HomeMy WebLinkAboutAgenda Report - March 20, 1991 (70)l os
CITY OF LODI
COUNCIL COMMUNICATION
AGENDA TITLE: Designate San Joaquin County Council of Governments (COG) as
Congestion Management Agency
MEETING DATE: March 20, 1991
PREPARED BY: City Manager
RECOMMENDED ACTION: That the City Council designate the San Joaquin County
Council of Governments (COG) as the Congestion
Management Agency for this County.
BACKGROUND INFORMATION: Proposition 111, approved by the voters in June, 1990,
requires that each County establish a Congestion
Management Agency. This agency will be responsible
for tying transportation decisions to land use decision on a regional basis.
At two Cities -County meetings late last year, the general consensus was that
COG is the logical choice to serve the County and the seven cities of the
County in that capacity. State law requires the development in each County of
a Congestion Management Program (CMP). The theme behind the CMP legislation is
integrated planning. The program is designed to coordinate land use, air
quality and transportation planning. State law further requires that the
designated Congestion Management Agency develop and monitor this CMP. In
reality, COG is already proceeding with w,)rk on the development of the CMP so
that the County of San Joaquin will be able to meet the December 1, 1991
deadline for the preparation of this plan.
It was agreed at the last Mayors/City Managers meeting held at the Stockton
City Hall March 1 that the cities and the County should individually formally
take action in this regard. Attached (Exhibit A) is the appropriate resolution.
for Council action. Also attached (Exhibit B) is a copy of the Congestion
Management Program Briefing Manual prepared by COG.
FUNDING: None required
Respectfully submitted,
Thomas A. Peterson
City Manager
TAP:br
Attachments
CCCOM163
00
APPROVED: —
THOMAS A. PETERSON
`
City Manager
cc.1
RESOLUTION NO. 91-
A RESOLUTION OF THE LODI CITY COUNCIL
DESIGNATING THE SAN JOAQUIN COUNTY CQUNCIL OF GOVERNMENTS
THE CONGESTION MANAGEMENT AGENCY FOR SAN JOAQUIN COUNTY
WHEREAS, the Government Code Chapter 2.6 (commencing with
Section 65088), added by AB 471 and modified by AB 1791 requires that
with the passage of Proposition 111 of 1990, Congestion Management
Programs be developed and annually updated; and
WHEREAS, a Congestion Management Program must be developed in
every county that includes an urbanized area, and shall for those
counties include every city and the county; and
WHEREAS, Congestion Management Programs must contain level of
service (LOS) standards for a designated system of highways and
roadways; standards for frequency, routing and coordination of public
transit services; a trip reduction and travel demand element; a program
to analyze impacts of local land use decisions on a regional
transportation system; a seven-year capital improvement program to
maintain or improve level of service and transit performance; and a
uniform computer model and database; and
WHEREAS, when completed, the
be consistent with the' Regional
incorporated into the Regional
(RTIP) starting in 1991; and
Congestion Management Program must
Transportation Plan (RTP) and be
Transportation Improvement Program
WHEREAS, the Congestion Management Agency is then annually
required to determine if the county and cities are conforming to the
program; and
WHEREAS, this Congestion Management Program must be prepared by a
Congestion Management Agency designated by the Board of Supervisors and
a majority of the cities representing a majority of the incorporated
population; and
WHEREAS, the San Josquin County Council of Governments (SJCCOG)
is the Metropolitan Planning Organization and the Regional
Transportation Planning Agency for San Joaquin County; and
WHEREAS, SJCCOG is responsible for preparing the RTP, the
RTIP and the regional transportation model and has a working
knowledge of the interrelationships among transportation planning, land
use planning and air quality planning necessary for the preparation of
the Congestion Management Program; and
RES9ICOG/TXTA.OIV
WHEREAS, SJCCOG has the ability to provide a forum for all
local government agencies that will be affected by this program;
NOW, THEREFORE, BE IT RESOLVED BY THE LODI CITY COUNCIL that
based on the criteria for preparing, administering and monitoring
compliance with the Congestion Management Program, the San Joaquin
County Counci' of Governments is designated the Congestion Management
Agency for San Joaquin County.
Dated: March 20, 1991
I hereby certify that Resolution No. was passed and
adopted by the Lodi City Council in a regular meeting held March 20,
1991 by the following vote:
Ayes: Council Members -
Noes: Council Members -
Absent: Council Members -
Alice M. Reimche
City Clerk
91-
RES9ICOG/TXTA.01V
- _iill�� fy
X�
Congestion Management
Program
b l _
Briefing Manual
Introduction
The Congestion Management Program (C\1P) is the State ugislature'< effort,
spearheaded by Assemblyman Rich.,rd Katz, to improve congestion on C�-iiforilia's
highways and roads. The program is haseti in part on Contra Costa County's growth
management initiative, and in part on a variety of tither transportation plannuig ideas.
