1994 Regional Mobility Element, Volume 1
ABSTRACT
TITLE: 1994 Regional Mobility Element, Volume 1
AUTHOR: Southern California Association of Governments
SUBJECT: Transportation Goals, Objectives, Policies and
Actions, 1994-2015
DATE: June, 1994
REGIONAL PLANNING AGENCY:
Southern California Association of Governments
SOURCE OF COPIES:
Southern California Association of Governments
818 West 7th Street, 12th Floor
Los Angeles, CA 90017
(213) 236-1800
ABSTRACT:
The Regional Mobility Element of the Regional
Comprehensive Plan is SCAG's major policy and planning
statement on the region's transportation issues and
goals. It is comprised of a set of long-range policies,
plans, and programs that outline a vision of a regional
transportation system compatible with federal and state
mobility objectives. The goal of the RME itself is to
provide effective coordination and orderly programming
of transportation improvements within the SCAG region.
The RME was developed through the 3-C Planning Process
prescribed by the U.S. Department of Transportation and
requirements outlined in the Intermodal Surface
Transportation Efficiency Act (ISTEA) of 1991.
REGIONAL USE GUIDELINES:
SCAG is mandated to prepare and periodically update the
Regional Mobility Element by Section 65080 of the
Government Code. This section also specifies that
actions by transportation agencies must be consistent
with the RME in order to obtain Federal and State
funding.
CHAPTER
ONE EXECUTIVE SUMMARY
The Regional Mobility Element (RME) establishes regional
transportation policy for the six-county region of the Southern
California Association of Governments. It covers all forms of
transportation, including automobile, transit, non-motorized modes of
travel, rail/high-speed-rail, trucking, shipping, and aviation
facilities. The RME identifies the facilities and programs that will
be needed to meet the increased transportation demands in accordance
with air quality requirements through the year 2015. Additionally,
the RME focuses on transportation strategies that create jobs and
could help revitalize the recession-plagued economy of Southern
California.
Transportation demands continue to increase rapidly in Southern
California as a result of both population growth and changes in travel
patterns. Given the financial restrictions and environmental concerns,
it appears unlikely that this demand can be accommodated without
dramatic changes in travel behavior.
To this end, the RME proposes changing transportation habits of the
past with new travel behavior that can help Southern California reach
its mobility and air quality goals. For instance, it is projected that
by 2015, travel alternatives proposed in the RME could result in
almost 13.03% of all employees commuting to and from work in some form
of transit which is 2.5 times the current number of 5.6%.
The RME is Southern California's transportation plan required by
federal and state law and the basis for more than $71 billion in
federal, state and local investments in transportation that will be
made over the next 20 years. By law, major projects must be included
in the RME (or in subsequent RME updates) to be eligible for funding.
The RME covers a 20-year planning period with analysis built on
current demographics, statistics, and computer modeled projections
that take into consideration a mix of strategies: facility
development, demand management, urban form, advanced transportation
technology, and market incentives.
Ultimately, the RME reflects the transportation future envisioned for
the year 2015.
By then, there will be 6 million more people in Southern California.
But instead of a bleak, congested transportation system foreseen by
some skeptics, residents of the region could actually be driving alone
less.
Air quality will also be better than it is today but not without
implementation of RME strategies designed to bring the region into
compliance with federal and state mobility and air quality
requirements.
A key strategy of the RME is Advanced Transportation Technology --
including the use of Zero-Emission Vehicles, Alternative Fuels,
Telecommunications, Intelligent Vehicle Highway Systems, Smart Shuttle
Transit, and Smart Cities.
This Advanced Transportation Technology strategy will be a boon to the
region's currently sagging economy. It is estimated that by 2015, no
fewer than 350,000 to 400,000 new jobs will have been created by the
development of industries making and supporting new transportation
technologies.
To pay for this technology as well as to help change the public's
transportation habits, the RME considers a series of Market
Incentives. For example, people might pay extra fees based on the
amount of driving they do or on the amount of emissions their cars
produce. The burden, of course, would fall on the big polluters.
Pursuant to the financial plan, the SCAG Regional Council will appoint
a special committee to actually develop specific market incentive
proposals, implementation strategies, consensus building steps, and a
legislative implementation agenda.
In providing long-range planning and policy-making framework, the RME
responds to the requirements of the Intermodal Surface Transportation
Efficiency Act (ISTEA), the state and federal Clean Air Acts, and the
Lewis-Presley Air Quality Management Act.
The RME has been prepared by the staff at SCAG with substantial
assistance and input from subregional organizations, County
Transportation Commissions, state and federal agencies, and other
regional organizations as well as numerous other public and private
parties. As part of SCAG's "bottom-up" outreach efforts, special
emphasis was placed on securing information and input on issues of
concern to subregions, cities, and counties.
The Southern California Association of Governments is designated as
the agency responsible for regional transportation planning by both
the state and federal governments. As such, it is SCAG's
responsibility to look into the future and propose plans which best
satisfy the diverse needs and concerns of the Southern California
region.
The RME has evolved from the July 1993 Preliminary Draft Discussion
Document, as well as the December 1993 Draft Document, and has had the
benefit of on-going public review -- including workshops, policy and
technical committees meetings, written comments, and documents
presented by state agencies, transportation providers, subregional
associations, utilities, the private sector and the public at large.
Additionally, the RME has been developed under SCAG's remodeled
decision-making structure, which now involves more elected
representatives from a more diverse geographic base. The former 20-
plus member Executive Committee has been replaced by a 70-member
Regional Council. In addition, 13 subregional groups are formally
participating in the development of the regional plan and its
subregional parts. (See Figure 1-1, Map of the SCAG Subregions and
Table 1-1, Subregions) The 1994 RME replaces its predecessor, the
1989 Regional Mobility Plan as the guide for mobility planning for
Southern California.
TABLE 1-1
SUBREGIONS
Imperial Valley Association of Governments (IVAG)
Imperial County, Brawley, Calexico, Calipatria, El Centro,
Holtville, Imperial, Westmoreland.
Coachella Valley Association of Governments (CVAG)
County of Riverside, Blythe, Cathedral City, Coachella, Desert Hot
Springs, Indio, Indian Wells, La Quinta, Palm Desert, Palm Springs,
Rancho Mirage
Western Riverside Council of Governments (WRCOG)
Riverside County, Banning, Beaumont, Calimesa, Canyon Lake, Corona,
Hemet, Lake Elsinore, Moreno Valley, Murrieta, Norco, Perris,
Riverside, San Jacinto, Temecula
San Bernardino Association of Governments (SANBAG)
San Bernardino County, Adelanto, Apple Valley, Barstow, Big Bear
Lake, Chino, Chino Hills, Colton, Fontana, Grand Terrace, Hesperia,
Highland, Loma Linda, Montclair, Needles, Ontario, Rancho
Cucamonga, Redlands, Rialto, San Bernardino, Twenty Nine Palms,
Upland, Victorville, Yucca Valley, Yucaipa
Orange County
Orange County, Anaheim, Brea, Buena Park, Costa Mesa, Cypress, Dana
Point, Fountain Valley, Fullerton, Garden Grove, Huntington Beach,
Irvine, Laguna Beach, Laguna Hills, Laguna Niguel, La Habra, Lake
Forest, La Palma, Los Alamitos, Mission Viejo, Newport Beach,
Orange, Placentia, San Clemente, San Juan Capistrano, Santa Ana,
Seal Beach, Stanton, Tustin, Villa Park, Westminster, Yorba Linda
Southeast Los Angeles County (SELAC)
Los Angeles County, Artesia, Bell, Bellflower, Bell Gardens,
Cerritos, Commerce, Compton, Cudahy, Downey, Hawaiian Gardens,
Huntington Park, Lakewood, La Habra Heights, La Mirada, Long Beach,
Lynwood, Maywood, Montebello, Norwalk, Paramount, Pico Rivera,
Santa Fe Springs, Signal Hill, South Gate, Vernon, Whittier
San Gabriel Valley Association of Cities
Los Angeles County, Alhambra, Arcadia, Azusa, Baldwin Park,
Bradbury, Claremont, Covina, Diamond Bar, Duarte, El Monte,
Glendora, Industry, Irwindale, La Puente, Laverne, Monrovia,
Monterey Park, Pasadena, Pomona, Rosemead, San Dimas, San Gabriel,
San Marino, Sierra Madre, South El Monte, Temple City, Walnut, West
Covina
South Bay Cities Association
City of Los Angeles, Carson, El Segundo, Gardena, Hawthorne,
Hermosa Beach, Inglewood, Lawndale, Lomita, Manhattan Beach, Palos
Verdes Estates, Torrance
Westside Cities
Los Angeles County, Beverly Hills, Culver City, Santa Monica, West
Hollywood
City of Los Angeles
Los Angeles County, City of Los Angeles
Ventura County of Governments
Ventura County, Agoura Hills, Camarillo, Fillmore, Moorpark, Ojai,
Oxnard, Port Hueneme, San Buena Ventura, Santa Clarita, Santa
Paula, Simi Valley, Thousand Oaks, Westlake Village
Arroyo Verdugo
Burbank, Glendale, La Canada Flintridge, Pasadena, South Pasadena
North Los Angeles County
County of Los Angeles, Lancaster, Palmdale, Santa Clarita
CHAPTER GOALS, OBJECTIVES, STRATEGIES
TWO AND FINANCE
INTRODUCTION
As it approaches the 21st Century, Southern California confronts a
historic transportation crisis that has become a planning war against
increasing mobility gridlock and air pollution complicated by a
lagging economic recovery and a growing population.
The Regional Mobility Element is the principal transportation policy,
strategy, and objective statement of the Southern California
Association of Governments (SCAG), proposing a comprehensive strategy
for achieving mobility and air quality mandates.
It describes the region's strategy for adjusting its transportation
behavior and investments as it balances the constraints of government-
mandated financial and environmental objectives and mobility demands.
The RME is a plan that not only comes within fiscal limits but also
meets the mandated mobility and air quality requirements through 2015.
Federal and state legislation has vested SCAG with the responsibility
of preparing the regional transportation plan and program, which have
been developed as part of the Regional Comprehensive Plan -- the
blueprint for managing growth and resources in the region prepared by
SCAG in conjunction with subregions, cities and counties, the public,
state and federal governmental agencies, and private organizations.
(See Table 2-1, RME Goals and Subgoals.)
The RME links the goal of sustaining mobility with the goals of
fostering economic development, enhancing the environment, reducing
energy consumption, promoting transportation-friendly development
patterns, and encouraging fair and equitable access to residents
affected by socio-economic, geographic, and commercial limitations. It
proposes doing this with an innovative strategy that builds on and
maximizes huge public investments in highways, rails, buses, airports,
seaports, truck facilities, and communications technologies.
Cast against a backdrop of the California recession, the 1994 RME is
different from past transportation plans in its greater concern for
the economy, particularly jobs for a region that is expected to
undergo a 50 percent population growth by 2015. SCAG projects that the
region's population in 2015 will have grown to 22 million (See Table
2-2, Population, Employment, and Housing Growth).
The Final RME treats transportation as a powerful job creation engine
that is critical to the future of the SCAG region's economy, which
today is the 12th largest in the world -- between that of Spain and
India. Industry clusters spawned by future transportation technology
can serve as the driving forces for the regional economy of the next
century.
The core of the RME is the planned improvements to highways, rail and
bus transit, ports, truck facilities, and aviation facilities that
County Transportation Commissions, the state, and other agencies have
committed to fund over the next 20 years to better move people and
goods.
TABLE 2-1
RME GOALS AND SUBGOALS
Click HERE for graphic.
Click HERE for graphic.
TABLE 2-2
POPULATION, EMPLOYMENT, &
HOUSING GROWTH (Millions)
NO TABLE INCLUDED WITH ORIGINAL FILE
To this core, an advanced transportation and air quality technologies
strategy has been added to help meet the strict air emissions and
mobility requirements the region must confront over the 20-year
planning period. This development and implementation of Advanced
Transportation Technology strategy includes the use of zero-emission
vehicles, alternative fuels, telecommunications, Intelligent Vehicle
Highway Systems (IVHS), and Advanced Shuttle transit. "Clean Cities,"
a voluntary federal program designed to accelerate and expand the use
of alternative fuel vehicles, along with an overall marketing and
communications program will augment the Advanced Technology strategy.
The RME also suggests the introduction of Market Incentives as a
mechanism to reduce travel demand and pollution and to provide new
transportation choices as well as funding for transportation
alternatives that are highly efficient and performance-based. Through
Market Incentives, gross polluters would pay a premium, and cleaner
cars would pay less. Proceeds would be reinvested into performance-
and equity-based improvements that directly improve personal mobility,
goods movement, and air quality. Additionally, this Plan advocates
additional corridor-pricing options to build new or added facilities
where it is appropriate. It also recommends a new long-term financing
base for transportation as gasoline consumption and taxes decline in
the future. Ultimately, Market Incentives would be established by
legislative process after an extensive regional review process to
develop proposals and advice to law makers.
Ultimately, the RME Plan proposes to meet mobility and air quality
requirements while providing the region's ethnic and geographically
diverse population with more choices of alternative transportation
modes than those now available.
SETTING
The SCAG region's population is a commuter society that relies on
Single Occupancy Vehicles (SOV) for a majority of all trips. For home
to work commutes, Average Vehicle Ridership (AVR) is 1.38 persons per
car.
Only 5.62 percent of the population use some form of transit to
commute to work. On the average, each person makes 3.40 daily trips in
their automobile, and each person drives an average of 20.48 miles per
day. Their average speed during the morning peak period is 29.6 miles
per hour.
Currently, in the urbanized counties and in many of the transit
corridors that link urbanized counties to other parts of the region,
commuters must struggle with congested freeway trips that are
primarily Level of Service (LOS) E and F during peak drive periods.
(See Figure 2-1, 1990 E and F Levels of Service.) Daily congestion
results in 2,152,000 hours of delay added to travel times.
______________________________
1Level of Service (LOS) is measured on a scale of A through F. An A
rating is best. Level F is stop and go congestion.
Figure 2-1: (Map: 1990 Levels of Service)
Unfortunately, Southern California must deal with some of the nation's
dirtiest air problems. As detailed in Table 2-3 - SCAG Air Basin
Attainment Status, Ozone, Carbon Monoxide, Nitrogen Dioxide, and
Particulate Matter exceed federal standards in one or more of the air
districts in the SCAG region.
In recent years, great strides have been made in reducing auto
emissions in Southern California. Nevertheless, though extremely
costly, the region remains committed to even greater reductions in the
future.
TABLE 2-3
SCAG AIR BASIN ATTAINMENT STATUS
Click HERE for graphic.
OBJECTIVES
As a broad vision for the region's future, the RME Plan has as its
objective meeting federally mandated transportation and air quality
standards by making aggressive use of existing facilities and
conventional funding as well as of Advanced Transportation
Technologies and new Market Incentives. These approaches are part of
an overall strategy integrating air quality, mobility, and economic
goals outlined in SCAG's Regional Comprehensive Plan.
The underlying philosophy of this vision is one of creating a
supportive environment while maximizing choices for consumers through
encouraging innovation and alternatives. The Plan proposes to reduce
emissions and improve mobility more cost-effectively than traditional
regulatory methods, through Market Incentives and investments in
Advanced Transportation Technologies and other improvements that meet
performance, efficiency, and equity tests.
Federal mobility mandates include: 1) contributing to an increase in
peak-period Average Vehicle Ridership; 2) offsetting the growth of
emissions due to an increase in vehicle trips and Vehicle Miles
Traveled (VMT); and 3) meeting emission budget requirements for mobile
sources as determined by final state and/or federal implementation
plans. (See Table 2-4, Federal Requirements for Mobility and Air
Quality.) Additionally, in meeting a mandated requirement under ISTEA,
the RME calls upon SCAG to work with counties, subregions, Caltrans
and federal highway and transportation agencies to further define
SCAG's role in the Major Investment Analysis process.
The Major Investment Analysis of largescale transportation projects
will narrow the range of alternative investment strategies and assist
the investing agency in utilizing resources for the best mobility
investment.
TABLE 2-4
FEDERAL REQUIREMENTS
FOR MOBILITY AND AIR QUALITY
Federal Requirements
- Contribute to an increase in peak-period Average Vehicle
Ridership (AVR) by large employers with 100 or more employees. -
42 U.S.C. 7511a(d)(1)(B)
- Offset with Transportation Control Measures (TCMs) the growth of
emissions due to an increase in vehicle trips and Vehicle Miles
Traveled (VMT). - U.S.C. 7511a(d)(1)
- Meet emission budget requirements for mobile sources as
determined by final State Implementation Plan/Federal
Implementation Plan.
State requirements include: 1) achieving an average vehicle
occupancy of 1.5 persons per vehicle during commuter peak period
hours by 1999 in severe and extreme non-attainment areas and 2)
achieving a substantial decrease in the growth of passenger vehicle
trips and VMT in serious, severe, and extreme non-attainment areas.
(See Table 2-5, State Requirements for Mobility and Air Quality.)
TABLE 2-5
STATE REQUIREMENTS
FOR MOBILITY AND AIR QUALITY
State Requirements
- Achieve an average vehicle occupancy of 1.5 persons per vehicle
during commuter peak period hours by 1999 in severe and extreme
non-attainment areas. - Calif. Health and Safety Code
40920(a)(2)
- Achieve a substantial decrease in the growth of passenger
vehicle trips and VMT in serious, severe, and extreme non-
attainment areas. - Calif. Health and Safety Code 40919(a)(3)
- California Air Resources Board recommends that air districts
"...design plans that reduce VMT and trips growth rates to the
maximum degree feasible, and which, at a minimum, decrease
growth of VMT and trips to the rate of population or household
growth."
- Allow no net increase in mobile source emissions after 1997 in
severe and extreme non-attainment areas. - Calif. Health and
Safety Code 40920(a)(2)
- Meet emission budget requirements for mobile sources as
determined by final State Implementation Plan/Federal
Implementation Plan.
In addition to objectives defined by state and federal law, as a SCAG
policy, the RME proposes to increase the mode split in transit
ridership between 10 to 14 percent over the current 5.6 percent for
home to work trips by 2015.
Additionally, as a SCAG policy, the RME Plan calls for a Zero Emission
Vehicle (ZEV) sales goal to capture 60 percent of the market for new
vehicle sales by the year 2015, up from 50 percent in 2010.
The Plan promotes choice for the regulated communities and seeks to
provide alternatives to command and control regulation through the
Market Incentives and Advanced Transportation Technologies. For
example, the application of Advanced Transportation Technologies to
special opportunity areas such as multi-use activity centers,
transit-oriented centers, intensive business centers and airports as
well as their environs could provide an effective substitute to the
employer rideshare requirements such as Regulation XV.
______________________________
2CARB California Air Act Transportation Guidance, Transportation
Standards, May 1991, Page 3.
JOBS
As an economic by-product, the RME Plan foresees its strategy being a
catalyst for the Southern California job market.
Assuming moderate levels of market penetration made feasible by
educational and infrastructure deployment programs, the job creation
potential is 73,000 jobs from zero-emission or electric vehicles and
277,000 in additional Advanced Transportation Technologies by the year
2010. Total jobs created by Advanced Transportation Technology could
rise to over 350,000 by 2010. Another 1.38 million jobs by 2010 would
occur through the development and operation of additions to the
highway and transit systems by 2010. This number is expected to
increase to 2.4 million by 2015. (See Table 2-6, Estimated Annual Net
Economic Impact from RME Highway & Transit Projects). The cumulative
total of all jobs created by the RME Plan is approximately 1.73
million by 2010.
TABLE 2-6
ESTIMATED ANNUAL NET ECONOMIC IMPACT FROM RME
HIGHWAY & TRANSIT PROJECTS
***NO TABLE ON ORIGINAL DISK***
The 94 RME proposes a Southern California Economic Partnership (SCEP),
which is a public-private sector collaborative effort that will bring
government and industry together to determine how best to successfully
deploy new technologies into the Southern California market place.
The mission of the SCEP is to: establish industry and government
clusters for each transportation technology; identify market barriers
and incentives to increase the demand for these technologies; and
monitor the technology deployment effectiveness and recommend
alternative strategies. Product development is anticipated to occur in
the following industry clusters: zero emission vehicles; alternative
fuel vehicles; Advanced Transit Shuttles; Intelligent Vehicle Highway
Systems (IVHS); telecommute-teleservices marketing and communications;
and the Clean Cities. These industry clusters offer the maximum
potential for cost-cutting and job creation. (See Table 2-7, SCEP
Project)
TABLE 2-7
SCEP ORGANIZATION
Click HERE for graphic.
Additionally, improved mobility can have a direct impact on jobs
related to goods movement, which in the SCAG region critically links
the local economy to state, national and world trade and can
significantly affect the environment, quality of life, and land use as
well as transportation. The U.S. Department of Commcerce calculates
that for every additional $1 billion of U.S. exports, 19,000 jobs are
created through the increased demand for manufactured goods, their
delivery and related business.
STRATEGY
Facilities
The RME strategy is built on the 20-year local plans for each
county. These plans include existing levels of bus service plus
identified rail projects, as well as transit, aviation, truck, and
ports capital projects for which funding can be expected through
2015.
The Plan is critically connected to the region's road and highway
system, whose arteries represent the lifeblood of transportation in
Southern California. The projected costs for highway and transit
programs and projects in the RME total about $56.2 billion, which
does not include Advanced Technology costs.
By 2015, improvements are projected to include an additional 1,446
freeway miles and 1,264 miles of additional High Occupancy Vehicle
(HOV) lanes. The RME builds on this existing system with strategies
ranging from three-tiered transit services to the use of HOV lanes
and Mixed Flow Congestion-Relief system improvements. (See Figure
2-2, Existing and Proposed HOV Lanes, and Figure 2-3, Proposed
Mixed Flow Projects.)
The Plan proposes a three tier approach to transit. Tier 1, of this
three-tier transit approach involves the longer distance line haul
service such as Metrolink, longer distance rail services, and some
express bus service. Tier 2 is the support bus and paratransit
service that provides service connecting to Tier 1 service as well
as medium distance subregional-oriented service in and around
communities. Tier 3 is localized, short trip service such as taxis
and shuttles that is more community oriented.
Regional public transportation improvements are currently directed
toward the implementation of the rail programs designed to create
the infrastructure which supports service on high-and-medium-
capacity corridors. The proposed improvements include nine urban
rail lines, nine commuter rail lines, and two inter-city corridor
lines. (See Figure 2-4, Existing and Proposed Urban and Inner City
Rail Lines and Figure 2-5, Existing and Proposed Commuter Rail
Lines.)
Key to improving the movement of goods in the region, especially in
the wake of the North American Free Trade Agreement (NAFTA), is
completion of the new Port of Entry in Imperial County, the Alameda
Corridor, extension of highway access to Port Hueneme, and overall
improvements to intermodal freight movement projects.
Figure 2-2 (Map: Existing and Proposed HOV Lanes)
Figure 2-3 (Map: Proposed Mixed Flow Project)
Figure 2-4 (Map: Existing and Proposed Urban and Inner City Rail
Lines)
Figure 2-5 (Map: Existing and Proposed Commuter Rail Lines)
Transportation Demand Management
The RME Plan utilizes Transportation Demand Management (TDM)
strategies, which attempt to modify people's travel behavior,
especially for the future when the impact of population growth on
transportation facilities will be significant.
In 2015, congestion on the streets and highways will be greater,
traffic movement will be slower, the duration of traffic delay will
more than triple. People will be making fewer automobile trips, but
the total number of automobile trips being made by the increased
number of motorists will be 43 percent more than the trips made in
1990.
Historically, major TDM emphasis has been on reducing the SOV home-
to-work commute. In the short term, the region's TDM efforts will
continue to focus on the promotion and support of ridesharing,
ridematching, telecommuting, teleconferencing, the use of bus and
rail transit, job site flex time, alternative work weeks, non-
motorized travel, carpool subsidies, indirect Market Incentives,
and land-use strategies.
Over the long term, however, a more market-oriented, user-based
approach to demand management is proposed. Market Incentives have
the potential to not only reduce demand but also reduce air quality
emissions, while helping provide transportation alternatives and
long-term transportation financing.
These TDM strategies complement the region's facilities investment
in HOV, transit and Advanced Technologies.
Transportation System Management
The RME covers Transportation System Management projects that
include traffic signal synchronization and operation components
improvements such as closed circuit television, ramp meter
installations, traffic operations centers, and the Smart Streets
operation in certain cities and counties in the region.
In addition, the Plan encourages expanding Transportation System
management by local jurisdictions as well as coordinating TSM
activities in the region and incorporating advanced system
technologies where appropriate.
Urban Form
The RME has integrated urban form as a mobility strategy, taking
into consideration the relationship between land use and travel
behavior.
The Plan, based on subregional recommendations, promotes land-use
development patterns, including job-housing balance, to enhance the
efficiency of the region's transportation system. A few subregions
already have explicit policies that encourage job-housing balance,
balanced communities, and transit-oriented development.
On March 3, 1994, as a result of deliberations of the Community,
Economic and Human Development Committee and the Standing Committee
on Planning, SCAG staff was directed to re-examine the issue of
jobs-housing balance and balanced growth in general. A study is
presently underway and will be incorporated by amendment, as
needed.
Advanced Transportation Technology
Advanced Transportation Technologies are intended to provide
consumers with products and services that preserve the same quality
of life and convenience of mobility they experience today. These
measures are expected to achieve the greatest emission reductions
through an aggressive program implemented to achieve moderate to
high levels of market penetration.
Overall, Advanced Transportation Technologies are expected to
contribute significantly to reduced emissions in the region.
Without support from Advanced Technologies and other highly
efficient efforts, the current local plans involving traditional
transportation improvements cannot meet air quality and mobility
mandates.
The Advanced Transportation Technologies employed in the Plan
includes the use of zero-emission vehicles, alternative fuels,
telecommunications, IVHS, and Advanced Shuttle Transit. (The order
in which technologies are listed implies no particular
implementation priority.)
Zero Emission Vehicles
The technology for zero-emission vehicles is intended to reduce
emissions by accelerating the introduction of these vehicles
beyond requirements of government mandates. This would be
facilitated through a cooperative public-private partnership
project acting as a support program.
By 2010, the annual new vehicle market penetration for zero-
emission vehicles is expected to reach 60 percent, involving in
excess of 500,000 vehicles. At the same time, an estimate of the
job creation from the start of a new zero-emission vehicles
industry is estimated to be about 73,000 jobs over the same
period.
Accelerating the introduction of zero-emission vehicles will
reduce the permissible fleet average emissions for light heavy
duty vehicles beyond currently required reductions.
Implementation of this aspect of the plan would be accomplished
through creation of the Zero-Emission Vehicle Industry Cluster
whose role would include developing a market plan for zero
emission vehicles. As part of the SCEP Project, this public-
private cluster would promote fleet conversion and acquisition
of refueling infrastructure. In addition, regional and local
regulatory actions would be aimed at facilitation of
introduction of zero emission vehicles.
Alternative Fuels
Alternative fuel technology aims to increase the rate of
emission reductions by accelerating the introduction of low
emission, alternatively fueled vehicles through cooperative
public-private partnerships and the use of Market Incentives.
An Alternative Fuels Industry Cluster would take the leadership
in helping refine and develop a "local" regulatory framework to
establish a market environment for alternative fuels as well as
supporting market incentives that would enhance the
competitiveness of alternative fuel vehicles.
In addition, regional and local regulatory actions would be
aimed at facilitating the introduction of low emission
alternatively fueled vehicles.
By 2015, annual new vehicle market penetration for alternative
fuel vehicles is expected to include 250,000 vehicles for an
estimated market share of 14 to 34 percent. Meanwhile, the
economic impact of alternative fuels would also include the
creation of about 9,000 new jobs by the same period.
Implementation of the alternative fuels strategy would be
accomplished through the Alternative Fuels Industry Cluster,
whose responsibilities would include accelerating market
penetration. This cluster would also be responsible for adopting
appropriate monitoring mechanisms.
Telecommunications
The telecommunications technologies involve a number of
technologies, including: teleconferencing, teleservices, tele-
education, telemedicine, teleshopping, telebanking,
telecommuting, and other applications.
Telecommuting as a substitute for home-to-work vehicle trips
would be accelerated through cooperative public-private industry
clusters. Telecommuting is using electronics to move information
and/or pictures that allow work to be done from home or from a
neighborhood work center.
In 1990, telecommuting impact amounted to a reduction of 4.1
percent in home to work trips. This reduction is expected to
increase to 6.3 percent by the year 2015. Total penetration of
the market is anticipated to be between 5 to 14 percent of all
work trips.
Currently, basic telecommunications technologies or devices are
commercially available. The barriers to use are embracing the
concept of telecommuting and other teleservices and the cost of
the equipment at home for the telecommuter.
In terms of jobs, an estimate of the potential job creation from
the sale of all telecommunications technologies is about 42,000
jobs in 2000 and 65,000 jobs in 2010 for the State of
California.
To implement the telecommunications aspect of the strategy, the
RME proposes establishing a Telecommunications Deployment
Industry Cluster as part of the SCEP Project that will be
responsible for identifying and acting on market barriers and
applications. The SCEP Project will assemble the interested
industry and government parties to identify and eliminate use
and regulation barriers, establish a seed fund for
telecommunications equipment purchases, and develop an education
program for employers.
Intelligent Vehicle Highway System (IVHS)
The Intelligent Vehicle Highway System (IVHS) technologies
represent a variety of technologies that basically transfer
information to the vehicle or driver to improve the safer and
more efficient use of the highway system. IVHS technologies or
products have two major deployment applications: highway-road
systems and on-vehicle.
These technologies are intended to reduce mobile source
emissions from light and heavy duty vehicles through improved
operational performance of the transportation system. By the
year 2015, the market penetration of IVHS technology is expected
to exceed 250,000 vehicle information device units.
IVHS technologies include: Advanced Traffic Management System
(ATMS) technologies like computerized signal and control systems
that synchronize lights to reduce unnecessary stops, thus
improving the vehicle emissions drive cycle; Advanced Traveler
Information System (ATIS) technologies that warn drivers in
advance of severe congestion; Advanced Vehicle Control System
(AVCS) technologies such as collision-avoidance systems that
reduce accident related congestion; Commercial Vehicle Operation
(CVO) systems that control the routing of commercial fleet
vehicles to avoid excess travel and congestion; and Advanced
Passenger Transportation (APTS) technologies that can dispatch
Advanced Shuttles more efficiently or give the time and location
of the next bus or train to the transit passenger.
IVHS technologies would be deployed by establishing a
private/public cluster to develop a market plan for the
consumer. This industry cluster is part of a larger technology
deployment project, SCEP, which will act as a support program
for this cluster. Implementation would also be accomplished
through development of industry standards for on-vehicle systems
and enhanced requirements for vehicle control and safety
systems. Furthermore, implementation would be assisted at the
consumer level through the use of Market Incentives such as
reduced insurance rates for the purchase of AVCS items like
collision avoidance.
IVHS technologies would provide the following boost to the
California economy: 61,000 new jobs by 2000 and over 140,000 new
jobs by 2010.
Smart Shuttle Transit
Smart Shuttles build upon existing demand responsive transit
modes, using advanced transportation technologies to provide
service more tailored to the needs of individual riders. The
goal for Smart Shuttles is to develop, implement, and integrate
a public-private transportation service that offers an
attractive alternative to the gasoline-powered automobile.
By 2015, Smart Shuttles and conventional transit with TDM
programs are expected to account for 10 to 14 percent of all
work trips and involve 50,000 Smart Shuttle vehicles in the
region.
Smart Shuttles would be most effective and efficient in three
different types of applications: corridor service, center-
focused service, and community-based service. In corridors,
Smart Shuttles would provide service similar to jitneys like
those operating in Atlantic City without fixed stops or a fixed
route within a defined corridor. Center-focused services such as
airport shuttles would provide enhanced access to employment
centers, rail stations, and other large traffic generators.
Community-based services would include transportation to
shopping, recreation, and health facilities.
Emissions would be reduced by deployment of Smart Shuttles
through the use of Advanced Transportation Technologies such as
computer-aided dispatching as well as the use of alternative
fuels.
Implementation of Smart Shuttles would be accomplished through
the creation of a public-private partnership with the mandate to
create a market environment which promotes development and use
of alternative public transportation services along with
integration of new technologies and removal of regulatory
barriers. The Advanced Shuttle Industry Cluster, which is part
of the SCEP Project, will be such a public-private partnership
and would foster and guide Advanced Shuttle transit in the
region.
In terms of jobs, an estimate of the job creation from the start
of an Advanced Shuttle industry is expected to be up to 65,000
new jobs by 2010.
These Advanced Technologies will be supported by the Clean Cities
program, which as a SCEP component is charged with facilitating the
procurement of "clean vehicles" and related infrastructure as well
as other Advanced Technologies, including Smart Shuttles,
telecommunications, and IVHS products. The Clean Cities program
will be especially involved in helping adopt EV charging facilities
building code and permit requirements and other actions designed to
encourage the use of electric automobiles.
Transportation Control Measures
Additionally, the Plan includes the use of Transportation Control
Measures (TCMs), strategies designed to reduce the amount of motor-
vehicle based emissions by changing the way people make trips, by
alleviating traffic congestion, and by facilitating infrastructure
changes to promote alternatives to single-occupant vehicles.
Plans and requirements for TCMs used to meet air quality
requirements differ for each of the region's six non-attainment
areas reflecting the flexibility of the strategies. However,
maximum use of reasonably available TCMs in conjunction with all
other strategies (stationary and area) is mandated by state and
federal law.
In addition to the use of TCMs related to vehicular use, the
region's has also included strategies to reduce emissions from
planes and trains.
The Railroad Emissions Control Measure from the 1989/91 South Coast
Air Plan is being refined for the 1994 Ozone SIP Submittal. This
measure focuses on railroad operations in the South Coast Air
Basin, including freight, commuter, and intercity passenger trains.
The intent is to reduce oxides of nitrogen from diesel-electric
locomotives.
Additionally, the respective roles and responsibilities of the
various agencies involved in implementing aviation TCMs are still
being debated.
FINANCE
The budget for the 20-year life of the RME, including both traditional
and innovative financing, is $71 billion. All of the costs of the Plan
will continue to be evaluated and refined in the future. This
refinement will occur in tandem with the refinement of the Market
Incentives Program.
Traditional Funding
The RME estimates that over the 20-year planning period, $56
billion in cost for traditional highway and transit programs and
improvement projects can be funded with reasonably available
revenues of $56 billion.
While regional expenses and revenues generally balance over the 20-
year life of the plan, historical spending trends, air qual-
ity/congestion mitigation, costs of maintaining older
infrastructure, declining gasoline tax revenues, and mounting
transit operation expenses all threaten the region's precariously
balanced budget.
It should also be noted that the end of the planning period may
have too little facility investment given the expected population
growth. Chapter 9, Long-Range Corridors, describes many possible
candidates that future plan refinements must address and as
appropriate provide funding.
Innovative Funding
Consequently, it is clear that the region's traditional funding
sources for the foreseeable future are insufficient to pay for
Advanced Transportation Technologies and other corridor
improvements which are needed to meet air and mobility mandates.
Thus, the plan calls for addition funding. One example of this
added revenue could be provided through innovative funding through
a series of user based fees to provide sufficient revenues in order
for the Plan to be considered fiscally constrained as required by
the 1991 Intermodal Surface Transportation Efficiency Act (ISTEA).
It is expected that approximately $15-29 billion will be needed to
finance the range of various Advanced Transportation Technology
improvements and performance-based projects which are crucial to
the Plan's strategy through 2015.
The funding mechanism would probably provide that low polluting
vehicles contribute a lesser amount than grossly polluting
vehicles.
After a multi-year gradual phase in, a VMT/Emissions Registration
Fee could be expected to produce up to $2 billion annually. The
process for determining precise fee, differences in rates, and
total amounts collected are briefly outlined in the Market
Incentives section and the Implementation section of this chapter.
It should be noted that any Market Incentives would be established
by legislative process or by a ballot initiative after a regional
process to develop proposals and advice to lawmakers.
______________________________
3$15 billion is used in calculating the total 20 year costs.
MARKET INCENTIVES
Reasons to Introduce Market Incentives
The use of market incentives seeks to balance supply and demand by
equitably charging travelers for the full and true costs of driving
an automobile, allowing consumers to make more informed travel
decisions. Figure 2-6, Life-Cycle Gasoline Vehicle Costs (1990),
illustrates the often overlooked expenses of owning and driving a
car.
FIGURE 2-6
LIFE-CYCLE GASOLINE VEHICLE COSTS (1990)
***NO FIGURE IN ORIGINAL FILE***
SOURCE: SCAG Market Incentives Task Force Report, February,
1994
The RME proposes using Market Incentives to encourage travelers to
seek alternatives while providing a revenue stream to fund those
transportation alternatives that are highly efficient, performance-
based, and maximize regional efforts to meet mobility and air
quality goals.
Ultimately, establishing user-based financing of transportation
improvements as well as providing a stable base of transportation
funding, rather than general fund financing, are key strategic
goals of Market Incentives.
______________________________
4 Modified for this analysis from Kevin Nesbitt, Daniel Sperling,
and Mark DeLuchi, "Initial Assessment of Roadway-Powered Electric
Vehicles", Transportation Research Record, No. 1267, 1990.
Principles
Market Incentives in the RME are designed to allow for equity so
that an undue or disproportionate impact is not placed on low
income groups, other user groups, commercial users or geographic
areas. To the extent that such situations are identified, Market
Incentive programs should mitigate such impacts through appropriate
subsidy and reinvestment programs. Impacts on business should be
mitigated to the extent practical and to allow increased
opportunities for subregional and regional economic
competitiveness.
Implementation and development of Market Incentives include having
a nexus between Market Incentive fees and expenditures. Travel
consumers must see direct and timely benefit from payment of market
investment travel charges.
Another aspect of implementation involves efficient and
performance-based requirements. The RME requires that all projects
and improvements funded with Market Incentive fees must be highly
efficient and performance based.
