010-2011 second N/B and S/B turn lanes. In addition to the new projects as listed above and the remaining projects from the 1991 TIF project list, the La Costa Avenue widening and Olivenhain Road/Rancho Santa Fe Road projects from the 1991 TIF project list, both of which are in use, are included on the 2008 TIF project list. These projects are included on the project list to account for an outstanding reimbursement amount of $2.9 million that the TIF program owes the CFO #1 program. This reimbursement is a result of the CFO #1 program advancing the TIF's share of these project costs as it relates to fee collected from development not in CFO #1. By including these projects on the project list, the TIF program will collect the necessary fees to reimburse the CFO #1 program. By combining the future projects, remaining projects and the two remaining fund transfer projects as noted above the 2008 TIF update Project List as shown below in Table 4 is created. The 2008 TIF update project list consists of 11 roadway segments, 11 intersection improvements, and the continuation of the City's sidewalk construction program and the City's Transportation Management and Monitoring System. Page 8
Exhibit 1Dec. 6, 2021 Item #5 16TABLE 4 2008 TRAFFIC IMPACT FEE UPDATE -PROJECT LIST RTCIP ESTIMATED # ELGIBLE IMPROVEMENT DESCRIPTION COSTS :;egments 1 No Avenida Encinas wIaen south ot Palomar Airport Road $5,045,000 2 Yes Carlsbad Boulevard wIaen trom Manzano unve to ouu $5,360,000 Feet north of Cannon Road 3 Yes El Camino Real vvruen rrom I amaracK Avenue to $8,078,000 Chestnut Avenue 4 No Carlsbad Village Drive Widen from Pontiac to Victoria $4,841,000 5 Yes El Camino Real vvraen rrom La i...;os1a Avenue 10 $2,305,000 Arenal Road 6 Yes Cannon Road Reach 4 t,;annon Koad trom 1 LUU east ot $5,400,000 * Colleqe to the easterly city limits 7 Yes Carlsbad Boulevard Mountran vrew ur. nortn to the city limits $2,541,200 * Palomar Airport Road / t-'aIomar Airport Koaa rea11gnment $3,527,400 * 8 Yes and construction from Avenida Carlsbad Boulevard Encinas to Carlsbad Boulevard 9 Yes Poinsettia Lane vvruen rrom t-'aseo ueI Norte to $2,290,000 Batiquitos Lane No La Costa Avenue Widen from 1-5 to El Camino Real $1,500,000 ** 10 No urrvennam Koad and WIden1t~eaIIin Kancno :santa t-e $1,400,000 ** 11 Rancho Santa Fe Road Road/Oliven ain Road 1ntersect1ons Palomar Airport Road -Koad wIdenmg tor a n~nt-turn lane $1,244,000 1 Yes alon~ PAR from Arma a to Paseo Paseo Del Norte Del orte 2 Yes Palomar Airport Koad -Colleoe Boulevard Koad wIdenrng tor n1t-turn lanes at PAR and Colleqe lvd. $587,000 3 Yes Palomar Airport Koad-t:I Camino Real Add ngnt-turn lane trom t:/11 PAK to S/B ECR $568,000 4 Yes t-'aIomar Airport Koaa -t:I Fuerte Street Koaa wIdenin~ tor a n~tt-turn Iane from W/B PA to N/8 I Fuerte St. $916,000 5 Yes Palomar Airport Road -Melrose Drive Ada right-turn lane from t:/t:$ t-'AK to S/8 Melrose Drive $88,500 Yes Melrose Drive -Palomar Koad widening tor a ngm-turn lane $410,000 6 Airport Road from S/8 Melrose Drive to W/B PAR 7 Yes Melrose Drive -Alga Road Add dual lett-turns on all $946,000 approaches 8 Yes t:I Gamino Keal -Add dual Jett-turns m N/11 ana :::;111 $865,000 Carlsbad Villaqe Drive directions alonq ECR Yes El Camino Real -Cannon Add N/B to t:/11 ngm-turn Iane. $2,205,000 9 Road Widen bri1e structure. Add second N/ and S/B turn lanes. 10 Yes El Cammo Real -Alga Moanrc ngm-turn Trom N/o lO $335,000 Road E/B Alga Road 11 Yes t:I t,;ammo Keal -Add second N/t:$ to W/t:5 left-turn ~LO-l,UUU Tamarack lane t"roarams -1.,1tyw1ae -1 No Sidewalk Program t,;omplete sIdewaI1<s at various locations throuahout the City $2,440,000 t-'rogram to tacImate Transportation Demand No Transportation Management (TOM) strategies, $1,440,000 2 Management and to annually review effectiveness Monitoring Program of TIF imerovement program and to facilita e annual programming of TIF funding ~ -I he estimated cost tor this roJect represents LU"lo ot me total proiect estimated costs to reflect the prorated share to be funded by future development. ** -The estimated cost for this project represents the remaining portion of the total project costs which were fronted by the CFO #1 program fund and which are to be reimbursed by the TIF program fund. Page 9