The theme behind the CMP legislation is integrutea planning. From tone point of view.
the program is designed to coordinate land a -c, air quality and transportation planning.
From another perspective, the C N1P's empha�;is on re,ional transportation systerl
seeks to better integrate local, regional and state planning policies. The thrust of ttte
CMP legislation is that new land uses must be developed in :anclem with itew
transportation capacity, as needed.
The CHIP is a state -mandated program. State law requires a C`4P to be created and for
local compliance with the C4lP to he annually monitored. The program is z=lso linked to
new gasoline tax revenues which local governments receive under the provisions of
Propositions 111 and 108, approved by the voters in June 1990. Failure to comply with
04P requirements can jeopardize the local Fn.ernmeris' share of these new revenues.
All urban counties, defined as those with populations over 0.0OO, wre required to
prepare a congestion management program. According to 1991) census population
figures, forty counties fall into this category. The Council of Governments, as the
acting congestion management agency, has been coordinating CMP efforts and
exchanging information with other counties, particularly with adjoining cotimies.
Participants
State law requires the designated congestion management agency to create and monitor
the CMP. San Joaquin County, the cities in the county, the Air Pollution Control
District, transit providers and Caltrans must be consulted in the CMP creation phase.
The San Joaquin County Council of Governments has assembled a technical advisory
group ("ConMAG") with representatives from these organizations to assist in the
creation of C;NiP requirements. The input of localgovernments is critical because thin,
are responsible for implementing the C.MP once it has been put into place.
Process
The CMP process;rvolves two parts: a) creating the prograin itself; and, l)) rnoutitoriii£
compliance with the program anti making any necessary annual revisions. The first step
of the creation phase is to designate which agency is responsible for athninistcring the
CMP. The county and the cities are respons►bte for making this designation. At
present, the Cities and Count} Association has recommended that the San Joaquin
County Council of Goverr.rnent., 'ae designateJ as the c;.;ige�>ticrrl maragertent agency
(CMA), but no formal designation has been -,rade (as of January 1991). Th Council of
Governments is proceeding with work en the CMP in ,!le meanii+nic so that S:,n Jw-Vqui+•
County can meet the Decemher 1, 19911 deadline for prep, ration of the CNIP. The
second step in phase one is to create the conges,it>n mznz%e::tert pmgrarn. The CNIP
becomes the basis for coordinating regional tn+nsportation planning in subsequent
years.
The monitoring phase (phase two) iriti.aly i,ivol-es rreaturiny regional irafficand
transit performance against CNIP standards acd pro e.ctine the inip:,its (d !ar,! usrs on
the regional transportation systetit. The C_',N9:'1 is respr)nsible for rtunitorin, local
government compliance with CHIP stardard�, as sive! as t rnttpliance tt;th intt�tmation
and participation requirements. If traffic on the CN;P's regional trans;mri.-M m s%acsn
fails below standards, local &overnnients must develop plans to ads: esu "dei icie ni- reic_d
segments. Finally, the orgoinse Ci`9P process will inevitabiv include c et-mliv the
program to improve its operatton and to accommodate r:ety circuimgances. ,ill of theS
steps are explained in greater detail in the paragraphs below.
CNIP Components
The CMP has sever components:
u Designation of a regional transportation systems
o Transit standards
o Traffic level of service standard%
u Trip reduction measures
u CMP computer models
o Land use analysis component
o 7 -year capital improvement program (C1P)
CUP Sys The system is required to include all state highways and "principal
arterials." 1'he congestion management agency, in consultation with the local
governments, decides which roads are regionally significant enough to be coroidered
principal arterials. This network of highways and arterials is the base from which traffic
levels of service and land use development impacts are measured. Once a link is placed
on the CMP system: it may not be removed at a tater date. Thus. determining which
roads to place on this network must be done carefully. Also, since local governments
are responsible for monitoring the level of service of the CHIP roads that fall within
their jurisdiction, they will play a key role in selecting these roads. The Congestion
Management Advisory Group (Con. AG) is in the process of designating a draft CHIP
system.