Market Incentive Methods
At a meeting April 14, 1994, SCAG's Transportation and
Communications Committee agreed that "new user-based fees shall be
considered by the committee (including the transportation
community) charged with developing an implementation strategy that
could be used to substitute for gasoline taxes in the long term."
The RME proposes to consider the long-term replacement of
traditional transportation funding sources (i.e. gasoline tax) with
a different use fee such as one based on a VMT/emission
registration charge. Such a replacement fee would probably be
revenue neutral. But additional revenues could also be raised from
higher VMT fees charged to gross polluters.
In addition, there could be congestion pricing in which specific
transportation facilities would be priced or tolled based on the
amount of congestion on that facility or corridor.
Another Market Incentive would be a Parking Cash-Out feature
through provisions of state law being reaffirmed. Employers with 50
or more employees in non-attainment areas who subsidize employee
parking, lease parking spaces, and can reduce the number of parking
spaces without penalty are required to allow employees to choose
between the parking space or a cash allowance.
In the proposed Air Quality Management Plan, there is an option for
a possible pay-at-the-pump "backstop" which could be implemented,
if needed, to help reduce emissions.
In moving toward implementation of user fees, the next step of the
Plan calls for a public involvement program, exploring attitudes
within the region and seeking a consensus on the Market Incentives.
This would also involve research through surveys and community
outreach efforts designed to develop methods that would ameliorate
impacts of Market Incentive measures, especially on groups
handicapped by economic, geographic and commercial limitations.
Additionally, such a strategy of public involvement may take
advantage of multi-media outreach -- newsletters, videos, public
service announcements -- aimed at identifying issues as well as
developing public participation and facilitating the implementation
of the RME.
At the legislative level, the next steps would include a
legislative process including review and comment of legislation
dealing with the issue as well as possible new legislation to
provide for the implementation of Market Incentives.
Ultimately, the perceptions of elected officials and the public
will determine if the Market Incentives program is viable. If the
Market Incentives are to be successfully implemented, public
understanding and political acceptability are essential.
PLAN PERFORMANCE
The RME anticipates that its strategies will successfully maintain the
regional transportation system, moving goods and people efficiently
and ensuring the economic vitality of the region while also improving
air quality through reduced emissions. Plan performance is formally
detailed in the SCAG Executive Summary, 1994 RME Conformity Report
which is included in Appendix B. Briefly, the RME Conformity Report
finds: reasonably available funding; compliance by air basins with the
Federal Clean Air Act and Transportation Conformity Regulations;
timely implementation of TCMs, and compliance with ISTEA and other
relevant regulations.
Over the next 20 years, the $56 billion in traditional capital
investments recommended in the RME and the resulting congestion relief
benefits will create between 58,000 and 132,000 additional jobs per
year from 1995 through 2015 with wage and salary incomes estimated
between $1.2 billion and $2.6 billion each year. The $15-29 billion
investments in Advanced Technology and performance based projects
would create an additional 350,000 jobs over the same period.
The number of single occupancy vehicles for home-based-work trips will
significantly decrease, from 72.5 percent in 1990 to 56.9 percent in
2015. At the same time, other changes in the shift from single
occupancy vehicles will include: an increase from 5.4 percent to 13.3
percent in transit, an increase from 18 percent to 18.5 percent in
rideshare, an increase from 2 percent to 6.3 percent in telecommuting,
and an increase from 2.5 percent to 3.5 percent in non-motorized
transportation. (See Figure 2-7 and 2-8.)
But even with facility and technology improvements, SCAG modelling
shows that the average daily speed for all trips will decrease from
32.5 miles per hour in 1990 to 27.2 miles per hour in 2015. (See
Figure 2-9.) Meanwhile, the delay for drivers on the road will worsen
by 106% in morning peak trips and by 196% in daily trips.
FIGURE 2-7
TRANSIT MODE SPLIT
HOME BASED WORK (HBW) TRIPS
FIGURE 2-8
MODE SPLIT HBW TRIPS
FIGURE 2-9
AVERAGE DAILY SPEED (all trips)
(For modeling purposes, 1990 trip reductions for nonmotorized and
telecommuting were removed from the total 1990 trip count.
Therefore, this modeling chart reflects 0% for the two modes. Actual
1990 trip reductions are 2.5% for non-motorized and 2.0% for
telecommuting.)
During this period, as population grows at just less than 2 percent
per year, daily vehicle trips will increase at less than 1.6 percent.
At the same time, vehicle miles traveled will grow just over 2 percent
each year. (See Figure 2-10 and 2-10A.)
FIGURE 2-10
ANNUAL GROWTH RATES
(Between 1990 and 2015)
Click HERE for graphic.
SCAG modelling results also indicate that the RME strategies will
dramatically improve Air Quality Performance Indicators.
Regionwide, pollutants decrease during the planning period. Reactive
organic gases, carbon monoxide, and nitrogen oxides decrease
significantly from 1990 to 2015 in each of the air basins. These
emission results are based on 50 percent zero-emission vehicle sales
in 2010 and 60 percent ZEV sales in 2015. (See Figure 2-11.)
IMPLEMENTATION
Crucial to the implementation of the RME Plan strategies, especially
the Advanced Technology strategies, is development of the Southern
California Economic Partnership (SCEP) which will establish industry
and government clusters for each transportation technology and
facilitate their involvement in the region's transportation system and
economic mainstream.
Market Incentive implementation, including, refinement, pricing
levels, and a legislative agenda, will be undertaken by a committee
charged with these responsibilities and appointed by the SCAG Regional
Council. The Committee will also be charged with the task of
reviewing and making recommendations on these issues related to
innovative funding.
FIGURE 2-10A
AVERAGE VEHICLE RIDERSHIP (AVR)
(Home-Base-Work Trips)
Click HERE for graphic.
The RME calls for specific action steps, but it also should be viewed
as a direction-setting document. The strategy behind the RME Plan is
dynamic in that it will change over time to respond to evolving
conditions in the marketplace, technological advances, political and
legislative action, and mobility needs.
FIGURE 2-11
Industry and government institutions will be involved in the further
analysis of Advanced Transportation Technologies and Market
Incentives. Market Incentive development, refinement of new user based
fees, and Advanced Technology implementation strategy, as well as
pricing levels, and a legislative agenda will be studied by a
committee appointed by the Regional Council. When recommending
strategies to be funded, this committee will consider issues of
equity, nexus of benefit to those shouldering the costs, and project
efficiency/performance. As noted previously, this committee's findings
and recommendations would constitute the first step in a regional
process to develop proposals and advice that would be acted on and
approved through the legislative process.
A complete summary, in table form, of additional action
recommendations proposed by the RME can be found in Chapter 14,
Regional Action Program Summary, of Volume 2.
AMENDMENTS PROCESS SUMMARY
SCAG intends to prepare at least one major amendment, including a
conformity statement, every two years between plan adoption dates, if
such an amended plan is deemed necessary. Plan amendments that do not
require preparation of a conformity statement may be prepared more
frequently. The RME will be certified periodically as required by
state and federal law. See also Appendix A, Plan Amendment Process.
CHAPTER REGIONAL TRANSPORTATION
THREE DEMAND MANAGEMENT PROGRAM
INTRODUCTION
The traffic congestion created by Southern California's population
growth has not only increased demands on the region's
transportation system but also made necessary additional measures
to meet the region's mobility goals. One of the measures is
Transportation Demand Management (TDM).
The Regional Mobility Element places special emphasis on TDM in
efforts to meet the region's mobility needs as well as the air
quality requirements of the federal Clean Air Act and the mobility
mandates of the Intermodal Surface Transportation Efficiency Act
(ISTEA).
TDM strategies comprise those efforts that attempt to modify
people's travel behavior. Specifically, TDM consists of actions
intended to 1) increase vehicle occupancy for both passenger and
transit vehicles; 2) increase the use of alternatives to vehicular
transport; 3) reduce the number of commute and non-commute trips by
eliminating them entirely; and 4) reduce trip lengths through
various means.
TDM strategies complement the investment the region is making in
alternative transportation infrastructure, High-Occupancy Vehicles
(HOV), and transit by maximizing the efficient use of these
investments and should be coordinated with them.
Over the long-term, it is expected that a more market-oriented,
user-based approach to demand management will emerge. Market
incentives have the potential to not only reduce demand, but reduce
air quality emissions, help provide transportation alternatives and
provide long-term transportation financing.
BACKGROUND
Demand management has been a component of regional transportation
planning for almost two decades. Owing principally to federal and
state regulatory and incentive programs, the largest TDM emphasis
has been on reducing the home-to-work commute (see Table 3-1).
Outreach and public education by rideshare agencies and transit
providers has also significantly increased throughout the region.
TABLE 3-1
IMPLEMENTATION OF TDM MEASURES
Click HERE for graphic.
Transportation Management Associations (TMAs) that coordinate TDM
functions for employers, developers, and residents have also
developed a niche in Southern California. There are 24 TMAs in the
SCAG region and one of their primary functions is ridematching (see
Table 3-1A and Figure 3-1B).
TABLE 3-1(A)
EXISTING TRANSPORTATION MANAGEMENT
ASSOCIATIONS (TMAs)
Click HERE for graphic.
MAP goes here.
TRANSPORTATION DEMAND MANAGEMENT STRATEGIES FOR THE REGION
Traditional TDM techniques represent one approach to improving
regional mobility. These methods include facility standards,
transit, rideshare programs, non-motorized access, telecommuting,
alternative work weeks, flex-time, and employer trip reduction
programs. The proposed TDM program for the region also
incorporates strategies from two other approaches to ensure that
the full range of behavioral influences on travel are addressed:
market-based incentives, targeting the economic rationale behind
people's transportation choices; and land-use strategies, targeting
the spatial influences affecting trip-generation and destination
choices.
Linking Land-Use and TDM Through Activity Areas
Activity areas (clusters of economic and/or social activity) exist
throughout the SCAG region. On a community-neighborhood scale these
areas attract local and nearby residents to shop, work, and
socialize. Examples of such areas are "Main Streets," shopping
centers and business parks. On a larger scale, areas as large
downtown Central Business Districts (CBDs) and universities attract
people from around the region.
These areas represent opportunities for trip reduction through the
implementation of demand management techniques in concert with the
provision of transit, HOV lanes, or neighborhood shuttle services.
Such areas also offer opportunities for ride matching incentives
and other strategies. In addition, activity areas often serve, or
can be designed to serve, different needs such as on-site child
care, personal services (eg. banking, dry cleaners, restaurants,
etc.), or shopping, thus reducing non-work vehicle trips and
Vehicle Miles Traveled (VMT).
Two elements that help determine activity areas are where people
live and work. The 1990 Census data was used to identify
Transportation Analysis Zones (TAZ), in which significant clusters
of housing and employment existed (see Figure 3-2). Based on a
consensus-derived baseline for the year 2015, Figure 3-3A and 3-3B
note both the existing and new activity areas that are expected to
grow in employment and housing densities.
map
map
map
Linking Demand Management and Technology
Recent and future technological advances have the potential to
significantly mitigate the demand for travel within the region. As
the state, national, and international telecommunication
infrastructure has expanded, the way in which the region's
residents work, conduct meetings, bank, shop, and pay for goods and
services has begun to change. During the past decade, the
percentage of people telecommuting within the region at least one
day a week has increased to 3.9 percent. As remote offices become
more accessible, either through work-at-home arrangements or tele-
work centers, this trend can be expected to continue.
Office teleconferencing facilities are beginning to become a
standard part of the office environment. As technology to support
this type of remote interaction continues to develop, the
implications for reducing work-related meeting trips are
substantial.
Finally, technology has the potential to more effectively manage
travel demand by facilitating greater system efficiencies. "Smart
cards" that debit accounts could be used to pay for mobility
services such as transit use, parking fees, roadway tolls, or
demand response shuttles, thereby improving perceived accessibility
to these transportation alternatives.
TDM Strategies
SCAG modeling indicates that effective employer trip reduction will
show significant impacts on transit mode splits, and shared-ride
mode splits when implemented in concert with the transit, HOV, and
other mobility enhancements included in the Plan. Modeling also
indicates that advanced shuttle and other improved feeder transit
systems in conjunction with TDM result in increased transit mode
and shared ride mode splits. These results support the emphasis on
demand management in conjunction with facility improvement in the
RME. This could improve use of the proposed investment in
alternative modes and reduce congestion that would have had to be
accommodated on the roadway system in the absence of an agressive
TDM strategy.
TRANSPORTATION DEMAND MANAGEMENT PROGRAM
The recommended TDM program focuses on enhancing existing effective
TDM programs with increased funding. The critical short- and long-
term focus of the demand management component of the RME is on
strengthening the integration of TDM strategies in concert with the
provision of non-SOV capacity-enhancing infrastructure. Particular
emphasis is placed on accomplishing these goals through the
Congestion Management program (CMP) and RTIP, thus promoting closer
coordination of these strategies in project corridors, area, and
program planning. Thus, the program in Table 14-3 concentrates on
developing and refining processes that enable this to occur.
Demand management strategies should also significantly contribute
to the attainment of federal, state, and regional transportation
performance standards, including transit, ridesharing and non-
motorized mode splits, and VMT reduction.
The TDM program intends to address four distinct emphasis
areas:
1. For non-commute trips to promote access to and within activity
areas, to coordinate the implementation of land-use strategies when
appropriate and accepted, and to facilitate education and promotion
of non SOV alternatives (see Table 14-3).
2. For commute based strategies to facilitate the use of non-SOV
alternatives through ridematching, rideshare support facilities,
efforts to increase transit accessibility, implementation of
employer trip reduction programs, support of TDM demonstration
programs, and support of the coordination of TDM strategies for
Park-And-Ride facilities (see Table 14-3).
3. To implement direct and indirect market incentives that are
consistent with the principles identified by the Market Incentive
Task Force (see Table 3-3).
4. Use technology advances in information exchange, system
effectiveness and other applications to change the use of the
regional transportation system.
POLICIES
The following policies are to be used to guide implementation of
the regional TDM program:
- To promote TDM programs along with transit and ridesharing
facilities as a viable and desirable part of the overall
mobility program while recognizing the particular needs of
individual subregions.
- To support the development of public seed funding for new and
innovative demonstration programs.
- To support the extension of TDM program implementation to
non-commute trips for public and private sector
activities.
- To support the coordination of land-use and transportation
decisions with land-use and transportation capacity,
taking into account the potential for demand management
strategies to mitigate travel demand if provided for as a
part of the entire package.
- To support the use of market incentives as a mechanism to
affect and modify behavior toward the use of alternative
modes for both commute and non-commute travel.
- To support efforts to educate the public on the efficacy
of demand management strategies and increase the use of
alternative transportation.
Implementation of TDMs
Many of the demand management actions are implemented at the local
level in conjunction with CMP. The statute requires the five
counties containing urbanized areas in the SCAG region to develop a
trip reduction and TDM component. Table 3-2 provides a summary of
the TDM strategies contained in the region's CMPs. The CMP provides
an important framework for implementing demand management
strategies throughout the region, empowering local jurisdictions
with control over the implementation of TDM programs.
FISCAL ISSUES RELATED TO TDM
Historically, the costs of demand management strategies have been
shared by both the public and private sectors. Moreover, because
demand management strategies have been highly tailored to
individual sites, significant variation in costs exists, depending
on the breadth and number of TDM actions implemented at specific
sites. Both of these actions contribute to substantial difficulties
in conducting a thorough survey as well as an assessment of actual
costs of implementing those TDMs.
Funded TDM Programs
The funding cycle is intended to assist local jurisdictions comply
with the SCAQMD 1991 Air Quality Management Plan (AQMP), which
requires cities to commit to the implementation of TCMs, including
TDM measures, by December 1993. Los Angeles County MTA has 101
projects funded to date. San Bernardino Association of Governments
has 35 non-motorized projects funded. Ventura County Transportation
Commission has 71 projects funded through STP and CMAQ funds.
MARKET-BASED APPROACHES
Market-based approaches to addressing congestion and air quality
problems provide mechanisms by which system users pay the "real"
cost of the transportation benefits they receive. These approaches
are divided into direct and indirect market incentives:
1. Direct market incentives focus on changing the relative costs of
transportation options. Pricing as a TDM action can reinforce
consumer choices of travel alternatives and also can be fiscal
measures aimed at financing and implementation of alternative
travel options or subsidies.
2. Indirect market incentives use economic rewards (lower
development costs, higher density, lower tax or fee rates) to
influence urban design and siting policies that support reduced
automobile use.
The use of market incentives seeks to balance supply and demand by
better charging travelers for the full and true costs of driving an
automobile so that consumers can make more informed travel
decisions. Market incentive strategies have significant potential
to minimize the need for command and control approaches to mobility
regulation to achieve air quality goals.
The RME proposes to meet mobility and air quality requirements
while providing individuals with choices of alternative travel
modes beyond those now available. Market incentives can help
realize this goal by encouraging travelers to seek alternatives as
well as provide a revenue stream to fund transportation
alternatives that are highly efficient, performance based, and
maximize regional efforts to meet mobility and air quality goals.
User-based financing of transportation improvements and providing a
stable base of transportation funding, rather than fund financing,
are also key strategic goals of market incentives.
TABLE 3-2
CMP IMPLEMENTATION OF TDM STRATEGIES
Click HERE for graphic.
* Regulation XV (South Coast Air Basin), Rule 210 (Ventura County)
and Rule 1701 (Desert portions of San Bernardino County) each have
complementary effects on the implementation of CMPs.
** San Bernardino County jurisdictions within the South Coast Air
Basin must adopt TDM Ordinances by December 31, 1993; jurisdictions
within the desert portions of the county must adopt TDM Ordinances
by November 1, 1993.
*** Team Rideshare is implemented by Caltrans, SCAQMD, and CTS.
Market Incentives Task Force
SCAG has formed a Market Incentives Task Force composed of local
government elected officials. The charge of this task force is to
examine the impact of developing user-based pricing as well as
subsidy and reinvestment actions. The Task Force has developed a
number of principles on how market incentives should be developed
and what actions are to be considered (see Table 3-3).
Over time, it is expected that market incentives might replace trip
reduction regulations (See Chapter 10 - Financial Program, which
more fully discusses market incentives).
TABLE 3-3
MARKET INCENTIVE PRINCIPLES
- Through fees, subsidies, and reinvestment, including clean
vehicles and improved mobility systems:
1. attempt, to achieve both mobility and air quality goals.
2. encourage the development of new technologies which can
reduce congestion, reduce mobile source emissions, and foster
regional economic advantage, and
3. reduce the use of single occupant vehicles especially during
congested periods.
- Minimize the need for command-and-control approaches to mobility
regulation to achieve air quality.
- Mitigate the impacts on business to the extent practical, and
increase opportunities for regional economic competitiveness.
- Avoid undue or disproportionate impacts on low income groups or
other user groups, or mitigate such impacts through appropriate
actions, including subsidy and reinvestment programs.
- Avoid undue or disproportionate geographic impacts, or mitigate
those impacts through appropriate actions, including subsidy and
reinvestment programs.
- Consult with sub-regions to provide input and consider different
sub-regional conditions in the design and mitigation of such
market-based programs.
- Advocate user-based financing of transportation improvements and
reductions in emissions, and provide a stable base of
transportation funding, rather than general fund financing, as
the region transitions from traditional fuel based funding.
There must be a nexus between market incentive fees and
expenditures. Travel consumers must see direct and timely
benefit from payment of market investment travel charges.
All projects and improvements funded with market incentive fees
must be highly efficient and performance based.
Examples of Possible Market Incentive Strategies include:
1. VMT/Emission Based Registration Fee - The RME proposes to
consider the long-term replacement of traditional
transportation funding sources (i.e. gasoline tax) with a
different use fee such as one based on a VMT/emission
registration charge. Such a replacement fee would probably be
revenue neutral. But additional revenues could also be raised
from higher VMT fees charged to gross polluters.
2. At the Pump Fuel Charge - fees would be levied on the price
per gallon equivalent of fuel based on the level of emission
products of the fuel. Revenues generated through these fees
could help fund the MITIF, substitute for gasoline taxes on
which current transportation funding is largely based, or
some combination of the two.
3. Congestion Pricing - specific transportation facilities would
be priced or tolled based on the amount of congestion on that
facility or corridor. Revenues generated could be used to
improve mobility alternatives along that corridor/facility.
4. Parking Cash-Out - Support for the Parking Cash-Out
provisions of State law would be reaffirmed. (Employers with
50 or more employees in non-attainment areas which subsidize
employee parking, lease parking spaces and can reduce the
number of parking spaces without penalty are required to
allow employees to choose between the parking space or a cash
allowance.)
SUBREGIONAL INPUT
Local jurisdictions, through subregional groups, have provided
input on the selection, implementation, and phasing of
appropriate TDM strategies for the region (see Table 3-4).
Addressing implementation of demand management strategies at the
subregional level will allow greater flexibility in reaching
regional trip reduction goals by improving coordination between
local jurisdictions and regional agencies while ensuring
consistency among implementation plans. It also provides a forum
to initiate an assessment of how much the region can rely on TDM
strategies to meet mobility and air quality goals.
TABLE 3-4
SUBREGIONALY RECOMMENDED IMPLEMENTATION PROGRAMS
Click HERE for graphic.
CHAPTER REGIONAL TRANSIT (BUS AND
FOUR RAIL) PROGRAM
INTRODUCTION/BACKGROUND
The goal of the Regional Mobility Element is to sustain mobility,
and a principal means of accommodating this goal is by increasing
bus and rail ridership. Public transportation will play an
increasingly important role in achieving regional mobility and air
quality attainment goals.
The Regional Transit Program of the RME is intended to create the
basis for a centers-based transit network and to identify policies,
actions, and activities necessary to develop and implement an
efficient, safe, attractive, and cost-effective public transit
system that supports and complements other transportation systems
in the region.
The 1994 RME significantly expands shared taxis, Smart Shuttles,
and jitneys to serve all major activity centers, thus expanding the
"third tier" of the region's transportation system. Tier One is the
longer distance line haul service such as Metrolink, longer
distance rail services and some express bus service. Tier Two is
the support bus and paratransit services that provide service
connecting to Tier One service, medium distance service, and into
communities. Tier Three is localized, short trip service such as
taxis and Smart Shuttles that is more community oriented.
DESCRIPTION OF EXISTING TRANSIT
Currently, public transportation in the Southern California region
is operated directly or under contract by about 17 separate public
agencies. Public providers collectively own one of the largest bus
transit bus fleets in the world, with the LACMTA operating the
third largest bus fleet in the United States.
Public transportation providers operated approximately 516.5
million unlinked trips in fiscal year 1990 in the SCAG region.
Transit providers operated more than 125 million revenue miles and
slightly less than 10 million revenue hours with a morning peak-
hour bus fleet of about 2,800 vehicles. A breakdown of transit
revenue hours and revenue miles by county is shown in Figures 4-1
and 4-2.
Figure 4-1
Click HERE for graphic.
Figure 4-2
Click HERE for graphic.
The "intersecting grid" design is presently the dominant route
network used in Orange County, the City of Los Angeles, and areas
of L.A. County with routes currently or formerly serviced by SCRTD.
The grid network comprises about 235 individual routes operated on
north-south and east-west streets and providing extensive area
coverage. Ninety-eight percent of existing regional transit bus
service is provided by nine major public providers (Figures 4-3,4-4
and 4-5): The Los Angeles County Metropolitan Transportation
Authority; the Orange County Transportation Authority (includes the
former OCTD) in Orange County; and the Riverside Transit Agency
(RTA), OmniTrans, and South Coast Area Transit (SCAT) -- the major
regional operators in Riverside, San Bernardino, and Ventura
counties, respectively.
The municipal operators in Long Beach, Santa Monica, and Foothill
Transit and the Los Angeles Department of Transportation (LA DOT)
provide bus services in Los Angeles County. The Metrorail (urban
rail) and Metrolink (commuter rail) are operated by the LACMTA and
the Southern California Regional Rail Authority (SCRRA),
respectively. Municipal transit systems in L.A. County, and the
regional operators in Riverside, San Bernardino, and Ventura
counties operate bus services oriented toward a "Hub and Spoke" or
"radial arm" configuration with a focus on major transit hubs,
incorporating approximately 130 individual routes.
Metrolink System (Commuter Rail)
Commuter rail service (Figure 4-6) between Los Angeles and San Juan
Capistrano began in the Summer of 1990. In October of 1992, the
first three lines of the Metrolink regional commuter rail system
began service between Los Angeles and Moorpark, Santa Clarita and
Pomona. The Pomona Line was extended to Claremont, the Montclair
Transit Center, and to Riverside and San Bernardino in 1993.
Additionally, a number of reverse commute and off-peak train
services were initiated in the Spring of 1993 and expanded in
October of 1993.
The January 17, 1994 earthquake caused the initiation of
"emergency" service expansion on the Santa Clarita and Moorpark
Lines. Metrolink implemented accelerated service to
Palmdale\Lancaster with new station stops located in Lancaster,
Palmdale, and Acton. Additionally, a second station was opened in
Santa Clarita (Via Princessa) and construction of the San
Fernando\Sylmar Station was accelerated. On the Moorpark Line,
Metrolink further implemented service to the City of Camarillo in
Ventura County. New station sites were constructed in Camarillo and
Northridge. In March of 1994 Metrolink initiated service to Orange
County between Oceanside and Los Angeles.
Metrorail System (Urban Rail)
The Metro Blue Line began service between the Pico Station and
Downtown Long Beach in the summer of 1990, returning rail transit
to the SCAG region after a 30-year hiatus. In the Spring of 1991,
the Flower Street subway extension opened, permitting the Blue Line
to reach the Los Angeles Financial District. The first segment of
the Metro Red Line began operations between Union Station and
Alvarado Street in early 1993. Red Line service to Wilshire\Western
is scheduled to commence in 1996, service to Hollywood in 1998 and
services to North Hollywood, East Los Angeles and Mid-City areas by
the year 2001.
The Metro Green Line is currently under construction as part of the
Glen Anderson (I-105) Freeway project and is expected to open in
1994. Construction continues on the Red Line between the Alvarado
Street and Western Avenue stations along the Wilshire Boulevard
corridor. Red Line Segments 2 and 3 have received full funding
commitments from the Federal Transit Administration. The Pasadena
segment of the Blue Line has received partial funding from LACMTA
and is expected to become operational in the late 1990s (Figure 4-
7).
Existing Intercity Rail Service (AMTRAK)
Intercity passenger trains (Figure 4-7) serve primarily business
and recreational trip markets, providing service between major
urban centers, with most trips more than 50 miles in length. The
SCAG region is currently served by five transcontinental trains
operating daily or weekly service. Two intra-state Amtrak corridor
services operate between San Diego, Los Angeles and Santa Barbara.
The corridor service operates nine trains daily between Los Angeles
and San Diego with two service extensions to Santa Barbara.
IMPLEMENTATION OF TRANSIT ACTIONS IN THE 1989 RMP
The 1989 RMP identified 24 specific Transit Program Actions to be
addressed and undertaken as part of the plan's implementation
process covering three major categories: development of new revenue
sources, capital construction and equipment acquisition, and the
planning process. These actions were also included as TCMs in the
1989 and 1991 South Coast Air Quality Management Plan in the South
Coast Air Basin (SCAB). Since the adoption of the 1989 RMP, there
has been significant progress toward implementation of the transit
program.
The most significant of these include: voter approved and
Legislative actions that provided state (Props. 108, 111, 116)
federal (ISTEA) and county-wide (measures A,C,I,M) new source
capital funding for bus/rail projects; implementation of new rail
service on the Blue Line from Long Beach to Los Angeles, Red Line
segment MOS-1, Metrolink commuter rail lines, purchase of transit
vehicles; and full-funding commitments from Federal Transportation
Authority (FTA) for Red Line Segments MOS 2 and 3.
FIGURE 4-3
(LOS ANGELES COUNTY MUNICIPAL PROVIDERS)
FIGURE 4-4
(REGIONAL TRANSIT PROVIDERS)
In 1993, SCAG in partnership with the county transportation
commissions and the major regional transit providers, completed The
Inter-County Bus Study mandated as part of SB1402. The study
addressed the issues and dynamics of approximately 25 express bus
and local fixed route service which cross county lines (Figure 4-
7). The study created a formal process which addresses formula
funding (allocation of costs) and means to address proposed changes
in service levels which impact more than one county.
Other actions have been undertaken throughout the region which
implement new and expanded transit services. A good example of
these implementation actions have occurred in Ventura County.
VCTC, in cooperation with county transit providers and local
jurisdictions, is conducting and has completed a number of transit
studies. These studies identified a number of potential bus and
rail improvements that, when fully implemented, will significantly
enhance public transportation in the county. These potential
enhancements include new intra-county demonstration express bus
services operating on Highway 101, 126, the Eastern Area and the
Central Area corridors. The new service is designed to connect
those communities along and adjacent to these corridors and to
facilitate access to the existing and emerging rail improvements.
These new demonstration services will be funded under the CMAQ
program with scheduled start-up in 1994.
In addition to the currently existing Metrolink service to
Moorpark, Ventura has identified a number of potential rail
programs to be implemented by the year 2010. These include
expansion of Metrolink to Ventura, the Santa Paula line extension,
and new service between Ventura and Santa Barbara. Additionally
included is expansion of inter-city rail services on both the Coast
Line, LOSSAN North and future rail service using new technologies
for high and medium speed rail in the Coastal corridor. These rail
enhancements will be funded jointly through anticipated state bond
measure and countywide supplemental sales tax funds.
CENTERS-BASED TRANSIT SYSTEM (A THREE TIER TRANSIT SYSTEM APPROACH)
The objective of the centers-based transit network (CBTN) is to
develop and implement a multi-modal transit system that connects
regional activity centers with their surrounding communities, sub-
regional areas, and Southern California as a whole. The functional
purpose of the CBTN is to facilitate user access, egress and
distribution among modes, service types and attractor/generators.
The centers-based transit network is sub-regional in orientation,
with a primary service focus toward activity centers and their
component attractor/generators.
The flexibility of the centers-based network is in its ability to
accommodate transit service development that reflects the needs,
goals and objectives of the region as a whole, and for activity
centers individually. It is this ability to develop services
tailored to meet specific needs that precludes a "one-size fits
all" application. Service design will directly reflect the specific
service characteristics and use needs required to provide maximum
utility to the user. It is the purpose of this section to identify
and discuss the construct of a centers-based network and its
development and implementation.
Successful implementation of an efficient, center-based transit
network will require the use of three primary service components
functioning at the regional/inter-regional, sub-regional, and local
levels. These service components include: inter/intra-regional rail
and express bus, sub-regional urban rail and express/limited bus,
and local transit inclusive of area circulators, shuttles and
demand response services where practical.
Intra-regional and Inter-regional transit services (Tier One)
The intra-regional service comprises those major transportation
facilities that are regional in orientation and that connect two or
more subregions, major regional activity centers, and other inter-
modal facilities such as seaports, airports, and inter-city rail
stations. Intra-regional transit will include the Metrolink system
which provides "end-point-to-end-point" service with limited stops.
It is anticipated that by the year 2000 the Metrolink system will
be fully operational and provide approximately 99 daily train
movements throughout the region. The intra-regional service will be
supported by the existing inter-county express bus system providing
"facility to destination" that uses the regional transitways and
freeway/arterial HOV lanes (Chapter 5) and is designed to
complement, support, and backfill the rail program.
Inter-regional service includes intercity passenger rail, and the
anticipated development of high speed rail service on the Coastal
and California High Speed Rail Corridors. Existing inter-regional
transit includes LOSSAN corridor service between San Diego, Orange
County, Los Angeles, and Santa Barbara. The SCAG region is also
served by four transcontinental rail routes. In response to DOT's
designation of the California High Speed Rail Corridor, the
California Transportation Commission has adopted a goal making
development of high speed rail a priority for California. This
position has been supported by a number of actions as well as the
funding of a number of studies looking into ways of reaching the
state's goal.
The enactment of SCR 1 which specified the final alignment for the
California High Speed Rail Corridor, established the California
High Speed Rail Commission, and created funding in addition to
Propositions 108 and 116 for actions related to the creation of
high speed rail in California. In addition, pending and proposed
legislation will also fund development of medium speed rail
applications on the Coastal and Alameda Corridors to provide
capital and operational support for regional and inter-city rail
improvements in Southern California. SCAG, in conjunction with
LACMTA, SCRRA, AMTRAK, CALTRANS, FHWA/FTA and the Federal Railroad
Administration has assumed lead-agency responsibility for a study
which evaluates the long-range capacity and access for the Los
Angeles Union Passenger Terminal.
Sub-regional transit services (Tier Two)
The sub-regional service facilitates trips within or between
activity centers and the adjacent sub-regional area. Sub-regional
service is comprised of a service mix which includes: 1) point-to-
point and inter-county express and limited-stop transit operating
on dedicated rights-of-way (transitways or arterial HOVs), 2) Local
and inter-county linehaul transit networks, 3) Urban rail systems
such as MetroRail, and 4) special purpose shuttle systems (Super
Shuttle type). Access to sub-regional rail and bus stations and
transfer areas would be supported through a network of local
center-focused transit services which would include: area
circulators & feeder services, private for-hire services such as
smart shuttles, jitneys and other demand response systems. Private
automobiles driven to park-and-ride lots at stations and terminals
will also be a major component of the feeder system at the home end
of trips.
Local\Center-Focused Transit services (Tier Three)
Regional activity centers are the focus areas for those actions
that will develop, measure, and evaluate the strategies for both
mobility and air quality goal achievement. The centers-based
transit system is by its nature designed to facilitate inter-modal
access, movement, and distribution of passengers among its
component services. It is within the activity centers, local
jurisdictions and the subregions where the development and
implementation of public transit services will occur. Local transit
services would focus toward transit hubs, designated transit
activity areas, and identified attractor/generators within centers.
Implementation of center-focused services would allow local
jurisdictions, sub-regional areas or special purpose/function
centers the flexibility to design services that are goal specific
and which are not subject to limitations of more traditional
transit. The development and implementation of such innovative
transit services could: 1) be designed to meet specific goals and
objectives, 2) directly support employer TDM programs, 3) allow
enhanced opportunity for private operations, 4) support community
development/redevelopment actions through incorporation into the
zoning and permitting process, 5) directly support and complement
other related TCMs actions, and 6) enhance local/regional job
creation activities.
As previously described, the purpose of the local service component
is to facilitate trip distribution within activity centers through
a flexible mix of traditional and non-traditional transit services.
This program mix, could include service to major intermodal
terminals, rail stations, connectors between hubs, circulation
within centers, and shuttles from peripheral parking lots into
centers. An example of an innovative, non-traditional center-
focused service could include a smart shuttle program.
A smart shuttle program could integrate the use of alternative
propulsion and existing/emerging smart vehicle technologies into a
mix of center-focused demand response transit services. These
services would be designed to support and enhance existing regional
transportation services. Examples of technological applications
could include: use of an alternative fuel/propulsion, automated
vehicle location/ computer assisted dispatch; use of debit cards,
smart cards and other prepayment mediums (with applications other
than transit); and computer assisted advanced reservations for
regular users. Examples of smart shuttle applications could
include: corridor specific jitney service similar to Atlantic City,
transit feeders and local circulators which mix traditional and
non-traditional services and multiple-origin to single destination
Super-Shuttle-type services (Super-Shuttle type).
The centers-focused service component differs from existing
services in that it places emphasis on shorter trips with higher
frequency of service provided through a mixture of traditional and
non-traditional applications. Figure 4-8 provides an illustration
of "catchment areas" around activity centers. This illustration,
uses an example of a three mile radius around activity centers
(which could vary by center). The catchment areas create the focus
points of centers within sub-regions and to a large extent respond
to employment of residential density of specific areas. The overlap
of these catchment areas which provide the core and flexibility
for the development of implementation strategies, and the resultant
service mix, which meet locally determined goals, objectives and
needs. The development of transit services at the local level which
responds to local defined needs is a radical departure from the
existing transportation planning process and substantially becomes
the basis for sub-regional decision making.
It will become the responsibility of the local jurisdictions and
subregions to determine the types and levels of transit service(s)
and their application(s) which best meet their individual goals,
needs, and objectives. The diversity among centers, local
jurisdictions and subregions preclude the application of a one size
fits all application. However, there are a number of criteria
applicable to centers that consider: 1) existing, emerging and
desired land uses, 2) levels of required (functional) inter-modal
coordination, 3) required transit capital investment, 4) identified
and targeted market groups, 5) potential for joint development, 6)
institutional cooperation, and 7) defined quantitative and
qualitative sub-regional and local transit objectives developed and
coordinated with the overall mobility strategy.
The development process using the criteria noted above could
directly affect and impact the mobility strategy through
influencing the overall mix of transit programs. It will further
impact regional funding decision-making through transit project
prioritization at the subregion and corridor level mandated by the
ISTEA. The development of specific transit projects that meet the
needs of local jurisdictions and subregions will become the basis
for RME Transit Program Actions being quantified as TCMs for air
quality attainment, and comprise a significant portion of the final
RME Transit Program.
Relationship to Facilities
The multi-modal rail stations and transit hubs that support the
existing and emerging rail system will be the first facilities to
become operational. These facilities and hubs will be designed to
meet specific level of service requirements and the needs of the
communities in which they are located. These designs and
configurations may vary considerably from simple layover or
designated transfer areas, "walk-on" platform rail stops with
minimal passenger amenities, to developed multi-modal regional/sub-
regional station sites with substantial passenger amenities and
adjacent or direct access to park-and-ride lots and/or freeway-
arterial HOV facilities.
These high and medium capacity transit facilities will support and
complement the implementation and operation of the HOV/transitway
systems as collection-distribution points. "Facility to
destination" and "limited access-destination" express bus services
will provide an integrated link to regional park-and-ride lots
located within sub-regional areas without direct access to the rail
network. "Limited stop" transit service would provide higher
capacity circulation-distribution within major employment centers
through arterial HOV/transitway application linking urban rail
stations and local transit hubs serving other attractor-generators.
It is the functional interaction between facilities, transportation
systems and urban form which will influence and determine the form
and implementation of the centers-based transit network. There are
a number of significant areas to be considered regarding the form-
function and interaction of centers based system and its
facilities. This interaction will be the basis of future transit
program actions as part of the regional transit strategy as well as
the over mobility strategy for the SCAG region.