Exhibit 1Dec. 6, 2021 Item #5 17Project Costs After the projects were indentified cost estimates, as attached in Appendix B, were prepared and assembled. The cost estimates were based on the current project descriptions and recent bid prices for similar items of work. For roadway segment projects 6, 7, and 8 as listed on Table 4 above, it is recommended to limit the value for inclusion in the TIF program to 20% of the estimated costs. Each of these projects will convey a significant percentage of traffic volumes generated at the regional level and as such it is appropriate to reduce the fee on development within Carlsbad to reflect the regional nature of these facilities. The value of 20% is equal to the percentage of trips that will be generated by future development in Carlsbad compared to the number of trips generated by Carlsbad at buildout. Traffic Volumes Once the estimated project costs for the TIF program are generated, they are apportioned to residential, commercial, and industrial development based on the volume of traffic created. The traffic volumes were calculated based on the 2008 growth projections which are prepared in conjunction with the adoption of the Operating Budget and the Capital Improvement Program. The projections indicate from FY 2008/09 through buildout there will be 4,574 residential units, 4,754,000 square feet of commercial development, and 5,770,000 square feet of industrial development constructed. These values are then used to calculate the number of average daily trips (AOT) generated by future development. The ADT generation for residential land use is based on an estimated mixture of 65% single-family and 35% condominium development which results in an average of 9.3 ADT/unit. For commercial development, the generation rate of 40 ADT/1000 sf was used and for industrial development the generation rate of 8 ADT/1000 sf was used. Consistent with the 1991 TIF Program, it is recommended that Commercial and Industrial trip generations be adjusted to reflect double-counting. The recommended approach adjusts Commercial and Industrial trips to 40% of the generation rate. This adjustment reflects the judgment that 60% of the trip ends assigned to Commercial and Industrial uses originate from residences within the City. Page 10
Exhibit 1Dec. 6, 2021 Item #5 18Updated Fee Calculation The TIF fee was calculated by multiplying the ADT for each land use, both within and not within CFD#1, by a projected fee and then checking the total fee revenue against the quantity of the remaining funds needed. The respective fees for each land use are governed by the two features as follows: 1) The value of the fee for Commercial/Industrial is equal to 40% of the Residential fee to account for double counting as described above, and; 2) The credit given to development within CFO #1 is equal to the value of the current fee credit which is equal to $40/AOT for Residential and $16/AOT for Commercial/Industrial. Through an iterative process, the TIF fees needed to generate the funding for the project were calculated. The result of these calculations which is summarized in Table 5 below, is the recommended fee based on the 2008 TIF update described herein. TABLE 5 2008 TIF UPDATE FEE DEVELOPMENT FEE BASIS NOT IN CFD#1 IN CFO #1 TIF CREDIT Residential $353/ADT* Sinale-Family $3530/unit $3130/unit $400/unit Condominium $2824/unit $2504/unit $320/unit Apartment $2118/unit $1878/unit $240/unit Commercial/Industrial $142/ADT* 142/ADT* 126/ADT* $16/ADT* *=Average Daily Trip V. SUMMARY AND CONCLUSION The steps used to prepare this update to the TIF Program included the following: 1. Review and assessment of the current TIF Program 2. Update the City's buildout traffic projections 3. Evaluate the Circulation System 4. Develop the list of improvements to include in the TIF Program 5. Develop cost estimates 6. Develop a projection of average daily trips generated by future development 7. Calculate the fee As a result of this analysis, the updated fee of $353/AOT for residential and $142/AOT for Commercial and Industrial development has been calculated. Based on current estimates of growth and project costs, the implementation of these updated fees in conjunction with the TIF program will be sufficient to fund the necessary improvements to ensure that the growth management standards relating to the roadway circulation system are satisfied in an efficient manner and in conjunction with the future development of the City. Page 11