Traffic Lave! of Semite S1t71idards. "Level of service" or LOS is a qualitative way of
describing traffic congestion. Levels follow the report card scale of A - F, in which "A"
signifies the best service and "F' signifies the worst. the level of service is determined
differently depending on the characteristics of the road: freeway. expressway, city
street with stop signs or stop lights, etc. Generally, the level of service is 1?awed on. a
variety of factors: traffic density, average travel speed, traffic flow rates or, at ,I
controlled intersection, percent time delay. The .,w allow, the CMP to set levels of
service on the system no lower than "E" or existing levek of service. The COG
guidance has recommended setting a lc rei of service at "D" for all roads un the CMP
.system, to correspond with the LOS set in Measure K's 1, xal '1-ransportation Authority.
2/12/91 - 2 -
ConMAG has formed a level of service subcommittee to address the i.;sues atisoci:ated
with this CMP component.
Transit Standards. Transit standard; for rotting, fregqnencv ;tnd coordination :tmc,ne,
transit operators must be established. The C'65 guidance recornmends that routing
and frequency standards be set for urban areas (Stocks )n and perh;,ps Lodi) ane
commute trips, while coordination st ndards will be set for all trips. Coordin; iter,
standards address issues such as convenience of trar,4er poin;s, arrival and depiatu%-
times for different mutes, multi -modal conncciion ; .:-,(jar. trsnsfer+btlity.
ConMAG's transit subcommittee is in the process of d;ve!opin'D draft transit standards.
Trip Reduction The trip redaction conTonent ill Irromme alternative transportation
methods.:nd reduced travel demand. Lader this compornent. vocal jurisdictions must
adopt trip reduction ordinances. The Control
Measures plan, which staff is developing in conjunction with :vlerced and Starislatrs
County, will be folded into this trip reduction measure. This plan will likely include
examples of or set minimum requirements for trip reduction ordinances.
Land Use Impacts. The CVP must include. a nrca;ram to zirah,Ae the impact of local
land use decisions on the regional transportation syster ' This analv:ic could be
combined with the review of general plan amendments, the develol?:hent of contnirrni!v
plans, the environmental impact review: (F_IR) process or the approval of zoning
reclassifications, site approvals or other discretionary rpJ,lications. State late regvires
the local jurisdictions to determine the effect of laud use decisions on the CNiP system.
as well as to determine the cost to n-itioate these land t;se impacts.
Traffic Model. COG will be using its regional transportation model in the CNIP
process. This model, in coordination with local models, will monitor the traffic level of
service across the regional transportation system and along specific links. Also, these
computer models will be used to project the impact of local land use decisions on the
transportation system (e.P., how much traffic dries the project generate?). State law
requires that if local models are u.%cd, they muat he approved by the CMA and he
consistent with the regional model.
Capital Improvement Progrann (Cit'). The CIP is the 7 -year plan for implententin- the
improvements or mitigations that fallout of the CMP process. The CIP must be
composed of capital projects that: a) maintain or improve the traffic LOS or transit
standards, or b) mitigate local land use impacts. Furthermore, these projects must
conform to air quality standards. All pro ects applying. for state funding in the regional
transportation improvement clan (RTIP, must first lie in the Clf . The RTIP is the
state -required transportation planning document. (in effect, for state funding
purposes, the CIP becomes the RTI P. except that the C1 is revised annually, while the
RTIP is revised only every other year.)
Relationship to Other Plans, Programs
The CMP will be closely linked to current trans})ortation and air (juality plans. As
discussed above, the C[ will become the basis for state -funder! R 1 -IP projects. In a
broader sense, the CMP must be consistent with the lodger -term regional
transportation plan (RTP), which in turn must be consistent with state and local air
quality attainment plans. The law is silent on the relationship between the CMP and
local general plans, though it does allow general 1)i ori to choose to include ChIT'
provisions in their boats, policies and oh;ectivc s. Finally, the relationship hetneen t re
2/12/91 - 3 -
CAIP and the California Environmental Ouality Act (CFOA) is no? clear. State law
does not specify whether or not the C%4P is subiect to CEQA review. (_'OG staff is
awaiting final legal opinions on this issue.
Annual Monitoring
The CMA is responsible for annually muni (Ori ! :Cal gov, rnmcot i.-wi > iann %irh tale
congestion manag;,ntent program. The nionitorm process is designeLi to encourage
compliance, giving two separate opportunities for Jurisdictions to meet tl►e
requirements. First, the congestion management agency Aust make ., findinit of
conformance or nonconformance with the CHIP for each local iurisdiction. A finding
of nonconformance can be based on a variety of circurnstances; including the failare to:
meet traffic or transit standards, adopt and implement a trip reduction and trave)
demand ordinance, or adopt and implement a program to anal ze the inmact of land
use decisions. Second, if the CMA issues a finding, of nonconformance, the city or
county has 90 days to correct the discrepancy. Only if a jurisdiction continues to he out
of compliance with the CMP can the CMA notify fhe State Controller, no
withhold gasoline tax revenues.