As the centers-based transit network is implemented, activity
centers will be connected to and by an extensive network of transit
"focal points." Clearly, full implementation of such an extensive
system is, as it was in 1989, beyond the capacity of current
available funding. However, initial implementation actions should
be focused toward specific existing transit hubs which support the
development of locally developed transit goals and objectives for
specific centers by affected local jurisdiction and subregions.
There are a number of existing and emerging transit hubs that
facilitate intra-and inter-modal functions. A number of examples
include the following:
1. Los Angeles Union Passenger Terminal (Union Station in the Los
Angeles CBD): Metrorail (urban rail), inter-city rail,
Metrolink commuter rail, local and express bus; L.A. City Dash.
2. Long Beach Transit Mall (downtown Long Beach): Metrorail; local
and express bus.
3. Pasadena CBD, no existing facility: local and express bus.
4. El Monte Transit Station: local, limited and express bus.
5. Montclair Transit Center: Metrolink commuter rail; local and
express bus.
6. Fullerton Transportation Center (Amtrak station): inter-city
and commuter rail; local bus.
7. Santa Ana Regional Transportation Center (Amtrak station):
inter-city and commuter rail, local bus.
8. Santa Ana Transit Terminal (Santa Ana CBD): local andexpress
bus.
9. Anaheim Amtrak Station (Anaheim Stadium): inter-city and
commuter rail, local bus; express bus.
10. RTA Downtown Terminal (Riverside CBD): express and local bus
and inter-city bus.
11. Fourth Street Transit Mall (San Bernardino CBD): local bus and
express bus.
12. Huntington Center (Golden West College): local bus and inter-
city bus.
13. Martin Luther King, Jr. Transportation Center (Compton): Metro-
Rail and local bus.
14. Irvine Transportation Center (Irvine): local bus, express bus,
commuter rail, inter-city rail and urban rail (future).
Service Development and Integration Within Centers:
As previously discussed, centers-oriented services are designed to
reflect locally developed needs and objectives. An example of
center-oriented transportation improvements which have integrated
into overall community development, can be found in the City of
Pasadena. The civic center transit station incorporated low and
high income housing, retail and office activities and pedestrian
amenities into a single site development. The city has additionally
amended its General Plan to encourage similar mixed use development
adjacent to other stations. A new circulator system is being
currently implemented with plans for existing local transit service
redeployment to link the city's major attractor/generators with
rail stations. Currently, the city has used transit development to
leverage $70 million in committed private sector development.
Additionally, the Arroyo-Verdugo and the San Gabriel Valley sub-
regional organizations have adopted support positions for
development of an east-west rail corridor (Burbank to Pasadena),
the Glendale/Burbank MetroRail line and the Asuza Blue Line
extension projects.
Figure 4-5 (Intercounty bus)
Figure 4-6 (Commuter rail)
Figure 4-7 (Urban & intercity rail)
REGIONAL TRANSIT STRATEGY
The clearest measure of success for any transit strategy is in its
effectiveness to attract and retain new users. The mix of
programs, their systemic application, design, and the management of
support programs and actions will determine the performance and
quality of the regional transit strategy. In consequence, the
services provided must be the following:
- available at times convenient for the user
- accessible for use without physical or institutional barriers
- designed from the user's point of view.
This demands a series of actions creating a transit-friendly
environment that provides safe, secure, and attractive service;
simple and easily understood transit information systems;
coordination and integration with land uses, CMP and demand
management actions, and other transportation facilities; and the
support of a developed marketing strategy.
Regional public transportation improvements are currently directed
toward the implementation of the rail programs designed to create
the infrastructure which supports service on high-and-medium-
capacity corridors. This program mix was identified by county
transportation commissions and transit providers, and comprises the
FY 1993-99 Regional Transportation Implementation Plan (RTIP) and
the long-range funded programs.
The identified improvements include eight urban rail lines, nine
commuter rail lines, and two inter-city corridor lines and in the
not-too-distance future, high-speed rail. Although expansion of bus
programs is limited under the current identified local plans, it
is estimated that 3,600 replacement buses (based on the current 12
year life cycle) will have to be purchased (by 2015) to maintain
the existing levels of bus service. This estimate is exclusive of
alternative fuel mandates. Unforeseen demands for support facility
improvements and other capital and operational funding requirements
may seriously impact on the region's ability to maintain existing
transit service.
Transit Program actions must include those that create additional
stable revenue sources which fund expanded transit operations and
enhance capital investment for the region's transit systems.
Several long- and short-term financial actions that must be
addressed. The short-term include optimizing the use of existing
resources to better serve transit; prioritization of expenditures
to minimize operating costs; and effective management and
maintenance of existing capital investments. Long-range actions
must address the need to finance and fund new operations to serve
the region's growing population in support of mobility and air
quality goals. Future revenue must be developed from a variety of
sources that are not solely dependant on retail sales. A number of
fee-based new revenue sources are currently under discussion within
the region.
Achievement of a multi-modal centers-based transit network requires
the integration and coordination of bus and fixed guideway projects
with the other component parts of the Metropolitan Transportation
System (MTS). ISTEA mandates require that the regional development
of transit programs must be evaluated, prioritized and implemented
on the basis of cost effectiveness, operational efficiency, and the
attainment of mobility and air quality objectives. Practical
implementation of the tasks necessary to address operational and
systemic issues should 1) be incorporated into the planning process
at an early stage, 2) be given equal consideration as other
mobility/air quality program options, 3) be supported and
complemented by demand programs and performance-based congestion
management program objectives, and 4) be incorporated into
corridor/sub-area analyses or as part of the California
Environmental Quality Act/National Environmental Policy Act
(CEQA/NEPA) process. Additionally, these changes in process assist
in the implementation of improved transit TCM programs (described
in Chapter 11) and actions as required and identified by the
Federal and California Clean Air Acts. They should be given
priority in regional decision-making process with regard to project
selection for funding.
FINAL RME TRANSIT PROGRAM DEVELOPMENT
The transit program mix identified in existing current local plans
(CLPs) is composed of existing levels of bus service plus
identified rail projects (included RTIP), as well as transit
capital projects for which funding can be expected through 2015. In
addition to the identified transit projects, the final regional
transit strategy portion of 94 RME include a number of center-
focused service strategies which incorporated the use of advanced
technologies systems which are projected to meet mobility and air
quality goals.
Projections from SCAG's regional model indicate that public
transportation services will require substantial enhancements to
meet mobility goals and air quality mandates. In an effort to
address these issues, SCAG created the Advanced Technology (ATTF)
and Market Incentive Task Force (MITF). The efforts of these
taskforces has been to identify funding mechanisms through market
based incentives and implement advanced technologies, including
increasing transit services through innovative delivery systems.
Model results indicate that these innovations significantly
increase the effectiveness of regional investment in the proposed
transit and HOV systems included as part of the 94 RME.
These enhancements included existing and identified bus and rail
service from the CLPs and expansion of center-focused innovative
service (feeders, circulators, Smart Shuttles) within activity
centers. It is anticipated that transit program enhancements can be
funded through a number of new market-based mechanisms which are
less subject to changes in national, regional, and local economic
conditions.
Clearly, given the existing program mix, the need to meet mobility
and air quality goals and to achieve an integrated multi-modal
centers-based system will require the evaluation and coordination
of critical operational, programmatic, and infrastructure issues.
Operationally, these include: 1) the development of service
criteria and objectives that support redeployment and reallocation
of existing transit assets which increases service efficiency,
complements and exploits demand management programs, and CMP
objectives, and maximizes user access to the system; 2) the use of
express, limited stop, and local linehaul bus programs that support
inter-county access and complement rail programs and, 3) the
accessibility to regional airports, seaports and inter-city rail
facilities.
Programmatic issues address local, circulator, shuttle and demand
response (possibly jitney) service applications developed by and
for individual activity centers, their host communities, and the
adjacent sub-regional areas. The emphasis is to implement
innovative service applications which 1) create additional
transportation choice options, 2) support existing bus and rail
service, 3) support existing land-uses and planned or desired
development and, 4) exploit and create employment opportunities
within the region.
The emphasis on center-focused services introduce a number of
institutional and infrastructure issues which were previously not
addressed. Implementation strategies for center-focused service
planning need to be incorporated into the overall planning
structure and process. There is also the need at a regional and
county level for a method to identify and prioritize program
development and implementation within available financial
constraints from market-based mechanisms. This becomes especially
critical in centers and sub-regions which cross county lines.
During the last decade, CTCs and regional transit providers have
established an informal working relationship to fund, implement and
administer a number inter-county routes (Figure 4-5). These
informal relationships were formalized as part of the SB1402 Inter-
county Bus Study. These inter-county routes (express and local)
comprise a significant part of the tier II component. Maintenance
and expansion of inter-county transit service should become a
regional priority.
FIGURE 4-8
(REGIONAL ACTIVITY CENTERS)
Emphasis on center-focused service may substantially change the
function and requirements of existing transportation providers.
Regional transit service is comprised of 17 independent bus
systems. This often results in services that are duplicated,
competitive, modally uncoordinated, and difficult to use by the
rider. Beyond the operational concerns, the feasibility,
practicality and desirability of retaining an individual provider-
oriented infrastructure needs to addressed and evaluated.
Ultimately, the type of transit system infrastructure will greatly
determine and impact regional transit systems' performance and
associated investment decision-making. The development of succinct
and defined infrastructure goals and objectives should be a
priority transit program action.
TRANSIT PLAN ACTIONS:
As previously discussed, the program mix and support programs
included as a part of the Regional Transit Strategy influence those
specific actions which comprise Transit Program Actions. In
addition to the specific capital program actions identified in
Chapter 14, there are a number of other actions which support the
continued development and implementation of a centers-based transit
network. These actions are identified below:
General Actions:
- Undertake activities at the federal, state, and local levels
that create and establish new revenue sources which provide
additional funding for expanded transit capital and operational
requirements.
- Undertake activities which complete and implement the identified
Inter-City, Commuter and Metro Rail programs to meet Mobility
Plan goals and Air Quality Plan attainment.
- Identify and prioritize the long and short-range transit
implementation phasing along corridors and at the activity
center level.
- Meet "Project Milestones" for full accessibility as identified
in approved implementation plans mandated and required in the AD
Act, 1991.
Transit Program Actions:
- Identify and prioritized service requirements to Regional
Activity Centers, sub-centers and major attractor-generators at
the sub-regional level with specific focus on local distribution
and connectivity to intra-regional network.
- Identify local and sub-regional transit service requirements to
support and maximize access, egress and distribution with the
emerging rail systems.
- Implement new transit projects and maintain existing services
shown in Figures 4-5 thru 4-7. Specifically focus on integration
with other intra-regional networks and facilities.
- Identify relationship between level-of-service and route
structures to attraction of existing and potential transit
markets (user groups, present and future land use, facilities).
- Define needs assessment and delivery of services for centers-
based transit and shuttle support systems.
- Maintain bus fleet service.
POLICIES
The RME Transit Sub-group developed a number of recommended
policies which are designed to support the development and
implementation of a multi-modal centers-based transit system. As
part of the development process, the recommended polices were
presented to the other RME sub-groups, SCAG's Transit Advisory
Committee, SCAG's Transportation and Communication Committee and
Regional Council.
Public transportation programs should be considered an essential
public service because of their social, economic, and environmental
benefits.
Implementation of new transit service or improvements in existing
and expanded transit should be supportive of the Centers-Based
Transit Network concept.
Specific service types, levels and configuration should be
determined by the local transit providers, transit users, local
jurisdictions, and applicable county transportation commissions.
- Public transit services shall be designed to provide the maximum
availability at times convenient for use.
- Public transit services shall be designed to be available for
use without impediments.
- Public transit services should be designed to provide maximum
user utility.
- New and expansion transit programs which are designed to meet
the objectives of Transportation Control Measures contained in
the AQMP shall receive priority for funding.
- Local funding resources for transit should be used to leverage
all available federal funding sources as applicable.
- All existing and new public transit services, facilities and/or
systems shall be fully accessible to persons with disabilities
as defined, mandated, and required under the applicable Titles
and Sections of the Americans With Disabilities Act, 1990 and
the Rehabilitation Act, 1974.
- All existing and new public transit services shall be provided
in a manner which does not preclude use on the basis of race,
color and/or national origin as defined, mandated and required
under Title 6 of the Civil Rights Act, 1964.
- All existing and new public transit services, facilities and/or
systems shall evaluate the potential for private sector
participation through the use of competitive procurement based
on Fully Allocated Costing methodologies.
CHAPTER REGIONAL STREETS AND
FIVE HIGHWAYS PROGRAM
INTRODUCTION
New HOV facilities, freeway, gap closures, toll roads and Advanced
Technologies offer tremendous opportunities for helping Southern
California attain the transportation goals of the Regional Mobility
Element.
This chapter discusses those developments as well as policies for
the SCAG region roadway program. Additionally, this chapter
contains a status report on the changes to the freeways and
highways since 1989 followed by a description of 1990 travel
conditions. Figure 5-1 shows the current SCAG state highway
system.
Mobility strategies contained in this RME chapter have potential
for being integrated into the applicable air quality management
plans for the air basins in the region. Further discussion of the
TCMs can be found in Volume 2, Chapter 11, Regional Transportation
Control Measure (TCM) Programs.
IMPLEMENTATION STATUS OF
THE REGIONAL STREETS AND HIGHWAYS PROGRAM
The implementation status of the Regional Streets and Highways
program is a partial reflection of the degree of funding available
to local and state governments. Since 1989, jurisdictions within
the region have obtained new funding sources that apply to regional
streets and highways. Changes in funding sources include local
sales tax propositions, the Intermodal Surface Transportation
Efficiency Act (ISTEA), and State Highway Programs.
Status of Recommended State Highway and Freeway System Improvements
Mixed-Flow Highway/Freeway: (1) A connection between Interstate 15
between Route 60 and Route 91 was completed in June 1989. (2) The
Interstate 105 Freeway opened in October 1993. (3) The
Environmental Impact Statement of the Route 710 gap closure project
is in the approval process and Route 30 is on target to begin
construction in 1996 with a completion date of 2003. (4)
Improvements on Route 86 in Imperial County have progressed. (5) In
Ventura County, the 23/18 interchange was opened October 1993. (6)
Route 118 widening in Saticoy is under construction.
______________________________
5 A recent court decision has indicated that approval of all local
jurisdictions is required before a freeway can be constructed. If
this decision is affirmed by higher courts, the opposition to the
recommended route by South Pasadena could effectively block completion
of the Route 710 gap.
SCAG included an extensive network of High Occupancy Vehicle (HOV)
lanes in the 1989 Regional Mobility Plan. Approximately 1,100
centerline miles of HOV network were identified covering an
extensive part of the freeway network. It was recognized that HOV
lanes provide significant time savings incentives to form carpools
and vanpools that assist in achieving improved air quality, thus
relieving congestion and improving mobility. In addition, a number
of HOV facilities were identified as part of an improved transit
system, providing exclusive right-of-way for express bus service
with, in some cases, on-line stations, transportation centers, and
Park-And-Ride facilities.
High-Occupancy Vehicle (HOV) Program: (1) New HOV facilities have
opened on segments of Interstates 5 and 405, and Route 57, (Orange
County); Interstates 105, 210 and 405 (Los Angeles County), and a
segment of Route 91. (2) The Interstate 10 El Monte Busway was
extended into the Los Angeles Central Business District. (3)
Several miles of HOV lanes are currently under construction on
portions of the Interstate 110 Busway, Route 91, and Interstate 405
(through the interchange with Interstate 105). Additional HOV lanes
will be constructed on almost all metropolitan freeways by 2015.
Status of Arterial HOV Program
HOV lanes are planned for construction on most of the congested
segments of the regional freeway network by 2015. While these
facilities will assist in reducing congestion on the freeway
system, congestion on many of the streets and roads classified as
arterials (both principal and minor) will become more severe.
Although the 1989 RMP did not contain an arterial HOV program, many
of the same measures that have been used to improve traffic flow on
the freeway system have application to the region's arterial
system. For example, HOV lanesÄboth for automobiles and public
transit vehiclesÄon the congested non-freeway arterials can provide
some relief.
Arterial HOV lanes are designed to give preference and time savings
to transit or carpools on arterial streets. The availability of an
exclusive lane for transit buses reduces conflicts with mixed-flow
traffic resulting in faster running times, reduced operating costs,
lower bus emissions, and improved passenger attraction. The use of
arterial HOV lanes is consistent with policies that encourage
maximizing people-carrying capacity.
Arterial HOV lanes may be placed on one-way streets and/or two-way
streets with simple re-striping, in separate rights-of-way. They
may be contra-flow (against the flow of traffic), concurrent flow
(with the flow of traffic), or transit mall (reserved exclusively
for the use of transit vehicles). When developing arterial HOV
lanes, consideration should be given to the volume of transit
patronage and carpool users, the number of vehicles to be operated,
the degree of conflict with mixed-flow traffic, and the general
suitability of adjacent land uses and access needs. Arterial HOV
lanes may also be considered in potential high-density transit
corridors where rail improvements may not be viable due to high
cost or lack of right-of-way.
Two selection criteria -- congestion duration and potential for
improved transit operations -- make the HOV lanes effective in
terms of performance measures, and they are visibly productive in
the social and political sense. The low cost of arterial HOV lanes
and the potential for tangible operating costs savings and emission
reductions from buses make implementation and measurement of
immediate results possible.
Existing Arterial HOV Facilities. In downtown Los Angeles, a
contra-flow bus lane expedites northbound public transit vehicle
traffic on Spring Street. The Spring Street lane is only available
to public transportation vehicles.
Status of Recommended Local Streets and
Roads System Improvements
Capital improvements to the local streets and roads system were
accomplished primarily through the Capital Improvement Programs of
the region's CMPs, through the local sales tax measures and via
city and county budgets.
Status of Recommended Transportation
System Management Improvements
Jurisdictions within the SCAG region have implemented several of
the TSM projects recommended in the 1989 RMP. Completed projects
include signal synchronization, computerized signal systems,
installation of ramp meters, and intersection improvements. The
status of the TSM program can be found in Appendix C.
Status of Toll Roads
California highways, with some notable exceptions such as scenic
drives on the Monterey Peninsula, have historically been toll-free.
California statute does permit establishment of bridge districts
and these districts have been able to construct facilities on the
state highway system that charge tolls. In the SCAG region, the
Vincent Thomas Bridge (between San Pedro and Terminal Island, on
State Route 47), charges a toll for crossing.
Recognizing an era of limited resources yet desirous of mitigating
congestion through enhanced capacity, the state has enacted
legislation that would permit public funds to be used to build
conventional highways that would charge tolls for use. In the SCAG
region, there are currently five toll projects: two toll lanes in
each direction within the median of Route 91 between Riverside and
Orange Counties, an AB 680 Project; and four facilities within
Orange County: an extension of Route 57 between Route 22 and
Interstate 405; an extension of Route 73 through the San Joaquin
Hills; Route 231/261, known as the Eastern Corridors; and Route
241, known as the Foothill Corridor. The status of the projects is
shown in Table 5-1. Three miles of the Foothill Tollway opened in
October 1993.
TABLE 5-1
STATUS OF THE TOLL ROAD PROJECTS
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THIS PAGE INTENTIONALLY LEFT BLANK
FIGURE 5-1
(REGIONAL HIGHWAY SYSTEM)
FIGURE 5-1 CONT.
(REGIONAL SYSTEM)
Figure 5-1A
EXISTING (1990) REGIONAL SYSTEM
OPERATING CONDITIONS
Table 5-2 summarizes major performance indicators for the 1990
regional transportation system. The system supported a tremendous
amount of trips on a daily basis and the dominant mode was solo-
driving (75.6 percent). In 1990, the daily person trips and
vehicle trips were 48.9 million and 35.4 million, respectively,
yielding an average daily VMT of 294.2 million. As a consequence,
the average speed on the regional transportation system was only
about 32.5 miles per hour, although about half of these trips took
place on the region's extensive freeway system. The total daily
hours of delay amounted to 2.2 million hours (see Figure 5-1A, 1990
E & F Levels of Service).
TABLE 5-2
SUMMARY OF PERFORMANCE INDICATORS
FOR 1990 REGIONAL SYSTEM
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Source: 1990 Validation of the Regional Transportation Model,
March 1993
* Mode split percentage when all modes (walk, cycle, telecommute)
are included.
The poor operating status of the regional transportation system in
1990 is also demonstrated by traditional measures of roadway system
performance [e.g. level of service (LOS)]. A substantial portion of
the region's freeway system experienced major congestion,
especially around major activity centers (See Figure 2-1, 1990
Level of Service on the Regional System Map, in Chapter 2, Volume
I).
FRAMEWORK FOR DEVELOPING THE
REGIONAL STREETS AND HIGHWAYS PROGRAM
The Regional Streets and Highways program was developed to support
regional goal attainment. The program supports alternatives to
single occupant vehicle travel. It considers freight transportation
and its links to the economy and system operation. Moreover, the
program recognizes the critical issues related to the region's
almost complete dependence on fossil fuels for mobility. These
issues are addressed through provision of Park-and-Ride lots and
HOV facilities that directly link activity centers and areas. The
centers concept embraces the provision of transit and access via
other modes such as walking and bicycling. System continuity,
improved system operation, and enhanced fuel efficiencies are
addressed by gap closures and technology.
Regional Streets and Highways Program Development
- Broaden the role of local arterial roadways in achieving
mobility objectives.
- Employ greater use of Smart Corridors, Smart Streets and
technology.
- Expand the use of transportation system management.
- Support transit through provision of freeway HOV facilities and
Park-And-Ride lots.
- Develop arterial HOV facilities to support transit.
- Use market pricing where appropriate as a strategy to achieve
regional goals and objectives.
Specific policies were formulated in the following areas: freeway,
HOV and toll facility development, arterial HOV facilities, Smart
Corridors, Smart Streets and TSM.
POLICIES
Freeway and HOV Facilities
- Potential down-stream congestion impacts from capacity enhancing
projects will be studied.
- HOV facilities shall be constructed and operated to encourage
use of public and private transit, smart shuttle transit,
jitneys, carpools, vanpools and other HOVs.
- In addition to increasing occupancy thresholds on HOV
facilities, consideration should be given to additional or
expanded HOV capacity in the corridor.
- Alternative modes and projects shall be developed and
implemented where implementation of HOV element projects is
demonstrated to be unfeasible due to widespread local
opposition.
- HOV lanes shall be provided for a new facility construction, gap
closures, and for capacity enhancements of existing facilities
in accordance with the HOV program.
- Certain freeway facilities within the SCAG region lack adequate
median shoulder or existing Right of Way to add HOV lanes. When
the formation of two plus occupancy carpools on these facilities
yield consistent directional HOV volumes averaging 1500 vehicles
per hour during the daily peak periods of congestion, SCAG shall
request Caltrans to initiate a study as to how the HOV
improvement can be implemented before programming the project.
The study shall examine alternatives for the HOV, operational
considerations (including IVHS), public support for HOV
(including conversion) within the corridor, and pricing, as well
as the legal and environmental ramifications of each specific
project.
Toll Facilities
- Toll facilities shall be designed, operated and priced to
encourage use of public and private transit, carpools, vanpools,
and other HOV. Average vehicle occupancy (AVO) of the toll
facilities shall be comparable to similar HOV facilities.
- Pricing policies may be applied to maintain appropriate levels
of service on facilities.
Arterial HOV Facilities
- Necessary steps to develop and implement arterial HOV facilities
in support of transit and rideshare activities shall be
initiated.
Smart Corridors and Smart Streets
- Necessary steps to develop and implement Smart Corridors and
Smart Streets to achieve regional mobility objectives shall be
initiated.
Transportation System Management
- Expanded transportation system management by local jurisdictions
will be encouraged.
- The development and application of management systems by local
jurisdictions as a means of optimizing the expenditure of scarce
maintenance, operating and capital funds should be supported.
- New transportation infrastructure will incorporate advanced
system technologies, where appropriate.
- TSM activities throughout the region shall be coordinated among
jurisdictions.
- Methods to improve safety and reduce incidents on the regional
transportation system will be considered.
______________________________
****** Assumes that once the conversion takes place, HOV traffic
volumes will increase 20%.
SUBREGIONAL INPUT
Subregional input, as a part of the bottom-up planning process, is
comprised of significant issues of concern as they relate to
regional streets and highways. Tables 5-3 and 5-4 depict
subregional input as related to the regional program.
TABLE 5-3
SUBREGIONALLY RECOMMENDED IMPLEMENTATION PROGRAM
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______________________________
******** The County of Riverside has programs on a different
magnitude from WRCOG and CVAG. Riverside County has diverse needs
between the subregions and the County government is an active member
in all the Riverside County subregions.
TABLE 5-4
SCAG REGION SUBAREA INPUT
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RECOMMENDED REGIONAL STREETS AND
HIGHWAYS PROGRAM
The program recommends capacity expansions, enhanced system
management, and feasibility studies to be implemented by the CTCs,
the Transportation Corridor Agencies (TCAs), Caltrans and local
jurisdictions. The seven-year Capital Improvement Programs of the
1992 Congestion Management Programs were found to be consistent
with the 1989 RMP and compatible with adjacent county(ies) CMPs.
As such, the CMPs were incorporated into the Action Element of the
RME as authorized by CMP legislation.
Capacity Expansions
Figure 5-2 shows the proposed mixed-flow capacity expansion
projects to be implemented as a part of the 1994 Plan. Figure 5-3
shows proposed HOV capacity expansion projects included in the
Plan. For reference purposes, existing mixed-flow and HOV lanes
are also shown on the respective figures.
In total, 2,710 additional lane miles of mixed-flow and HOV
capacity are proposed. Table 5-5 shows the breakdown of total
mixed-flow and HOV lane mileage to be added by location within the
region. Of the 2,710 additional lane miles, mixed-flow freeway
capacity expansions comprise 53 percent (1,446 lane miles) while
expansions for HOV comprise 47 percent (1,264 lane miles).
Projected Changes in Lane Mileage. Table 5-5a shows the projected
changes in existing lane mileage between December 31, 1990 and year
2015. Under the 1994 Plan, the region's mixed-flow lane mileage
will be expanded from a 1990 total of 8,674 to 10,120 (a 17 percent
increase); the region's HOV mileage will be expanded from a 1990
total of 105 to 1369 (a 1,203 percent increase).
The largest expansion in mixed-flow lane mileage will occur in
Orange County while the greatest expansion in HOV lane mileage will
occur in Los Angeles County.
TABLE 5-5
TOTAL MIXED-FLOW & HOV LANE
MILES TO BE ADDED BY COUNTY 1990 - 2015
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Source: 1994 Plan, *Caltrans District 11
Note: Includes new facilities, widening of existing facilities and
toll roads.
TABLE 5-5a
PROJECTED CHANGES IN LANE MILEAGE BY COUNTY
1990 - 2015
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Source: 1994 Plan, *Caltrans District 11
SCAG Forecasting, Analysis, and Monitoring, (4-1-94)
Expansions due to new facility construction and widening of existing
facilities. Table 5-6 shows the breakdown of capacity expansions by
improvement type. The construction of new facilities will add 958
lane miles of capacity. Of the new facility mileage, approximately 81
percent will serve mixed-flow traffic, and 19 percent will be HOV
only. Existing facilities will be expanded by 1752 lane miles. Of
this total, 38 percent will serve mixed-flow while 62 percent will
be HOV only.
TABLE 5-6
PROPOSED CAPACITY EXPANSIONS BY
IMPROVEMENT TYPE
1990-2015
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Source: 1994 Plan, *Caltrans District 11
INSERT FIGURE 5-2 PROPOSED MIXED-FLOW PROJECTS
INSERT FIGURE 5-3 HIGH-OCCUPANCY VEHICLE LANES 1990 EXISTING AND
PROPOSED
Freeway HOV. Discussions with Caltrans, county transportation
commissions and transit operators indicate a continued support for
HOV lanes as a mobility strategy for the region. Additional HOV
lanes have been identified and commitments to building routes
identified in the 1989 RMP are filling new identified demands.
Connections between segments of the HOV system also need to be
developed, including the creation of direct HOV ramp connectors
where costs and conditions warrant. The reasonably funded
infrastructure actions in the RME maintain the commitment to
completion of the freeway HOV system.
SCAG REGION CONGESTION MANAGEMENT PROGRAMS
The Congestion Management Program (CMP) is a state-mandated program
intended as the analytical basis for transportation decisions made
through the State Transportation Improvement Program (STIP) process
and Regional Transportation Improvement Program. Urbanized
counties within the SCAG Region are required to adopt CMPs:
Ventura, Orange, Riverside, Los Angeles and San Bernardino
counties. Under state law, Imperial County is not required to
prepare a congestion management program.
CMP Elements. Elements of the CMP include:
- a system of highways and roadways with minimum level of
service performance standards designated for highway segments
and key roadway intersections on the system;
- transit standards for frequency and routing of transit
service and coordination between transit operators;
- a trip reduction and travel demand element promoting
alternative transportation methods during peak travel
periods;
- a program to analyze the impacts of local land use decisions
on the regional transportation system, including an estimate
of the costs of mitigating those impacts;
- a seven-year capital improvement program that benefits the
CMP system. The CIP is designed to maintain or improve
traffic level of service and transit performance standards,
to mitigate land use impacts, and to conform to vehicle
emissions mitigation strategies. Dependent upon the county,
the roadway component of the CIP pertains to freeways and
highways or arterials, or all three; and
- deficiency plan requirements that implement strategies that
either fully mitigate congestion or alternatively provide
measurable improvement to congestion and air quality.
Relationship of the Congestion Management Programs to the Overall
Regional Mobility Element
The Congestion Management Programs are an integral part of the
metropolitan transportation planning process, serving as a
foundation for plan development and implementation. The mandated
elements of the CMPs are closely linked to the various strategies
and major programs that comprise or are considered for
incorporation into the regional plan.
In accordance with CMP statute, SCAG evaluates the consistency
between the CMPs and SCAG's RME and compatibility of adjacent
County CMPs. When SCAG's adopted criteria for consistency and
compatibility are met, the CMP CIPs are incorporated into the
Regional Action Program of the RME and into the SCAG Regional
Transportation Improvement Program. In this manner, the CIPs make
up a portion of the financially constrained program of projects of
the RME and the RTIP. The CMPs also are links to the Transportation
Control Measures of the applicable air quality management districts
within the SCAG region.
An important aspect of the CMPs is the desired integration of the
capital improvement strategies with both transit and transportation
demand management actions and deficiency plans. Deficiency plans
are not, however, required to be tied to mitigate specific land-use
developments.
While the CMP is best viewed as a whole rather than in its
constituent parts, the Regional Streets and Highways analysis deals
only with the roadway portion of the programs.
1992 Consistency Finding. Under Government Code Section 65089.2,
SCAG is required to determine CMP consistency with the RME,
compatibility with other CMPs in the region and consistency with
SCAG's regional model and database. SCAG's Transportation and
Communications Committee approved an interim finding of consistency
and compatibility for the CMPs within the SCAG region.
The Capital Improvement Programs of the Congestion Management
Programs (CMPs) are hereby incorporated by reference into the RME.
Relationship of the Congestion Management Programs to the Regional
Streets and Highways Program
Local Streets and Roads Improvements. The projects that
specifically pertain to the local streets and roadways in the CMP
CIPs are recommended as the local streets and roads improvement
program. Table 5-7 summarizes the seven-year CIP projects of the
1992 CMPs by the type of improvement. A total of $1.93 billion
will be spent (44.7 percent) on CMP local streets improvements.
Arterial Programs.SCAG Subregions have also developed arterial
street programs that serve local and in some cases, regional
travel. Through its Regional Arterial Program, Coachella Valley
acknowledges that regional transportation issues have been and will
continue to be a primary concern in efforts to relieve congestion
and provide subregional mobility. The Coachella Valley Area
Transportation Study (CVATS) identifies street and highway needs
through the year 2010. Mechanisms to fund these programs include
Coachella Valley portions of Riverside County's Measure A sales tax
and a Transportation Uniform Mitigation Fee (TUMF). Forty percent
of Coachella Valley's share of Measure A is estimated to generate
approximately $126 million during its 20-year life. The
Expenditure Plan links the implementation of a TUMF to the Regional
Arterial portion of the sales tax measure.
Of the $800 million system identified by the CVATS, approximately
$590 million worth are approved as "Regional Arterials". The
projects include seven new or improved freeway interchanges, six
new or improved railroad crossings south of Interstate 10, twelve
new or improved bridges across the Whitewater River, twenty new or
improved major arterials including the proposed Mid-Valley Parkway,
and eleven new or improved bridges over other channels.
Arterial HOV Lane Opportunities. Exclusive arterial lanes to
support transit operations or as facility components of projects
(e.g. the Santa Monica Boulevard Corridor) offer improvements in
mobility through improvements in transit reliability, speed,
safety, and operating efficiency. Further, evidence suggests
reduced congestion conflicts can improve the emissions from transit
buses and improve air quality. The RME recommends the development
of arterial HOV lanes where opportunities with appropriate
conditions can result in improved transit operations or can
encourage shared rides through time savings to users. Nine
potential arterial HOV candidate corridors have been identified for
the purposes of modeling and to determine their potential in
achieving mobility objectives.
1. Olive Street: from Olympic Boulevard to Fourth Street.
2. Hill Street: from Olympic Boulevard to Temple Street.
3. Broadway: from Olympic Boulevard to Temple Street.
4. Vermont Avenue: from Exposition Boulevard to Santa Monica
Boulevard.
5. Santa Monica Boulevard: from Sepulveda to Century City.
6. Century Boulevard: from Interstate 405 to LAX.
7. La Tijera/Sepulveda Boulevards: from Interstate 405 to LAX.
8. Colorado Boulevard: through Eagle Rock (Tri-Cities Corridor).
9. In corridors that access Metrorail stations where high volumes
of buses occur (Alvarado Street, Ventura Boulevard, etc).
The potential for additional lanes, both for the exclusive use of
public transportation and for the mixed use of public
transportation and carpools should be examined. Both transit-only
and transit/carpool HOV lanes on other principal arterials should
be studied. Similar facilities may have application in other areas
of the region.
Transportation System Management
Recommended TSM improvements under Caltran's Urban Freeway Advanced
Traffic Management System include freeway ramp metering and
construction of Park-And-Ride lots (see Figures 5-4 and 5-5),
changeable message signs and closed-circuit televisions (CCTV).
One of the major objectives of ramp metering is to balance demand
and capacity. Ramp metering may sometimes be a disincentive to
using the freeway for short trips during the peak periods. Ramp
meters control the pace at which vehicles enter a highway. Timed
entry allows vehicles to merge safely without impeding existing
traffic. This diminishes the bottlenecking often associated with
on-ramps because the controlled access rate matches the highway's
ability to absorb the additional traffic. Although motorists incur
a delay on the ramp, the mainline capacity is enhanced, travel
time, speeds, and emissions are improved. Metered on-ramps may
also include HOV bypass lanes so that carpools, buses and
motorcycles can bypass the queue.
Changeable message signs aid navigation around freeway events that
cause congestion and delay while CCTV allows for surveillance of
the network to detect congestion, incidents, accidents and to
facilitate actions to reduce the duration of delay.
Park-And-Ride facilities are constructed along major transit
corridors to serve as staging areas for single-occupant motorists
to join carpools/vanpools and board public transit or commuter rail
for the trip to work, etc. The lots also provide convenient meeting
spots for shopping and recreational trips.
TABLE 5-7
SUMMARY OF CMP CIP PROJECTS
Click HERE for graphic.
Sources:
1. San Bernardino Associated Governments, Congestion Management
Program for San Bernardino County,November 1992.
2. Los Angeles County Metropolitan Transportation Authority,
Congestion Management Program for Los Angeles County,
December 1992.
3. Riverside County Transportation Commission, Congestion
Management Program for Riverside County, December 1992.
4. Orange County Transportation Authority, Congestion Management
Program for Orange County, December 1992.
5. Ventura County Transportation Commission, Congestion
Management Program for Ventura County, December 1992.
FIGURE 5-4
(RAMP METERS)
FIGURE 5-5
(PARK-N-RIDE)
Safety and Accident/Incident Management
Caltrans, the county transportation commissions and the California
Highway Patrol (CHP) currently employ various incident management
programs. Mechanisms that allow for recovering the costs of
incident/accident clean-up through incentive fees should also be
examined. Efforts should be made to quantify and evaluate the
impacts of accidents and incidents on the region's roadways.
Mechanisms that address the accident/incident cost recovery should
be investigated for possible implementation.
REGIONAL MOBILITY ELEMENT PLANNING TOOLS
SCAG Region Congestion Management System (CMS)
Section 1034 of the ISTEA requires development, establishment, and
implementation of a traffic congestion management system by the
State in cooperation with SCAG, and with affected agencies
receiving assistance under the Federal Transit Act. The roles and
responsibilities of the affected agencies are to be mutually
determined. In December 1993, FHWA/Federal Transit Administration
(FTA) released the Interim Final Rules for the Congestion
Management System; the interim rules became effective on January 3,
1994.
A CMS is a process that provides information on transportation
system performance and alternative strategies to alleviate
congestion and enhance the mobility of persons and freight. A CMS
includes methods to monitor and evaluate performance, identify
alternative actions, assess and implement cost-effective actions,
and evaluate the effectiveness of implemented actions.
By October 1, 1994 Caltrans must prepare a work plan that shows how
full CMS implementation will be achieved; critical areas requiring
analysis must be identified, and data collection activities must be
initiated. By October 1, 1995, the CMS must be fully operational
and must provide projects and programs for consideration in
developing metropolitan and statewide transportation plans and
improvement programs. Until the CMS is fully operational, there are
restrictions on the programming of federal funds for highway or
transit projects that significantly increase capacity for Single
Occupant Vehicles (SOV) (23 CFR 450.336(b).
In TMAs that are nonattainment for carbon monoxide and/or ozone, a
project that significantly increases the capacity for SOVs cannot
be programmed for Federal funding unless the project results from
an approved CMS.
