HomeMy WebLinkAboutStaff Report 3.B 01/04/2016DATE: January 4, 2016
Agenda Item #3.B
TO: Honorable Mayor and Members of the City Council through City Manager
FROM: Scott Duiven, Senior Planner
SUBJECT: Resolution Adopting a Complete Sheets Policy
RECOMMENDATION
It is recommended that the City Council adopt the attached Resolution adopting a Complete
Streets policy.
BACKGROUND
The State of California has emphasized the importance of Complete Streets by enacting the
California Complete Streets Act of 2008 (also known as AB 1358). AB 1358 requires that when
cities or counties revise general plans, they identify how they will provide for the mobility needs
of all users of the roadways. As well, CalTrans distributed Deputy Directive 64, in which the
California Department of Transportation explained that it "views all transportation improvements
as opportunities to improve safety, access, and mobility for all travelers in California and
recognizes bicycle, pedestrian, and transit modes as integral elements of the transportation
system." The term "Complete Streets" describes a comprehensive, integrated transportation
network with infrastructure and design that allows safe and convenient travel along and across
streets for all users, including: pedestrians, bicyclists, persons with disabilities, motorists, movers
of commercial goods, users and operators of public transportation, seniors, children, youth, and
families.
The adoption of Petaluma's General Plan 2025 in May 2008 preceded the Complete Streets Act
and subsequent guidance from the Governor's Office of Planning and Research. However,
Petaluma's General Plan 2025 complies with Complete Streets principles and the City's
implementation activities ensure that Complete Streets are incorporated into every project.
However, there is no formal process for certifying a City's circulation element as being
compliant with the Complete Streets Act,
In May 2012 the Metropolitan Transportation Commission (MTC) adopted the inaugural One
Bay Area Grant (OBAG) Program. OBAG provides funding to regional programs and to the
county congestion management agencies (CMAs) for local decision making that advances the
objectives of Plan Bay Area. OBAG supports Plan Bay Area, the region's Long Range Plan /
Sustainable Communities Strategy (SCS), by directing investments to the region's priority
development areas, rewarding housing production, and providing a larger and more flexible
funding program to deliver transportation projects. One of MTC's requirements for receiving
funds through OBAG is compliance with the Complete Streets Act. Previously this could be
accomplished by having adopted a circulation element that complies with the Complete Streets
Act, adopting a Complete Streets policy, or if a City's general plan was adopted prior to the
Complete Streets Act, self - certification of the circulation element. For the first round of OBAG
funding Petaluma self - certified its circulation element and successfully applied for and received
$2,237,153 in funding from OBAG for the Petaluma Complete Streets Project (paving of
Lakeville Street and a small section of D Street).
DISCUSSION
Petaluma's General Plan 2025, particularly the Mobility element, addresses all modes of
transportation in a comprehensive and integrated manner. In order to be eligible for Cycle 2 of
the One Bay Area Grant Program (OBAG 2) MTC has determined that cities must have either
adopted a general plan circulation element that complies with the Complete Streets Act of 2008
or adopted a Complete Streets policy prior to January 31, 2016. Self- certification is no longer an
option. The attached resolution has been prepared to meet this requirement and ensure that
Petaluma remains eligible for this important funding source.
The purpose of the Complete Streets policy is to demonstrate the City's commitment to creating
streets that safely serve all users and that new streets, street designs, street improvements, or
other similar projects or programs are evaluated keeping these complete street concepts in mind.
The Complete Streets Act will be incorporated into any future update of the City's circulation
element. As such, it is not expected that this policy will impact City transportation infrastructure
planning from the status quo. Petaluma's Pedestrian and Bicycle Advisory Committee (PBAC)
will continue to play a role in the review of transportation and development projects.
FINANCIAL IMPACTS
There are no financial impacts other than the staff time associated with preparing this staff
report. Adoption of a Complete Streets policy will make the City eligible for future
transportation improvements grant opportunities through the One Bay Area Grant (OBAG)
program.