11/29/2021 Chapter 18.42 TRAFFIC IMPACT FEE
www.qcode.us/codes/carlsbad/1/4
Carlsbad Municipal Code
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Title 18 BUILDING CODES AND REGULATIONS
Chapter 18.42 TRAFFIC IMPACT FEE
18.42.010 Purpose and intent.
A. This chapter imposes a fee to pay for various traffic circulation improvements within the city. The amount of the fee is based on a traffic engineering analysis and
has been calculated to be equal to or less than the cost of the circulation improvements. The circulation improvements funded by this fee shall be designated by city
council resolution. The city council may modify the designation by amendment to the resolution at any time. It is the city council’s intention to review the designation of
circulation improvements and the amount of the fee on an annual basis. In reviewing the improvements and amount of the fee, the city council shall consider, among other
things, any changes to the land use designations or intensity of development, changes in the amount of traffic generated or anticipated, inflation and increases in cost of
materials and labor.
B. This chapter is necessary to ensure that adequate circulation facilities are available to serve the city in a manner which is consistent with the city’s general plan.
Without the circulation improvements which will be funded by this fee the circulation system of the city will be inadequate to serve any further development in the city.
(Ord. NS-177 § 1, 1991; Ord. 8107 § 1, 1986)
18.42.020 Definitions.
For the purposes of this chapter, the following words or phrases shall be construed as defined in this section.
“Building permit” means a permit required by and issued pursuant to Chapter 18.04 of this code. “Occupancy permit” means a permit required by and issued pursuant to
Chapter 21.60 of this code.
“Circulation improvements” means any street improvement identified by city council resolution, including but not limited to, right-of-way, traffic signals, overcrossings,
underpasses, curbs, gutters, sidewalks, pavement, drainage facilities incidental to street improvements, necessary to provide traffic circulation consistent with the city’s
general plan. For the purpose of this definition, “street” includes highway or road.
“Project” means on any property subject to this chapter, any new or additional building, structure, or any land use change which increases the number of trips generated by
the use of the lot or parcel.
“Property subject to this chapter” means any lot or parcel of land in the city.
“Trip” means an arrival at or a departure from a project by any motor vehicle averaged over a one-day period (12:01 a.m. to 11:59 p.m.) as determined according to Table
18.42.020. In using this table, the square footage of the building, structure or use shall include all interior floor area of a building or structure, and all usable ground area
of a use without a structure, except any designated open space area. Where the table establishes traffic generation for a project on the basis of square footage, acreage, or
some other unit, the unit establishing the greatest number of trips shall be utilized. When a project has more than one use the number of trips shall be calculated by adding
together all the trips generated by each use. For uses not listed in the table the trips shall be calculated by the transportation director.
Table 18.42.020
Land Use Estimated Weekday Vehicle Trip Generation Rate
Agricultural (Open space)2/acre
Airports
Commercial 12/acre, 100/flight, 70/1,000 sq. ft.