SCAG's Congestion Management System Task Force, expanded from the
Intercounty Congestion Management Agency Working Group, has
recommended that the SCAG Regional Council approve the following
principles for CMS Development in the region:
______________________________
8 Work plan means a written description of major activities
necessary to develop, establish, and implement a management or
monitoring system, including identification of responsibilities,
resources, and target dates for completion of the major activities.
- That the Southern California CMS focus on meeting basic federal
requirements necessary to comply with ISTEA requirements for
first year implementation. The CMS can be enhanced in future
years as experience is gained in CMS implementation, and as
demonstrated needs arise.
- That the Congestion Management System requirement should use the
existing state-mandated Congestion Management Program to the
fullest extent possible in order to meet federal ISTEA statute,
in order to:
- avoid creating a new layer of bureaucracy to an already
complicated Southern California planning process.
- avoid creating costly new responsibilities for local
governments.
- effectively integrate into the regional planning process, the
three year effort on the part of local jurisdictions, and
many other agencies and interests in developing and
implementing the state CMP requirement.
- That Southern California agencies actively support federal
approval to use the CMP to meet the CMS to the fullest extent
possible.
- That the Inter-County CMA Group continue to explore
with SCAG staff ways of improving technical
coordination between the CMP and the RME.
CMS Development in Imperial County. In following government
requirements, SCAG will cooperate with Caltrans in the development
of a congestion management system for the affected SCAG non-
urbanized subregion. SCAG's existing subregional planning
framework will be used to assist in the development process.
Relationship of the CMS to SCAG Metropolitan Transportation
Planning Process. The CMS technical and policy development process
is closely coordinated with existing well-established processes for
congestion management to ensure that the CMS will be fully
integrated into the metropolitan transportation planning process,
in accordance with the Interim Final Regulation.
The System of Regional Significance
The regional transportation plan must describe the transportation
system (including, but not necessarily limited to major roadways,
transit, and multi-modal and intermodal facilities) that should
function as an integrated Metropolitan Transportation System (MTS),
giving emphasis to those facilities that serve important national
and regional transportation functions. The definition of the MTS
will be examined and an improved definition developed, based on
issues raised by county transportation commissions, Caltrans and
others, subsequent to adoption of the 1994 RME.
______________________________
9 23 U.S.C. 134(g)(2)(A)
The existing SCAG System of Regional Significance (SRS) was
approved in the 1989 Regional Mobility Plan and consists of
approximately 3,380 miles of federal and state highways in addition
to 3,450 miles of major arterials. Arterials are defined as roads
that transport 10,000 or more average daily traffic (ADT) and carry
significant volumes of traffic on routes seven miles or more in
length. (See Figure 5-6 System of Regional Significance.)
In connection with ongoing efforts to better integrate the region's
systems of highways, transit, airports, harbors etc., the SRS will
be further refined to include the following criteria:
- Arterials parallel to a freeway that can be used as alternate
routes.
- Routes that provide access to major activity centers such as
amusement parks, regional shopping centers, and military bases.
- Routes that are included in each county's CMP.
- Goods movement routes including both truck routes and rail lines
(including rural agricultural routes that provide goods to the
region).
- Fixed transit routes such as light rail and commuter rail, and
express bus routes.
- Intermodal transfer facilities.
- TDM facilities such as telecommunication centers, park-and-ride
lots, bicycle transportation facilities, pedestrian walkways,
and others; and
- TSM facilities such as ramp metering, Smart Corridors,
Changeable Message Signs (CMS), Closed Circuit TV (CCTV), and
others.
- Review 10,000 as the threshold figure for Average Daily Traffic
(ADT) in defining arterials.
National Highway System
The National Highway System (NHS) is one component of the MTS. The
NHS will consist of the interstates, a number of strategic highways
needed for national defense purposes, strategic highway connectors,
and selected principal arterials. Recommendations for the NHS were
cooperatively developed by the state of California and the
Metropolitan Planning Organizations (MPOs) and are shown in Figure
5-7. Congress is expected to approve the NHS by September, 1995.
Until that time, the NHS consists of the interstates and streets
and roads currently classified as principal arterials. While the
NHS in the SCAG region comprises only 15 percent of the mileage of
the MTS, slightly more than 50 percent of the region's VMT takes
place on the system.
______________________________
10 The definition for regionally significant was adopted as part
of the Regional Transportation Improvement Program Guidelines. Some
county transportation commissions have suggested that the arterial
definition should vary by county, and that issues will be considered
and resolved during the public review of the RME. This and related
issues will be considered and resolved after the Spring 1994 adoption
of the RME.
Efforts continue to refine the system based upon expanded criteria
that are intended to integrate and focus planning efforts on the
roadway system as a comprehensive whole and as a part of the
overall MTS.
Figure 5-6
System of Regional Significance
Insert new figure/map here: System of Regional Significance Figure 5-6
cont.
Figure 5-7 - National Highway System
ADVANCED TECHNOLOGY IN TRANSPORTATION
Advanced technology can be used to enhance the LOS provided by the
existing roadway network without having to increase capacity.
Advanced technologies include Smart Streets/Corridors, Intelligent
Vehicle Highway System (IVHS), and applying electronics,
communications or information processing to improve the efficiency
and safety of the surface transportation system. Table 5-8
indicates the several IVHS technologies available. One of these
technologies, Advanced Traffic Management System, is currently
being developed in the County of Los Angeles by Caltrans [See
Figure 5-8].
TABLE 5-8
INTELLIGENT VEHICLE HIGHWAY
SYSTEM (IVHS) PROGRAMS
Click HERE for graphic.
Source: IVHS America, May 1992
Figure 5-8 (IVHS Map)
Smart Corridors
A Smart Corridor is one in which an agency's control and response
decisions are made in agreement with the actions of other agencies
involved in handling traffic congestion. The agencies involved
include Caltrans, CHP, local emergency services providers, and
local transportation departments. In addition, Smart Corridors
will require direct involvement of the county transportation
commissions.
A Smart Corridor is also one in which all facilities, including
freeways and surface streets, are used at their maximum efficiency
during both normal periods of congestion and when an incident has
occurred. This would involve freeway surveillance and control,
ramp metering, improved traffic signal control, incident detection
and response, motorist service patrols and other traffic management
features.
Smart Corridors provide the driver with the information needed to
make intelligent decisions on the best route to travel, given
existing conditions. In some cases, the motorist may delay trips,
cancel trips, or use alternatives to their normal route. Motorist
information opportunities include commercial radio and television,
changeable message signs, highway advisory radio, telephone call-in
and computer bulletin boards. They also include more sophisticated
elements such as in-vehicle navigation systems, special television
messages and dedicated in-vehicle radio signalling.
Smart Corridors Under Development. The Santa Monica Freeway Smart
Corridor covers an approximately 14.5 mile stretch of the Santa
Monica Freeway. Project implementation began in mid-1993. Project
planning began in early 1993 with the purpose of assessing the
effectiveness of project elements and the applicability of Smart
concepts to other corridors. The total project cost is
approximately $48 million, which has been provided through federal,
state and local sources.
The Glendale/Pasadena/Burbank Smart Corridor Project is currently
under development. The Smart Corridor Project, (210, 134, I-5
Freeways), including the cities of Pasadena, Los Angeles, Glendale,
and Burbank, is funded by the ISTEA/Proposition C fund.
Potential Corridors. In accordance with Assembly Bill 1239, the
Smart Corridor Statewide Study identified combined freeway and
surface corridors where significant congestion exists and where the
Smart Corridor concepts will prove cost effective in reducing
congestion. In the SCAG region, the Study included the urbanized
portions of Los Angeles, Ventura, San Bernardino, Riverside, and
Orange counties. Also, all freeways in Caltrans Districts 7, 8,
11, 12 were reviewed to evaluate the level of congestion and
opportunities for implementing Smart Corridor techniques. Examples
of potential Smart Corridors in the region are identified in Tables
5-9 and 5-10.
TABLE 5-9
LOS ANGELES COUNTY
POTENTIAL SMART CORRIDORS
Click HERE for graphic.
Source: Statewide Smart Corridor Study
TABLE 5-10
ORANGE COUNTY
POTENTIAL SMART CORRIDORS
Click HERE for graphic.
Source: Statewide Smart Corridor Study
ISSUES IN NEED OF FURTHER STUDY
Several issues remain to be considered relative to regional goal
attainment including the following:
- The role that local streets and roads can and will play in
achieving mobility.
- How the region will address immediate congestion problems while
attempting to reduce the region's reliance on SOV.
- Roadway planning for clean fueled single occupancy vehicles.
- Effectively reducing the impact of freight transportation in the
region.
- Improving the efficiency of freight transportation on the
region's roadways.
- Coping with energy demands for transportation purposes if the
reliance on the SOV continues.
CHAPTER REGIONAL NON-MOTORIZED
SIX TRANSPORTATION PROGRAM
INTRODUCTION/BACKGROUND
Non-motorized transportation, generally defined as walking and
bicycling, is an important aspect of Southern California's overall
strategy for meeting the region's mobility, air quality and energy
goals. The increase of pedestrian and bicycle reliance has the
long-range potential of ultimately reducing vehicle trips and
vehicle miles in the region. The region, however, must improve its
existing non-motorized system. While non-motorized transportation
is considered an element of the vehicle substitution strategy of
Transportation Demand Management (TDM), bicycling and walking are
distinct modes that not only share facilities with other modes, but
also require unique facilities.
To enhance bicycle and pedestrian travel, the State of California
requires consideration of pedestrian programs and links to transit,
where appropriate. The Regional Mobility Element (RME) itself is
required to develop an action program that includes a program for
developing intracity and intercity bicycle programs.
ASSESSMENT OF EXISTING NON-MOTORIZED
TRANSPORTATION SYSTEM AND PERFORMANCE
A major drawback to non-motorized transportation in Southern
California is that the current bikeway system does not provide a
safe, continuous network throughout the region.
There are three classifications of bikeways. Class I are off-road,
paved paths. Class II are on-road, signed and striped bicycle
lanes. Class III are on-road, signed bicycle routes.
Figure 6-1 illustrates that Class I bicycle facilities are not very
extensive. It also serves to represent an image of the system as a
whole. (The presentation of only Class I facilities in Figure 6-1
does not represent any preference, funding or otherwise). Class II
facilities are much more extensive, in terms of providing access on
the arterial and highway network (where bikes are permitted). But
even in combination with the Class I facilities, large gaps in the
system remain. Class III bikeways may provide alternative routes to
some high-volume, high-speed arterial, and thus seem to provide a
much more connected system when connected with Class I and II. Each
class, however, serves a different function: and therefore,
connected facilities of different classes do not necessarily
constitute a continuous system.
Map
map
In addition to paved bicycle facilities, most of the counties have
developed a trails program for hiking, mountain biking, and
equestrian travel. Although these facilities are primarily
recreational, they can provide travel to scenic and recreational
areas. Convenient non-motorized access to these sites can reduce
the need for motorized trips to the destinations served by these
facilities.
With the existing infrastructure described above, the region is
currently experiencing a home-to-work trip mode-split of almost 1
percent for bicycling, and 2 percent for walking. The daily mode-
split for all bicycling trip purposes is about 1 percent, and about
8 percent for walking trips.
A number of barriers currently impede a larger participation in
non-motorized transportation by pedestrians and bicyclists. These
barriers include the following:
- Negative perceptions about non-motorized commuting
- Unsafe, insufficient, and inconvenient infrastructure
- Crime, including both personal safety and security of property
- Lack of access to transit
- Land-use patterns and site designs that are unfriendly to
pedestrians and bicyclists
In addition, an institutional barrier which impedes the development
of non-motorized facilities is concern about public and private
liability.
GOALS AND OBJECTIVES
The non-motorized transportation program has two goals aimed at
improving the existing non-motorized system and helping the region
meet its mobility, air quality, and energy goals. The first goal
is to make the overall transportation system accessible, safe, and
convenient for bicycle and pedestrian travel (i.e., "user-friendly"
to bicyclists and pedestrians). Accessibility for bicyclists is
defined by the availability of bikeways (routes, lanes, paths);
bicycle facilities (bicycle racks, lockers, and showers); and
connections to transit (carpool/vanpool as well as bus/rail).
Accessibility for pedestrians is defined as the availability of
sidewalks and pathways and site designs that provide safe,
convenient pedestrian access in residential, commercial, and
employment sites and centers. The objective, therefore, is to
increase the current level of non-motorized facility development.
The second goal is to increase the pedestrian and bicycle mode-
split, thus reducing vehicle trips and vehicle miles. The system
will have to not only better accommodate existing users but also
encourage new potential
users. The objective is to increase the level of daily bicycle and
pedestrian trips to 10 percent of all daily trips, and increase the
level of home-to-work bicycle and pedestrian trips to 5 percent
(based on NPTS survey data).
______________________________
11 1990 Nationwide Personal Transportation Survey (NPTS) - Data
covers the SCAG region
POLICIES
A set of strategies is recommended for overcoming the barriers
identified and meeting the program's objectives. These strategies
can be categorized under the following four headings:
- Infrastructure improvements
- Education and promotion
- Enforcement
- Urban form, land-use and site designs
Efforts in each of these areas are recommended to meet RME goals
and non-motorized element objectives.
The following policies are recommended to implement the four
strategies identified above and are intended to comprehensively
incorporate the planning, development, and operation of the non-
motorized system into the existing transportation development and
operations structure.
- The development of the regional transportation system should
include a non-motorized transportation system that provides an
effective alternative to auto travel for appropriate trips. The
planning and development of transportation projects and systems
should incorporate the following, as appropriate:
- Provision of safe, convenient, and continuous bicycle and
pedestrian infrastructure to and throughout areas with
existing and potential demand such as activity areas,
schools, recreational areas (including those areas served by
trails), which will ultimately offer the same or better
accessibility provided to the motorized vehicle.
- Accessibility to and on transit (bus terminals, rail
stations, Park-And-Ride lots), where there is demand and
where transit boarding time will not be significantly
delayed.
- Maintenance of safe, convenient, and continuous non-motorized
travel during and after the construction of transportation
and general development projects. Existing bikeways and
pedestrian walkways should not be removed without mitigation
that is as effective as the original facility.
- Entities and programs that currently support the auto should be
encouraged to provide the same types of services for non-
motorized transportation, including education, promotion, and
enforcement.
- Urban form, land-use and site-design policies should include
requirements for safe and convenient non-motorized
transportation, including the development of bicycle and
pedestrian-friendly environments near transit.
ACTION PROGRAM
Chapter 14 identifies the actions to implement the policy program.
The actions, which fall under the four major strategies, are
intended to be implemented according to the needs identified by the
subregions. However, to provide an effective non-motorized system,
increase non-motorized trips, and thus reduce dependence on the
single-occupant vehicle, it is expected that each strategy is
necessary and will need to be implemented in each subregion.
Subregional Input
Without a coordinated regional non-motorized planning process, the
identification of effective strategies and actions for each
particular subregion has not been possible. SCAG and the
subregions, therefore, will be coordinating in a regional planning
effort which will assess the regional needs and opportunities for
non-motorized transportation based on a subregional assessment of
existing and planned actions. This effort will provide strategies
and actions specific to each subregion. These actions are
identified in Chapter 14. Currently, subregions which are CVAG,
City of Los Angeles Subregion, IVAG, Orange County, North County,
SANBAG, SELAC, San Gabriel Association of Cities, South Bay Cities,
West Side Summit, WRCOG, and VCOG.
TABLE 6-1
SUBREGIONALLY RECOMMENDED IMPLEMENTATION PROGRAM
Click HERE for graphic.
CHAPTER REGIONAL GOODS MOVEMENT
SEVEN PROGRAM
INTRODUCTION
Goods movement in the SCAG region is a transportation activity with
critical linkages to such areas as the economy, mobility, the
environment, quality of life, and land use. Formally defined,
goods movement refers to the facilities, activities and people
involved in transporting commodities, data, raw materials and
products for the purpose of consumption, manufacture, or disposal.
Public sector and private enterprises participate in goods movement
activities as diverse as the movement of oil and water via
pipeline; the transport of mail and packages via truck and plane by
the United States Postal Service; the import and export of motor
vehicles via seaports; the transfer of information via fiber-optic
cable; and the shipment of agricultural produce from the Imperial
Valley subregion to other SCAG subregions and the nation.
The program discusses the movement of goods via rail, water, air
and land, and conducted primarily by private enterprises. It also
acknowledges the role played by both public and private
infrastructure in the conduct of these activities and the
relationship of this infrastructure to other geographic areas and
similar endeavors in the state, nation and the world.
IMPLEMENTATION STATUS OF THE 1989
REGIONAL MOBILITY PLAN
Much activity in implementing 1989 Plan recommendations has
occurred in the system development, regulatory and management
arenas. The Plan recommended that the San Pedro Bay port
authorities and local governments form a Joint Powers Authority to
develop the Alameda Consolidated Railroad Corridor. The JPA was
created in 1989. The Preferred Alternative for the project was
certified in January 1993.
The City of Los Angeles pursued the development of a truck
management plan that would have restricted truck travel on city
arterials during peak periods. The City Council decided not to
pursue a truck management plan at this time because of probable
adverse economic impacts on local businesses.
Caltrans, the county transportation commissions and the California
Highway Patrol (CHP) currently employ various incident management
programs. These programs evolved from the Los Angeles Area Freeway
Surveillance and Control ProjectÄa demonstration project undertaken
on a 42 mile loop formed by the Santa Monica (I-10) Freeway, Harbor
(Interstate 110) Freeway, and the San Diego (Interstate 405)
Freeway. Another program called Clearing Lanes Efficiently and
Rapidly (CLEAR) involves the assignment of specially trained teams
of CHP officers and supervisors to selected urban freeway corridors
in Los Angeles during peak periods to provide rapid response,
verification and removal of incidents.
______________________________
1 Although freight, goods and cargo are used synonymously, freight
also refers to the charge for transporting goods.
THE 1994 RME FRAMEWORK
FOR GOODS MOVEMENT PLANNING
The Goods Movement Program was developed in cooperation
with representatives of the subregional governments whose members
serve, along with the private sector, on various advisory and
policy-making boards and committees. At various stages of the
development process, other Regional Mobility Element (RME) programs
provided comments on goods transportation issues.
In efforts to resolve identified problems and issues related to
goods movement, SCAG will complete the Intermodal Goods Movement
and the Railroad Consolidation Studies. The Intermodal Study will
provide information on intermodal operations in the SCAG region and
their relationship to the economy, congestion, and air quality.
The Consolidation Study will investigate the feasibility of
consolidating rail freight activities along an east-west corridor
in the SCAG region, for the purpose of reducing rail related
emissions. These studies will be completed in fiscal years 1995
and 1994, respectively.
Intermodal Transportation Management System
Section 3037 of the ISTEA requires development, establishment, and
implementation of an Intermodal Transportation Management System
(ITMS) by the State. An ITMS is a systematic process of
identifying key linkages between one or more modes of
transportation, where the performance or use of one mode will
affect another, defining strategies for improving the effectiveness
of these modal interactions, and evaluation and implementation of
these strategies to enhance the overall performance of the
transportation system.
The ITMS must provide for the efficient, safe and convenient
movement of people and goods through integration of transportation
facilities and systems; the ITMS must also improve the coordination
of planning and implementation of air, water, and the various land-
based transportation facilities. Because of their
interrelationship, the development, establishment, and
implementation of the ITMS must be coordinated with the
development, establishment, and implementation of two other ISTEA
management systems: the Congestion Management System and the
Public Transportation Management Systems.
SCAG is cooperating with Caltrans in efforts to implement the ITMS
and to develop interim products by the compliance dates. SCAG is
also discussing the implications and requirements of the ITMS for
the SCAG region. When the ITMS becomes operational, SCAG's Goods
Movement Program should benefit from access to the system.
PROFILE OF THE GOODS MOVEMENT SYSTEM
IN SOUTHERN CALIFORNIA 1990
A major portion of the goods movement system in Southern California
consists of fixed-location, publicly-owned infrastructure that
accommodates privately-owned and operated freight carriers.
Components of the system (Figures 7-1 and 7-2) include all major
modes of transport: airports, seaports, highways, freeways, and
arterials (public), and railroads (private). The system also
includes intermodal transfer facilities, freight yards and truck
terminals. Figures 7-3, 7-4 and 7-5 depict truck and rail access
to the seaports in the region.
Intermodal System
In its simplest form, intermodal goods transportation can be
defined as the transport of goods via two or more different modes
between its origin and final destination. Various combinations of
intermodal operations occur in the region: truck-train; truck-
plane; truck-ship, and truck-truck. The amount and quality of
information on the intermodal system and intermodal goods movements
relative to commodities, weight, values, volumes, operations, and
economic markets vary tremendously. The region has always had some
degree of intermodal operations. Innovations in the shipping
industry (e.g., containerized cargo), however, have greatly
increased intermodal operations. While the majority of cargo off-
loaded at San Pedro Bay Ports is destined for the SCAG region, a
significant segment of the total export and import cargo is
intermodal. The Intermodal Goods Movement Study will provide
information on intermodal operations in the SCAG region.
Goods Transportation and Ground Access
The regional transportation system of interstates, state highways
and designated truck routes provide ground access to local,
subregional and/or inter-regional markets. The ground
transportation system also supports access to the major air carrier
airports, seaports, intermodal facilities and military airfields.
National Highway System (NHS). Under the ISTEA, the NHS when
approved by Congress in September 1995, will consist of the
interstates and other strategic highways, which provide motor
vehicle access between these facilities and major port, airport,
public transportation facilities, or other intermodal
transportation facilities (see Figure 5-6 in Volume 2, Chapter 5).
The NHS largely replaces the federal-aid funding classification
system. The federal government will maintain an interest in NHS
facilities for the purpose of funding, operations, and maintenance.
Institutional Influences On Goods Movement In
Southern California
Table 7-1 provides a partial listing of governmental agencies and
their influence on goods movement. Other governmental divisions
such as the departments of Agriculture and of Fish and Game, though
not shown, have requirements with which movers of these goods have
to comply.
The five major air carrier airports (Los Angeles International,
Glendale-Burbank-Pasadena, Ontario International, John Wayne/Orange
County and Long Beach) and seaports (Los Angeles, Long Beach and
Port Hueneme) operate as autonomous agencies within their
respective local governments, and have jurisdiction over the
various passenger and cargo carriers that operate therein. Policy-
making authority is vested in airport and port commissions
appointed by their respective municipal governments. The private
users of the goods movement system function as independent
operators and through representation in industry organizations such
as the American Trucking Association, California Trucking
Association, American Association of Railroads and the Steamship
Association of California.
Goods Movement Markets
Several market service areas and mode relationships are discernable
depending on the geographic market area. This analysis deals with
goods movement markets within the SCAG region, and between the SCAG
region and the rest of the world. Local and subregional markets
are those within the SCAG region. Inter-regional goods movement
occurs between the SCAG region and the regions of the continental
United States. Goods movement between the SCAG region and other
countries defines the international markets; goods movement between
the SCAG region and the U.S. regions that are not on the continent
are also included under international markets.
FIGURE 7-1
(GOODS MOVEMENT WEST)
FIGURE 7-2
(GOODS MVMNT EAST)
FIGURE 7-3
(RAIL ACCESS)
FIGURE 7-4
(TRUCK ACCESS)
FIGURE 7-5
(PORT HUENEME)
TABLE 7-1
A SELECTED LISTING OF GOVERNMENT AGENCIES AND
THEIR INFLUENCE ON GOODS MOVEMENT
IN THE SCAG REGION
Click HERE for graphic.
Mode-Market Relationships
Table 7-2 and Figure 7-6 show the markets served by the various modes.
Heavy-duty trucks generally serve all markets, including the
contiguous international markets of Mexico and Canada. Planes and
airports serve domestic and international markets. The three major
railroads operating in the region (Atchison, Topeka and Santa Fe;
Southern Pacific; and Union Pacific) primarily serve interstate
transportation needs, but a significant amount of traffic exists
between Mexico, Canada and Southern California.
TABLE 7-2
MARKETS SERVED BY DIFFERENT MODES
Click HERE for graphic.
Barring exceptions, freight trains haul goods from the SCAG
region to regions only outside California.
Figure 7-6
Click HERE for graphic.
Land-bridge and Mini-Land Bridge Traffic
The SCAG region is strategically located and is a major gateway for
trade with the Far East countries. In this capacity, a significant
amount of cargo traffic to and from these countries is handled at
San Pedro Bay Ports and transferred to rail or motor carrier for
shipment to other land-based destinations within the region, the
continental U.S. or to another port of exit/entry. While the
majority of cargo in terms of volume off-loaded at San Pedro Bay
Ports is destined for the SCAG region, a significant portion of the
total export and import traffic is intermodal and bridge-traffic in
nature.
Land-bridge traffic involves an operation/transfer between the
steamship companies that operate out of the San Pedro Bay ports and
the SCAG regional railroads and motor carriers who contract with
the steamship companies to provide this service. (In some cases,
the steamships companies own their own trucking companies). Land-
bridge traffic is generally bound for the east coast for shipment
to European and other markets and is predominantly shipped by rail.
A majority of the "bridge" traffic is mini- or micro-land bridge
traffic from the San Pedro Bay Ports to destinations in the
continental U.S., not shipped thence to overseas points. Mini-
bridge refers to goods to other port cities (East Coast or Gulf of
Mexico), while micro-bridge pertains to traffic to intermediate,
inland destinations such as Kansas or Illinois. Though these
markets are served by both rail and motor carrier, rail is used
predominantly.
The practice of land-bridge, mini- and micro-bridge traffic evolved
to serve the demand for capacity to transport certain relatively
high-value commodity shipments and to take advantage of time
savings to markets other than in the SCAG region.
ISSUES AND IMPACTS ASSOCIATED WITH GOODS TRANSPORTATION
Issues
While the region's only mobility goal associated with energy is to
reduce its consumption, energy choices and decisions influence all
aspects of the region, notably: transportation system development,
mode choice, business growth, competitiveness and location,
environmental and community quality, and relationship of the SCAG
region to trade partners and competing areas of the country and
world (see Figure 7-7).
Figure 7-7
Click HERE for graphic.
Increased government regulation has created the perception that the
region is not business-friendly and business/regional economic
competitiveness cannot be achieved/maintained.
Few resources are allocated to planning and programming for
goods movement activities.
Land-use design and infrastructure development do not adequately
accommodate the needs of goods movement.
Heavy freight movement activities contribute to the cost and
maintenance of the regional streets and highway system.
Growth in the demand for air cargo movements may out-pace air cargo
capacity and increase the competition for space between air cargo
and passengers, especially with anticipated increases in trade.
Impacts
- Accidents and incidents on the region's affected roadways.
- Mode and system inefficiencies and conflicts.
- Environmental damage: The various air basins in the region are
designated as non-attainment areas for various air pollutants;
increased ambient noise levels.
- Increased congestion in the airways and on the region's streets
and highways.
POLICIES
Transportation System Development, Use, Management and Safety
- Growth in the demand for goods movement will be accommodated
through the provision of adequate multi-modal and intermodal
infrastructure that is consistent with overall regional goals,
objectives, and policies.
- Pricing strategies will be considered as one of the strategies
to reduce peak period congestion.
- The feasibility of air cargo transport at all major air carrier
airports in the region will be considered as a means to address
growth in cargo volumes.
- Demand for increased goods movement will be given consideration
in corridors where system connectivity and gap closure projects
are being planned.
- The development and use of pipelines within suitable utility
corridors or public rights-of-way will be encouraged.
- The siting, routing, and construction of pipelines will be
conducted so as to avoid disruptions of sensitive environments,
to improve the safety and reliability of the system and to
protect ground water quality.
- The inter-regional and intra-regional transport of crude oil by
modes which lower the risk of spills, reduce air pollution
emissions and lessen consequences of spills will be encouraged.
Regional Economy, Mode Efficiency and Competitiveness
- The ports and major air carrier airports in the SCAG region are
regionally significant and important trade links with the
remainder of the world and shall be supported as a major
foundation of the regional economy.
- Arterial truck access routes will be coordinated for the purpose
of improving system connectivity, eliminating circuitous
routings and reducing delays.
- The potential for adverse impacts to mode shares, diversion of
business to other ports and loss of cost-competitiveness in
goods movement to, from and through the SCAG region will be
considered in the development and implementation of local and
regional plans.
Land Use
- Planning to accommodate multi-modal and inter-modal goods
movement shall be an integral part of the land use and
circulation elements of local government general plans and
specific plans.
- Local governments shall consider requiring off-street dock
facilities for all new buildings and for existing buildings that
are approved for extensive renovation; the facilities should be
sufficient to accommodate the shipping and receiving needs of
such buildings.
- In order to assist in the identification of potential
bottlenecks that could occur downstream of cargo flows, the
identification of potential intermodal routes that cross or
connect to provide future transfer facility nodes (highway,
rail, harbor or airports) shall be encouraged.
SUBREGIONAL INPUT
As a part of the bottom-up planning process, subregional input
provides information and recommendations regarding significant
issues of concern on the parts of local jurisdictions. Table 7-3
depicts subregional input as related to the Goods Movement program.
TABLE 7-3
SUBREGIONALLY RECOMMENDED IMPLEMENTATION PROGRAM
Click HERE for graphic.
Click HERE for graphic.
______________________________
2 Caltrans considers construction of this facility to be vital as
Mexican trucks will be operating in California beginning in December
1995 as a result of the passage of NAFTA. Caltrans is seeking
funding for this facility.
1994 PLAN
Goods Transportation Site-Specific Recommendations
Site-specific and ground access improvements in the vicinity of the
seaports and major air carrier airports in the region are
recommended. Improvements are detailed in Volume 2, Chapter 14 -
Regional Action Program. The single largest facility and
operations improvement identified is construction of the Alameda
Corridor. Completion of the Alameda Corridor project is "the most
important single transportation improvement project in the State;
it has statewide and national significance; and the consequences of
inadequate funding to implement the project would have disastrous
economic consequences."
Feasibility Studies
Several feasibility studies which address specific problems
associated with goods transportation are recommended, including
evaluating the congestion and air quality impacts of queued traffic
at railroad crossings in the region; studying the economic
feasibility of the phased elimination of at-grade railroad
crossings of high traffic flow arterials; and conducting a study to
examine the feasibility of pricing to reduce accidents, incidents
and associated congestion on the freeways. It is also recommended
that the feasibility of high-speed freight transportation be
ascertained and that this issue be addressed in future studies of
high-speed rail passenger service.
The efficiency of freight transportation via truck will be enhanced
through improvements in the operating conditions on the region's
regional streets and roads. As a part of the Regional Streets and
Highways Program (Volume 2, Chapter 5), expansion of mixed-flow and
HOV4 capacity and improved system management are recommended.
Arterial HOV facilities, Smart Corridors and application of advance
technologies are endorsed for study and possible implementation,
where appropriate.
Relationship of Goods Movement Strategies to Congestion Management
Programs
State statutes that authorized the creation of Congestion
Management Programs (CMP) do not require that CMPs address goods
movement activities and non-recurrent congestion. Thus, the
adopted CMPs do not address issues directly related to goods
movement. However, elements of the CMP do have potential for
benefiting goods transportation insofar as the Capital Improvement
Programs (CIP), Land Use Elements, TDM and Transit elements may
lead to improved operation and management of the system for both
people and goods. The CIPs are Congestion Management Agency input
into the Regional Transportation Improvement Program for the SCAG
region. The adopted CMPs were found to be consistent with the 1989
RMP and their respective CIPs were integrated into the Action
Element of the RME (See Volume 2, Chapter 14, Regional Action
Plan).
______________________________
3 Source: SELAC Subregional input to Regional Comprehensive Plan:
Excerpts of speech by Mr. Daniel Wm. Fessler, President, California
Public Utilities Commission; Member, California Transportation
Commission, speaking at the TRANSCON 2000 International Conference:
Future Transportation Technology, Palm Springs, California, October
25, 1993.
4 Excludes heavy duty-vehicles.
Technology
One way to increase goods movement system efficiencies is to turn
to technology. In goods movement, operators handling the goods
need answers regarding the location of their goods, when they will
reach their destination and the condition of their goods
(temperature, humidity, damage, etc.).
Electronic information flows promise developments that can answer
these crucial questions. Specific examples are "tagging" and "time
slots". Tagging makes use of an automatic equipment identification
by satellites or wayside scanners placed along railroad rights-of-
ways. Time slots allow ocean-carriers to plan land-side
requirements at least forty-eight hours in advance for imports.
ISSUES IN NEED OF FURTHER STUDY
Industrial development. Adequate funding to develop, operate and
maintain the region's significant existing and proposed freight
movement facilities could be key in revitalizing the region's
economy and achieving long-term stability. Completion of the
Alameda Corridor, for example, could form a core objective that
solidifies the region's actions to help create jobs, to maintain
trade links and to enhance the competitiveness of the region and
the state. Other regionally significant major infrastructure, as
identified in the RME, would also be key in considering the
economic stability and policy development for the region.
Energy. While the region's only mobility goal relative to energy is
to reduce its consumption, decisions concerning energy help shape
the region's economic base, transportation, land use development
patterns, recreation, quality of life and environment. In the
absence of major energy crises, the risk that the region faces is
not apparent. The type of energy consumed by residents, mobile
sources and industry, however, will continue to determine the
fundamental challenges that confront the region. Subregional
decision-makers may want to focus on additional aspects of energy
and how decisions and choices regarding energy can help achieve
subregional goals and objectives.
Key issues involving energy and goods movement include:
- Fuel types and achieving air quality.
- Reducing dependence on fossil fuels for transportation and
developing alternative fuel sources.
- Mitigating the direct adverse impacts of the energy decisions on
jobs directly related to goods movement.
- Mitigating the indirect impacts of goods movement-related energy
decisions on jobs, industry, business and residents.
- Reducing the impacts of current fuel sources for goods movement.
Public-private sector improvement initiatives. The public sector
should provide leadership in improving communication between the
two and in considering strategies to address outstanding issues
such as the following [The ISTEA encourages the formation of
partnerships between the public and private sectors in resolving
critical issues]:
- Developing and funding important infrastructure such as the
Alameda Corridor.
- Integrating goals for the region's energy and goods movement
future into the framework for planning for the economy,
transportation, the environment, land use, and quality of life.
- Establishing a national and state legislative agenda that
promotes regional goals in the areas of energy, goods movement,
transportation, technology and the environment.
- Maintaining a competitive regional economy and strengthening
links to global trade and domestic markets.
- Integrating advanced technologies and technology transfers that
facilitate the intermodal transportation system.
Safety. Reduction in delay and congestion associated with
vehicular accidents can improve mobility. Studies should be
undertaken to determine ways to improve safety on the system.
CHAPTER REGIONAL AVIATION SYSTEM
EIGHT PROGRAM
INTRODUCTION/BACKGROUND
The SCAG region includes 56 public-use airports, which makes it the
largest airport system of any region in the world (see Figure 8-1).
The breakdown of these airports includes 44 general aviation (GA)
airports, 10 commercial service airports, one closed military
airbase for which civilian reuse has not been determined, and one
military/civilian joint-use airport. The five urban airports that
serve most of the region's aviation demand are Los Angeles
International (LAX), Ontario International (ONT), John Wayne/Orange
County (SNA), Burbank-Glendale-Pasadena (BUR), and Long Beach
(LGB). Palm Springs (PSP) serves urban areas in the low desert
east of the Los Angeles basin. Palmdale (PMD) serves the Antelope
Valley, and may relieve airports in the Los Angeles basin in the
future if high-speed access can be provided.
While the SCAG region is first in aviation activity compared to any
other region, it faces several present and potential problems.
Foremost among them has been an expected shortfall in commercial
airport capacity for both air passengers and air cargo. Further
discussion of air cargo in the broader context of goods movement is
presented in Volume 2, Chapter 7. This shortfall may be offset
with the possible closure of one additional military air base in
the region, and the possible joint use of two others.
Commercial airport ground access is another major concern. As
airports reach their physical capacity, access infrastructure for
passengers and cargo will become increasingly congested, so the
need for inter-modal and multi-modal access strategies will
increase.
The general aviation system is under increasing budgetary pressures
as local governments experience the effects of recession. This is
occurring during a period when the roles of general aviation
airports are changing from recreational uses to more support for
business and government use, and for emergency response to natural
disasters and civil unrest.
Another major concern is the strategic role of the aviation system
in contributing to the economic recovery of the region and future
economic development, particularly in relation to international
trade.
Updated information regarding military airbases, and airport ground
access will be added to this Chapter in the 1995 Plan Amendment. An
update to the Aviation Action Program in Chapter 14 will also be
provided.
FIGURE 8-1
(AVIATION MAP)
FIGURE 8-1 CONT.
(AIRPORTS)
COMMERCIAL AIRPORT CAPACITY
INTRODUCTION/BACKGROUND
In 1988, commercial airports of the Los Angeles basin served 57.9
million annual passengers (MAP), roughly 13 percent of the total
air traffic in the United States. By 1993 these same airports
served 65.9 MAP. Currently, policy constraints limit the
commercial airport system to serving fewer passengers than its
physical capacity would allow.
Some immediate capacity relief may be provided by existing outlying
airports. Palm Springs Regional Airport, for example, is a
commercial airport that serves 800,000 passengers annually and has
recently added runway capacity. Palmdale Plant 42 has authority
for 400 commercial flights per day under a joint-use agreement with
the Air Force, and may in the future provide relief for commercial
airports in the Los Angeles basin. However, even with relief from
these outlying airports, several commercial airports in the Los
Angeles basin are expected to surpass constrained passenger levels
during the next decade. LAX, it should be noted, went beyond its
policy constraint in 1987.
GOAL
- Enhance airport system capacity to accommodate increased air
passenger demand.
OBJECTIVES
- In the 1995 Regional Aviation System Study, identify multiple,
short-term and long-term aviation-related strategies that are
needed to solve/mitigate the capacity and congestion issues at
existing airports.
- In the 1995 Regional Aviation System Study, identify non-
aviation strategies to address capacity and congestion issues at
existing airports.
