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1 9 Date: August 6, 2012 Current Meeting: August 16, 2012 Board Meeting: September 6, 2012 BOARD MEMORANDUM TO: THROUGH: FROM: SUBJECT: Santa Clara Valley Transportation Authority Congestion Management Program & Planning Committee General Manager, Michael T. Burns Chief CMA Officer, John Ristow Complete Streets in Santa Clara County FOR INFORMATION ONLY BACKGROUND: With the passage of the Complete Streets Act of 2008 by the California State Legislature and the Safe and Complete Streets Act of 2011 by Congress, transportation and land use professionals, bicycle and pedestrian advocates, and health and safety agencies at the federal, state and regional levels are making efforts to comply with complete streets legislation. Not unexpectedly, there are different interpretations and understandings of what makes a street complete. The intent of this memorandum is to provide information on the progress to develop a common understanding of complete streets in Santa Clara County. The Systems Operations & Management and Land Use & Transportation Integration Working Groups, Technical Advisory Committee s working groups, are working to develop a common understanding of complete streets. The efforts to date have included providing clarification on the definition of complete streets, an update on the planning practices related to complete streets in Santa Clara County, and assisting Member Agencies to meet complete streets requirements. What is Complete Streets? The concept of complete streets is not new. The national complete streets movement started from a grassroots effort led by bicycle, walking and smart growth advocates that evolved from earlier concepts like routine accommodation for bicyclists and pedestrians and livable streets for neighborhood residents. Complete streets are essentially streets that are planned and designed for use by everyone and for all modes. The intent of complete streets, as described in federal legislation HR Safe and Complete Streets Act of 2011, is to insure the safety of all users of the transportation system, including pedestrian, bicyclists, transit users, children, older individuals, and individuals with disabilities as they travel on and across federally funded streets and highways North First Street San Jose, CA Administration Customer Service

2 9 Complete streets are also context sensitive. California s Department of Transportation in its Complete Streets Implementation Action Plan 2010 (Caltrans Deputy Directive 64-R1) and Complete Streets legislation specifically state that the complete streets concept be implemented in a manner that is appropriate to the function and context of the facility and that is suitable to the rural, suburban, or urban context. Why Complete Streets? The benefits of complete streets extend beyond making physical improvements to the roadways and walkways. In addition to providing safer roadways for all users, state and federal agencies cite the following key benefits to the public: Reduction of greenhouse gas emissions - The State Energy Resources Conservation and Development Commission has determined that transportation represents 41 percent of total greenhouse gas emissions in California. Reduction in vehicle miles traveled - According to the United States Department of Transportation s 2001 National Household Travel Survey, 41 percent of trips in urban areas nationwide are two miles or less in length, and 66 percent of urban trips that are one mile or less are made by automobile. Shifting the transportation mode share from single passenger cars to public transit, bicycling, and walking will need to be a significant part of short and long-term planning goals if the state is to achieve the reduction in the number of vehicle miles traveled and in greenhouse gas emissions required by current law (California Global Warming Solutions Act of 2006). Improvement in public health and reduction of treatment costs for conditions associated with reduced physical activity - The State Department of Health Care Services reported in 2005 that the medical costs associated with physical inactivity were estimated to be $28 billion. The department further noted that walking and bicycling provide the additional benefits of improving public health and reducing treatment costs for conditions associated with reduced physical activity, including obesity, heart disease, lung disease, and diabetes. DISCUSSION: Complete Streets Practice in Santa Clara County Santa Clara County s local jurisdictions have been at the forefront of implementing incremental improvements along its existing roadways to accommodate bicycles, pedestrians and public transit. In addition, the local jurisdictions have worked with VTA to develop countywide plans, technical guidelines and funding programs to support the designing and building of a balanced, multimodal transportation network for Santa Clara County. Examples of these effort are VTA s long range transportation investment plan, Valley Transportation Plan (VTP), updated every five years, the Community Design and Transportation (CDT) Program adopted in 2004, technical design guidelines for pedestrian and bicycle facilities adopted in 2003 and 2007, and the adoption of multi-modal design practices and principles for roadway improvements focusing on projects (using the US 101/Tully Road interchange improvement as the example) within the Page 2 of 6