ATTACHMENTS
1. Resolution
2
ATTACHMENT I
RESOLUTION ADOPTING A COMPLETE STREETS POLICY
WHEREAS, the term "Complete Streets" describes a comprehensive, integrated
transportation network with infrastructure and design that allow safe and convenient travel along
and across streets for all users, including pedestrians, bicyclists, persons with disabilities,
motorists, movers of commercial goods, users and operators of public transportation, seniors,
children, youth, and families; and
WHEREAS, the City of Petaluma acknowledges the benefits and value for the public
health and welfare of reducing vehicle miles traveled and increasing transportation by walking,
bicycling, and public transportation; and
WHEREAS, the City of Petaluma recognizes that the planning and coordinated
development of Complete Streets infrastructure provides benefits for local governments in the
areas of infrastructure cost savings; public health; and environmental sustainability; and
WHEREAS, the State of California has emphasized the importance of Complete Streets
by enacting the California Complete Streets Act of 2008 (also known as AB 1358), which
requires that when cities or counties revise general plans, they identify how they will provide for
the mobility needs of all users of the roadways, as well as through Deputy Directive 64, in which
the California Department of Transportation . explained that it "views all transportation
improvements as opportunities to improve safety, access, and mobility for all travelers in
California and recognizes bicycle, pedestrian, and transit modes as integral elements of the
transportation system "; and
WHEREAS, the California Global Warming Solutions Act of 2006 (known as AB 32)
sets a mandate for the reduction of greenhouse gas emissions in California, and the Sustainable
Communities and Climate Protection Act of 2008 (known as SB 375) requires emissions
reductions through coordinated regional planning that integrates transportation, housing, and
land -use policy, and achieving the goals of these laws will require significant increases in travel
by public transit, bicycling, and walking; and
WHEREAS, numerous California counties, cities, and agencies have adopted Complete
Streets policies and legislation in order to further the health, safety, welfare, economic vitality,
and environmental well -being of their communities; and
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WHEREAS, the Metropolitan Transportation Commission, through its One Bay Area
Grant (OBAG) program, described in Resolution 4035, requires that all jurisdictions, to be
eligible for OBAG funds, need to address complete streets policies at the local level through the
adoption of a complete streets policy resolution or through a general plan that complies with the
California Complete Streets Act of 2008; and
WHEREAS, the City of Petaluma therefore, in light of the foregoing benefits and
considerations, wishes to improve its commitment to Complete Streets and desires that its streets
form a comprehensive and integrated transportation network promoting safe, equitable, and
convenient travel for all users while preserving flexibility, recognizing community context, and
using the latest and best design guidelines and standards; and
WHEREAS, the City of Petaluma Complete Streets Policy, attached, summarizes and
implements policies already contained in the City's General Plan, including in its mobility
element, and involves no new policies, programs, projects or potential environmental impacts not
already analyzed in the EIR certified for the City's General Plan on May 19, 2008 by Resolution
Number 2008 -085 N.C.S.;
NOW, THEREFORE, BE IT RESOLVED by the City Council of the City of
Petaluma:
1. That the City of Petaluma Complete Streets Policy, attached, will cause neither a direct
physical change in the environment nor a reasonably foreseeable indirect physical change in
the environment such as would require review under the California Environmental Quality
Act ( "CEQA "), because the Complete Streets Policy summarizes and implements policies
already contained in the City's General Plan, including in its mobility element, and therefore
involves no new policies, programs, projects or environmental impacts not already analyzed
in the EIR certified for the City's General Plan on May 19, 2008 by Resolution No. 2008 -085
N.C.S.
2. That the City of Petaluma adopts the. Complete Streets Policy ( "Policy ") attached hereto as
Exhibit A, and made part of this Resolution.
3. That the next substantive revision of Petaluma's General Plan shall incorporate Complete
Streets policies and principles consistent with the Policy.
Attachment: Exhibit A
in
EXHIBIT A
This Complete Streets Policy was adopted by Resolution No. XXXX -XXX N.C.S. by the City
Council of the City of Petaluma on January 4, 2016.
PETALUMA COMPLETE STREETS POLICY
A. Complete Streets Principles
1. Complete Streets Serving All Users. . The City of Petaluma's General Plan 2025
Mobility element identifies long -range transportation needs for moving people and goods
in and around Petaluma. It is comprehensive and far - reaching, addressing bicycle, motor
vehicle and pedestrian travel as well as public transit, rail, air, and water travel. A wide
range of public safety, environmental, and social equity issues associated with
transportation are addressed through the goals, policies, and programs identified in the
Mobility element. All transportation improvements will be planned, designed,
constructed, operated and maintained to support safe and convenient access for all users,
and increase mobility for walking, bicycling and transit use.
2. Context Sensitivity. The transportation objectives of the Mobility element include a
street classification system based on street "typologies: Street typologies are an
expansion of functional classifications that consider street context and alternate travel
modes. This approach ensures that street standards are not uniformly applied but consider
a street's relation to surrounding land uses, appropriate travel speeds, and the need to
accommodate multiple travel modes and users. For example, a street that has an arterial
function and a commercial type will have different characteristics and design features
than a residential street with a collector or local access function.