ASSESSMENT OF NEEDS AND DEFICIENCIES
Demand pressure on the region's five metropolitan commercial
airports is expected to increase dramatically during the next two
decades. They are projected to serve 123.4 MAP by the year 2015,
which represents an 87 percent increase over 1993 levels.
The adequacy of its commercial airport capacity is of great concern
to the region, particularly in terms of reaching the Regional
Mobility Element (RME) strategic goal of enhanced regional mobility
for inter-regional travel. While there have been infrastructure
improvements at LAX and John Wayne Airport during the past 10-15
years and other improvements are planned for Burbank and Ontario,
the existing airports will still experience a capacity shortfall.
Efforts to locate new airport sites have been unsuccessful, as
documented in the 1980 Aviation System Study and the 1991 Aviation
System Study Update. Remote sites are available, but must
demonstrate that they have sufficient demand, carrier support,
funding support, and technical feasibility. This applies to sites
identified in the Imperial County Regional Airport Feasibility
Study. Capacity shortfall for air cargo was documented in SCAG's
Air Cargo Assessment as were options for increasing cargo capacity.
Consequently, current efforts are focused on better utilization of
existing airports in SCAG's Commercial Airport System Capacity
Study. Another effort, the Military Airbase Contingency Study, is
examining the civilian utility of military air bases that are
scheduled to be closed by the Department of Defense. The bases
should be evaluated as to the feasibility and desirability of
upgrading them to commercial facilities. A later study should
assess the costs and benefits of such an upgrade. The current
study includes George Air Force Base (AFB), Norton AFB, and Marine
Corps Air Station (MCAS) El Toro which have been or will be closed,
and March AFB, which is scheduled for realignment and downsizing.
Another study, to be completed in 1994, will examine the potential
for joint-use at Naval Air Weapons Station (NAWS) Point Mugu.
(Project lists for capital improvements being prepared are
available upon request.)
POLICIES
- Support the more efficient use of commercial airport facilities
to serve growing air passenger demand in the region. Airport-
generated noise, air quality and ground access impacts resulting
from increasing air service should be mitigated.
- Each subregion should provide environmentally acceptable
capacity within its own market area to meet local, short-haul
air passenger demand due to shorter access time of short-haul
passengers. Subregion in this context refers to county-sized
subregional market areas.
- For those military airbases, which are, or will be closed by the
Department of Defense, support conversion to commercial air
service if such bases have been determined to have a high
technical and market potential for use as commercial airports.
This policy most strongly applies to those subregions which
cannot otherwise provide sufficient, environmentally acceptable
capacity to meet their own local, short-haul air passenger
demand.
- Examine the feasibility of commercial air passenger service at
remaining active duty air bases if invited to do so by the
military.
- Support outlying airports, such as Palm Springs, George AFB and
Palmdale to serve their own market area. Also, examine high-
speed access systems to attract passengers from the metropolitan
areas of the Los Angeles basin.
- Support continued examination of new technologies and their
potential impact on the aviation system, and its inter-modal
connection to the rest of the Metropolitan Transportation System
(MTS). This would include locational opportunities for
tiltrotor service, and possible applications of high-speed rail.
It would also include development of a multi-modal
transportation demand model for various ground modes to assess
their ability to attract air passengers.
- Policy constraints on existing air carrier airports should be
defined in terms on environmental impacts and should remain in
place, except where relevant noise, air quality, and ground
access impacts are mitigated.4 Airport proprietors and/or the
Regional Airport Authority are encouraged to reassess
constraints to determine if additional service can be provided,
but in no case should constraints be lifted until negative
impacts are mitigated.
MOBILITY BENEFITS
The improved inter-regional mobility benefits of an enhanced
aviation system have an enormous implication for the economic
development of the region. The challenge of the enhanced system is
to meet environmental requirements.
______________________________
4 Significant impacts other than noise, air quality, and ground
access that might occur over and beyond existing policy constraints
should also be mitigated.
COMMERCIAL AIRPORT GROUND ACCESS
INTRODUCTION/BACKGROUND
In 1982, SCAG adopted policies that support increased air service,
but only if the resulting environmental and ground access impacts
are mitigated. This was interpreted to mean that impacts
associated with air service above policy constrained levels in 1982
would be mitigated.
The outcome of the mitigation policy was the Airport Impact
Mitigation and Management Study, Phase I study (AIMMS), which was
completed in 1985. That study contains an inventory of noise, air
quality, and ground access impacts for the base year of 1982 and
the forecast year of 2000. Later, consultants to SCAG prepared a
comprehensive list of mitigations for each impact category, which
are contained in the 1990 Phase II report.
The AIMMS studies, and others conducted by local agencies, have
focused predominantly on highway facilities. However, state law
now requires multi-modal ground access studies for all commercial
airports, and the federal Intermodal Surface Transportation
Efficiency Act (ISTEA) emphasizes the need to assess airport ground
access in the context of regional intermodal access of the MTS as a
whole. Consequently, detailed intermodal studies and
transportation modeling will be conducted by SCAG for all five
commercial airports. The first of these studies is for LAX and
began in 1993. These studies will follow guidelines for the ISTEA
Inter-modal Management System.
GOAL
- Provide adequate intermodal ground access for air passengers and
air cargo to the region's commercial airports so that they can
fulfill their transportation and economic functions.
OBJECTIVES
- By 1995 to conduct adequate intermodal and multi-modal analyses
of ground access to the region's five metropolitan commercial
airports.
- Provide an environmentally compatible ground access system and
to meet all air quality standards.
ASSESSMENT OF NEEDS AND DEFICIENCIES (FINDINGS)
The consultants to the AIMMS study identified three tiers of
roadway improvements for each airport area and prepared cost
estimates for them. Needed roadway improvements will be updated in
upcoming modeling and airport access studies. However, they will
only be one component of the access studies; other components will
include transit, Transportation System Management (TSM) and
Transportation Demand Management (TDM).
The respective roles and responsibilities of the various agencies
involved in implementing aviation Transportation Control Measures
(TCM's) are still being debated. Currently, SCAG is developing
ground access plans for all of the air carrier airports, the SCAQMD
is developing an indirect source rule that will be applied to these
airports, and EPA is developing an airport control strategy
pursuant to the Federal Implementation Plan (FIP). The exact
division of responsibilities between these agencies in implementing
aviation TCM's will be determined in the future.
Findings
Even though there are serious limitations to the AIMMS data, a
number of observations can be made that will be relevant to future
airport ground access studies.
- A wealth of traffic and engineering studies have been produced
for the highway element of ground access at all five commercial
airports. However, much more work is needed for transit, rail,
TDM, TSM and the intermodal connectivity with the rest of the
MTS.
- Total congested lane miles at the five airports would increase
from 222.3 in 1982 to 466.0 by year 2000, which is a 109.6
percent increase. While these figures do not account for recent
developments, they suggest a significant increase in congestion
by 2000 and imply an even greater increase by 2010. These
increases in congestion highlight the need to emphasize non-auto
strategies for improving airport ground access.
POLICIES
- In accordance with state law (Assembly Bill 2487), SCAG will
conduct multi-modal and intermodal ground access studies of the
region's commercial airports for each update of the Regional
Transportation Plan (RTP).
- Traffic impacts generated by significant new off-airport
development should be mitigated if they worsen ground access to
a commercial airport and reduce that airport's operational
capacity. This especially applies to those areas where the
commercial airport is host to nationwide and international air
service. This type of mitigation should be a condition of
project approval.
- Traffic impacts generated by non-aviation developments on-
airport should be mitigated through prudent planning. Such
development is encouraged for revenue purposes, but only if it
utilizes excess capacity not needed for aviation purposes.
- SCAG, in cooperation with appropriate transportation agencies,
should ensure that airport-related ground access projects are
placed in the Regional Transportation Improvement Program
(RTIP). It is important to include airport planning staff in
the identification of airport-related projects, especially those
which link directly to the airport roadway system.
- Support development of a multi-modal transportation demand model
which integrates various ground transportation modes.
MOBILITY BENEFITS
LAX is the region's gateway to the rest of the world, particularly
the Pacific Rim. It is also the gateway to the rest of the nation.
In those two roles, it provides invaluable mobility for the
region's citizens and is a significant factor in the regional
economy.
The subregional airports provide mostly intra-state mobility, which
is invaluable in terms of mobility and the economy. They also
serve more local air passengers, and take pressures off LAX and its
ground access system.
COMMERCIAL AIRPORT AIR CARGO
INTRODUCTION/BACKGROUND
The shipment of freight by air is a growing phenomenon in the SCAG
region. It parallels the region's increased integration into the
global economy, the growing importance to that economy of quick and
reliable freight movement, and the expanded production of high-
value and time-sensitive products. Airborne exports have become
increasingly important to the region's economy, as evidenced by the
fact that the total value of airborne exports shipped out of the
Los Angeles Customs District in the late 1980s exceeded the value
for waterborne exports, although that has since reversed due to
recession.
During the past 12 years (1979-91), cargo volumes at the five air
carrier airports in the region have increased by about 72 percent,
from about 922,000 tons to about 1.5 million tons. It is
interesting to note, however, that even during this recessionary
period, international air cargo volumes increased by 19 percent
during the first nine months of 1992. Because of ongoing
structural changes in the economy, total air cargo volumes are
expected to rise once again when recessionary conditions abate.
Projections made by a recent SCAG study, Air Cargo in the SCAG
region, indicate that volumes are expected to reach 2.7 million
tons by the year 2000, and 4.8 million tons by 2010. Commercial
airport capacity to handle air cargo will only reach 3 million tons
by year 2000, so there will be a shortfall of capacity after that.
Closing military air bases may ease that capacity shortfall.
GOAL
- Enhance air cargo handling capacity to serve demand and reduce
congestion.
OBJECTIVES
- Quantify major trends in the air cargo industry since the advent
of deregulation in 1979.
- In the 1995 Regional Aviation System Plan, recommend measures to
reduce projected shortfalls in cargo handling capacities by
enhancing the cargo handling efficiencies of existing cargo
facilities.
- Recommend measures to reduce projected shortfalls in cargo
handling capacities by adding major capacity increases to the
existing system in the form of new or converted airports, or
military airports if they became available.
ASSESSMENT OF NEEDS AND DEFICIENCIES (FINDINGS)
The results of the recent air cargo analysis indicated the
following:
- Existing and currently planned cargo handling capacity in the
region are able to accommodate projected year 2000 cargo
volumes. However, existing and planned capacity falls short of
meeting the 2010 projection by about 63 percent.
- The greatest need for new cargo handling capacity in the region
is to serve Orange County, not only to provide additional needed
capacity, but also to minimize trucking impacts on the regional
highway network associated with transporting cargo from Orange
County manufacturing centers via truck to other airports. Since
John Wayne Airport has very limited capacity potential to serve
air cargo, other alternatives should be examined.
POLICIES
- Support development of a comprehensive strategy to find
additional air cargo handling capacity in the region to reduce
projected shortfalls in that capacity. A regional strategy
should locate potential additional capacity as close to where
cargo is produced as possible, and should evaluate the
feasibility and relative effectiveness of new airports,
conversion of military airports to commercial uses, and
increasing cargo handling efficiencies at existing airports.
- Ground freight routes should be planned that minimize impacts
upon residential neighborhoods and heavy commuter routes.
- The conversion of Norton AFB to civilian/commercial use is a
most promising alternative for adding substantial new cargo
handling capacity to the regional airport system.
- For those military airbases that are, or will be closed by the
Department of Defense, support conversion to commercial air
service, including air cargo, if such bases have been determined
to have a high technical and market potential for use as
commercial air passenger and air cargo service airports. This
policy most strongly applies to those subregions that cannot
otherwise provide sufficient, environmentally acceptable
capacity to meet their own local air cargo shipment demand.
- Examine feasibility of commercial air cargo service at remaining
active duty air bases if invited to do so by the military.
- Long-term trends in the regional economic profile of Southern
California, their relationship to the world economy, and their
implications for air cargo forecasts and handling capacity
shortfalls, should be explored in an aviation strategic plan for
the SCAG region.
MOBILITY BENEFITS
The primary mobility benefit that would potentially result from the
implementation of the study's recommendations would be increased
number of air passengers that could be served through the more
effective use of available airport capacity, as well as future
capacity increases such as the conversion of Norton AFB to a major
air cargo facility. Since airports would also be less congested,
there would also be fewer flight delays and less passenger
inconvenience. This is in recognition that all of the air carrier
airports in the region are ultimately subject to capacity
constraints, and that there is competition between cargo and
passenger flights for available airport capacity.
Another potential mobility benefit would be the reduction of
impacts of cargo-carrying trucks on the regional highway system,
resulting from locating additional cargo handling capacity close to
where the cargo is produced. In particular, the location of new
cargo-handling capacity near manufacturing centers in Orange County
would have significant beneficial impacts on surface transportation
mobility.
INSTITUTIONAL ISSUES
An airport may at once be a local, regional, national, and
international asset. For many years, there has been a policy
question as to which of these levels should predominate in planning
for and operation of commercial airports.
Local communities affected by busy airports have emphasized the
need for local participation in the mitigation of environmental and
ground access impacts. While there has been progress in mitigating
impacts over the past decade, particularly in the area of aircraft
noise, environmental concerns remain for a number of affected
communities.
The business community has generally emphasized the regional,
national, and international aspect of commercial airports in their
role as generators of economic activity. This role is of growing
importance during the prolonged recessionary period experienced in
the SCAG region. The importance of the role of commercial airports
in economic recovery is presented in the Aviation Strategic Element
of this chapter. However, to fulfill this economic role,
commercial airports must accommodate the demand for increased air
service which generates impacts of concern to local communities.
A number of mechanisms have been developed to achieve a balance
between airport growth and environmental mitigation. In terms of
noise, the Federal Aviation Administration (FAA) developed the
Federal Air Regulation (FAR) Part 150 Noise Study program which
included the participation of adjacent local jurisdictions. Part
150 studies were conducted for LAX, Burbank, Long Beach, and
Ontario airports. These studies satisfied some communities, but
not others. In addition, some local jurisdictions felt excluded
from the Part 150 process and seek a mechanism to address their
concerns. In other cases, local concerns resulted in environmental
lawsuits which produced mixed results. SCAG has occasionally
functioned as a mediator, but has no statutory authority in the
area of airport noise.
In terms of air quality mitigations, SCAG does have a statutory
role in the development of aviation Transportation Control Measures
(TCMs) which appeared in the 1989 and 1991 Air Quality Management
Plan (AQMP). The TCMs necessarily relate to airport ground access
which is another area where SCAG has a role. SCAG is now required
by state law to conduct multi-modal airport ground access studies
as noted earlier in this chapter.
The mechanisms noted above and others have brought satisfaction to
some communities, but not others. This is particularly the case in
terms of airport noise. A number of local elected officials have
indicated that an adequate mechanism has yet to be developed to
address their concerns, and that this issue needs to be
acknowledged.
GENERAL AVIATION AIRPORT SYSTEM
INTRODUCTION/BACKGROUND
The primary focus of SCAG's aviation planning has traditionally
been on the commercial airport system. However, the system of 44
general aviation airports in the SCAG region is the largest
regional system in the world, and is deserving of SCAG's attention.
This general aviation system is predominantly represented on SCAG's
Aviation Technical Advisory Committee (ATAC). All airports in the
region are represented on ATAC, which is one of the longest-
standing and most active of SCAG's committees. Collectively,
general aviation and commercial airport managers have made immense
contributions to SCAG's aviation planning during a very long period
of time.
The last SCAG General Aviation System Study was completed in 1987.
A data update of the region is urgently needed, to verify trends
that appear to be underway, and to formulate regional policy to
guide the system in the future. A general aviation study began in
the summer of 1993, and is under the guidance of ATAC. The
resulting general aviation plan will identify capital needs,
funding shortfalls, and new roles which general aviation airports
could pursue.
AVIATION STRATEGIC ELEMENT
INTRODUCTION/BACKGROUND
In economic terms, the SCAG region is one of the largest
metropolitan areas in the world. In 1991, the gross regional
product of the SCAG region was $331 billion, making this region the
10th largest "nation" in the world economically. A few of the
economic issues are described below and could be included in the
Aviation Strategic Element. Accordingly, it has important
financial, technical, social, and political relationships with
other large economic regions in the world. All these relationships
have implications for air travel and airport infrastructure, but
they have never been studied in a systematic way. There is a need
to assess and examine these relationships to better understand and
formulate regional policy to guide the aviation system during the
next two decades. That assessment would result in an Aviation
Strategic Element of the regional Aviation System Plan, which is
part of the RME. The following is a short description of some of
those relationships that need to be examined.
Airport Capacity and Air Service Implications
- The capacity of commercial airports is nearing physical limits
in this region, but also in other metropolitan regions in this
country, around the Pacific Rim and in parts of Europe. What
are the implication for the air movement of people and goods,
and what are the implications for the regional economy and
growth? Also, what implications does this have for closing
military air bases?
- Considerable additional airport capacity will be made available
at the new Denver Airport and at the potential new international
airport on the U.S.-Mexico border south of San Diego. Other
capacity remains at existing airports in the San Francisco Bay
area and Portland. What are the implications for the production
and movement of air cargo? Does this portend the shift of
production from the SCAG region to other regions?
- How does the commercial airport system benefit the regional
economy and job creation? How does the benefit compare to the
cost of investment in airport infrastructure?
- Commercial air routes from Pacific Rim countries over the former
Soviet Union to Europe are currently being negotiated. Since
those routes are more direct and are shorter, will Pacific Rim
air traffic bypass the U.S. and the SCAG region? What are the
implications for the regional economy and trade?
- International air service for both air passengers and air cargo
is the fastest growing component of air service and travel
demand in the SCAG region. Will LAX be able to handle all of
the international air service or will the other commercial
airports need to accept international flights in the future?
While it is recognized that not all subregional commercial
airports can accommodate international service it may be
important to identify which ones can. It may also be important
to identify which of the closing military airbases can handle
international service. What are the implications for Customs
service and additional Customs districts? Will domestic service
at LAX have to be constrained to accommodate the international
traffic? Will the subregional airports need to host more
medium- and long-haul service?
Economic Implications
- The SCAG region has many economic ties with other regions in the
Pacific Rim, Canada, Latin America and Europe. What are the
major economic trends in these other regions and what is the
nature of their ties to the SCAG region? What is the future for
international commerce and tourism between the U.S. and its
international trading partners? What are their implications for
commercial airports and air service in the SCAG region?
- The North America Free Trade Agreement (NAFTA) may soon be
ratified. What are the long-term economic implications for
Southern California, particularly in terms of economic
development in Mexico? How will this affect the potential new
U.S.-Mexico international airport and commercial airports in the
SCAG region? How might it affect air cargo commodity production
and movement in the SCAG region? What percentage of the cross-
border cargo movement stimulated by the agreement will move by
air versus trucks?
Technology Implications
A number of new technologies are now being implemented and others
are on the horizon. They all have implications for the aviation
system, a few of which are noted below.
- The Global Positioning System (GPS) is a multiple satellite
system now being put in place. Its accuracy will revolutionize
the air navigation system and precision approaches. What affect
will GPS have on airspace and airport capacity?
- Some aircraft manufacturers have indicated their desire to
produce a mega-airliner (800-1,000 seats), although currently
there is no movement in that direction. Will economic recovery
of the airlines and a shortage of airport capacity lead to
renewed interest in the mega-airliner? Will such an aircraft
significantly increase the air-side capacity of the region's
airports? Can the airports accommodate such an aircraft?
ISSUES IN NEED OF FURTHER STUDY
As the SCAG region's airport system moves through the next two
decades, it will experience major problems, but it will also
provide significant opportunities for the larger community. In
that context, the following outstanding issues should be addressed
in SCAG's aviation planning program.
- The provision of adequate commercial airport capacity will
continue to be the major challenge for the region's airport
system. After the year 2000, the system will gradually
experience a shortfall of capacity for serving both air
passengers and air cargo. Further studies need to examine the
implications for high-speed rail, remote airports, and the reuse
of closed military air bases.
- As the commercial airports near their physical capacity, ground
access traffic congestion will worsen and may become the
constraining factor in airport operations. Further airport
ground access analysis and modeling are needed to identify
appropriate multi-modal and inter-modal solutions.
- General aviation airports in the region's airports system are
experiencing the same fiscal pressures as local governments.
SCAG's current general aviation study will examine how these
airports can survive financially and what emerging roles will
reinforce their value to the community.
- During the next two decades, the SCAG region will experience
dynamics resulting from airport capacity limitations,
competition from airports in other regions and changing
international relationships. There is a need to develop an
aviation strategic element to assess these larger issues. One
of the key issues is how to enhance economic opportunities
generated by the commercial airport system.
CHAPTER
NINE LONG-RANGE CORRIDORS
INTRODUCTION/BACKGROUND
To meet mobility needs beyond the year 2015 and foster economic
development, it is likely that future long-range corridors will
need to be identified and preserved in the SCAG region. Long-range
corridors are defined as locations beyond the year 2015 where
potential multi-modal transportation facilities might be built or
sites that may be enhanced by adding facilities to increase the
multi-modal nature of the corridor.
This chapter highlights the importance of identifying future multi-
modal transportation corridors and setting aside the necessary
right-of-way, especially in areas where development may block a
long-range corridor. Figure 9-1 provides a general description of
corridors that have been proposed or discussed through a variety of
study efforts.
EXISTING SETTING
Many long range corridor studies have been completed or are
ongoing. Imperial County and Los Angeles County have developed a
20-year and 30-year plans, respectively. Currently Orange County is
developing a long-range corridor plan. Riverside County and San
Bernardino County corridors have been identified in the Inland
Empire Long Range Corridor Study and through other study efforts
such as the Sierra-Cedar, the North-South, the Southwestern
Transportation Corridor, and the Ramona Expressway Corridor
studies. In addition, Caltrans through its system management plans
has identified future multimodal and intermodal corridors and
longterm gaps.
Depending on the degree of urbanization, the application of
different long-range corridor strategies is foreseeable. In the
highly urbanized portions of the SCAG region, long-range corridor
projects that enhance existing corridors requiring the acquisition
of little right-of-way or using abandoned railroad lines are
probable approaches. In the less-urbanized areas, more
possibilities exist to identify and preserve new corridors. Local
governments have an opportunity to capitalize on preservation
efforts before urbanization reduces the availability of land for
new transportation facilities, especially in areas that already
have insufficient transportation capacity. Early efforts to
identify and preserve right-of-way will reduce costs and minimize
the difficulties of developing a corridor.
Map continued
FIGURE 9-1
(LONG RANGE CORRIDORS)
POLICIES
Guiding policies toward the development of long-range corridors
include the following:
- Support long-range corridors that will employ multi-modal and
intermodal strategies designed to maintain mobility for people,
goods, services, and information in ways that are safe,
efficient, cost effective, meet environmental mandates, and
foster economic development.
- Support long-range projects and right-of-way preservation
programs that foster the development of an urban form conducive
to reducing single-occupant vehicle trips.
ASSESSMENT OF NEEDS & DEFICIENCIES
Reports such as Imperial County's (Long Range) Transportation Plan,
the Los Angeles County Transportation 30-Year Integrated
Transportation Plan, the Orange County Transportation Authority's
Long-Range Transit Systems Plan and Development Strategy, plus the
Orange County 2020 Vision (presently being drafted) illustrate the
type of long-range corridor concepts that will need to be included
in the region's future mobility plans. To develop these types of
corridors there will need to be more linkages between land-use
planning and transportation planning efforts. At present there are
limited provisions at the local level for this type of
coordination, especially with regard to preserving right-of-way.
This issue, however, is addressed in the Mobility Element of the
Western Riverside Council of Government's Subregional Comprehensive
Plan that encourages local jurisdictions to establish land use
patterns that support a multi-modal transportation network. These
policies are generally unpopular and therefore, difficult to
implement despite a need for land use policies that protect right-
of-way, reward infill development, and discourage projects at the
urban fringe that induce sprawl. Regardless of how difficult the
process to preserve corridors, the region's future economic well-
being is dependent on how well post-2015 transportation needs are
addressed.
RECOMMENDATIONS
Given the number of long-range plans focused at the county level, a
regionwide post-2015 long-range corridor study is needed to provide
a broader perspective of future needs. This effort should focus on
the identification of corridors, the protection of right-of-way,
and the development of the institutional framework to formalize the
process. This effort will require developing criteria that guides
the identification and prioritization of corridors and will involve
considerable consensus building among competing public and private
interests.
Implementing the recommendations presented above is best served by
developing a public information program that details the importance
for local governments and subregions to proactively develop a long-
range corridor program. This type of effort should also illustrate
how the long-range corridor process complements short-term and
long-term economic development strategies. A first step would
include comprehensively analyzing studies done at the local,
corridor, or subregional level that identify long-range needs. In
addition, the long-range corridor effort should also involve the
identification and setting aside of ROW for utility, communication,
and freight corridors.
MOBILITY BENEFITS
The identification, prioritization, and implementation of projects
on post-2015 corridors provides the opportunity to develop
multimodal and intermodal transportation systems that can provide
benefits over present-day efforts constrained by managing
congestion with limited resources. In the highly urbanized
portions of the SCAG region, the enhancement of transportation
corridors that move people and goods more efficiently with less
reliance on the single-occupant vehicle will produce significant
mobility benefits in this auto-oriented environment. In the less
urbanized areas, the opportunity exists to develop corridors that
meet a variety of transportation needs but may also influence the
development of an urban form that will substantially improve all
aspects of mobility.
ISSUES IN NEED OF FURTHER STUDY
- What additional corridors should be included?
- What are the appropriate actions to preserve identified
corridors?
- What are the priorities of these corridors for the
implementation of transportation facilities and services?
- What are the financial and mobility benefits for the early
identification and purchase of right of way?
CHAPTER
TEN FINANCIAL PROGRAM
INTRODUCTION/BACKGROUND
The RME estimates that over the 20-year planning period, $56.2
billion in expenditures for traditional highway and transit
programs and projects can be funded with reasonably available
revenues of $56.3 billion.
While regional expenses and revenues generally balance over the 20-
year life of the Plan, historical spending trends, air quality and
congestion mitigation, costs of maintaining an older
infrastructure, declining gasoline tax revenues, and mounting
transit operation expenses all threaten the region's precariously
balanced budget. It should also be noted that the end of the
planning period may have too little facility investment given the
expected population growth. Consequently, it is evident
that the region's traditional funding sources for the foreseeable
future are insufficient to pay for the Advanced Transportation
Technologies and other corridor improvements which are needed to
meet air and mobility mandates. Thus, the RME considers innovative
funding through Market Incentives, including a series of user-based
fees.
It is expected that approximately $15-29 billion will be needed to
finance the range of various Advanced Transportation Technology
improvements and performance-based projects which are crucial to
the Plan's strategy through 2015. As part of the financial plan,
the costs for the advanced transportation technology and
performance based transit programs will be continually examined.
As costs change, the market incentive program will also be reviewed
for change. It is clearly understood that the Advanced
Transportation Technology strategy requires additional refinement.
It is expected that this refinement will be conducted by a SCAG
appointed committee over the next two years and will be based in
part by demonstrations and actual experience.
Public and political acceptability is an essential requirement of
Innovative funding. The region needs to understand what services
will be provided and the efficiencies of such services. In
developing Innovative funding, a public education component of the
financial plan will be developed. Ultimately, the perceptions of
elected officials and the public will determine which options will
be implemented.
The RME includes Innovative funding options such as a Vehicle Miles
Traveled (VMT)/Emissions Registration Fee, congestion pricing, or
other market incentives. Pursuant to the financial plan, any Market
Incentives would be established by legislative process or by a
ballot initiative.
Market incentive development, refinement of new user based fees,
advanced technology implementation strategy, as well as pricing
levels, and a legislative agenda will also be studied by a
committee appointed by the Regional Council. This committee, which
will include members from the transportation community will
consider issues of equity, nexus of benefit to those shouldering
the costs, and project efficiency/performance.
ISTEA
The 1994 RME contrasts with the financial projections of the 1989
Regional Mobility Plan (RMP) for the period 1990 through 2010,
which forecast transportation capital revenues of about $21 billion
against planned capital expenditures of about $44 billion -- thus
identifying a $23 billion deficit.
Enactment of ISTEA changed the playing field. Under the new
requirements, the Plan must do the following:
"Include a financial plan that demonstrates how the long-
range plan can be implemented, indicates resources from
public and private sources that are reasonably available to
carry out the plan, and recommends any innovative financing
techniques to finance needed projects and programs, including
such techniques as value capture, tolls, and congestion
pricing."5
CRITERIA FOR REASONABLY
AVAILABLE FUNDING
SCAG is using the following criteria to determine whether a funding
source should be considered "reasonably" available. These criteria
are generally consistent with the Final FHWA/FTA Rules on
Metropolitan Transportation Planning, issued on October 28, 1993:
- Has the proposed implementing agency (local, regional, state or
federal government or private organization) taken a formal
action by the time of Plan adoption to authorize the funding
source?
- Is there a historical trend that resources of this type are
usually approved by the public or their representatives?
- Have private sector organizations (such as the Chamber of
Commerce, trade organizations, businesses, private task forces,
etc.) shown support (e.g. policy, action, education) for the
proposed funding mechanism?
- Has the state or federal government taken action required as a
prerequisite or condition for enabling the resource by the time
of Plan adoption?
In order for a funding measure/mechanism to be considered
"reasonably expected," at least one of the criteria must be
answered YES or NOT APPLICABLE except that a YES to the criteria of
private sector organizations support must be joined by an
additional YES to another criteria. Funding sources used to
establish revenues in the RME must meet this standard.
______________________________
5 ISTEA (23 USC 134 et seq.)
EXISTING REVENUE SOURCES
Under the working criteria for reasonably available, the following
sources of funds are considered "Reasonably Available."
Federal Revenues
- Federal Fuel Tax (through Highway Trust Fund) (Portion allocated
to Transportation) will continue at current rate through the
Plan period.
- General Funds provided for transportation purposes will continue
at current levels.
The two foregoing sources provide the funds for the following
ISTEA programs:
- Interstate Completion, Interstate Maintenance, National
Highway System, Surface Transportation Program (STP),
Congestion Mitigation and Air Quality (CMAQ), Federal
Lands, and Federal Transit Section 3 Discretionary,
Federal Transit Sections 9, 16(b)2 and 18 Formula funds.
FTA Operating Assistance
The Federal Transit Administration Section 9 program provides
formula funding to transit operators. These funds may be used for
either capital or operating assistance (operating assistance,
however, is subject to an annual cap established through the
Congressional appropriations process).
The ability to improve air quality and provide mobility in this
region demands that federal public transportation operating
assistance be continued throughout the Plan period (1995-2015).
The 1994 RME financial plan assumes continuation of Section 9
funding for operating assistance.
State Revenues
- State Fuel Tax will continue at rate authorized by statues
approved as of 1993.
- General State Funds provided to transportation will continue at
current levels.
- State Transit Bonds assumes $3 billion as approved by voters in
1990 (Prop. 108, 116).
- Registration/Weight Fees will continue at rate authorized by
statutes approved as of 1993.
The foregoing state revenue sources fund the following State
Transportation programs:
- Local subventions, TSM, State-Local Partnership, Enhancements,
Maintenance and Rehabilitation, Flexible Congestion Relief,
Soundwalls, Interregional Roads
Reduced Motor Vehicle Fuel Taxes
The financial forecasts of the Regional Mobility Element are based
on existing motor vehicle fuel taxes. Currently, both the federal
government and California collect fuel taxes on gasoline and diesel
fuel. These revenues are placed in the Federal Highway Trust Fund
and the State Highway Account, respectively, and are used
exclusively for transportation purposes.
Gasoline and diesel fueled vehicles are becoming more efficient
over time. In addition, it is expected that more and more vehicles
will be using alternative fuels exempt from the fuel tax in the
future. Thus, it should be expected that revenues from the sale of
motor vehicle gasoline and diesel fuel will decline over time. In
preparing the financial forecasts, this decline in fuel tax
revenues has been taken into account. It is anticipated that by
2015, fuel tax collection will be reduced by approximately 25% from
current levels. This 25% reduction has been built into the revenue
forecasts.
In addition to the decline of motor vehicle fuel taxes due to
alternative fuels, the purchasing power of the motor vehicle fuel
tax declines over time. In 1990, California increased its fuel tax
by five cents per gallon. The federal government also recently
increased the fuel tax (although the increase was earmarked for
deficit reduction). While it is anticipated that over the lifetime
of the RME, both the State and Federal governments will probably
increase the motor vehicle fuel tax, at this time, however, no
projections have been made for such an increase in the financial
plan for the RME.
As additional empirical data is available, an improved forecast of
the impact of lower motor vehicle fuel tax revenues will be
prepared. A portion of the innovative revenues, recommended to
implement advanced transportation technologies, may offer a
replacement for some of the diminishing motor vehicle fuel taxes.
Local Revenues
- Transportation Development Act (TDA) revenues will continue for
entire plan period.
- County Sales Tax Measures will continue for entire plan period
(through 2015) for Los Angeles County and will be extended
through at least 2015 for Imperial, Orange, San Bernardino, and
Riverside Counties.6
______________________________
6 In Imperial, Orange, Riverside, and San Bernardino Counties, the
voter approved local 1/2 cent sales tax measures are to expire in the
2009-2011 period. The Financial forecasts of the RME assume that
these measures will be extended recognizing that the implementing
agencies have not taken policy action regarding this issue.
- County Bond Measures. Any county bond measures currently
authorized by voters are considered reasonably expected even if
actual bonds not marketed
- Private Bond Measures. Any private bond measure currently
authorized by the required private organizations are considered
reasonably expected even if actual bonds have not been marketed.
- Benefit Assessment District Revenues. Any revenues being
received from currently authorized benefit assessment districts
are considered reasonable and will continue
- Development Fees. Current agreements for Development Mitigation
Fees are considered reasonably available
- Toll Roads. Tolls from roads/projects currently open, under
construction, or planned, which have legally complete and
enforceable agreements, will be considered reasonably expected.
Figure 10-1 illustrates the anticipated mix of tradition federal,
state, and local revenues being available over the time frame of
the Regional Mobility Element. This figure does not include
revenues that may be attributable to innovative funding sources.
INNOVATIVE FINANCING
The language of ISTEA states that "innovative" financing techniques
may be recommended in the RME.
Discussions with Federal Highway Administration officials suggest
that while they will accept local decisions with respect to
reasonably expected innovative funding, they will look for post-
plan adoption actions to determine the commitment of the region to
implementing the innovative measures.
Language of implementing regulations of the Clean Air Act refer to
the language of ISTEA and include the following:
"51.399 Fiscal constraints for
transportation plans and TIPs
"(a) Transportation plans. The ISTEA requires that
the transportation plan include a financial plan that
demonstrates how the transportation plan can be
implemented, indicates resources from public and
private sources that are reasonably expected to be
available throughout the plan's time frame, and
recommends any innovative financing techniques to
finance needed projects and programs,[emphasis added]
including such techniques as value capture, tolls, and
congestion pricing.
The following innovative funding sources will be further studied as
part of the ISTEA required financial plan:
- Emissions Fees
- Congestion Pricing Fees
- Tariffs
- Accident Reduction Fees
- "Pay at the Pump" Funding (e.g. for transportation-related
programs)
REVENUE FORECAST
The financial summary presented here relies on revenues derived
from federal, state, local, and private sources. While the
involvement of each sector remains strong, it is important to
emphasize the significant effort made by the several local
governments involved to finance improvements to, and maintenance of
the transportation network.
Federal Share
The 1991 ISTEA defines federal participation in transportation
financing. The Act is significant in several ways, including the
added flexibility in the use of funds. This attribute is
considered essential in heightening the efficiency of
transportation investment. Also, the ISTEA recognizes the
relationship between transportation and air quality policies. To
this end, the ISTEA contains funds within the Congestion Mitigation
and Air Quality Program (CMAQ) to overcome the negative effects of
the transportation network.
ISTEA provides roughly 110 percent of the funding available from
the previous six-year period. The RME revenue forecast assumes the
same of annual funding for all years of the Plan (1995-2015).
These funds are then anticipated to be distributed within the state
based on the existing north-south split and county minimum
allocations. Based on these assumptions, about $11.5 billion
(expressed in 1995 dollars) will be available to the state from
FHWA and FTA sources during the plan period.
Included in Federal Funding sources are the Surface Transportation
Program (STP) funds and the Congestion Mitigation and Air Quality
Program (CMAQ) funds. It is estimated that approximately $1.13
billion in CMAQ funds will be available to the three ozone non-
attainment areas in the SCAG region through 2015 and approximately
$1.8 billion will come to the six SCAG counties through the STP
program.
Additionally, federal funding from the Federal Aviation
Administration (FAA) and the Federal Railroad Administration may be
available to finance portions of the Metropolitan Transportation
System. These funds are currently not included in the Revenues and
Costs of Tables 10-1 through 10-6.
State Share
State revenues continue to reach the region through existing
funding programs, including programs for system management,
congestion relief and transit assistance. Also available is
funding from Propositions 108 and 116. The latter, Proposition
116, authorizing the state to assume $1.99 billion in long-term
debt, was not anticipated in the 1989 RMP. Proposition 108, in
addition to authorizing $1 billion in debt, was the first of three
such measures authorized by the California Legislature. The second
of these measures to come up, Proposition 156, was defeated by the
voters in 1992. Immediate repairs to the transportation
infrastructure are being largely covered with federal disaster
relief funds. However, the State must still address the need to
accelerate costly seismic retrofit projects. The financial
projections included here are based on the estimates of various
funds, developed every two years and adopted by the California
Transportation Commission.
Although some state transportation resources are derived in part
from general taxation, the majority of transportation funds are
gained from the state gasoline tax and motor vehicle license fees.
The assumption that state funding will continue at a constant level
is made without regard for how the revenues are generated. It is
strongly recommended, however, that the state continue to rely on
the gas tax as a source of revenues, and that steps be taken to
ensure a constant stream of funds, considering greater fuel
efficiency standards and transition to alternative fuels.
With the assumptions stated above, it is expected that
approximately $5.9 billion (in 1995 dollars) will be available in
the region from the state.