3 9 State right of way in 2009 by the VTA Board of Directors. These programs and guidelines, including funding mechanisms, have been institutionalized into Santa Clara County s planning practices long before the current dialogue and focus on complete streets. In essence, the County already has a complete streets program in place; it is just not called complete streets. Current Complete Streets Activities To encourage the implementation of complete streets, federal, state and regional agencies have linked transportation funding programs to projects that take into account the needs of all modes and users. How complete street is being implemented by all levels of government is described below. Federal and State Levels The federally enacted HR Safe and Complete Streets Act of 2011, requires each state to have in effect within two years a law, through their department of transportation (Caltrans) and metropolitan planning organization (Metropolitan Transportation Commission), an explicit policy statement that requires all federally-funded transportation projects, with certain exceptions, to accommodate the safety and convenience of all users in accordance with certain complete streets principles. California has enacted two legislations to facilitate and support complete streets objectives. The first is AB Complete Streets Act of 2008 that requires cities and counties after January 1, 2011, upon the next revision of their general plans, to modify the circulation element to plan for a balanced multimodal transportation network that meets the needs of users of streets, roads and highways with users defined as motorists, pedestrians, bicyclists, children, persons with disabilities, seniors, movers of commercial goods, and users of public transportation. The second legislation with connections to complete streets is SB Sustainable Communities and Climate Protection Act of This legislation requires California s 18 metropolitan planning organizations (MPOs) to establish green house emission reduction targets for passenger vehicles, which include developing approaches to reduce the number of vehicle trips or the use of vehicles by promoting alternative modes like bicycling, walking, public transit. Regional Level The One Bay Area Grant (OBAG) Program (Resolution 4035), the transportation funding program for the Bay Area, was adopted by the Metropolitan Transportation Commission (MTC) on May 17, In order to be eligible for funding for the first funding cycle FY 2013/14 to FY 2015/16, this program requires local jurisdictions to either adopt a complete streets policy or have a General Plan circulation that is in compliance with the Complete Streets Act of 2008 by January 31, To be eligible for the subsequent funding cycles, all jurisdictions will be required to have a general plan that complies with the Complete Streets Act of Local Level Although the federal, state and regional agencies have outlined the complete streets requirements as specified in their statues, it is up to the discretion of the local agencies on how to implement Page 3 of 6

4 9 these requirements. VTA, as the Congestion Management Agency for Santa Clara County, has the responsibility to ensure that all aspects of transportation system are well planned, adequately funded, functioning efficiently, and are well maintained, accessible and safe for all users. To assist Santa Clara County agencies to meet the complete streets requirements, VTA is reorganizing its funding programs as part of the VTP 2040 process, to better demonstrate and ensure that that transportation funds are being used to make roadways in Santa Clara County more complete. In essence, this more complete streets effort will demonstrate to external agencies that Santa Clara Member Agencies have taken and will continue to take steps to consider all modes of travel when transportation network elements are improved. This does not mean that all projects will include improvements that affect all aspects of complete streets, but that the transportation projects in Santa Clara County taken collectively will have the effect of moving the overall transportation network to be more complete. Below is a description of the program components: A. Complete Streets Elements As envisioned, VTA s the Multimodal Transportation Investment (MTI) Program documented in the draft VTP 2040 document will be a vehicle to establish a framework from which local jurisdictions can develop and design projects, while considering land use context and constraints unique to each jurisdiction, that contribute to making streets in Santa Clara County more complete. The following elements of the program framework provide a strategy to achieve a system of complete streets; these elements take the concept of complete beyond routine accommodation of non-motorized users to consider the holistic life cycle of the entire street - from streetscape design, to geometric design standards, to efficiency, maintenance and operations of the street system. 1. Multimodal Design: Context-sensitive street design for accommodating all modes of travel and creating attractive streetscapes. Promote the development of projects that incorporate all modes of transportation, accommodate all mode users and include attractive designs that facilitates balanced mode share use within the context of the community and the roadway facility purpose. Examples: Update street classification and/or standards to reflect new multimodal design objectives and provide standards for Americans for Disability Act (ADA) compliance and safety. Goal: Increase bicycle, pedestrian and transit mode share of total countywide trips. 2. Capacity/Continuity: Consistency in capacity and continuity throughout the corridor. Promote improved consistency of lane alignment geometry and coordination of streetscape design for inter-jurisdictional roadways. Examples: Where appropriate, maximize the use of roadways for accommodating all modes, improve roadway transitions from one jurisdiction to another, complete gaps in on-street bike lane striping, and identify locations for possible road diet lane realignment. A road diet is Page 4 of 6