In planning and implementing street projects, departments of the City of Petaluma will
maintain sensitivity to local conditions in both residential and business districts as well as
urban, suburban, and rural areas, and work with residents, businesses, and other
stakeholders to ensure that a strong sense of place is maintained. Improvements that will
be considered include sidewalks, shared use paths, bicycle lanes, bicycle routes, paved
shoulders, street trees and landscaping, planting strips, accessible curb ramps, crosswalks,
refuge islands, pedestrian signals, signs, street furniture, bicycle parking facilities, public
transportation stops and facilities, transit priority signalization, and other features
assisting in the provision of safe travel for all users, such as traffic calming circles, transit
bulb outs, road diets, and features identified in the City of Petaluma Bicycle and
Pedestrian Plan.
3. Complete Streets Routinely Addressed by All Departments. All relevant departments
of the City of Petaluma will work towards making Complete Streets practices a routine
part of everyday operations, approach every relevant project, program, and practice as an
opportunity to improve streets and the transportation network for all categories of users,
and work in coordination with other departments, agencies, and jurisdictions to maximize
opportunities for Complete Streets, connectivity, and cooperation.
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4. All Projects and Phases. Through the Mobility element's goals, policies, and programs;
Petaluma will ensure that Complete Streets infrastructure sufficient to enable reasonably
safe travel along and across the right -of -way for each category of users is incorporated
into the planning, funding, design, approval and implementation processes for new
construction, reconstruction, retrofits, repaving, rehabilitation, or changes in the
allocation of pavement space on an existing roadway, as well as those that involve new
privately built roads and easements intended for public use.
B. Implementation
1. Plan Consultation and Consistency. In maintaining, planning, and designing projects
affecting the transportation system, Petaluma requires consistency with the City's
General Plan, Bicycle and Pedestrian Plan, Safe Routes to School Plan, Short-Range
Transit Plan, Station Area Master Plan, and other relevant transportation plans for
consistency.
2. Street Network/Connectivity. The transportation system should provide a connected
network of facilities accommodating all modes of travel. This includes opportunities for
repurposing rights -of -ways to enhance connectivity for cyclists, pedestrians and transit
users. A well - connected network should include non - motorized connectivity to schools,
parks, commercial areas, civic destinations and regional non - motorized networks on both
publically owned roads /land and private developments as outlined in Figure 5 -2 of the
Mobility Element — Proposed and Existing Bicycle Facilities. Petaluma will work with
other agencies where applicable to ensure that projects immediately adjacent to the City's
jurisdiction, particularly those that provide access to Petaluma's transportation network,
provide similar accommodations and connectivity to City facilities.
3. Pedestrian and Bicycle Advisory Committee Consultation. Transportation and
development projects are reviewed by the Pedestrian and Bicycle Advisory Committee
early in the planning and design stage, to provide the Pedestrian and Bicycle Advisory
Committee an opportunity to provide comments and recommendations regarding
Complete Streets features to be incorporated into the project.
4. Evaluation. Petaluma evaluates projects based on the Complete Streets (Routine
Accommodation) Checklist. The checklist assures all modes of transportation are
considered when scoping and designing a project. The City will establish a means to
collect data and indicate how it is evaluating implementation of complete streets policies.
C. Exemptions
Process. Projects that seek Complete Streets exemptions must provide written findings of why
accommodations for all modes were not included in the project and be signed off by the Public
Works and Utilities Director or his /her designated representative. Projects that are granted
exemptions must be made publically available for review. Based on the Federal Highway
Administration (FHWA) exemption policy, exemptions to Petaluma's Complete Streets Policy
may be granted if one of the following criteria is met:
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a. Bicyclists and pedestrians are prohibited by law from using the roadway.
b. The cost of establishing bikeways or walkways would be excessively disproportionate to
the need or probable use. In unusual circumstances, such as where natural features (e.g.
steep hillsides or shorelines) make it very costly or impossible to accommodate all
modes, "excessively disproportionate" is defined as exceeding twenty percent of the cost
of the larger transportation project.
c. Where scarcity of population or other factors suggest an absence of need. For example,
all construction or reconstruction of public streets must include sidewalk improvements
on both sides, unless the street is a cul -de -sac with few dwellings or the street has severe
topographic or natural resource constraints.
d. Transit accommodations are not required where there is no existing or planned transit
service.
e. Routine maintenance of the transportation network that does not change the roadway
geometry or operations, such as mowing, sweeping, and spot repair.
f. Where a reasonable and equivalent project along the same corridor is already
programmed to provide facilities exempted from the project at hand.
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