California statute (SB 707) requires that Regional Transportation
Planning Agencies (SCAG is an RTPA), develop a regional airport
capital improvement program. The Regional Airport Capital
Improvement Program was completed for the first time in 1993. It
contains $2.2 billion in commercial airport projects and $3.3
billion in general aviation projects. Revenue data are not
available, but a survey is underway to obtain the information. The
$5.5 billion is not included in the cost estimates of Table 10-1.
Local Sources
In the past few years, revenues generated at the local level has
shown the greatest increase of all sources. Since the 1989 plan
was adopted, four of the six counties in the SCAG region have
adopted half-cent sales tax measures -- Imperial, Orange, Riverside
and San Bernardino; Los Angeles County approved a second 1/2 cent
sales tax. Ventura County defeated a proposition for a 1/2 cent
sales tax. While officials in Ventura County again expect to place
the measure on the ballot sometime during the Plan period, the
revenues to be generated are not included at this time. Local
transportation programs and projects continue to receive support
from the Local Transportation Fund, the quarter-cent sales tax
collected in all SCAG counties. In addition, the county
transportation commissions are making strong efforts to realize the
value of existing holdings and future investments through joint
development and mixed-use facilities at transit-related sites.
Although the potential for generating revenues is great, certain
distinct flaws in use of sales tax has become evident. Along with
most general taxation alternatives, the sales tax is inequitable
and fails to equate use of a service with the related costs. Also,
as is evident not only in the SCAG region, but across the state and
nation, this form of taxation is inseparable from the overall state
of the economy. Witness the current recession and its significant
impact on transportation revenues dependent on the sales tax.
While, sales tax can be a powerful fund generation tool and is
anticipated to remain a significant part of the revenue mixture,
decision makers are examining user-based financing of
transportation improvements as a key form for enhancing financial
stability of the transportation system as well as a replacement for
the future decline of the gasoline and diesel fuel tax.
Both the bus and rail networks will contribute to local revenues
through fare-box returns. It is anticipated that up to $4.5
billion (in 1995 dollars) can be generated by the farebox, assuming
the transit operators are allowed to keep fares in line with
inflation. This issue has been continuously addressed by the
transit community and public policy-makers generally, because of
the needs of the transit-dependent. However, given that it is
difficult to anticipate any general increase in subsidies, the
transit properties must have the latitude to support operations
through either fares or other internal revenue sources.
Despite these limitations, local share has become the dominant form
of transportation financing. Through the Plan period, it is
anticipated that about $31 billion or about one-half of the
revenues (in 1995 dollars) will be generated from local programs.
The Los Angeles County Metropolitan Transportation Authority is
currently facing a $126 million shortfall in its transit operating
program beginning in FY 1995. This shortfall also will have some
impacts on the transit capital program if not resolved. To respond
to this issue, the Los Angeles County MTA has adopted a special
work program to resolve this critical issue. The LACMTA, by a vote
of its Board, has committed to resolving the shortfall through a
series of measures including staff reductions, transit service
cutbacks, possible increases in fares, and other cost saving
measures.
Innovative Sources
In developing the 1994 RME, it was recognized that additional
programs beyond those funded through traditional sources will be
needed in order for the SCAG region to maintain mobility and meet
the requirements of the Clean Air Act. At the present time, SCAG
has identified five advanced transportation technologies - Electric
Vehicles, Alternative Fuels, Smart Shuttle Transit, Intelligent
Vehicle Highway Systems, and Telecommunications. Each of these
programs can provide an effective part of the regional
transportation system.
Preliminary cost estimates of Advanced Technology and performance-
based transit projects are approximately $15 to $29 billion. For
purposes of modeling, the RME proposes that a VMT/Emissions
Registration Fee be developed to finance these improvements. This
fee would be implemented gradually over several years.
In developing the specifics of this innovative source, SCAG will
consider both the funding measure, giving full consideration to
equity of the fees and how they are applied. In addition, as part
of the financial plan, the specific uses of the funds raised
through this innovative technique will be identified.
Political and public acceptance are a key component for
implementation of market incentives. The financial plan requires a
extensive public involvement program, exploring attitudes towards
transportation financing, designed to reach consensus on Market
Incentives. In addition, in order to implement this innovative,
market-incentive fee, state legislation will be required.
MARKET INCENTIVES
Uses of various transportation facilities are influenced by
financial considerations. For example, a commuter who enjoys free
parking at the job site may tend to shun use of public
transportation while a neighbor who has to pay for parking his
vehicle might consider taking the bus. Another commuter might be
persuaded to rideshare if there was some financial incentive.
Towards this end, SCAG established a Market Incentives Task Force
to explore the ways that the market place may be used to influence
the demand on transportation facilities.
Another example of a market incentive would be congestion-pricing.
For example, use of a facility might be free during off-peak hours
while a fee would be charged during peak demand periods. Or,
perhaps, a facility might be free for a three-person carpool, a
small fee for a two-person carpool, and a larger fee for a single
occupant vehicle.
Market incentives have considerable potential for revenue creation
as well as replacement for existing gasoline-based revenue sources
which may diminish over time.
There are a large number of additional ways of using market
incentives to both achieve adopted policy goals of the region as
well as to raise adequate revenues to finance the needed
infrastructure. As part of the financial plan, as the needs for
additional revenues are identified, market incentive solutions will
be offered for consideration.
For additional information regarding market incentives, please see
the discussion in Chapter 3, Regional Transportation Demand
Management.
FIGURE 10-18
Click HERE for graphic.
COSTS (EXPENDITURE PROJECTION)
The RME identifies five traditional cost categories, including
highways and regional streets and roads capital, transit (both bus
and rail) capital and operating, Highway/Street and Road
maintenance and operations, and Advanced Technology. The costs
required to provide the levels of service identified in the Plan
are presented at the end of this chapter. Figure 10-2 illustrates
the approximate regional mix of project expenditures for transit
capital and operations and highway capital and
operations/maintenance. The figure does not include expenditures
for advanced technology or performance-based transit programs.
______________________________
7 Does not include revenues which could be attributed to Market
Incentives
Highways
Capital expenditures identified in the highway network, including
High-Occupancy Vehicle (HOV) lanes and all related facilities will
cost approximately $11.7 billion in 1995 dollars through 2015.
This figure also includes the cost of Orange County toll facilities
which will be funded in part through private sources.
Regional Streets and Roads
Integration of local arterials into the regional transportation
network is supported by specific funding at all levels. Some of
the Highway project capital costs are for regional streets and
roads. For example, some of the improvements on the Alameda
Corridor will be on regional streets rather than State Highways.8
Transit
The transit costs for the study period total about $27.4 billion
for both capital and operating. The transit program contains
roughly $21 billion in rail and bus operating costs with bus and
rail capital programs totally about $6.4 billion. This total
combines local and express bus, commuter rail and intra-city rail
programs.
The transit costs assume no change in the aggregate level of bus
service; the capital costs identified are for bus replacement only.
However, some redeployment is likely. The rail expenses focus on
the local services in Los Angeles County -- the Red, Blue and Green
lines -- and Metrolink operations throughout the region. The SCAG
baseline also includes six candidate urban rail corridors or
corridor extensions not currently programmed by the implementing
agencies in the Regional Transportation Improvement Program (RTIP)
but expected to be implemented before 2015.
______________________________
8 Local and Regional Streets and Roads operating and maintenance
costs are supported by a variety of funding sources. A portion of the
Federal Surface Transportation Program funds available in each County
are being used in much the same manner as the Federal-Aid Urban (FAU)
funds were used. In addition, the State provides funding for local
street operations and maintenance through the fuel tax subvention
program. The Alameda Corridor Project is estimated to cost about $1.3
billion (1993 dollars).
Local Programs
Local governments receive a share of federal9 , state10 and
local11 funds for their own programs. These programs often have
the potential for positively affecting regional transportation
trends; for instance, signalization and intersection improvements
are done from this mix of funds. Local governments are also
responsible for a significant amount of maintenance and operating
costs for the regions street and roadway network.
An analysis of data regarding local street and roadway maintenance
reveals that the level of maintenance and operations funding,
adjusted for population increases has remained relatively constant
and currently the projected costs reflect this consistency.
SCAG is also aware that while the level of operating and
maintenance projects has remained constant, this level of funding
may not be adequate to meet any performance indicators that should
be established. ISTEA requires that a Pavement Management System
be implemented no later than October 1, 1995. It is anticipated
that the data collected for developing this management system,
along with Highway System Monitoring System (HPMS) data should be
very useful in determining the performance indicators that should
be developed and whether or not adequate resources to reach the
performance standards is available. Work on this issue is proposed
as part of the FY 1995 SCAG Overall Work Program (OWP).
Advanced Transportation Technology/Performance Based Transit
Advanced technology defined as electric vehicles (ZEVs),
alternative fuel vehicles, the Intelligent Vehicle Highway System
(IVHS), telecommunications, and smart shuttle transit, is estimated
to cost approximately $15-29 billion between 1995 and 2015. (See
also Chapter 2, Goals, Objectives, Strategies, Finance for a brief
description of Advanced Transportation Technology strategies.)
______________________________
9 Under the ISTEA Surface Transportation Program, funding is
guaranteed to rural areas to replace funds formerly available under
the Federal Aid Secondary (FAS) program. Under California statute, a
portion of the STP funds are also guaranteed to the cities and
counties at 110% of Federal Aid Urban (FAU) program levels.
10 A portion of the California Motor Vehicle Fuel Tax is returned
to the cities and counties for transportation purposes.
11 In several SCAG counties, a portion of the Local Transportation
Fund collected in each county is used by cities and counties for local
street and road purposes.
FIGURE 10-212
Click HERE for graphic.
LIFE CYCLE COSTS
Life-cycle costs are taken into account through assuring that
Highway operating and maintenance expenses are included. The State
of California has enacted legislation which takes maintenance and
operations costs "off-the-top" of funds available for state highway
projects through the Highway System Operations and Plan Protection
(HSOPP) program; these funds are not subject to the North-South
split and/or county minimums. Transit bus replacements are
scheduled every 12 years per federal guidelines. It is expected
that approximately 300 buses will be replaced each year and these
costs have been included in Table 10-1. An examination of rail
transit replacement and rehabilitation costs, in addition to other
bus transit life-cycle costs, is underway to insure that these
costs are reflected in the financial tables.
STP AND CMAQ PROGRAMMING
POLICIES
In 1992, SCAG adopted several policies regarding programming of the
federal Surface Transportation Program (STP) and Congestion
Mitigation and Air Quality Program (CMAQ) funds:
- Programming of the Surface Transportation Program (STP) funds
and Congestion Mitigation funds shall be the primary
responsibility of the respective County Transportation
Commission, consistent with federal and state law, the Regional
Transportation Plan (RTP), and in conformance with the
applicable Air Quality Management Plan.
- Implementation of transportation control measures (TCMs)
required by the Air Quality Management Plan, including growth
and demand management measures, shall be a high priority for
expenditure of all STP and CMAQ funds.
- Cities and Counties are eligible to utilize the STP and CMAQ
funds for demand management and growth management transportation
control measures and will be so advised by the appropriate
County Transportation Commission.
- The County Transportation Commissions have the responsibility
either directly or through an agreement to document expeditious
implementation of the TCMs.
______________________________
12 Does not include expenditures for Advanced Technology or
Performance-Based Programs which might be funded through Market
Incentives or Innovative funding.
- A local Surface Transportation Program (LSTP) shall be developed
and administered established within each County area consistent
with state implementing legislation. LSTP projects will be
prioritized in each County by the County Transportation
Commission consistent with the new ISTEA federal legislation
which requires multimodal flexibility. Maintenance and
rehabilitation projects which do not increase capacity are
exempt from conformity. Following a transition period not to
exceed three fiscal years, all LSTP programming decisions must
be based on a discretionary process; formula apportionments will
no longer be acceptable. Each county area will be apportioned
an amount not less than 110% of the FY 1990-91 FAU apportionment
for the LSTP program. There will be a 2-3 year period, as
needed, to transition from the old FAU program to the new LSTP
to all projects currently in the adopted RTIP to continue
without interruption.
- County Transportation Improvement Programs shall be submitted to
SCAG before County Transportation Commission adoption for review
and comment through the AB 1246 process. The Regional TIP will
be adopted by SCAG following its presentation and review by the
1246 Committee. SCAG adoption will include a conformity
finding. If SCAG is unable to resolve identified conflicts,
SCAG will adopt the components of the program which are possible
to adopt and refer back to the respective CTC those projects
which present conformity conflicts for reconciliation. In the
event that the respective CTC is unable to reconcile the
conflict in a timely fashion, recommendations will be made by
the 1246 Committee.
TABLE 10-1
TOTAL ESTIMATED HIGHWAY AND TRANSIT EXPENDITURES
BY COUNTY
($millions in 1995 dollars)
Click HERE for graphic.
TABLE 10-2
TOTAL ESTIMATED TRANSIT CAPITAL EXPENDITURES
BY COUNTY
($millions in 1995 dollars)
Click HERE for graphic.
TABLE 10-3
ESTIMATED TRANSIT OPERATING COSTS
BY COUNTY
($millions in 1995 dollars)
Click HERE for graphic.
TABLE 10-4
ESTIMATED HIGHWAY AND LOCAL STREET MAINTENANCE
AND OPERATIONS COSTS BY COUNTY
($millions in 1995 dollars)
Click HERE for graphic.
TABLE 10-5
ESTIMATED HIGHWAY CAPITAL COSTS
BY COUNTY
($millions in 1995 dollars)
Click HERE for graphic.
TABLE 10-6
ESTIMATED TOTAL COSTS AND REVENUES
BY COUNTY - 1995 - 2015
($millions in 1995 dollars)
Click HERE for graphic.
Click HERE for graphic.
For Additional information on the financial plan, please see Chapter 2
- Goals, Objectives, Strategies, Finance, and Appendix F - "Financial
Assumptions".
CHAPTER REGIONAL TRANSPORTATION
ELEVEN CONTROL MEASURE (TCM) PROGRAMS
INTRODUCTION/BACKGROUND
Transportation Control Measures (TCMs) are transportation and land-
use strategies designed to reduce air pollution from motor vehicles
by altering the way people make trips, decreasing traffic
congestion, and promoting alternatives to single-occupant
vehicles. These measures include the use of High
Occupancy Vehicle (HOV) and bus lanes, automobile use restrictions,
Advanced Traffic Management Systems on freeways and arterials,
traffic flow improvement strategies, advanced traffic management
systems on freeways and arterial streets, transportation pricing
changes, alteration of local land-use patterns, institution of
demand management strategies, and efforts to reduce aviation, goods
movement, and locomotive emissions.
Both federal and state legislation provide a significant role for
the development, funding and implementation of TCMs in non-
attainment areas. It is crucial that the mobility strategies
contained in the RME provide for the implementation of TCMs in the
respective air quality plans to ensure that air quality
improvements continue and the flow of transportation funding to the
region is maintained. Moreover, requirements at the state and
federal level specify that all reasonably available TCMs be
implemented as part of an air quality attainment strategy. The
federal attainment status for each non-attainment area is
summarized in Table 11-1. The air basin and air district
boundaries are noted in Figures 11-1, and 11-2, respectively.
TABLE 11-1
ATTAINMENT STATUS FOR NON-ATTAINMENT AREAS
Click HERE for graphic.
Map: Air Basins
Map: Air Districts
The RME contains a broad range of potential strategies available
for development as TCMs. However, those strategies selected from
the RME as TCMS will have to be further refined to meet more
stringent requirements placed on TCMs - enforceability, detailed
accountability, and quantifiability.
The degree to which TCMs are to be relied upon in an area's
attainment strategy is key in determining the mobile source
emission budget used for conformity purposes. This budget is
essentially the maximum amount of emissions which may come from
mobile sources. In the event this budget is exceeded, both vehicle
controls and TCMs must be used to mitigate the greater emission
impacts.
The TCM Chapter focuses on the efforts being undertaken in the
region to refine TCMs for inclusion in the federal attainment plan
submittals due to the Environmental Protection Agency (EPA) by
November 15, 1994. Additional information on both the air quality
plans, TCM implementation efforts to date, and overarching issues
that have arisen in developing a comprehensive attainment strategy
which contains TCMs can be found in the Air Quality Element of the
RCP.
TCM Development and Implementation Requirements
By November 15, 1994, non-attainment areas for ozone are required
to submit an ozone plan as required by the federal Clean Air Act
(CAA). For severe and extreme non-attainment areas, these plans
must contain TCMs. The South Coast Air Basin (SCAB), the Ventura
County portion of the South Central Coast Air Basin (SCCAB) and the
Mojave Desert Air Quality Management District are in the process of
refining the TCMs in the existing Air Quality Management/Attainment
Plans for their respective areas. In addition, Federal
Implementation Plans (FIP) are also in the process of being
developed for SCAB and Ventura County.
Federal and State Requirements
While the relative necessity of including TCMs in the overall air
quality attainment strategy differs by air basin, failure to
attempt to maximize their use in conjunction with all other
strategies has the potential to create significant financial
ramifications for the region. In the federal CAA, Section 179 (b)13
provides for highway sanctions, which may be imposed by the EPA
Administrator. Although safety projects are categorically exempted,
all remaining projects could be sanctioned.
Both state and federal requirements exist for TCMs. These are
contained in the federal CAA, the Lewis-Presley Act for the South
Coast Air Basin, the California Clean Air Act (CCAA) for the
Ventura and SEDAB, and in the Intermodal Surface Transportation
Efficiency Act. These requirements noted in Table 11-2 identify
actions that must be considered and requirements regarding
transportation conformity and funding. Any mobility-based
strategies intended to be included as a TCM in an attainment plan
must meet these criteria. Moreover, the federal CAA requires the
implementation of all reasonably available TCMs, as summarized in
Section 108(f)14 of the CAA and Table 11-3.
______________________________
13 42 USC 7408
14 42 USC 7408(f)(1)(A)
TABLE 11-2
TCM REQUIREMENTS
Click HERE for graphic.
Conformity
Conformity is the process by which the Metropolitan Planning
Organization (SCAG in its six-county region), ensures that the
projects, programs and plans adopted, funded and implemented in the
region provide for the implementation of TCMs contained in the
applicable State Implementation Plan (SIP) for each air basin.
Section 176(3)(c)15 specifies that no department, agency, or
instrumentality of the federal government shall engage in, support
any way, provide financial assistance for, license or permit, or
approve any activity that does not conform to an attainment plan
after it has been approved. Thus, it is critical that the RME
provide for the implementation of TCMs contained in the applicable
attainment plans. The Conformity Working Group has existed since
January, 1990.
______________________________
15 42 USC 7506(c)
TABLE 11-3
FEDERAL REASONABLY AVAILABLE TCMS
Section 108(f)
1. Programs for improved transit
2. HOV and bus lanes
3. Employer-based transportation management plans
4. Trip reduction ordinances
5. Traffic flow improvements
6. Fringe and corridor park and ride facilities
7. Auto use restrictions
8. Provision of HOV/shared ride services
9. Limitations to encourage use of facilities/areas by pedestrians
and bicycles
10. Bicycle facilities
11. Programs to control extended vehicle idling
12. Programs to reduce extreme cold start emissions
13. Employer-sponsored flexible work schedules
14. Programs and ordinances to facilitate alternatives to SOV use
in planning and development, including new shopping centers,
special events and other centers
15. Construction of non-motorized and pedestrian facilities
16. Programs to encourage voluntary removal of pre-1980 vehicles
TCM Commitments
Both the federal Clean Air Act and ISTEA legislation reinforce the
necessity of firm commitments to implementation of TCM actions.
Such commitments must be legally enforceable, quantifiable,
accountable and replicable.
TCM REFINEMENT EFFORTS BY AIR BASIN
SCAG, local governments, subregional associations, county
transportation commissions, and Caltrans play important roles in
coordinating with both each other and with the appropriate
AQMD/APCD in developing and implementing TCMs. Nevertheless, it is
anticipated that the breadth of strategies contained in the RME
will be more comprehensive than the TCMs ultimately agreed upon in
the 1994 AQMP. To the extent that differences may occur, the RME
may need to be amended to refine the scope of the transportation
actions which implement TCMs.
South Central Coast Air Basin - Ventura County
The Ventura County Air Pollution Control District (APCD) is
undertaking the effort to reexamine the six groups of TCMs
contained in the 1991 AQMP. These include: ridesharing strategies,
non-motorized strategies, traffic flow improvements, land-use
strategies, transit, and clean fuels.
Since June of 1992, the Ventura County APCD has been holding
meetings of its TCM Working Group to develop TCM options.
Significant effort has been undertaken to: provide all participants
in the process with an understanding of both the state and federal
requirements; prepare TCM issue papers; identify potential
strategies and implementation actions; identify sources of funding
for TCM implementation; describe legally enforceable mechanisms;
obtain commitments to implement TCM actions; and integrate
Congestion Management Program (CMP) processes and programs to
receive air quality credit.
As currently identified, there exists a strong correlation
between the facility/capital-based measures contained in the
attainment strategy and the county's short- and long-term
expectations for improvement of these facilities. Mutually
reinforcing actions of Rule 210 (Employee Commute Option) and
the CMP are also identified. Quantification of potential TCM
actions has also been a key work effort by APCD staff.
Southeast Desert Air Basin - Desert Portions of San Bernardino
County
In the Mojave Desert Air Quality Management District (MDAQMD)
portion of the Southeast Desert Air Basin, the effort to develop
and implement TCMS has focused on implementing the ten measures
amended into the 1991 AQMP. Rule 1701 helps provide a foundation
for much of the AQMD's current TCM framework.
In response to California Air Resources Board (CARB) comments on
its 1991 Air Quality Attainment Plan and information from its
newly reformed board, staff at the MDAQMD are reexamining the
area's attainment strategy, including TCMs. Efforts to date have
focused on attempting to better identify what proportion of the
emission and traffic problem are within the MDAQMD's sphere of
regulatory influence and attempting to identify appropriate
strategies.
Southeast Desert Air Basin - Coachella Valley
As noted in Appendix II-A of the 1991 AQMP for the SCAB, the SCAQMD
shares responsibility with CARB for the Coachella Valley portion of
SEDAB. The SCAQMD is primarily responsible for stationary source
controls while CARB's responsibility lies with on-road vehicle
emissions and some consumer products.
The primary pollutant being addressed locally in the Coachella
Valley through the mobile source reduction strategies is PM10.
While ozone standards are also exceeded, reductions in ozone
precursors from the implementation of TCMs are seen as secondary
benefits from the implementation of congestion relief and demand
management measures. Substantial effort has been devoted by the
Coachella Valley Association of Governments to developing a
Transportation Demand Management (TDM) plan, which can serve as a
framework, in conjunction with the facilities needed within the
subregion, for the development and preparation of specific TCM
strategies. Appropriate non-commute and commute trip reduction
strategies are being examined. Local government efforts in
Coachella Valley have been coordinated through CVAG.
While it is unclear to what extent TCMs could be used to mitigate
air quality versus congestion impacts, this effort continues being
studied. One key focal area under examination is more closely
linking CMP monitoring and mitigation programs with air quality
programs.
Southeast Desert Air Basin - Northern Los Angeles County
Appendix II-A of the 1991 AQMP for the SCAB describes that the
SCAQMD shares responsibility with CARB for the Antelope Valley
portion of SEDAB. The SCAQMD is primarily responsible for
stationary source controls while CARB's responsibility lies with
on-road vehicle emissions and some consumer products.
The North Los Angeles County subregion has identified several key
areas in which the planning and implementation of mobility
strategies has occurred which could also potentially credited as
TCMs. These are: implementation of the county CMP; implementation
of deficiency plan strategies in areas in which deficiencies are
identified; SCAQMD's Regulation XV program; and local CEQA review,
mitigation requirements and monitoring.
South Coast Air Basin
Section 40460(b) of the State Health and Safety Code states that
SCAG is responsible for the development of the TCMs to be included
in the AQMP for the SCAB.
Subregional Input into the South Coast Air Basin TCMs
Subregions were asked for recommendations for how TCMs could be
refined for the 1994 Air Quality Management Plan (AQMP). This
process was intended to continue the evolution from strict "command
and control" implementation of TCM actions to a more performance-
based, market-oriented approach toward TCM development and
implementation.
Through provision of subregional performance targets, use of
quantification methodologies, and reporting of results, local
governments and subregions have been able to more clearly identify
what they can more realistically expect from the implementation of
different types of traditional TCM actions. More readily identified
as a result of this effort are: actions which subregional members
are taking; local government actions they would like to take and
receive credit for mobility, but for which a barrier to
implementation or taking air quality credit exists; and actions
that are not supported under existing circumstances.
Information provided by subregions have offered recommendations on
various types of transportation strategies which should be
contained in the RME. These are reflected in the individual
chapters. On a broader basis, however, subregions have offered
several suggestions on how to approach the framework for TCM
development and implementation which are summarized in Table 11-4.
Regional Task Forces
In the summer of 1993, a joint SCAG/SCAQMD TCM Policy Committee was
formed to consider this information, recommend TCM refinements and
assist in development of implementation strategies in the South
Coast Air Basin with SCAG and the SCAQMD. The committee is composed
of elected officials from each of the subregions in the SCAB, the
four county transportation commissions, the SCAQMD, and SCAG. A
companion TCM Technical Advisory Group (TAG) also includes
representatives from business, environmental interests, Caltrans,
EPA, and Commuter Transportation services to provide staff input to
the Policy Committee. This committee structure replaced the TCM
Working Group formerly established by the SCAQMD.
In addition, SCAG formed two Task Forces composed of local elected
officials - an Advanced Transportation Technologies Task Force and
a Market Incentive Task Force. Both task forces included a member
of Caltrans. Each Task Force was charged with preparing options to
be considered for the respective issue areas and making
recommendations for inclusion in the RME.
To address emissions for railroads, the Regional Railroad Air
Quality Emission Reduction Board was formed. Consisting of
representatives of both public and private sector organizations, as
well as elected officials from both SCAG and the SCAQMD, the Board
is responsible for overseeing development of a TCM to reduce air
quality emissions from railroads.
When the RME is adopted, transportation strategies which implement
draft TCMs conveyed to the SCAQMD for discussion in the draft 1994
AQMP will be included. Finalization of the TCMs is scheduled for
summer 1994 when SCAG adopts the local government measures and TCMs
to be included in the AQMP. It is anticipated that the breadth of
strategies contained in the RME will be more comprehensive than the
TCMs ultimately agreed upon. To the extent that significant changes
occur as a part of the continued consensus building process, the
possibility exists for the need to amend the RME to reflect these
changes.
Overall, the committees were intended to provide the maximum degree
of flexibility in identifying which strategies and actions are
believed to be the most appropriate for implementation for mobility
and air quality purposes. This approach is also intended to
recognize common interests of neighboring communities in preparing
compatible options for TCM implementation and also being sensitive
to important differences in available infrastructure,
transportation services, land uses, and travel patterns in a
diverse region.
TCM PROGRAM FOR THE SOUTH COAST AIR BASIN
The Transportation Control Strategy for the 1994 AQMP is part of a
comprehensive strategy to improve air quality by reducing emissions
from mobile sources, enhance mobility by decreasing congestion
levels, and create new jobs by encouraging and advancing the use of
new technologies.
The implementation program for the strategy is based upon the
Implementation Principles summarized below. The principles
emphasize looking first to advanced transportation technologies and
market incentives as the most effective means for bringing about
the emissions reductions required by state and federal legislation.
Of key importance to the strategy is the concept of phasing-in
control measures over time as the conditions emerge for their
implementation and success. Efforts begin immediately at all levels
to create favorable conditions for measures to be implemented in
the long term.
TABLE 11-4
SUBREGIONAL TCM RECOMMENDATIONS
Click HERE for graphic.
IMPLEMENTATION PRINCIPLES
The Transportation Control Strategy includes the following
principles for implementing the Near Term and Long Term Measures:
(1) Regional Emissions Budget - A regional "on road" mobile
source emissions budget would be prepared by SCAG/AQMD.
(2) New Technologies - The maximum feasible effort will be made
to insure the application of technologies, such as
telecommunications, Advanced Shuttles, and IVHS, to the
reduction of emissions in the AQMP. This would include
aggressive support of federal and state requirements for
cleaner vehicles, fuels, etc.
(3) Market Incentives - Every effort would be made to identify
and implement acceptable market pricing mechanisms which
would result in the reduction of vehicle trips. This could
include a revised basis for vehicle registrations, etc.
(4) FIP Measures - A determination of new, additional mobile
source emission reductions that will be achievable through
the Federal Implementation Plan (FIP) shall be included.
(5) After the impacts of (2), (3) and (4) are achieved:
a. Feasibility and Cost Effectiveness - The emission reduction
budget for TCMs in the 1994 AQMP will be determined based on
existing knowledge about the feasibility and cost
effectiveness of TCM implementation at the regional,
subregional and local level.
b. Subregional Targets - Subregional targets would be
disaggregated from the TCM budget to the county level within
the South Coast Air Basin.
c. Other Control Options - Due to the above limitation, regional
measures and rules capable of subregional implementation
would not necessarily be designed to make up the remaining
"on road" mobile source emission budget for the 1994 AQMP;
depending on the size of the remaining budget, other mobile
source control options would need to be reexamined.
(6) Substitution - All regional rules prepared in (5) would allow
for "substitution" by a subregional or local implementation
plan or measure capable of achieving the commensurate level
of emission reduction regardless of the source of the
proposed reduction.
(7) Delegation - If a rule was proposed that was considered
necessary to achieve attainment, and it was agreed that its
application must be applied to a specific source to avoid
inequitable economic impacts, specific requirements to
achieve the emissions reduction from the specific source
covered in the rule (called "delegation" in the Regional Rule
option) could occur.
(8) Special Circumstances Waiver/Subregional Peer Review
Committee - If a source specific reduction were to be
required by a "delegable" rule, there would be a provision
for a special circumstance waiver. This waiver could be
granted to a subregion or local government for a site
specific facility within the jurisdiction if it could
demonstrate that achievement of the emissions reduction would
create an unfair economic impact and that the subregional or
local implementation program was capable of achieving the
commensurate emissions reduction from other sources. Such
waivers would be granted by AQMD after suitable review by a
subregional peer review committee consisting of a
representative from each of the subregions.
(9) Uniform Regional Rules - Uniform regional rules should be
developed in advance of, or simultaneously with subregional
or local implementation plans.
(10) Subregional/Local Plans - Subregional or local implementation
plans must be ready for implementation when the uniform
regional rules take effect. However, subregional or local
implementation plans may be submitted after regional rules
take effect in accordance with schedules specified in the
1994 AQMP.
(11) Multi-Site Businesses - Multi-site regional business doing
business in more than one subregion and located within areas
utilizing subregional or local implementation plans will be
allowed to choose between subregional or local implementation
plans and uniform regional rules at the time of the
preparation of the Subregional or Local Implementation Plan.
(12) Monitoring and Enforcement - Monitoring and enforcement of
subregional or local plans must allow for differences between
subregional or local agencies and the district, provided that
the emission reductions from subregional or local
implementation plans can be independently verified.
(13) Minimum SCAQMD Administrative Oversight - Subregional or
local implementation plans must be structured to utilize a
minimum of AQMD administrative oversight.
(14) Responding to Monitoring Results - If monitoring shows that
optional subregional or local implementation plans are not
achieving their emission reduction targets consistent with
specified schedules, there shall be an opportunity to revise
the implementation plan and in the event that targets are
still not achieved under the revised plan, uniform regional
rules will be implemented in those subregions not
demonstrating achievement of targets.
The five categories of transportation programs to be implemented
under the strategy are identified and briefly described below.
Transportation programs include advanced transportation
technologies, market incentives, transportation improvements,
indirect source controls, and other measures. These transportation
programs are described in greater detail in Appendix IV-C to the
AQMP for the South Coast.
Advanced Transportation Technologies (ATT)
ATTs are intended to provide consumers with products and services
that preserve the same quality of life and convenience of mobility
they experience today. These measures are expected to achieve the
greatest emission reductions if an aggressive implementation
program is put in place to achieve moderate to high levels of
market penetration.
Proposed ATTs include:
- Zero-Emission Vehicles
- Alternative Fuel Vehicles
- Telecommunications
- Intelligent Vehicle Highway System
- Advanced Shuttle Transit
For example, innovative funding such as a VMT/Emission fee could
help create the necessary infrastructure to develop a marketplace
for ATTs to become a reality. Available funding for infrastructure
improvements, system design or other basic needs related to ATTs
may include special ISTEA funding, AB 2766 funding, funds currently
spent by employers to implement Regulation XV trip reduction plans,
various local proposition funds, demonstration grants or other
funding sources which may be available. New funds also may be made
available through implementation of market incentive strategies.
Creative opportunities to mix funds or provide offsetting revenues
will be explored to the maximum extent possible, including changes
in existing funding authority.
Implementation and advancement of these transportation technologies
will be facilitated by industry and government "clusters" which
will develop a strategy to deploy their technology as quickly as
possible. The feasibility of ATTs will be enhanced by identifying
client groups, organizations and activity hubs for which initial
implementation of ATTs would be useful and who could provide
valuable insight on further improvements based on their experience.
Market Incentives
Market incentives help to send a reinforcing message regarding the
travel changes needed for congestion and air quality improvements.
Market incentive programs can create a revenue stream to support
the development of ATTs as well as other infrastructure
improvements. Market incentive programs can be designed to be
revenue neutral, so that financial burdens are not placed
inequitably on disadvantaged segments of the population.
Examples of possible market incentives include:
- Annual VMT/Emissions Registration Fee
- At-the-Pump Pricing
- Congestion Pricing
- Parking Cash-Out
A Market Incentive Transportation Improvement Fund could be created
through legislation or a ballot measure. Funds generated could be
invested in basically three ways: 1) reinvestment in the
transportation system in economically leveraged uses (including,
but not limited to, ATTs); 2) addressing equity issues which may
result from the market pricing; and 3) reinvestment of corridor-
level revenues into transportation improvements along that
corridor. This approach responds to both improved overall mobility
as a key factor in economic vitality and equity for those whose
participation in the social and economic fabric of the region
depends on some basic level of mobility.
Transportation Improvements
Transportation facility improvements will be implemented through
the region's Regional Mobility Element/Regional Transportation
Improvement Plan (RME/RTIP) process and therefore would not be
enforced through a regional rule. Transportation improvements are
intended to offer expanded transportation alternatives and to
improve mobility by reducing congestion and improving access.
Transportation improvements also will help to provide supporting
fueling and other infrastructure for some ATT applications.
Components contained in the measure include capital-based actions,
such as HOV projects and their pricing alternatives, transit
improvements (i.e., bus, rail and shuttle), park and ride lots and
intermodal facilities, and bicycle and pedestrian facilities. Non-
capital based actions such as rideshare matching and information
services, congestion plan-based demand management strategies,
telecommunication facilities and satellite work centers, and
transit passes are also included. Not included in this measure are
projects and programs which are exclusively locally funded.
Indirect Source Controls
State and federal law enable the AQMD to adopt indirect source
programs which are aimed at sources that generate or attract
vehicle trips. Rules to reduce emissions from vehicle trips and
vehicle miles traveled from the following sources will be
developed:
- Special Event Centers
- Shopping Centers
- Airport Ground Access
- Schools
- Enhanced Rule 1501
- Parking Cash-Out
- New Development (Part I and II)
- General Development (Part I and II)
Under the 1994 AQMP, the AQMD will adopt rules to implement the
various Indirect Source Rule (ISR) programs, and provide subregions
and local governments with an opportunity to take over the programs
through delegation and substitution if they so choose. These
programs were chosen for regionwide implementation because it was
believed that there needed to be some level of consistency between
jurisdictions. However, the opportunity to tailor the program for
local characteristics and needs has been retained. As part of the
rulemaking process, source responsibility for emission reductions
and/or implementation of supporting actions needs to be addressed.
Other Measures
Several other measures have been identified for inclusion in the
strategy which do not fall neatly into any of the categories
previously described. Nonetheless, significant efforts have been
underway that recognize their importance in achieving emission
reductions. These other transportation control measures include:
- Railroad Emission Reduction Measure
- Fleet Purchase Rule
- Stage I Episode Plans
- Increase Driving Age to 18
MONITORING/PROGRAM EVALUATION METHODOLOGY
Monitoring of transportation control measures is important for
three reasons. First, monitoring is a federal statutory requirement
to ensure compliance with CAA and ISTEA. Second, monitoring can be
used to assist with duplication of successful strategies for other
jurisdictions by highlighting effective approaches and methods of
implementation. Third, the implementation of standardized data
collection methods for monitoring purposes will provide necessary
information for the evaluation of mobile source emission reduction
strategies' effectiveness.
Although the most appropriate types of monitoring programs will
depend on the TCMs which are ultimately adopted, several methods
are available to monitor and evaluate TCM strategies:
Regional Monitoring and Evaluation
Monitoring on a regional level can occur in two ways. First,
overall indicators of travel demand, such as average vehicle
occupancy, transit mode split, and non-motorized mode split can be
monitored by periodic origin and destination surveys and by
evaluating travel data gathered through the U.S. Census Bureau.
Second, conformity reporting for the Regional Transportation
Improvement Plan and the Regional Mobility Element requires a
current evaluation of local implementation efforts on a region-wide
basis.
Subregional Reporting
Subregional organizations can serve as an important conduit for
monitoring and evaluating demand management programs. Through this
structure, local jurisdictions will be able to provide direction on
the selection and implementation of appropriate monitoring
mechanisms for their specific subregion. This structure could help
to ensure consistency among local programs, to permit comparisons
of evaluation conclusions, and to realize savings through the
pooling of monitoring resources.
Coordination with CMP Monitoring
CMP statute requires that each county Congestion Management Agency
(CMA) monitor local jurisdictions to determine if they are
complying with CMP responsibilities. The CMP provides for a
reporting process which should be closely integrated. On the local
level, each jurisdiction must ensure the implementation of TDM
Ordinance requirements.