5 9 a technique used to improve traffic flow and increase safety for all mode users including motorists, bicyclists, pedestrians and public transit by reducing the number of vehicle lanes (typically from four lanes to two lanes with a two way center lane in the middle of the street). Goal: Maintain consistent roadway capacity and improve consistency of lane alignment geometry and streetscape design based on demand and within the context of the corridor between jurisdictions. 3. Technology: Technology upgrades to improve operations and enhance safety of the roadway system Where appropriate, promote the installation of Intelligent Transportation Systems (ITS) infrastructure to advance interoperable traffic signal controller systems, traveler information systems, parking management systems, and bicycle/pedestrian/vehicle detection systems that support all modes of travel on the roadways. Examples: Traffic signal controller upgrades, implementation of ITS devices, implementation of bicycle and pedestrian detection, and use of pedestrian-scale signals and signs. Goal: Install ITS infrastructure along selected corridors and expand and upgrade of ITS devices where needed. 4. Connectivity: A system of interconnected streets that provide improved access to all modes of transportation Promote a transportation network that improves connectivity and access to all modes to local and regional destinations. Examples: Complete gaps in streets, walkway networks and transit stops/centers, build freeway overcrossings, limit design of closed-end streets, and reduce bike/pedestrian barriers. Goal: Reduce vehicle miles traveled (VMT) 5. Maintenance: Maintenance and operations of the roadway network elements Provide programs and funding for maintenance and operations of the roadway network elements. Examples: Restriping of bicycle and pedestrian pavement markings, maintaining traffic signal operations, and replacing failing bicycle/pedestrian/vehicle detectors. Goal: Maintain a minimum quality management standard for roadway network elements such as pavement condition, pavement markings, traffic controllers and signage. B. Complete Streets Implementation and Funding The Multimodal Transportation Investment (MTI) Program identified in VTP 2040 will align Page 5 of 6

6 9 funding to better show how funding in Santa Clara County is being used to make streets more complete. VTA will continue to work with its Member Agencies and partner agencies in the development of the MTI program. Prepared By: Eugene Maeda Memo No Page 6 of 6

7 Agenda Item No. 9 Complete Streets in Santa Clara County August 16, 2012 San Jose Cupertino 1

8 Overview What is Complete Streets? Why Complete Streets? Complete Streets in Santa Clara County 2

9 What are Complete Streets? Streets that are safe, convenient, and accommodate all users of the roadway Streets that are context sensitive Streets that result from comprehensive planning, programming, design, construction, operation, and maintenance Morgan Hill 3

10 Who are all users? Pedestrians Bicyclists Transit users Motorists Movers of commercial goods Persons with disabilities People of all ages and abilities (children - elderly) 4

11 Why Complete Streets? Safety: Nearly 7,000 pedestrians were killed between 2000 and 2009 in California 52% of 47,067 pedestrian fatalities between 2000 and 2009 in the U.S. occurred on principal or minor arterials San Jose Source: National Complete Streets Coalition, Complete Streets in California, February

12 Why Complete Streets? Health: Difficulty in getting healthy exercise in the neighborhood contributes to the obesity epidemic More than 1/3 of nation s children are overweight or obese The percentage of adults in Santa Clara County has increased from 5% to 8% over a 9 year period Source: Santa Clara County Public Health Department, Santa Clara County 2010 Health Profile Report 6

13 Why Complete Streets? Aging Population: 25.0% 20.0% Percentage of Seniors 65+ in Santa Clara County 21.3% 15.0% 10.0% 11.1% 5.0% Photo: National Complete Streets Coalition, Introduction to Complete Streets Presentation 0.0% Data Source: Census 2010 and Association of Bay Area Governments Projections 7

14 Why Complete Streets? 2010 National Survey Findings: 66% of Americans want more transportation options 73% currently feel they have no choice but to drive 57% would like to spend less time in the car Palo Alto Source: Transportation for America, 2010 Future of Transportation National Survey 8

15 Why Complete Streets? Source: MTC Choosing Where We Live - Attracting Residents to Transit-Oriented Neighborhoods in the San Francisco Bay Area report (2010) 9

16 Why Complete Streets? Growth Trends in Walking and Biking in Santa Clara County Of all trips made in Santa Clara County in 2010: Walking - 1.4% Biking - 2.2% Transit - 3.3% ( Millions) VTA Total Boarding Riders ,000 5,000 2,000 1,500 1, Pedestrian Count at 10 Key CMP Intersections in Santa Clara County Bicycle Counts at 10 Key CMP Intersections in Santa Clara County, Sources: Census 2010, VTA 2010 Monitoring & Conformance Report, VTA Annual Transit Operations Perform 10