General aviation 4/acre, 2/flight, 6/based aircraft
Heliports 100/acre
Automobile
Car wash 900/site, 600/acre
Gasoline 750/station, 130/pump
Sales (Dealer and repair)40/1,000 sq. ft., 300/acre, 60/service stall
Auto repair center 20/1,000 sq. ft., 400/acre, 20/service stall
Banking
Bank (Walk-in only)150/1,000 sq. ft., 1,000/acre
Bank (with drive-through)200/1,000 sq. ft., 1,500/acre
Drive-through only 300 (150 one-way)/lane
Savings and Loans 60/1,000 sq. ft., 600/acre
Drive-through only 100 (50 one-way)/lane
Cemeteries 5/acre
Church (or Synagogue)15/1,000 sq. ft., 40/acre (triple rates for Sunday, or days of assembly)
Commercial/retail centers
Super regional shopping center (more than 60 acres, more than 600,000 sq. ft., with
usually 3+ major stores)
40/1,000 sq. ft., 400/acre
Regional shopping center (30—60 acres, 300,000—600,000 sq. ft., with usually 2+
major stores)
50/1,000 sq. ft., 500/acre
Exhibit 2
Dec. 6, 2021 Item #5 19
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Land Use Estimated Weekday Vehicle Trip Generation Rate
Community shopping center (10—30 acres, 100,000—300,000 sq. ft., with usually
1 major store and detached restaurant)
70/1,000 sq. ft., 700/acre
Neighborhood shopping center (less than 10 acres, less than 100,000 sq. ft., with
usually a grocery store and drug store)
120/1,000 sq. ft., 1,200/acre
Commercial shops (also strip—commercial)40/1,000 sq. ft., 400/acre
Grocery store 150/1,000 sq. ft., 2,000/acre
Convenience market 500/1,000 sq. ft.
Discount 70/1,000 sq. ft., 700/acre
Furniture store 6/1,000 sq. ft., 100/acre
Lumber store 30/1,000 sq. ft., 150 acre
Hardware/paint store 60/1,000 sq. ft., 600/acre
Garden nursery 40/1,000 sq. ft., 90/acre
Education
University (4 years)2.5/student, 100/acre
Junior college (2 years)1.6 student, 80/acre
High school 1.4 student, 50/acre
Middle/Junior High 1.0 student, 40/acre
Elementary 1.4 student, 60/acre
Day care 3/child, 70/1,000 sq. ft.
Hospitals
General 20/bed, 20/1,000 sq. ft., 200/acre
Convalescent/Nursing 3/bed
Industrial
Industrial/Business park (commercial included)16/1,000 sq. ft., 200/acre
Industrial park (no commercial)8/1,000 sq. ft., 90/acre
Industrial park (multiple shifts)10/1,000 sq. ft., 120/acre
Manufacturing/Assembly 4/1,000 sq. ft., 60/acre
Warehousing 5/1,000 sq. ft., 60/acre
Storage 2/1,000 sq. ft., 0.2/vault, 30/acre
Science, research and development 8/1,000 sq. ft., 80/acre
Library 40/1,000 sq. ft., 400/acre
Lodging
Hotel (with convention facilities/restaurant)10/room, 300/acre
Motel 9/room, 200/acre
Resort hotel 8/room, 100/acre
Military 2.5 military and civilian personnel
Offices
Standard commercial office (less than 100,000 sq. ft.)20/1,000 sq. ft., 300/acre
Large (high-rise) commercial office (more than 100,000 sq. ft.)17/1,000 sq. ft., 600/acre
Standard commercial office (less than 100,000 sq. ft.)20/1,000 sq. ft., 300/acre
Corporate office (single user)10/1,000 sq. ft., 140/acre
Government office (single user)30/1,000 sq. ft.
Post office 150/1,000 sq. ft.