Existing methods have the potential to be utilized for monitoring
compliance with development standards. Common monitoring methods
available to local jurisdictions include:
- Level of service (LOS) monitoring
- Site monitoring prior to issuance of certificate of occupancy or
business license
- Other building site reports or surveys which the local
jurisdiction may deem appropriate
- CEQA mitigation monitoring
The monitoring system utilized by CMAs can provide a useful tool
which will allow an assessment of how local jurisdictions are
implementing actions described in the various air quality
attainment plans. Additionally, the CMP-required trip reduction-TDM
ordinances and subsequent analysis of land-use transportation
implications provide an opportunity to refine and focus the scope
and funding of control measures programs implemented at both the
county, subregional, and local levels. The implications for
regional mobility are important, for monitoring can be used to
assess the effectiveness of TCM programs and serve as a mechanism
for assessing progress toward performance goals.
ADDITIONAL TCM CONSIDERATIONS
Federal Implementation Plans (FIPs)
The U.S. Environmental Protection Agency (EPA) is in the process of
developing FIPs for both the South Coast Air Basin and Ventura
County in response to separate court cases. While more information
will become avavailable when formal rule-making is finalized, the
presence of FIP action serves as a significant backdrop for the
development of the 1994 AQMPs -- and, thus, the TCMs -- in both
Ventura and South Coast.
The FIP also presents an opportunity to address sources which are
under federal jurisdiction. These include: trains, planes, trucks,
ships and some off-road vehicles.
Several policy issues arise from the FIP. First, the proposed
relationship between locally developed AQMPs and the FIPs for the
respective areas is unclear. Will the FIP build off (modularly) of
the local AQMPs or allow locally developed measures to substitute
for measures in the FIP? Second, have the options available to
areas subject to the FIPs been clearly identified, particularly on
the TCM strategy side, within the context of measures willing to be
undertaken? Finally, how has public acceptance been for local
action in a modular FIP versus those locally developed actions
which could be supported for substitution for FIP actions?
Contingency Measures
Both the federal and state Clean Air Acts require that contingency
measures be adopted in the event adopted control measures do not
achieve interim goals or maintain adequate progress toward the
attainment of standards. In the past, contingency measures have
included TCMs and other strategies which were not considered to be
feasible at the time of adoption of an attainment plan by the
district boards and California ARB. Examples include increasing gas
taxes, limits on vehicle registration, no-drive days, and emission
charges on vehicle use.
Another approach for consideration in the region is the use of
pricing. This approach could include charging for emissions through
various means (e.g., dirty fuels fees, emission-related mileage
fees, congestion charges, parking fees) which, in turn, would
reduce the type of travel behavior that produces emissions, or
cause a shift in demand away from higher-emitting vehicles toward
the use of lower-emitting vehicles. Such "market-based" measures
would likely require legislative action to be made enforceable.
Transportation Control Measure Funding
Funding for TCMs is available through a variety of sources. Perhaps
most important are two categories of ISTEA funding: Surface
Transportation Program (STP) and Congestion Mitigation and Air
Quality Improvement Program (CMAQ). Funding through STP is the most
flexible, allowing funds to be spent on the National Highway System
as well as other components of the regional transportation network.
A subset of the STP funds -- Transportation Enhancement Activity
funds -- are available to facilitate non-motorized forms of travel.
CMAQ, on the other hand, was established specifically to fund
projects that will contribute to the attainment of national ambient
air quality standards. CMAQ funds are to be distributed based on
formulae that give priority to ozone and carbon monoxide non-
attainment areas.
In May, 1992, SCAG and the county transportation commissions agreed
on a set of principles, which would guide the programming of STP
and CMAQ funding, as shown in Table 11-5.
TABLE 11-5
EXISTING PRINCIPLES FOR PROGRAMMING OF STP
CMAQ FUNDS RELATED TO TCMS
- Programming of STP and CMAQ funds shall be the primary
responsibility of the respective county transportation
commission, consistent with federal and state law, the RTP, and
in conformance with the applicable Air Quality
Management/Attainment Plan.
- Implementation of TCMs required by the Air Quality
Management/Attainment Plans, shall be a high priority for
expenditure of all STP and CMAQ funds. Cities and counties are
eligible to utilize the STP and CMAQ funds for demand management
and growth management TCMs and will be so advised.
- The county transportation commissions have the responsibility
either directly or through an agreement to document the
implementation of TCMs.
Funding for the implementation of specific types of TCM (e.g.
transit, High-Occupancy Vehicle lanes, rail construction, and
traffic signalization) is available through a variety of state and
local funding sources, including gas taxes, bonds, and local sales
taxes. Additional funding sources include increase in motor vehicle
registration fees to $4. Local jurisdictions have also relied upon
local development, parking and permit fees to help provide for
traffic mitigation strategies, many of which qualify as TCMs.
CHAPTER
TWELVE SOCIOECONOMIC IMPLICATIONS
INTRODUCTION/BACKGROUND
Southern California has perhaps the most diverse socio-economic
landscape in the country, helping shape what the news media has
labelled "America's First Third World State." Groups from diverse
ethnic, racial and socio-economic backgrounds impact life
dramatically in the region, including in the area of
transportation.
The Southern California Association of Governments (SCAG) is
required by federal law to evaluate and analyze regional effects
of transportation decisions. Specifically, the Intermodal Surface
Transportation Efficiency Act (ISTEA) of 1991 directs SCAG as the
Metropolitan Planning Organ- ization (MPO) to examine social and
economic effects of regional transportation decisions.
Various other federal legislation such as Title VI of the 1964
Civil Rights Act and the 1990 Americans with Disabilities Act (ADA)
require that no person shall be denied the benefits of, or be
subjected to discrimination under any program or activity receiving
federal financial assistance.
Quality of life for all people in the SCAG region, and particularly
for the elderly, the disabled, the low-income, and other
disadvantaged people, is integrally linked to successful
implementation of the region's transportation system.
Consistent with federal legislation, a primary goal of the 1994
Regional Mobility Element (RME) is to make the region accessible to
everyone. This chapter will analyze how and to what degree regional
mobility goals are impacting disadvantaged and low-income
populations.
POPULATION AND TRIP CHARACTERISTICS
The SCAG region currently has a population of approximately 15
million people, the majority of them ethnic minorities. SCAG's
forecast indicates this number will increase to 22 million by the
year 2015. These demographic trends will continue beyond the 2015
planning period. Members of minority groups, especially
Hispanics and African-Americans, comprise an unusually large
percentage of the low-income and disadvantaged population in the
SCAG region (see Figure 12-1). Hispanics comprise one-third of the
population in the region but over half of those live in poverty.
African-Americans comprise 8 percent of the population and make up
13 percent of the poor in the region.
Over one-fourth of the residents in the SCAG region are foreign-
born, and 30 percent of those immigrants -- 1.8 million -- entered
the United States between 1985 and 1990. Residents of Asian
heritage were the fastest growing segment of the population.
FIGURE 12-1
Click HERE for graphic.
SELECTED MOBILITY TRENDS
The 15 million people in the SCAG region own 10 million motor
vehicles (see Figure 12-2). Paradoxically, but not unexpectedly,
over the years, growth in automobile ownership has given rise to
increased peak-hour traffic congestion and significantly degraded
mobility for the region.
Between 1970 and 1990, the number of licensed drivers in the region
increased from 6 million to 9.5 million, a 58 percent increase.
People aged 65 or older have increased their share of licensed
drivers by 130 percent. For the future, the number of licensed
drivers will increase with the 5-to-17 age group as well as with
the "baby boomers" (35-44 age group).
People who have purchased cars and/or secured drivers licenses can
be expected to be a population largely or frequently dependent on
automobiles for mobility.
Non-work trips represent 77 percent of the region's daily trip
total. Even during the peak period, non-work trips account for 68
percent of all trips (see Figure 12-3).
FIGURE 12-2
Click HERE for graphic.
Non-work trips comprise three categories: family and personal
business trips, social and recreational trips, and shopping trips.
The average travel times for work and non-work trips were 22 and 14
minutes, respectively.
FIGURE 12-3
Click HERE for graphic.
DISADVANTAGED AND LOW-INCOME POPULATIONS
Overview
For most people, a transportation problem may be a work trip that
is too long or too congested. But for disadvantaged populations,
the problem can be the inability to find employment because timely
and reliable public transit is not readily available. This section
will identify the mode of travel most used by the specified
populations.
Elderly
According to the 1990 Census, approximately 1.4 million elderly
(those people aged 65 and over) live in the SCAG region. Seniors
make up 9.5 percent of the region's population and will grow
another 54 percent by the year 2015.
A variety of social and demographic changes will accompany the
aging of the population. People will live longer so the need for
specialized care and other services will increase. These
demographic changes will also raise significant questions about
accessible transportation to meet the mobility needs of the
elderly.
The majority of trips made by the elderly are not into or out of
the Central Business District (CBD) but rather between two suburban
locations. Transit systems that serve the suburbs generally carry
passengers toward the central city and not to other suburban
locations where medical and social services may be located.
Consequently, more than 90 percent of trips made by the elderly,
nationwide, are made by automobile, and reliance on the private
vehicle is growing. The elderly drive fewer miles than do the rest
of the population, but their mileage will likely increase in the
future for the following reasons:
- Based on Department of Motor Vehicles data, the number and
proportion of the elderly holding driver's licenses has been
increasing for the past 10 years. During this period elderly
people with driver's licenses have increased 56 percent.
- Most of the elderly live in urban areas, but their numbers in
the low-density suburbs where reliance on the automobile is
both a convenience and a necessity, is increasing.
The elderly face a number of obstacles that discourage mode shift
from automobile dependency. First is the very serious concern of
the elderly with personal security. Real or imagined, these fears
have a great impact on transportation decisions made by elderly
people.
Additionally, studies have shown that most of the elderly cannot
easily change their current car trips into walking trips because
trip destinations are widely scattered throughout a community.
However, these same studies show that mass transit could
effectively be substituted for some automobile trips if transit
services were conveniently available within four blocks of a
senior's residence.
Disabled
In 1990, 802,331 disabled people with a mobility limitation lived
in the region. Of the total disabled population, 28 percent were
elderly. As the disabled population parallels increases in the
elderly population, there will be new demands for special
transportation services that are easily accessible, reliable, and
more importantlyÄaffordable.
The case for specialized service for the disabled rests on three
points. First, not every community, urban or rural, has local
public transit service. Second, public transportation is still
largely designed to accommodate home-to-work trips but trips by the
disabled tend to be non-work related. Further, a substantial number
of non-work trips are made in off-peak hours (see Figure 12-3) when
there are fewer buses on the road and schedules are different.
Third, in bad weather passengers in wheelchairs have difficulty
maneuvering from home to inconveniently located bus stops, which
may not have shelters.
The mode choice for disabled people depends on the severity of
their disability. People who are visually impaired and people who
have minor physical disabilities are oriented toward the regular
bus and automobile-passenger modes in terms of preference and use.
This group travels more frequently and for more purposes (i.e.,
medical trips, shopping, personal pleasure trips).
People with severe physical disabilities are oriented toward para-
transit or demand-responsive service, which offer door-to-door
service, assistance on and off the vehicle, convenience, comfort,
and more personalized service.
Women
According to the 1990 Census, there were 7.3 million women in the
SCAG region, accounting for 50 percent of the region's population.
Five percent of the total female population were female-headed
households with children under the age of 17.
Nationwide, according to the 1990 National Personal Travel Survey
(NPTS), from 1983 to 1990, travel by women increased greatly, from
6,382 annual miles per female driver in 1983 to 9,528 miles in
1990Äa 49 percentage change. This increase was due, partially, to
the increase in women joining the work force.
The number of trips taken by women for family and personal business
also grew by 37 percent for the same period.
For the expanding population of working mothers, the location of
child-care facilities plays a major role in the transportation mode
women choose. If a child-care facility is beyond walking distance
of the home, it is very likely that an auto, if available, will be
used to drive the child to the care facility. It follows that the
balance of the commute trip will be by car as well.
In the case of older children, school location relative to home or
work site can also impact the mode choice of a working parent. This
is particularly the case where schools are not within walking
distance or are not serviced by a school bus or public
transportation.
As with seniors, safety and concern for personal bodily harm are
another major factor in the choice of a transportation mode.
Specific times, places, and even modes of transportation may be
considered off-limits by women for fear of personal violence.
Youth
Approximately 2.6 million school-age (ages 5-17) children live in
the SCAG region.
In the Los Angeles Unified School District alone (which represents
the Los Angeles City and 16 other cities and communities), there
are approximately 641,000 children enrolled in school for
kindergarten through the 12th grade. Approximately 13 percent or
80,000 students take district-owned or contracted school buses and
11,000 take public transportation to school. This would mean that
approximately 85 percent of the youth either walk to school, are
driven by parents, or are driving themselves.
Low-Income Households
The 1990 Census defines poverty as a family of four with an annual
income of less than $12,674. In 1989, there were 1.9 million people
below the poverty level in the SCAG region. This was a 40 percent
increase over 1979.
Hispanics comprise one-third of the region's population and more
than half of the Hispanic population have incomes below the poverty
line. The African-American population, which constitutes 8 percent
of the region's population, makes up 13 percent of the region's
low-income families.
Although it would seem that workers in low-income households would
tend to rely more heavily on transit or carpooling, nationally,
this is not the case. Data from the 1990 NPTS shows a substantial
shift away from transit for work purposes by populations in
poverty.
According to the NPTS, approximately 60 percent of the low-income
wage earners drive to work. This group also spends a great deal of
time commuting between home and work.
On a regional level, travel patterns examined for South-Central Los
Angeles, where approximately 35 percent of the area population are
African-American and 60 percent are Hispanic, 23 percent use
transit. The remaining 65 percent use the automobile for the work
commute.
In another local example consistent with national trends, the Pico-
Union District in Los Angeles, which is approximately an 8-square-
mile community predominately populated by Hispanics (65 percent),
27 percent of the Hispanic population used public transportation to
commute to work. Forty percent of the total households in this
community were households without autos.
In addition, SCAG's transportation studies have shown that workers
in the region commute progressively longer distances from their
homes to their places of employment. Means of transportation to
work do not necessarily reflect the supply of transportation
alternatives to the single occupancy vehicle. Fifteen percent of
renter-occupied units represent households without vehicles, and a
total of all occupied renter units are inhabited by residents
without vehicles. Presumably, an overwhelming number of these
residents are low-income and obviously disadvantaged.
CONCLUSION
The economy has undergone a restructuring over the last two decades
in which traditional, unionized, high-wage manufacturing employment
has declined, while employment has increased in the services sector
and in high technology manufacturing away from traditional
industrial cores -- which also are often the residential cores of
low-income, disadvantaged groups, many of which in Southern
California happen to be minorities.
The loss of high-wage jobs in South-Central Los Angeles, for
instance, contributed to the decline of the area's neighborhoods at
a time when the community was experiencing a radical demographic
transformation. The effect on transportation of job losses in areas
such as South-Central has meant that residents of those communities
have often had to seek employment longer distances away from their
neighborhoods, increasing the distance of their commutes.
The need to economically revitalize disadvantaged communities in
the region takes on additional significance when its impact on
future transportation goals and objectives is taken into account. A
renewed job economy in those communities would significantly reduce
the daily "worker flight" with all its ramifications on traffic
congestion, automobile exhaust pollution, and stress on the
region's transportation system.
CHAPTER
THIRTEEN URBAN FORM AND MOBILITY
INTRODUCTION/BACKGROUND
Throughout the years, development in the SCAG region has been
dispersed along the available freeway network. Traditional zoning
laws that separate residential, commercial, and industrial land
uses, have led to the spatial disconnection among different types
of activities. Ultimately, the freeways and disconnected activity
areas have been among the factors fostering an ever-increasing
dependence on the automobile as the main mode of transportation.
The 1991 federal Intermodal Surface Transportation Efficiency Act
(ISTEA) stresses the integration of land-use policies and
transportation programs. The legislation provides funding for
transportation programs that are consistent with short- and long-
range land-use planning and puts new emphasis on transit,
pedestrian, and bicycle facilities. Future land-use
strategies in the region are aimed at relieving the pressures of
population and job growth on the Southern California transportation
system by achieving more balanced developments.
Land use in the 1989 Growth Management and Mobility Plans
The jobs/housing balance policy proposed in the 1989 Growth
Management Plan (GMP) was included in the 1989 Regional Mobility
Plan (RMP) as a strategy to regain 1984 mobility levels. It was
also included as a Transportation Control Measure (TCM) in the Air
Quality Plan (AQMP Measure 17).
The 1989 GMP subregional trend projections of jobs and housing were
modified. Nine percent of the regional job growth between 1980 and
2010 was redirected from job-rich to job-poor subregions, and 5
percent of the housing growth was redirected from housing-rich to
housing-poor subregions. Increasing the opportunities of
individuals to take care of most of their daily needs within a
reasonable commute radius reduced the length of home-to-work trips
and the amount of congestion. The forecast 2010 increase in VMT
was reduced by 8 percent and congestion by 37 percent.
It should be recognized that the phasing and timing of development
are as important as achieving the proper jobs/housing balance to
yield the desired transportation and environmental benefits.
Equally important is the match between the types of jobs and
housing prices within a community.
Job/housing balance, as a growth management and mobility strategy
and as a Transportation Control Measure (TCM), has been riddled
with implementation difficulties and has also been the subject of
an ongoing regional debate. Nevertheless, the promotion of land-use
development patterns, including job/housing balance, that enhances
the efficiency of the transportation system remains an important
goal of the Growth Management and Mobility elements. A few
subregions, WRCOG and SANBAG for example, have explicit policies
that encourage job-housing balance, balanced communities, and
transit-oriented development.
LAND USE AND TRANSPORTATION ANALYSIS
Effects of Land Use on Mobility Characteristics
Understanding the relationship between land use and travel behavior
helps shape the decision-making process regarding the integration
of urban form as a mobility strategy. For this purpose, three model
runs of the regional TRANPLAN model were designed to test the
sensitivity of travel demand to changes in land-use patterns. All
three runs were based on identical assumptions and methodologies
except for socio-economic distributions. This procedure enabled the
isolation and comparison of the effects of different land-use
assumptions on travel characteristics and travel demand.
The first sensitivity run, referred to as the Trend Base Case
scenario, was based on the Draft Growth Management Forecast
distributions (July 1993). These were derived through the bottom-
up, interactive process, reflect most probable market-driven future
patterns of development and only include local land-use policies.
The second sensitivity run, referred to as the Urban Form scenario,
was based on a modification to the Trend Base Case forecast to
direct future growth in a concentrated way around the existing and
proposed rail network. To this effect, it was assumed that 35% of
future housing growth and 45% of employment growth between 1990 and
2010 would take place within one-half mile of rail stations.
The third sensitivity run, labeled Job-Housing Balance, was based
on a different alteration of the Trend Base Case forecast. Under
this scenario, future growth was assumed to take place in a more
balance way in all areas of the region. The Trend Base Case
distribution of growth imply job-housing balance ratios which are a
marked improvement over the job-housing balance ratios in the 1989
GMP. Nevertheless, the ratios deteriorate in a few areas. The Trend
Base Case forecast distributions were modified in areas where the
job housing balance ratio gets worse in 2010 compared to the 2010
ratios in the 1989 GMP. The modifications to jobs and housing in
such areas brought the job housing balance ratios in line with the
1989 GMP ratios.
Table 13-1 presents a summary comparison of travel characteristics
during morning rush hours between the three scenarios. Compared to
the Trend Base Case, both the Urban Form and Job-Housing Balance
scenarios show a reduction in vehicle miles traveled and in hours
of delay as well as an increase in travel speed. The beneficial
effects of Job-Housing Balance are more pronounced. Results of
the Job-Housing Balance sensitivity run indicate a reduction in
congestion expressed in hours of delay of close to 20 percent, and
an improvement of 9.21 percent in speed on the regional highway
system, compared to the Trend Base Case.
The data shows modest improvements when the Urban Form scenario is
compared to the Base Case. These results should be interpreted in
light of the fact that the regional model was not initially
designed as a tool to test the relationship between land-use and
travel behavior. Furthermore, factors such as changes in vehicle
ownership, increases in pedestrian trips, and reductions in access
time to transit, which are likely to come about with concentrated
growth, are not accounted for in the cause-effect chain of
variables influencing travel behavior.
TABLE 13-1
IMPACTS OF DIFFERENT SOCIO-ECONOMIC
DISTRIBUTIONS ON MOBILITY
Click HERE for graphic.
Effects of Land Use on Transit Patronage
SCAG commissioned a team of consultants, led by the Urban Innovations
Group, to investigate different theoretical urban form alternatives
relative to regional mobility and air quality objectives, and to
research the interconnection between land use and patronage of the
extensive interregional proposed rail system. The team identified
three cases of transit-oriented Urban Form and created a model for
each case to estimate the modal split for transit.
The analytical method consisted of the following steps: 1) Estimating
how many workers live in transit-oriented zone in 2010; 2) Estimating
how many of these workers also have a job in a transit-oriented zone;
3) Estimating how many of these workers who both live and work in a
transit-oriented zone choose to use transit; 4) Adding baseline
transit use for those outside transit-oriented zones; 5) Comparing to
modal split goal necessary to achieve mobility and air quality
goals.16
The first case (Case AÄRail Station Concentrated Growth and Rail
Emphasis) directed growth to occur in concentrated development within
walking distance of existing and planned rail stations. The second
case (Case BÄActivity Center Concentrated Growth, and Rail and Express
Bus Emphasis) directed growth to occur in concentrated development
within walking distance of rail stations and in existing activity
centers serviced by intra-center shuttles with express bus routes to
other centers. The third case (Case CÄTrendline Growth and Rail,
Express Bus and Paratransit) implied trendline distributions of
population and employment, and relied on a demand-responsive three-
tiered transit system capable of servicing a large market.
______________________________
16 For more detailed information on methodology and results of the
Urban Form study, see the UIG August 9, 1994 report in the Growth
Management Component appendix .
Analytical results showed that for each of the three cases, modal
split for transit in the home-to-work travel market increases
compared to trendline projections. However, concentrated growth by
itself does not produce the modal split goal of 19 percent, by
2010, for all home-to-work trips established by the 1989 RMP.
The estimated modal split for Case A falls in the 5-to-7 percent
range and for Case B in the 7-to-10 percent range. Case C yields an
estimated modal split in the 15-to-25 percent range. This suggests
that a multi-tiered transit system including intra-regional rail
(e.g., Metrolink), inter-urban bus service, and an intra-urban
Smart Shuttle Transit, has significant beneficial effects on
mobility and air quality. This demand-responsive multi-occupant
vehicle transportation system and fine tuning multiple-use
neighborhood development will retard private vehicle usage. The
Smart Shuttle Transit is also beneficial in the non-home-to-work
market in which it can reduce public expenditures and can create
sustainable employment and economic development opportunities. In
addition, a preliminary cost estimate revealed that the combined
capital and operating costs were competitive in comparison to
intra-urban rail transit.
Study conclusions emphasize the importance of land-use decisions
that complement proposed investments in the Metropolitan
Transportation System (MTS). Concentrated development and mixing
transportation-friendly land uses throughout the region will
increase pedestrian and bicycle access and potentially result in
VMT reduction due to local trip containment and consolidation. Many
motorized work- and non-work-related trips may be eliminated and
replaced by walking or cycling.17
The effect of such measures on vehicle trips and VMT reductions are
hard to model. Nevertheless, empirical evidence of the positive
effects of land-use on transportation abound.18 According to a
survey of existing studies results conducted by the California Air
Resources Board (ARB), mixed-use development and increased
densities can reduce 4-to-11 percent of a region's vehicle trips
and 20- to- 50 percent of site-specific trips. Ranges encompass
results obtained from application of different land-use measures in
diverse environments.
______________________________
17 The Urban Form study was revised to address comments received
at meetings of policy and technical advisory committees, and comments
of SANBAG, MTA, NRDC, ARB, City of Brea, and City of Simi Valley.
18 Calthorpe Associates, "Transit Oriented Development Design
Guidelines", 1992 for the City of San Diego. Holtzclaw/NRDC,
"Explaining Urban Density and Transit Impacts on Auto Use", 1990.
Local Government Commission, "Land Use Strategies for Livable Places",
1992. Transit/Residential Access Center, "Incentives for Trip
reduction Through Location of Housing Near Rail Transit Stations",
1991. Air Resources Board, "CCAA Guidance for the Development of
Indirect Source Control Programs", 1990.
LAND USE AS A MOBILITY STRATEGY
Approach
In addition to enhancing regional mobility, achieving clean air
standards, and reducing energy consumption, a land-use component of
the mobility strategy is expected to maximize access to the
transportation system and options to choose among travel modes. Land-
use decisions should also enhance economic development and help avoid
social polarization.
Local jurisdictions are instrumental in the decision-making process
regarding urban form and have the primary authority regarding land use
decisions. The proposed approach reflects the subregional and local
input to the 1994 Plan and Growth Management Element.
The general consensus that emerged from subregional plans19 ,
comments, and recommendations received is that land-use policies
should be part of a strategy to improve regional mobility. The
preferred approach to meet mobility, air quality, and sustainable
economic development is the small scale localized implementation of
land-use measures. This does not necessitate redirecting future
development regionwide, or massive concentration of new development
along transit stations and transit corridors.
Nevertheless, there remains a concern shared by some subregions
(SANBAG, WRCOG, Arroyo Verdugo, City of Los Angeles) that relying on
the small scale localized approach, on forecast distributions which
reflect most likely market trends and implementation of local policies
is not enough to achieve regional goals. It is also argued that this
approach would promote the status quo by allowing continued growth in
outlying areas which do not adequately provide employment, therefore
putting excessive strains on the transportation system. The inclusion
of policies in the Growth Management Element and 1994 Plan which
encourage promotion of more balanced growth, both at the local and
regional level, could help mitigate transportation and air quality
impacts of growth, reduce infrastructure costs, and contribute to
improvement of the region's quality of life and economic vitality.
This concern was discussed at meetings of SCAG's policy committees who
recognized the importance of regional guidance for the achievement of
balanced communities and suggested that an aggressive educational
strategy as well as a process and program to achieve regional goals
through land use actions be put in place. The public needs to be
informed about the mobility, air quality and quality of life benefits
of urban form policies. The committees also recommended the formation
of a subcommittee to explore the issue of promoting and implementing
balanced development. Recommendations of this subcommittee will be
incorporated in the Regional Mobility Strategy.
______________________________
19 This position reflects the growth management goals and policies
in the Arroyo Verdugo, San Gabriel Valley, VCOG and WRCOG subregional
plans, and comments and recommendations from Los Angeles City, CVAG,
SANBAG, ARB, NRDC, LA County/MTA, SCAQMD, California Environmental
Associates, and City of Simi Valley.
Local Implementation Tools
Changes to existing zoning, general plan amendments, and specific
plans that encourage concentrated, mixed-use, transit- and pedestrian-
oriented development are tools that can be used by local jurisdictions
to foster land-use policies, which, along with adequate Transportation
Demand Management (TDM) and Congestion Management Programs (CMP) and
non-motorized infrastructure, can reduce environmental and economic
costs of motorized trips.
Local actions to affect site-specific patterns of development
include allowing the combination of usually separated land uses
within a single development; increasing development density along
transit corridors and stations; clustering development to preserve
open space; achieving better jobs-housing balance at the micro-
scale; and a better match between the types of jobs and the price
of housing. Such actions can be carried out through local
jurisdictions' regulatory powers. The City of Los Angeles' "Land
Use/Transportation Policy" approved by the City Council in November
of 1993 provides examples of local actions.
Design standards improvement actions are another category that
could affect urban form at the local level. These include the
provision of physical features that encourage transit use, cut the
need for cold starts, and encourage pedestrian and bicycle travel.
Amenities such as bus shelters and bus pullouts to improve transit,
physical improvements that support pedestrian traffic, the
construction of bike lanes and provision of secure bike racks, and
parking arrangements that facilitate ride sharing can help achieve
the vehicle trip reduction goals.
Local land-use policies that foster mixed- and higher-density uses
should target both work and non-work trips. It should also be
recognized that localized changes in urban form are incremental,
and their resulting impacts on mode split and congestion are long-
range, not likely to be felt until after 2010 and 2015.
Supporting Regional Policies
The following policies in the Growth Management Component support
goals and objectives of this proposed land-use component of the
RME:
- The timing, financing, and location of public facilities,
utility systems, and transportation systems shall be used by
SCAG to implement the region's growth policies.
- SCAG shall encourage patterns of urban development and land uses
that reduce costs on infrastructure construction and make better
use of existing facilities.
- SCAG shall support and encourage settlement patterns that
contain a range of urban densities.
- SCAG shall support provisions and incentives created by local
jurisdictions to attract housing growth in job-rich subregions
and job growth in housing-rich subregions.
- SCAG shall encourage local jurisdictions' efforts to achieve a
balance between the types of jobs they seek to attract and
housing prices.
- SCAG shall encourage existing or proposed local jurisdictions
programs aimed at designing land uses that encourage the use of
transit and, thus, reduce the need for roadway expansion, reduce
the number of auto trips and VMT, and create opportunities for
residents to walk and bike.
- SCAG shall encourage local jurisdictions' plans that maximize
the use of existing urbanized areas accessible to transit
through infill and redevelopment.
- SCAG shall support local plans to increase density of future
development located at strategic points along the regional
commuter rail, transit systems, and activity centers.
- SCAG shall support local jurisdictions strategies to establish
mixed-use clusters and other transit-oriented developments
around transit stations and along transit corridors.
- SCAG shall encourage developments in and around activity
centers, transportation corridors, under-utilized infrastructure
systems, and areas needing recycling and redevelopment.
The highest priority should be assigned to projects and programs
designed to maximize the effectiveness of alternatives to solo
driving. SCAG, having the responsibility to determine
transportation system conformity, could use this technique to
ensure implementation of coordinated land-use and transportation
policies. Communities that demonstrate a commitment to adopt zoning
and approve development consistent with proposed transportation
projects would be given priority in funding.
CHAPTER
FOURTEEN REGIONAL ACTION PROGRAM
INTRODUCTION
This chapter summarizes, in table form, the recommendations
contained in the previous chapters of the Regional Mobility
Element. These recommendations are based on discussions with county
transportation commissions and local governments, dialogue at SCAG
working group meetings, and subregional input.
A more detailed discussion of the recommendations listed in the
following tables can be found in the referenced chapters.
The action program includes actions from the following chapters:
Chapter Three, Regional TDM Program; Chapter Four, Regional Transit
Program; Chapter Five, Regional Streets & Highways Program; Chapter
Six, Regional Non-Motorized Transportation Program; Chapter Seven,
Regional Goods Movement Program; Chapter Eight, Regional Aviation
System Program; and Chapter Nine, Long Range Corridors. It is
important to note that the CIPs of the SCAG Region Congestion
Management Programs (CMPs) were found to be consistent with the
1989 Plan. As such, the CIPs were incorporated into the Regional
Action Program, as provided for under CMP statute.
CHAPTER THREE
RECOMMENDED REGIONAL TRANSPORTATION DEMAND MANAGEMENT PROGRAM
TABLE 14-3
TDM: SHORT/LONG-RANGE
PROGRAM (7/20 YEAR PROGRAM)
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Click HERE for graphic.
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CHAPTER FOUR
RECOMMENDED REGIONAL TRANSIT (BUS AND RAIL) PROGRAM
TABLE 14-4(A)
SHORT RANGE PROGRAM
Click HERE for graphic.
TABLE 14-4(B)
LONG RANGE BUS AND RAIL PROGRAM
Click HERE for graphic.
CHAPTER FIVE
RECOMMENDED REGIONAL STREETS AND
HIGHWAYS PROGRAM
TABLE 14-5A
TOTAL MIXED-FLOW & HOV LANE
MILES TO BE ADDED BY COUNTY 1990 - 2015
Click HERE for graphic.
Source: 1994 Plan
Note: Includes new facilities, widening of existing facilities and
toll roads.
Proposed is defined as open and operational within the given time
frame.
TABLE 14-5B
PROPOSED CAPACITY EXPANSIONS BY IMPROVEMENT TYPE
1990-2015
Click HERE for graphic.
Source: 1994 Plan
Long-range Freeway-Based HOV Expansion -- HOV expansion is
recommended on portions of the Interstates 5, 10, 15, 215, and
Route 101 beyond 2010.
Transportation System Management
System management improvements such as freeway ramp metering,
installation of changeable message signs, and construction of park-
and-ride lots along transit corridors are recommended.
Local Streets and Roads Improvements
The projects that specifically pertain to the local streets and
roadways in the CMP CIPs are recommended as the local streets and
roads improvements. Table 14-5(C) is a summary of the seven-year
CIP projects of the 1992 CMPs by the type of improvements as
related to both regional highways and streets, and to local streets
only.
TABLE 14-5(C)
SUMMARY OF CMP CIP PROJECTS
Click HERE for graphic.
Sources: 1. San Bernardino Associated Governments, Congestion
Management Program for San Bernardino County, November,
1992
2. Los Angeles County Metropolitan Transportation Authority,
Congestion Management Program for Los Angeles County, December,
1992
3. Riverside County Transportation Commission, Congestion
Management Program for Riverside County, December, 1992
4. Orange County Transportation Authority, Congestion Management
Program for Orange County, December, 1992
5. Ventura County Transportation Commission, Congestion
Management Program for Ventura County, December, 1992
TABLE 14-5(D)
ARTERIAL HOV CANDIDATE CORRIDORS
Click HERE for graphic.
Note: Corridors have been identified for modeling purposes and to
determine their potnetial in improving mobility
POTENTIAL SMART CORRIDORS
Los Angeles and Orange County potential Smart Streets Corridors are
identified for the purpose of providing cost effective methods in
reducing congestion.
TABLE 14-5(E)
LOS ANGELES COUNTY
POTENTIAL SMART CORRIDORS
Click HERE for graphic.
Source: Statewide Smart Corridor Study
TABLE 14-5(F)
ORANGE COUNTY
POTENTIAL SMART CORRIDORS
Click HERE for graphic.
Source: Statewide Smart Corridor Study
Safety and Accident/Incident Management
Caltrans, the county transportation commissions, and the California
Highway Patrol (CHP) currently employ various incident management
programs. Mechanisms that allow for recovering the costs of
incident/accident clean-up through incentive fees should also be
examined. A study should be done to quantify and evaluate the
impacts of accidents and incidents on the region's roadways.
Mechanisms that address the accident/incident cost recovery should
be investigated for possible implementation.
CHAPTER SIX
REGIONAL NON-MOTORIZED TRANSPORTATION PROGRAM
TABLE 14-6
NON-MOTORIZED ACTION PROGRAM
Click HERE for graphic.
Click HERE for graphic.
CHAPTER SEVEN
REGIONAL GOODS MOVEMENT ACTION PROGRAM20
TABLE 14-7(A)
SHORT-RANGE GOODS MOVEMENT ACTION PROGRAMS
Click HERE for graphic.
______________________________
20 Passage of the ISTEA resulted in funding for projects
benefitting goods movement activities in the SCAG region. These
projects are funded out of Urban Access and Mobility, Innovative, and
Intermodal categories, and have been incorporated by reference into
the 1993 RME.
TABLE 14-7(B)
LONG-RANGE GOODS MOVEMENT PROGRAMS
Click HERE for graphic.
CHAPTER EIGHT
RECOMMENDED REGIONAL AVIATION SYSTEM PROGRAM
TABLE 14-8(A)
SHORT RANGE AVIATION PROGRAM
Click HERE for graphic.
TABLE 14-8(B)
LONG RANGE AVIATION PROGRAM
Click HERE for graphic.
CHAPTER NINE
RECOMMENDED LONG RANGE CORRIDORS
TABLE 14-9(A)
SHORT RANGE:
Click HERE for graphic.
TABLE 14-9(B)
LONG RANGE:
Click HERE for graphic.
APPENDIX A PLAN AMENDMENT PROCESS
The RME is a long-range, 20-year planning document. It is clearly
recognized that the RME is prepared in a dynamic environment involving
population, housing, employment, land-use forecasts, and technological
change. Revenue streams may become available or may be discontinued.
Cost assumptions may need to be adjusted. Therefore, it is necessary
to understand that even though decision-makers fully anticipate and
are committed to the implementation of the RME, amendments to an RME
may be necessary from time to time.
The RME is prepared in accordance with state and federal requirements.
Both the federal and state requirements recognize that the plan must
be reviewed for efficacy every two or three years and require that a
"new" plan be prepared or that the existing plan be revised.
Historically, SCAG has prepared a "new" RME approximately every four
years (with an environmental impact statement) and annual or biannual
recertifications which include minor ammendemnts with a"negative
declaration" to meet environmental requirements.
The Clean Air Act Amendments of 1990 and the ISTEA of 1991 have added
a new requirement to the metropolitan transportation planning process.
The RME must be prepared in conformity with the State Implementation
Plan (SIP) for air quality with regard to the appropriate air basins.
A new conformity statement must also be prepared whenever the RME or
the TIP is amended.21
Recognizing the need for amendments, SCAG will commit to at least one
major amendment, if needed, every two years between plan adoption
dates. This includes preparation for the conformity statement. Plan
amendments that do not require preparation of a conformity statement
may be prepared more frequently.
______________________________
21 If amendments to the Plan or Program do not affect air quality,
a new conformity statement may not be required. However, this is not
clearly stated in federal statutes, and it may be necessary to prepare
a conformity report no matter how minor the amendment to the Plan or
Program may be.
APPENDIX B ISTEA PLANNING FACTORS AND CONFORMITY REPORT
TABLE
REQUIRED ISTEA PLANNING FACTORS
Click HERE for graphic.
Click HERE for graphic.
APPENDIX C STATUS OF TSM ACTIONS
RECOMMENDED IN THE 1989 RMP
Click HERE for graphic.
Click HERE for graphic.
APPENDIX D: SUMMARY OF PERFORMANCE
INDICATORS FOR RME MODELING ALTERNATIVES FOR 1990 AND 2015
Click HERE for graphic.
______________________________
22Total person trips include trips to be eliminated through
telecommuting, working at home, and non-motorized transportation.
23 Adjusted person trips exclude trips for telecommuting, working
at home, and non-motorized transportation.
24 Home-based-work trips included home-based-work trips eliminated
through telecommuting, working at home, and non-motorized
transportation.
