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
determin