Department of motor vehicles 180/1,000 sq. ft., 900/acre
Medical 50/1,000 sq. ft., 500/acre
Parks
City (developed)50/acre
Regional (undeveloped)5/acre
Neighborhood 5/acre
Amusement (theme)80/acre, 130/acre (summer only)
Exhibit 2
Dec. 6, 2021 Item #5 20
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Land Use Estimated Weekday Vehicle Trip Generation Rate
San Diego Zoo 115/acre
Sea World 80/acre
Recreation
Beach, ocean or bay 600/1,000 ft. shoreline, 60/acre
Beach, lake (fresh water)50/1,000 ft. shoreline, 5/acre
Bowling center 30/lane, 300/acre
Campground 4/campsite
Golf course 8/acre, 600/course
Marinas 4/berth, 20/acre
Racquetball/health club 40/1,000 sq. ft., 300/acre, 40/court
Tennis courts 30/1,000 sq. ft., 30/court
Sports facilities
Outdoor stadium 50/acre, 0.2/seat
Indoor arena 30/acre, 0.1/seat
Racetrack 40/acre, 0.6/seat
Theaters (multiplex)80/1,000 sq. ft., 1.8/seat
Residential (See Note 1)
Single-family detached 10/dwelling unit
Condominium 8/dwelling unit
Apartments 6/dwelling unit
Mobile home
Family 5/dwelling unit, 40/acre
Adults only 3/dwelling unit, 20/acre
Retirement community 4/dwelling unit
Rural estate 12/dwelling unit
Congregate care facility 2/dwelling unit
Restaurants (See Note 2)
Quality 100/1,000 sq. ft., 500/acre
Sit-down, high turnover 300/1,000 sq. ft., 1,200/acre
Fast food (with drive-through)700/1,000 sq. ft., 3,000/acre
Transportation facilities
Bus depot 25/1,000 sq. ft.
Truck terminal 10/1,000 sq. ft., 60/acre
Waterport 170/berth, 12/acre
Transit station (rail)300/acre
Note 1 As used in this table, “single-family detached,” “condominium” and “apartments” shall be defined consistent with the Institute of Transportation Engineers guidebook “Trip Generation.”
“Condominium” is defined as single family ownership units that have at least one other single-family owned unit within the same building structure. “Apartments” are defined as rental dwelling units locatedwithin the same building as at least three other dwelling units. Duplexes that are not individual ownership units will be assessed at the “condominium” generation rate.
Note 2 Square footage of dining area allowed in incidental outdoor dining areas pursuant to Section 21.26.013, and square footage of dining area allowed without any parking requirement in outdoor, sidewalk
or curb cafes, as defined by and pursuant to the Village and Barrio Master Plan and the city council, shall not count towards the generation of trips. However, any combination of outdoor dining area squarefootage which exceeds the amount of indoor dining area square footage shall count towards the generation of trips.
(Ord. CS-333 § 11, 2018; Ord. CS-207 § 2, 2013; Ord. CS-164 § 2, 2011; Ord. CS-086, 2010; Ord. NS-177 §§ 2, 3, 1991; Ord. 8107 § 1, 1986)
18.42.030 Prohibition on development.
For any property subject to this chapter, notwithstanding any provision of this code to the contrary, no building permit or occupancy permit for any project shall be issued and
no person shall build, use or occupy any project, without first paying the fee established by, or otherwise complying with, this chapter. (Ord. 8107 § 1, 1986)
18.42.040 Requirement for permit issuance.
Prior to the issuance of a building permit or occupancy permit for a project the project owner or developer shall:
A. Provide the transportation director with detailed information regarding the size, siting, types of uses and trips to be generated by the project;
B. Pay the fee established by Section 18.42.050 of this code. (Ord. CS-164 § 2, 2011; Ord. 8107 § 1, 1986)
18.42.050 Fee.
A. A traffic impact fee of $265.00 for each average daily trip generated by a residential project and a traffic impact fee of $106.00 for each average daily trip generated
by a commercial or industrial project, pursuant to Section 18.42.020(E), shall be paid by the owner or developer prior to issuance of any building permit or occupancy
Exhibit 2
Dec. 6, 2021 Item #5 21
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permit for a project. The traffic impact fee shall be adjusted annually as part of the capital improvement program budget process, by two percent or the annual percentage
change in the Caltrans Construction Cost Index (12-month index), whichever is higher.