25 Home-based-work trips exclude trips for telecommuting, working
at home, and non-motorized transportation.
26 Home-base-work (HBW) Average Vehicle Occupancy (AVO) is the
ratio of HBW person trips taken by passenger vehicles to HBW vehicle
trips. Person trips included are those trips that are taken by
passenger vehicles (solo and carpool). Therefore, trips that are
reduced through transit, non-motorized (walking and bicycle)
transportation, working at home, and telecommuting do not impact AVO.
The AVO calculation is consistent with federal, state and SCAQMD
methodologies.
27 Home-based-work Average Vehicle Ridership (AVR) is the ratio of
HBW total person trips taken by all modes or eliminated through
working at home and telecommuting to HBW vehicle trips. Trip
reductions through transit, non-motorized transportation, and trip
elimination through telecommuting and working at home contribute to an
increase in the AVR. AVR calculation is consistent with California Air
Resources Board and South Coast Air Quality Management District
(SCAQMD) methodologies (see AVR/AVO calculation chart).
28 AVR for all trips is calculated the same way the HBW.AVR is
calculated except in this case all trips purposes are included.
Click HERE for graphic.
______________________________
29 Trip tables for the model runs were adjusted to reflect 2.5% of
total person trips reduction through non-motorized transportation
(walking, bicycle).
30 Total commute trips exclude trips for telecommuting, working at
home, and non-motorized transportation.
31 Adjusted total commute trips include trips to be eliminated for
telecommuting, working at home, and non-motorized transportation.
11 The percentage is based on total HBW trips without trips
reduced for telecommuting, working at home, and non-motorized
transportation.
12 The percentage is based on total HBW trips with trips
eliminated through telecommuting, working at home, and non-motorized
transportation.
Click HERE for graphic.
______________________________
13 Based on modeled areas population which include Los Angeles
County, Orange County, non-desert portion of San Bernardino County and
Riverside County, Ventura County, Coachella Valley, and Victor Valley.
14 Based on modeled areas population which include Los Angeles
County, Orange County, non-desert portion of San Bernardino and
Riverside County, Ventura County, Coachella Valley, and Victory
Valley.
AVERAGE VEHICLE OCCUPANCY (AVO)
AND AVERAGE VEHICLE RIDERSHIP (AVR) CALCULATIONS
Click HERE for graphic.
AVO = [(X1+X2+X3+X4)] / [(X1+X2+X3/2+X4/3.3)]
AVR = [SUM(X1..X10] / [(X1+X2+X3/2+X4/3.3)]
APPENDIX E SOCIOECONOMIC FORECAST AND MODELING PARAMETERS
This appendix describes, by indicator, the policy and technical
assumptions/directions for the travel demand forecast model runs
reflecting the 94 Regional Mobility Element's (RME) plan alternative
for the years 2000, 2010 and 2015. The same information for the RME ,
the Regional Transportation Plan, Baseline runs, which were prepared
for Conformity finding purposes, are shown in italics.
1. Purpose
The 94 RME Plan is to achieve better results than the Draft
Regional Mobility Element (December 1993) Alternatives, Constrained
(Plan 2A) or Innovative (Plan 2B), and uses market incentive funds
to pay for Advanced Transportation Technology, based on principles
of performance, benefit, and equities.
2. Facilities Networks
A. Highway Network
2000 Plan - The RTIP '93-99 Amendment 2000 Build Highway and HOV
Networks were utilized.
2000 Baseline = RTIP '93-99 Amendment 2000 No Build (Includes
projects under construction and with complete environmental
impact. Does not include mixed flow projects.)
2010 Plan - The revised Current Local Plan Network, reflecting
recent Caltrans and County Transportation Commission
corrections was used for this model run.
Arterial HOV/bus preemption in Los Angeles City was also included,
as in the HOV arterial/bus preemption in the Innovative network.
2010 Baseline = RTIP '93-99 Amendment 2010 No Build (Includes
projects under construction and with complete environmental
impact. Does not include mixed flow projects.)
2015 Plan - The revised Current Local Plan Network,
reflecting recent Caltrans and County
corrections, was used as the starting
point for this model run, with the
additional HOV facilities identified for
the 2010-2015 time frame by SCAG staff
added.
Arterial HOV/bus preemption in Los Angeles City was also included,
as in the HOV arterial/bus preemption in the Innovative network.
2015 Baseline = RTIP '93-99 Amendment 2010 No Build (Includes
projects under consideration and with complete environmental
impact. Does not include mixed flow projects.)
B. Transit Network
2000 Plan - The RTIP '93-99 Amendment 2000 Transit Build Network
was used.
2000 Base Line = RTIP '93-99 Amendment 2000 Transit No Build
(Includes projects under consideration and with complete
environmental impact. Does not include mixed flow projects.)
2010 Plan - The Transit network included the currently planned
rail and bus systems, with enhanced bus service.
This change was expected to result in a home-to-work
regional transit mode split approaching 15%, more
than the 10-14% transit mode split in the December
RME runs, to reflect the predicted effectiveness of
the Smart Shuttles; see also Number 4 below, "3rd
Tier Transit (Smart Shuttle)". In the model
network, this improved level of transit service was
reflected by combining components of three previous
transit networks: (1) the Current Local Plans Rail
Transit network [corrections as of 2/7/94], with (2)
the Package 5 Sensitivity Run Bus Transit Network,
which included additional express bus lines and 10
minute headways for the region, without being
specific to corridors, and (3) the Innovative Plan
(Plan 2B) level of jitney service to transit
stations and other activity centers. This
methodology for the Smart Shuttles allowed that
service to be applied to both work and non-work
trips. The other route-specific changes that were
made to this hybrid transit network were the
following:
1. Add to Metrolink the following stations for 2010:
Camarillo and Santa Clarita, Palmdale-Lancaster (post-
earthquake improvements).
2010 Base Line = RTIP '93-99 Amendment Transit 2010 No Build
(Includes projects under consideration and with complete
environmental impact. Does not include mixed flow projects.)
2015 Plan - The 2015 Transit network also included the currently
planned rail and bus systems, with enhanced bus
service to reflect the Smart Shuttle service, in the
same manner as for 2010 by combining components of
three previous transit networks: (1) the Current
Local Plans Rail Transit network [corrections as of
2/7/94], with (2) the Package 5 Sensitivity Run Bus
Transit Network, which included additional express
bus lines and 10 minute headways for the region,
without being specific to corridors, and (3) the
Innovative Plan (Plan 2B) level of jitney service to
transit stations and other activity centers. The
additional other route-specific changes that were
made to this hybrid transit network were the
following:
1. Green Line extension from El Segundo to Torrance
2. Red Line extension from I-405 to Canoga Park (Warner
Center)
3. Green Line extension from Westchester to Marina Del Rey
4. Urban Rail line in the 10/60 Corridor, extending east
from LAUPT to Rosemead
2015 Baseline = RTIP '93-99 Amendment Transit 2010 No Build.
(Includes projects under consideration and with complete
environmental impact. Does not include mixed flow projects.)
3. Land Use/Socio-economic Data (SED)
The 4/01/94 SED was utilized for the 2000, 2010 and 2015 Plan and
Baseline.
4. 3rd Tier Transit (Smart Shuttles)
2000 Plan - No Third Tier transit
2010 & 2015 Plan Third Tier transit was modeled through the
special transit links to transit stations and
activity centers and the region-wide 10-minute
bus headways, as discussed above under transit
networks.
Baseline 2000, 2010 and 2015 = No Third Tier transit in any
year.
5 Transportation Demand Management (TDM)
2000, 2010 & 2015 Plan and Baseline (same assumptions)
The model runs reflect the impact of the Katz Parking Cash Out
program and the Federal Energy Bill Transit subsidy was utilized.
This was modeled as a $30/person/month transit fare and carpool
subsidy.
6. Reg XV (South Coast Air Basin)/Rule 210 (Ventura County)
The approach utilized to Model Reg XV and Rule 210 was to simulate
the impact of employer transportation demand management programs
through pricing in the SCAG mode split model. This was done by
varying the parking cost variable in each Traffic Analysis Zone
(TAZ) to obtain an auto operating cost that would produce a
resultant Average Vehicle Ridership (AVR) reflective of the
anticipated effectiveness of Reg XV and Rule 210 as follows:
2000 Plan - 60% effectiveness
2000 Baseline = same (60%)
2010 Plan - 80% effectiveness
2010 Baseline = same (80%)
2015 Plan - 80% effectiveness
2015 Baseline = same (80%)
7. Non-Motorized Transportation
2000, 2010 & 2015 Plan and Baseline (same assumptions)
1% of all trips were eliminated from the total person trip table to
reflect that 3.5% of these trips will be made by non-motorized
transportation (walk or bicycle). The existing model assumes 2.5%
non-motorized transportation for 1990.
8. Work at Home
2000, 2010, & 2015 Plan and Baseline (same assumptions)
4.1% of all trips were eliminated from the home-to-work person trip
table to reflect that these people will work at home on a daily
basis. This is the same assumption included in all the previous
RME model runs for 2010 for all alternatives.
9. Telecommute
2000 Plan - 2.7% of all trips were eliminated from the home-to-work
person trip table to reflect that more people will
occasionally work at home by telecommuting in the
future. This is the same assumption as previously used
in RTIP model runs.
2000 Baseline = 2.7%
2010 & 2015 Plan
6.3% of all trips were eliminated from the home-to-work person trip
table to reflect that more people will occasionally work at home by
telecommuting in the future.
2010 and 2015 Baseline = 2.7% for 2010 and 2015
10. Pricing - Market Incentives
2000 Plan - No market incentives were assumed to be in place by
2000.
2000 Baseline = No market incentives.
2010 & 2015 Plan
Vehicle operating costs were adjusted in the mode split model
to reflect the VMT emissions fee included in the Plan.
2010 & 2015 Baseline = No market incentives in 2010 and 2015.
11. Funding
The funding levels reflected in the RME Proposed Plan reflect
Reasonably Available Funds plus Innovative Funds, in particular,
the Market Incentive Transportation Investment Fund.
Advanced Transportation Technology
12. ATT - Mobility
2000 Plan and Baseline -
The impacts of ATT/IVHS on the operations of the highway network
were modeled in the same way they were in the RTIP '93-99
Amendment 2000 model run:
- 2.5% increase in freeway per-lane capacity
2010 Plan and Baseline -
The impacts of ATT/IVHS on the operations of the highway network
were modeled as:
- 5% increase in freeway per-lane capacity
2015 Plan -
The impacts of ATT/IVHS on the operations of the highway network
were modeled as:
- 10% increase in freeway per-lane capacity
- 5% increase in arterial per-lane capacity
2015 Baseline = 5% increase in freeway capacity only
13. ATT - Air Quality
2000 Plan - A set of EMFAC curves reflecting the following mix of
vehicles was used to calculate emissions:
- 10% ZEV in 2000
- 0% Alternate Fuels because EMFAC 7F1.1 can only represent
ZEV and not alternative fuels. The SCAQMD is representing
alternative fuels in the air shed model.
2000 Baseline = 2% ZEV
2010 Plan - A set of EMFAC 7F1.1 curves reflecting the following
mix of vehicles was used to calculate emissions:
- 50% ZEV in 2010
- 0% Alternate Fuels because EMFAC 7F1.1 can only represent
ZEV and not alternative fuels. The SCAQMD is representing
alternative fuels in the air shed model.
2010 Baseline = 10% ZEV
2015 Plan - A set of EMFAC 7F1.1 curves reflecting the following
mix of vehicles was used to calculate emissions:
- 60% ZEV in 2015
- 0% Alternate Fuels because EMFAC 7F1.1 can only represent
ZEV and not alternative fuels. The SCAQMD is representing
alternative fuels in the air shed model.
2015 Baseline = 10% ZEV
14. Peak Period
2000, 2010 & 2015 Plan and Baseline (same assumptions)
The peak period was the same as utilized in all of the previous RME
model runs: 3 hour AM peak and 4 hour PM peak.
APPENDIX F FINANCIAL ASSUMPTIONS
Long-range regional transportation financial planning can be useful in
providing decision-makers and the public with estimates of
expectations. Unfortunately, while the projections can be fairly
accurate over the short term, as the life time of the forecasts are
extended, the projections are subject to more and more assumptions.
In developing the Financial Program for the 1994 Regional Mobility
Element, the following assumptions were made (those associated with
traditional costs and revenues were discussed with the TCC Task Force
on RME Finance):
- Revenue projections were developed by existing Federal, State,
and Local Programs (e.g. ISTEA-Surface Transportation Program,
ISTEA-FTA Section 9, Local-Transportation Development Act, etc.)
- Federal programs funded under the Intermodal Surface
Transportation Efficiency Act of 1991 were assumed to be renewed
at the same level following expiration of ISTEA (September 30,
1997). There was no adjustment made for increasing any of the
federal programs reflecting inflation nor decreasing any of the
programs due to federal deficit reduction programs.
- Revenues provided by the Federal Government were aggregated and
divided to each SCAG county using the North/South split-County
Minimum formulas unless there were specific provisions in either
Federal or State law requiring different allocation formulas.
- State Programs were assumed at the levels provided by the 1992
Fund Estimate. It is assumed that during the life of the Plan,
the state programs will be made whole by further action of the
Legislature. State revenues were divided to each County per the
North/South split-County Minimum formulas unless there were
different statutory provisions.
- Discretionary funding programs were assumed to continue. It was
further assumed that discretionary funding would be at
approximately the same levels for the lifetime of the plan as
during the FY 1991-1994 period.
- Growth in local revenues generated by sales tax measures (Local
Transportation Funds, Local 1/2 cent sales tax measures) was
assumed to reflect both population and income level changes.
- Local 1/2 cent sales tax measures were assumed to be extended
through 2015 (Imperial, Orange, Riverside, and San Bernardino
Counties). Los Angeles County measures do not expire. Ventura
County does not have a sales tax measure.
- It is anticipated that motor vehicle fuel taxes collected under
current law will decline over time as both use of alternative
fuels and greater fuel efficiencies take place. To account for
this decline, state revenues were reduced by 25%.
- Costs for projects were provided, as available, by County
Transportation Commissions. If CTC figures were not available,
SCAG staff extended known figures forward.
- All costs and revenues are expressed in 1995 dollars.
- In calculating estimates for advanced technology, only public
sector (subsidy) costs were considered.
- It was assumed that in 2010, ZEVs (Electric Vehicles) would
command a 30% market share of new vehicles. Subsidy costs would
range from $2,500 to $4,000 per vehicle in the early years of
the program when fewer vehicles were sold with the subsidy
phased out in 2010, when approximately 360,000 units per year
would be sold. For the plan period, the subsidy costs range
from approximately $1.9 to $4.9 billion.
- It was assumed that in 2010, Alternative Fuel Vehicles would
command a 34% market share in 2010. Subsidy costs would begin
between $750 to $1,500 per vehicle in the early years of the
program when fewer vehicles were sold with the subsidy phased
out in either 2005 or 2010. For the plan period, the subsidy
costs range from approximately $622 million to $2.1 billion.
- Intelligent Vehicle Highway System (IVHS) public costs total
between $2.5 and $4.5 billion for the Plan period.
- There are no public sector subsidy costs for telecommunications.
- In developing the Smart Shuttle or Performance-Based Transit
Costs, it was assumed that ridership would reach approximately
one million per work day in 2015 with service beginning in 1996.
Each trip would be subsidized at between $2.50 to $5.00 per
trip. Costs range from approximately $9.0 billion to $17.3
billion over the life of the plan with the costs increasing over
time as ridership increases.
- Estimated Market Incentive Revenues based on the VMT/Emissions
Registration fee assumed 12,000 annual miles per vehicle. 5,000
miles per vehicle was assumed to be free of any assessment.
(The 5,000 mile figure was used for mathematical purposes to
achieve equity. Other factors such as geography, income, or
commercial needs can be considered in constructing the specific
program.)
APPENDIX G GLOSSARY OF TERMS
accessibility
A measure of the ability or ease of all people to travel among
various origins and destinations.
action
A specific activity to be undertaken as a step toward achieving a
particular policy/goal.
airport ground access
Facilities and services for air passengers and air freight handlers
to reach airport terminals, e.g., highways, public transit, taxi,
or other means of ground transportation.
AQMP
Air Quality Management Plan
ARB
Air Resources Board
AVO
average vehicle occupancy
AVR
average vehicle ridership
bikeway
Any road, street, path, or right-of-way that is specifically
designated in some manner as being open to bicycle travel,
regardless of whether such facilities are designated for the
exclusive use of bicycles or are to be shared with other vehicles
or pedestrians.
busway
A special roadway designed for exclusive use by buses. It may be
constructed at, above, or below grade and may be located in
separate rights-of-way or within highway corridors.
bypass lane
A reserved traffic lane on a metered freeway entry ramp which
permits buses or high-occupancy-vehicles to have preferential
treatment when entering the freeway.
CBD
central business district
CCTV
Closed Circuit Television
CEQA
California Environmental Quality Act
CLP
Current Local Plan
CMS
Congestion Management System
COG
council of governments
CPI
consumer price index
CTC
California Transportation Commission
CVAG
Coachella Valley Association of Governments
Caltrans
California Department of Transportation
capital costs
Nonrecurring or infrequently recurring costs of long-term assets,
such as land, guideways, stations, buildings, and vehicles. These
costs often include related expenses, for example, depreciation and
property taxes. See also operating costs.
carpool
An arrangement in which two or more people share the use, cost, or
both of traveling in privately owned automobiles between fixed
points on a regular basis; see also vanpool.
carpool lane
A highway or street lane intended primarily for carpools, vanpools,
and other high-occupancy-vehicles, either all day or during
specified periods. It may be used by other traffic under certain
circumstances, such as while making a right turn.
Centers-Based Transit Network
A multimodal transit system that connects regional activity centers
with their surrounding communities, sub-regional areas, and
Southern California as a whole.
commercial aviation
Aircraft activity licenses by state or federal authority to
transport passengers and/or cargo for hire on a scheduled or
nonscheduled basis.
commuter rail service
Short-haul rail passenger service operated within metropolitan and
suburban areas.
commuter service
Transportation provided on a regularly scheduled basis during peak
travel periods for users commuting to work, school, and similar
destinations.
Commuter Transportation
Nonprofit corporation which provides information
Service (Commuter Computer) and marketing services to aid the
formation of ridesharing.
congestion
Traffic conditions on roads, highways, or freeways which do not
permit movement on the facility at optimal legal speeds.
Characterized by unstable traffic flows. Recurrent congestion is
caused by excess volume capacity. Nonrecurrent congestion is caused
by actions such as special events and/or traffic accidents.
Congestion Management Program(s)
A state mandated program for counties containing
(CMP) urbanized areas to provide for statutorily specified
programs to reduce traffic congestion.
commute
Regular travel between home and a fixed location (e.g., work,
school).
corridor
In planning, a broad geographical band that follows a general
directional flow or connects major sources of trips. It may
contain a number of streets and highways and transit lines and
routes.
demand
1. The quantity (of transportation) desired. 2. In an economic
sense, a schedule of the quantities (of travel) consumed at various
levels of price or levels of service offered (by the transportation
system).
discretionary funds
Any funds whose distribution is not automatic. Decisions on the
distribution of discretionary funds are usually made by an agency
or person on the basis of that agency's or person's choice or
judgment and in accordance with criteria set out in laws or
regulations.
EIR
Environmental Impact Report
EPA
Environmental Protection Agency
employment centers
Locations having a concentration of jobs or employment. Centers may
vary in size and density, serving subregional or local markets,
generally meeting the needs of the immediate population.
equity
In transportation, a normative measure of fairness among
transportation users.
express bus service
Bus service with a limited number of stops, either from a collector
area directly to a specific destination or in a particular corridor
with stops en-route at major transfer points or activity centers.
Express bus service usually uses freeways or busways where they are
available.
expressway
A divided arterial highway for through traffic. An expressway has
full or partial control of access and generally has grade
separations at major intersections.
FTA
Federal Transportation Authority (formally Urban Mass
Transportation Administration - UMTA)
facility
A physical structure allowing a transportation mode to operate
(including travel, as well as the discharge and loading of
passengers). This includes highways, guideways, terminals and
administrative support locations.
feeder service
1. Local transportation service that provides passengers with
connections with a major transportation service. 2. Local transit
service that provides passengers with connections to main-line
arterial service; an express transit service station; a rail rapid
transit, commuter rail, or intercity rail station; or an express
bus stop or terminal.
fixed cost
A cost that remains relatively constant irrespective of the level
of operational activity; expenditures that do not vary with output.
Examples include land, guideways, rent.
fixed route transit
Regularly scheduled service operating repeatedly over the same
street or highway pattern on a determined schedule.
flexible work hours or A work schedule in which employees can
schedule the flextime
required number of work hours as they wish. It differs from
staggered work hours in that it is the employee, not the employer,
who sets the starting and ending times.
general aviation
All aircraft which are not commercial or military aircraft.
grade crossing
A crossing or intersection of highways, railroad tracks, other
guideways, or pedestrian walks, or combinations of these at the
same level or grade.
guideway
In transit systems, a track or other riding surface (including
supporting structure) that supports and physically guides transit
vehicles especially designed to travel exclusively on it.
high capacity transit
Transit systems operating, in whole or part, on a fixed guideway,
dedicated right-of-way or freeway/express facility using a service
configuration with the capability to provide a unit capacity of
15,000 or more trips per hour.
High-Occupancy-Vehicle (HOV)
Motor vehicle occupied by two or more persons. Vehicles include
automobiles, vans, buses, and taxis.
High-Occupancy-Vehicle Lane
Lanes on a highway or freeway which are restricted for use by
vehicles carrying two or more passengers with the exception of
motorcycles.
high-speed rail
Passenger rail service with operating speeds in excess of 125 miles
per hour and limited stops (e.g., Japanese Bullet Trains, French
TGV and experimental maglev systems).
hub-and-spoke (radial)
Transit routes that radiate outward from and return to a designated
area/transit facility on a time singly or multi-pulse. Service may
be bi-directional or operate uni-directional using a street couplet
configuration. Radial routes may be inter-connected to form a
through configuration and reduce transfers required on high demand
routes. Inter-route transfers are accommodated at a transit
facility or designated transfer area. Multi-pulses are often off
set to assure inter-route transfers or to mitigate physical space
restraints.
incentives
Measures designed to encourage certain actions or behavior. These
include inducements for the use of carpools, buses and other high-
occupancy vehicles in place of single-occupant automobile travel.
Examples include HOV lanes, preferential parking and financial
incentives.
infrastructure
The basic facilities, equipment, services, and installations needed
for the growth and functioning of a community.
intermodal
Between or including more than one means of mode of transportation.
Intermodal Surface Signed into federal law on December 18, 1991, it
provides Transportation Efficiency authorizations for highways,
highway safety, and mass Act (ISTEA)
transportation for the next 6 years and serves as the basis of
federal surface transportation programs.
intersecting grid
Transit routes, usually bi-directional, provided on parallel
streets and arterials in east/west and north south/configurations.
Boards/alights only at designated stops with transfers accommodated
at route intersection points.
intra-regional service
A multi-modal transit service, regional in orientation, connecting
major transportation facilities in two or more subregional areas
through the use of high and medium capacity transit, operating in
whole or part, on fixed guideways, dedicated right-of-ways or
freeway/express applications.
LRT
Light rail transit
Level of Service (LOS)
A measure of the congested level on a highway facility based
primarily on the comparison between the facility's capacity and the
traffic volume it carries. Increasing levels of congestion are
designated along a scale from A to F where A is for best operation
(low volume, high speed), and F is for worst conditions.
line-haul transit
Transit operations (generally express) along a single corridor or
variety of corridors.
local service
Transit service oriented toward the access, egress and distribution
within a specific regional activity center, its component transit
attractor/generators, with a service focused on local Transit Hubs,
Park-N-Ride and/or Multi-modal Station Facilities. Services
operated may include fixed route, para-transit and private-for-hire
in both traditional and non-traditional applications.
low-capacity transit
Local fixed-route or para-transit using traditional route
configurations, delayed/real-time dispatch service operating on
major/minor arterial and local streets. Levels of service may vary
substantially by time of day/season of the year with a unit
capacity which does not usually exceed 3000 trips per hour.
MPO
Metropolitan Planning Organization.
medium-capacity transit
Transit system operating on a fixed guideway, dedicated right-of-
way or freeway/express facility using a service configuration with
the capability to provide a unit capacity of 3000-15000 trips per
hour.
mixed flow
Traffic movement having autos, trucks, buses, and motorcycles
sharing traffic lanes.
mobility
A transportation system user characteristic referring to the
ability of the user to take advantage of the available
transportation service.
mode
A particular form of travel (e.g., walking, traveling by
automobile, traveling by bus, or traveling by train).
model
A mathematical description of a real-life situation that uses data
on past and present conditions to make a projection about the
future.
mode split
The proportion of total person-trips using various specified modes
of transportation.
multimodal
Concerning or involving more than one transportation mode.
multi-modal station
A developed station facility on a designated rail line designed to
accommodate user access, egress and distribution between
transportation modes (primarily local bus/rail/auto) and the intra-
regional/subregional services components. Substantial passenger
amenities, user information services and access to other
transportation facilities may be provided on site, through shuttles
or by walk links to adjacent areas.
NPTS
Nationwide Personal Transportation Survey
needs assessment
In transportation planning, a technique of estimating the services
and facilities needed to satisfy the potential demand for
transportation service.
network
1. In planning, a system of links and nodes that describes a
transportation system. 2. In highway engineering, the configuration
of highways that constitutes the total system. 3. In transit
operations, a system of transit lines or routes, usually designed
for coordinated operation.
operating costs
The sum of all recurring costs (e.g., labor, fuel) that can be
associated with the operation and maintenance of the system during
the period under consideration.
operator
Agency responsible for providing a service or operating a facility.
(e.g., MTA is a transit operator, Caltrans is the operator of the
State Highway System).
origin-destination study
A study of the origins and destinations of the trips of vehicles or
travelers. It may also include trip purposes and frequencies.
para-transit (demand response)
Public or privately operated, regularly or dispatched on demand
(delayed or real-time) providing "curb to destination" transit
service. Normally used in specialized applications with user
eligibility limitations (e.g., elderly and/or handicapped) or where
demand is not sufficient to support fixed route service.
park and ride
An access mode to transit in which patrons drive private
automobiles or ride bicycles to a transit station, stop, or
carpool/vanpool waiting area and park the vehicle in the area
provided for that purpose (park-and-ride lots, park-and-pool lots,
commuter parking lots, bicycle rack or locker). They then ride the
transit system or take a car-or vanpool to their destinations.
peak period
1. The period during which the maximum amount of travel occurs. It
may be specified as the morning (a.m.) or afternoon or evening
(p.m.) peak. 2. The period when demand for transportation service
is heaviest.
performance indicator
(Measure of effectiveness) -- A quantitative measure of how well an
activity, task, or function is being performed. In transportation
systems, it is usually computed by relating a measure of service
output or use to a measure of service input or cost.
person trip
A trip made by a person by any mode or combination of modes for any
purpose.
pricing
A strategy for charging users. It may be used to ration demand
(change behavior), cover costs, or achieve other policy objectives.
private-for-hire
Privately operated common carrier or contract service (e.g., taxi-
cabs, jitneys, private shuttles, subscription bus or van services).
privatization
The contracting of public services or selling of public assets to
private industry.
public transportation
Transportation service by bus, rail, para-transit, van, airplane,
and ship offered by an operator on a regular basis to the general
public.
ramp metering
Traffic signal control on an entry ramp to a freeway for regulating
vehicle access.
region
The SCAG region comprises Imperial, Los Angeles, Orange, Riverside,
San Bernardino and Ventura Counties.
Regional Transportation
A 3-7 year multi-modal program of regional
Improvement Program (RTIP)
transportation improvements for highways, transit and aviation. The
RTIP consists of projects drawn from the Regional Transportation
Plan. The projects are directed at improving the overall
efficiency and people-moving capabilities of the existing
transportation system while incrementally being developed into the
long-range plan.
Regulation XV
A regulation developed by the South Coast Air Quality Management
District affecting public and private employers in the South Coast
Air Basin. It is designed to reduce air pollution by reducing the
number and type of commuter vehicle trips between home and working
during the 6:00 a.m. to 10:00 a.m. period.
Rideshare Recognition
Giving credit and acknowledging ridesharing programs.
ridesharing
The cooperative effort of two or more people traveling together.
Rule 210
A trip reduction measure created by the Ventura County Air
Pollution Control District to reduce air pollution by requiring
employers to devise and implement methods to reduce single occupant
vehicle trips by their employees. It targets worksites of 50 or
more people.
staggered work hours
A work schedule in which employees' starting and ending times are
staggered by the employer.
subregional service
A multi-modal transit service oriented toward access, egress and
distribution between the regional activity centers within specific
subregional areas, and providing connectivity to the intra-regional
services. Service may be high and/or medium capacity transit
operated in whole or part on fixed guideway, dedicated right-of-
ways, major arterial streets and/or freeway/express facility
applications.
system management
Increasing flow of travel on existing facilities through such
improvements as ramp metering, signal synchronization, and removal
of on-street parking, among others. Improvements typically have a
low capital cost, do not call for major construction and can be
implemented in a relatively short time frame.
telecommunications
The conveyance of information by electronic means. Examples include
the telephone, interactive cable facilities, computer networks and
video conference centers.
telecommuting programs
Employers with 100 or more employees developing, coordinating and
monitoring telecommuting programs.
traffic signal synchronization
A process by which a number of traffic signals are synchronized to
affect efficient progression.
transit dependent
Individual(s) dependent on public transit to meet private mobility
needs ( e.g., unable to drive, not a car owner, not licensed to
drive, etc.).
transit facility
A physical structure developed for the specific use and support of
transit.
transit hub facility
A developed facility or designated area (e.g. transit mall, El
Monte bus station), on or off street, designed to accommodate
inter-route transfers and distribution, route and system use
information, fare medium sales and/or may be adjacent to other
transportation facilities such as Park-n-Ride. A transit hub
facility design can be as basic as an on street "pulse point" with
minimal passenger amenities or as complex as a regional bus
facility such as the El Monte Bus Station.
transportation center
Transportation terminal facilities or other locations where people
can change their travel from ground transportation to other
transportation modes (e.g., airports, seaports, spaceports).
vanpool
An organized ridesharing arrangement in which a number of people
travel together on a regular basis in a van. The van may be company
owned, individually owned, leased, or owned by a third party.
Expenses are shared, and there is usually a regular volunteer
driver. See also carpool.
Vehicle Miles Traveled (VMT)
1. On highways, a measurement of the total miles traveled by all
vehicles in the area for a specified time period. It is calculated
by the number of vehicles times the miles traveled in a given area
or on a given highway during the time period. 2. In transit, the
number of vehicle miles operated on a given route or line or
network during a specified time period.
vehicle trip
The one-way movement of a vehicle between two points.
APPENDIX H ACKNOWLEDGEMENTS
RME STRATEGIC COMMITTEE MEMBERS
Mark Brucker, U.S. Environmental Protection Agency
Susan Cornelison, Riverside County Transportation Commission
Zahi Faranesh, California Department of Transportation
Dr. Genevieve Giuliano, USC Planning Institute
David Gunderman, Western Regional Council of Governments
Cindy Krebs, Orange County Transportation Authority
Laurie Hunter, Commuter Transportation Services
Brad McAllester, Metropolitan Transportation Authority
Wesley McDaniel, San Bernardino Associated Governments
Katherine Mazarka, U.S. Environmental Protection Agency
Shirley Medina, Riverside County Transportation Commission
Michael Meyer, Meyer - Mohaddes Associates
Lisa Mills, Orange County Transportation Authority
Ray Remy, Los Angeles Area Chamber of Commerce
Ty Schuiling, San Bernardino Associated Governments
Sarah Siwek, Los Angeles Metropolitan Transportation Authority
Richard Spicer, Southern California Association of Governments,
Chair
Richard Stanger, Southern California Regional Rail Authority
Chris Stephens, Ventura County Transportation Commission
Douglas Thompson, California Air Resources Board
Robert Watson, Natural Resources Defense Council
Judy Wilson, Metropolitan Transportation Authority
SCAG SUBREGIONS
IVAG Mayor Pro Tem Linda Britschgi
CVAG Mayor Pro Tem William Arenstein
WRCOG Councilmember Denise Lanning
SANBAG Supervisor Barbara Cram Riordan
VCOG Councilmember Frank Schillo
City of LA R. Ann Siracusa
Westside Cities Councilmember Abbe Land
Arroyo-Verdugo Vice Mayor George Battery, Jr.
Vice Mayor Kathryn Nack
North County Councilmember David Myers
Councilmember Jo Anne Darcy
Orange County Supervisor Gaddi Vasquez, Chair, OCTA
San Gabriel Valley Mayor Terry Dipple
SELAC Councilmember Evelyn Woods
Councilmember Bob Stone
South Bay Cities Councilmember Garland Hardeman
MARKET INCENTIVES TASK FORCE
Judy Wright, Claremont, Chair
Jacki Bacharach, Jacki Bacharach & Associates
Walter K. Bowman, City of Cypress
Richard Dixon, Lake Forest
John Flynn, Ventura County
Zahi Faranesh, California Department of Transportation
Candace Haggard, San Clemente
Mike Hernandez, City of Los Angeles
Judy Mikels, City of Simi Valley
Ronald Parks, Temecula
Bev Perry, Brea
Larry Rhinehart, Montclair
Thomas H. Sykes, Walnut
ADVANCED TRANSPORTATION TECHNOLOGY TASK FORCE
John Cox, Newport Beach, Chair
George Battey, Jr., Burbank
Cynthia Crothers, Moreno Valley
Jerry Eaves, San Bernardino
Candace Haggard, San Clemente
Zahi Faranesh, California Department of Transportation
Robert Jamison, Artesia
Richard Kelly, Palm Desert
David Myers, Palmdale
Gwenn Norton-Perry, Chino Hills
Ronald Parks, Temecula
SCAG/SCAQMD TCM POLICY COMMITTEE
John Cox, SCAG, Co-chair
Jon Mikels, SCAQMD, Co-chair
Tony Carstens, OCTA
Hal Croyts, Lomita
Terry Dipple, SGVAC
Lillian Eaton, Yucaipa
Zahi Faranesh, California Department of Transportation
Joan Feehan, La Canada-Flintridge
Hugh Fitzpatrick, Business Sector
Lillian Kawasaki, Los Angeles
Veronica Kun, Natural Resources Defense Council
Denise Lanning, Moreno Valley
Richard MacGregor, RCTC
William Mahoney, La Habra
Bob Nolan, SANBAG (CTC)
Phyllis Papen, Diamond Bar
David Sosa, Caltrans, District 7
Robert Stone, Bellflower
Laki Tisopulos, SCAQMD
Paula Warner, Irvine
TCM TECHNICAL ADVISORY GROUP
Gene Calafato, SCAQMD
Susan Cornelison, RCTC
Zahi Faranesh, California Department of Transportation
Hugh Fitzpatrick, Business Representative
Anne Geraghty, California Air Resources Board
Laurie Hunter, Commuter Transportation Services
Veronica Kun, Environmental Representative
Jim Ortner, OCTA
Ty Schuiling, SANBAG
Sarah Siwek, LACMTA
Erika Vandenbrande, SCAG
Barry Wallerstein, SCAQMD
Catherine Wasikowski, SCAQMD
Subregions
Dee Allen, City of Los Angeles
Jim Birckhead, Western Riverside COG
Chuck Ebner, Southeast LA Cities
Julie Hemphill, SANBAG
Bill Hodge, Orange County
Shoghig Kalaydjian, Arroyo Verdugo
Lawrence Stevens, San Gabriel Valley Cities
APPENDIX I PROJECT INCLUSION CRITERIA
SCAG's Transportation and Communications Policy Committee, with the
advice from the RME Strategic Committee, has approved several "working
criteria" to be used in guiding decision-makers on project inclusion.
Criteria are not designed established priorities. Projects need not
meet all criteria.
Click HERE for graphic.
APPENDIX J: RME PROJECT LISTS
INTRODUCTION
Mandates required ISTEA This chapter summarizes, in table form, the
recommendations contained in the previous chapters of the Regional
Mobility Element. These recommendations are based on discussions
with county transportation commissions and local governments,
dialogue at SCAG working group meetings, and subregional input.
A more detailed discussion of the recommendations listed in the
following tables can be found in the referenced chapters.
The action program includes actions from the following chapters:
Chapter Three, Regional TDM Program; Chapter Four, Regional Transit
Program; Chapter Five, Regional Streets & Highways Program; Chapter
Six, Regional Non-Motorized Transportation Program; Chapter Seven,
Regional Goods Movement Program; Chapter Eight, Regional Aviation
System Program; and Chapter Nine, Long Range Corridors. It is
important to note that the CIPs of the SCAG Region Congestion
Management Programs (CMPs) were found to be consistent with the
1989 Plan. As such, the CIPs were incorporated into the Regional
Action Program, as provided for under CMP statute.
APPENDIX K LIST OF CHAPTER AUTHORS
TABLE
Click HERE for graphic.
Other Contributors and Staff: Dan Akins, Mike Ainsworth, Shahryar
Amiri, Grieg Asher, Todd Beeler, Terry Bills and GIS Staff, Bill Boyd,
Anne Bresnock, David Butman, Pat Cadena, Erika Canari, Ed Castro,
Nancy Cobb, Paul Hatanaka, Alan Havens, Bob Huddy, Hasan Ikhrata,
Linda Jones, Hong Kim and Modeling Staff, Sriram Krishnamurthy, Eddie
Leroy, Ronsheng Luo, Bill Martinez, Mike Martinez, Michael Meyer,
Dudley Onderdonk, Syliva Patsaouras, David Perez, Cathy Rachal, Edward
Rodriquez, Eric Roth, Victor Ryden, Mahmoud Shams-Ahmadi, David Stein
and RCP Staff, John Strickland, Charlie Wagner, Kurt Walker, Debbie
Whitmore, and Lori Williams.
Address RME comments to: SCAG, 818 W. Seventh St., Los Angeles, CA
90017, (213) 236-1800