Deficiency Plans
If a segment of the designated CMP systern falls b. -low traffic LOS standards, the local
jurisdiction can prepare a "deficiency plan" in order to rem:,in in compliance Nvith the
CMP. In effect, the deficiency plan option removes the threat of lost gas tax
subventions in cases where a road fails to meet the required level of service.
If a deficiency plan exists, cities or the county may exclude congested section of
roadway from CMP analysis while they are workine to solve the traffic problem. For
instance, if traffic level of service along Route 99 t�,rough Stockton fails to "E," which is
(below the tentative standard set in COG guidance), the City of Stockton would be
required to deveiaV a deficiency plan. The plan would designate this segment of the
route as "deficient,' then indicate how the city expects to improve the level of service.
The deficiency plan must include the following component`:
a Analysis of the causes of the deficiency
o List of local improvements that can be made on the &4icient segment
o List of improvements to increase traffic flow throughout (tie CMP system
d Action Plan
The local government must prepare this deficiency plan, brit it is required to obtain the
list of proposed improvements to the CMP system from the Air Pollution Control
Board.
Deadline for CHIP Creation
While no official deadline for creating a CMP exists, the capital iniprovement ro>;rt,l;l
(CIP) must be the basis for the regional transportation impmvetnent plan (r np) qh:c
on December 1, 1991. COG has seta target month of August for development of the
entire CMP, with adoption of the progran shortly thereafter.
2/12/91 - 4 -
RESOLUTION NO. 91-62
-------------------------
-------------------------
A RESOLUTION OF THE LODI CITY COUNCIL
DESIGNATING THE SAN JOAQUIN COUNTY COUNCIL OF GOVERNMENTS
THE CONGESTION MANAGEMENT AGENCY FOR SAN JOAQUIN COUNTY
WHEREAS, the Government Code Chapter 2.6 (commencing with
Section 65088), added by AB 471 and modified by AB 1791 requires that
with the passage of Proposition 111 of 1990, Congestion Management
Programs be developed and annually updated; and
WHEREAS, a Congestion Management Program must be developed in
every county that includes an urbanized area, and shall for those
counties include every city and the county; and
WHEREAS, Congestion Management Programs must contain level of
service (LOS) standards for a designated system of highways and
roadways; standards for frequency, routing and coordination of public
transit services; a trip reduction and travel demand element; a program
to analyze impacts of local land use decisions on a regional
transportation system; a seven-year capital improvement program to
maintain or improve level of service and transit performance; and a
uniform computer model and database; and
WHEREAS, when completed, the
be consistent with the Regional
incorporated into the Regional
(RTIP) starting in 1991; and
Congestion Management Program must
Transportation Plan (RTP) and be
Transportation Improvement Program
WHEREAS, the Congestion Management Agency is then annually
required to determine if the county and cities are conforming to the
program; and
WHEREAS, this Congestion Management Program must be prepared by a
Congestion Management Agency designated by the Board of Supervisors and
a majority of the cities representing a majority of the incorporated
population; and
WHEREAS, the San Joaquin County Council of Governments (SJCCOG)
is the Metropolitan Planning Organization and the Regional
Transportation Planning Agency for San Joaquin County; and
WHEREAS, SJCCOG is responsible for preparing the RTP, the
RTIP and the regional transportation model and has a working
knowledge of the interrelationships among transportation planning, land
use planning and air quality planning necessary for the preparation of
the Congestion Management Program; and
RES9162/TXTA.02J
WHEREAS, SJCCOG has the ability to provide a forum for all
local government agencies that will be affected by this program;
NOW, THEREFORE, BE IT RESOLVED BY THE LODI CITY COUNCIL that
based on the criteria for preparing, administering and monitoring
compliance with the Congestion Management Program, the San Joaquin
County Council of Governments is designated the Congestion Management
Agency for San Joaquin County.
Dated: March 20, 1991
I hereby certify that Resolution No. 91-62 was passed and
adopted by the Lodi City Council in a regular meeting held March 20,
1991 by the following vote:
Ayes: Council Members - Pennino, Pinkerton, Sieglock, Snider
and Hinchman (Mayor)
Noes: Council Members - None
Absent: Council Members - None
be& 7),
Alice M. Reimche
City Clerk
91-62
RES9162/TXTA.02J