B. In lieu of payment of all or part of the fee the project owner or developer may offer to construct or fund circulation improvements to the satisfaction of the city
council, other than circulation improvements required by any other law, approval or city action. If such offer is accepted by the city council, any amount expended by the
project owner or developer shall be credited against the fee. If the offer is rejected the fee shall be paid. The offer shall be made at the time of consideration of any
discretionary planning or subdivision permit or approval, or if no such permit or approval is required then before building permit application is filed.
C. The city council shall give a credit toward the fee imposed by this chapter for properties within the boundaries of and subject to taxation by community facilities
district number one. The amount of such credit shall be determined by the city council and established by resolution.
D. Notwithstanding subsection A of this section, all traffic impact fees for any residential development that consists of five or more dwelling units and for all new
commercial, office, and industrial buildings or building additions shall only be paid prior to building permit issuance, or, at the request of the applicant, deferred until all
work required for final inspection has been completed and all department approvals required for final inspection have been obtained by the applicant. If the applicant
chooses to defer the payment of fees to prior to the request for final inspection, then the amount of the fees shall be based on the fees in effect at the time of the request for
final inspection.
In the event that the city, for any reason, fails to collect any or all fees prior to final inspection, such fees shall remain the obligation of the developer and/or the property
owner. (Ord. CS-271 § III, 2015; Ord. CS-200 § III, 2013; Ord. CS-028 § 1, 2009; Ord. NS-890 §§ 1, 2, 2008; Ord. NS-885 § 1, 2008; Ord. NS-177 § 4, 1991; Ord. NS-
158 § 2, 1991; Ord. 8107 § 1, 1986)
18.42.060 Exemption.
Projects by public agencies or entities shall be exempt from the provisions of this chapter. (Ord. 8107 § 1, 1986)
18.42.070 Use of fees.
A. All of the fees collected for a commercial or industrial project shall be allocated to a circulation improvement account and shall be expended only to build or finance
circulation improvements serving the city.
B. All of the fees collected for each newly constructed residential unit, excepting the portion defined in subsection C of this section, shall be allocated to a circulation
improvement account and shall be expended only to build or finance circulation improvements serving the city.
C. A portion of the fees collected for newly constructed residential housing units, excepting the fees collected for newly constructed housing units constructed for
extremely low, very-low, low and moderate income households as defined in California Health and Safety Code Sections 50105, 50106, 50079.5 and 50093, during the
40-year period starting July 1, 2008 shall be allocated to a separate circulation improvement sub account and shall be used to build or finance circulation improvements to
the regional arterial system as adopted by the Board of the San Diego Association of Governments. For the year from July 1, 2008 to June 30, 2009, said portion shall
equal $2,000.00 per residential housing unit. Said portion shall be adjusted annually as part of the city’s capital improvement program budget process, by two percent or
the annual percentage change in the Caltrans Construction Costs Index, (12-month index), whichever is higher. (Ord. NS-890 § 3, 2008; Ord. NS-885 § 2, 2008; Ord. NS-
177 § 5, 1991; Ord. 8107 § 1, 1986)
18.42.080 Assessment district.
If an assessment district or special taxing district is established for all or any part of the area subject to this chapter to fund circulation improvements which are or will be
funded in whole or in part by the fee established by this chapter, the owner or developer of a project may apply to the city council for a credit against the fee in an amount equal
to the assessments or taxes paid. (Ord. 8107 § 1, 1986)
18.42.090 Advance of funds by city.
The city may advance money from any available source or fund for the construction of improvements which would otherwise be paid for from the fees collected pursuant to
this chapter and reimburse itself from future fees. (Ord. 8107 § 1, 1986)
18.42.100 Expiration of chapter.
This chapter shall be of no further force and effect when the city council determines the amount of fees which have been collected reaches an amount equal to the cost of the
circulation improvements. (Ord. 8107 § 1, 1986)
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Exhibit 2
Dec. 6, 2021 Item #5 22