Protection Act of 2008 (SB 375) STATE DOT - Caltrans

17 Why Complete Streets? It s Policy: FEDERAL - Safe and Complete Streets Act of 2011 (HR 1780) STATE - Complete Streets Act of 2008 (AB 1358) STATE - Sustainable Communities and Climate Protection Act of 2008 (SB 375) STATE DOT - Caltrans Deputy Directive 64-R1 REGIONAL - One Bay Area Grants Program (MTC Resolution 4035) + Complete Streets Checklist 11

18 Benefits of Complete Streets Safer roadways for all users Reduction of greenhouse gas emissions Transportation generates 41% of emissions in California Reduction in vehicle miles traveled 41% of trips in U.S. urban areas are 2 miles or less 66% of trips in U.S. urban areas measuring 1 mile or less are made by automobiles Improvement in public health and reduction of treatment costs for conditions associated with reduced physical activity State Dept. of Health Care Service reported in 2005 that the estimated medical costs related to inactivity to be $28 billion Source: Citation from Complete Streets Act of 2008 legislation 12

Implementing Complete Streets A transportation facility that is planned, designed, operated, and maintained to provide safe mobility for all users,

19 Implementing Complete Streets A transportation facility that is planned, designed, operated, and maintained to provide safe mobility for all users, including bicyclists, pedestrians, transit riders, and motorists appropriate to the function and context of the facility. Caltrans Deputy Directive 64-R1 13

20 Complete Streets on a major arterial will look different Cupertino 14

21 than on the expressways Lawrence Expwy, San Jose Stevens Creek Blvd, San Jose 15

22 than on a neighborhood/sustainable street Mountain View Gilroy Los Gatos 16

23 than in a rural community Gilroy Los Altos Hills Saratoga Santa Teresa, Gilroy 17

Complete Streets Practice in Santa Clara County Member Agencies and VTA have

network Examples: Community Design and Transportation (CDT) Program, adopted

adopted in 2003 and 2007 Multimodal Design Practices and Principles for

24 Complete Streets Practice in Santa Clara County Member Agencies and VTA have been working together to develop a balanced, multimodal transportation network Examples: Community Design and Transportation (CDT) Program, adopted in 2003 Technical Design Guidelines for Pedestrian and Bicycle Facilities, adopted in 2003 and 2007 Multimodal Design Practices and Principles for Roadway Improvements, adopted in 2009 Development Review Program, established in

25 Example: US 101/Tully Rd. Interchange, San Jose Before After 19

26 Example: S. Shoreline Blvd., Mountain View 20

27 Examples: Road Diets in San Jose North of I-280 crossing, S. 10 th St. (Before) Minnesota Ave (East) South of I-280 crossing, S. 10 th St. (After) Minnesota Ave (West) 21

28 Example: W. Dunne Ave., Morgan Hill (Before) Photo: Google Maps, August 2012 (After) 22

29 Example: Adaptive Bicycle Timing on County Expressways Source: County of Santa Clara Roads & Airports,, Adaptive Signal Timing for Bicycles presentation. 23

What are we doing to make our streets more complete? Addition of a new VTP program funding category - Multimodal Transportation Investments (MTI).

30 What are we doing to make our streets more complete? Addition of a new VTP program funding category - Multimodal Transportation Investments (MTI). Purpose: Enhance local funding flexibility Foster project bundling Help to craft framework for local and countywide Complete Streets Programs 24

31 Multimodal Transportation Investment Program Design 5 elements to achieving a system of complete streets 25

Real, Santa Clara Source: VTA Community Design &

32 Element #1 Multimodal Design Promote context-sensitive street design for accommodating all modes of travel and creating attractive streetscapes Phase 1 (Photo simulation) El Camino Real, Santa Clara Source: VTA Community Design & Transportation Best Practices Manual, Phase 2 (Photo simulation) 26

33 Element #2 Capacity/Continuity Promote consistency in capacity and continuity throughout the corridor Poor Design Good Design Palo Alto 27

34 Element #3 Technology Use technology to improve operations and enhance safety to the roadway system Milpitas 28

35 Element #4 Connectivity Promote a system of interconnected streets that provide access to all modes to local and regional destinations Illustration: PedShed.net, accessed at 29

36 Element #5 Operations & Maintenance Advocate and provide funding for the maintenance and operations of the elements in the roadway network 30

37 Questions? 31

APPROVE A RESOLUTION ADOPTING A COMPLETE STREETS POLICY

APPROVE A RESOLUTION ADOPTING A COMPLETE STREETS POLICY STAFF REPORT MEETING DATE: September 13, 2016 TO: FROM: City Council Bob Brown, Community Development Director Russ Thompson, Public Works Director Patrick Filipelli, Management Analyst 922 Machin Avenue