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SR-8-A (23) , . . . . /1.0 -1-- ?~A JUN 4 1991 LU'IM:CPD:SF wjtmp2 COGNCIL MEETING: June 4, 1991 Santa Monica, California TO: Mayor and city Council FROM: City staff SUBJECT: staff Responses to Council Questions Commerce Comments on the Proposed Management Ordinance (TMP). and Chamber of Transportation INTRODUCTION At the May 28, 1991 City Council meeting, after the public testimony, council asked staff to prepare responses to questions by the Council and comments submitted by the Chamber of Commerce. The attached report provides staff responses to the Council questions and the Chamber comments. BUDGET/FINANCIAL IMPACT The recommendation presented in this report does not have a budget or fiscal impact. RECOMMENDATION It is recommended that the City council provide staff with recommended changes to the Ordinance and direct staff to return with a revised Ordinance for first reading. Prepared By: Paul Berlant, Director of LUTM Suzanne Frick, Planning Manager - 1 - /lDD .). ~-~ JUN 4 ;99J . . Karen Pickett, Transportation Coordinator Paul Casey, Transportation Planner Land Use and Transportation Management Department Program and Policy Development Division B: City council Comments and Staff Responses Proposed Budget with Revenues and Expenditures Chamber of Commerce Comments and Staff Responses Attachments: A: C: - 2 - . . RESPONSES TO CITY COUNCIL'S QUESTIONS ON THE TMP ORDINANCE FROM THE MAY 28, 1991 MEETING 1) "Define 'demonstrates' as in how employers demonstrate that they have attained a L 5 AVR.II Response: Demonstrating a l.5 AVR is accomplished through the employer's filing of an annual plan that calculates the AVR and provides the backup data used in the calculation. The City will verify employers' AVR and plan implementation through random audits at worksites. (Ref. Sec. 9231, Transportation Mitigation Monitoring, specifically part (a) on page 24 and part (b) on page 27.) 2) nnefine violations of the Ordinance and the sanctions which may be imposed." Response: Violations of the Ordinance are failure to submit an initial plan or annual report and plan update, failure to implement mandatory plan revisions, or failure to implement provisions of an approved plan. Enforcement actions include non-renewal of the employer's business license, fees, transfer of enforcement to the AQMD, or any other remedy provided for by law. (Ref. Sec. 9232, Enforcement. ) 3) "What is staffs authority to approve/disapprove plans?" Response: Authority is given to the City'S Transportation Management Coordinator to approve or disapprove plans by Sec. 9228 (b) of the Ordinance. 4) If What forms are we going to use and will they be compatible with AQMD's Regulation XV forms?" Response: The forms the City uses will be exactly like AQMD's except for the additional information we will require for measurement and reporting of the p.m. peak period AVR. The forms will be included in an Employer/Developer Handbook which will be distributed to each affected employer and developer. The handbook will also explain the - 3 - . . purpose of the Ordinance, provide examples of how to complete and file a plan, and outline expected results of implementing various types of commute plan elements. 5) "What is the cost of implementation?" Response: Please see the attached budget section outlining projected costs and revenues. 6) "Will there be a reduction in fees to publie employers?" Response: Public employers are required to pay a fee under AQMD's Regulation XV and the City's proposed Ordinance requires the same, unless council directs staff otherwise. 7) "Is the county exempt?tI Response: The County is not exempt under Regulation XV, and the City's Ordinance treats them the same. - 4 - . . PROPOSED BUDGET FOR THE IMPLEMENTATION OF THE TRANSPORTATION MANAGEMENT ORDINANCE The following outlines the anticipated expenditures and revenues for implementation of the Transportation Management Ordinance. Due to the potential shortfall of revenues after the forth year (due to the proposed incentive fee reductions), staff is recommending that the ordinance be changed to limit the maximum reduction of fees to 90% of the total fees required. This will help ensure the program generates sufficient revenues to operate the program. The following outlines the proposed budget: Proposed Budget 1 TMP Manager 2 Transp. Coord. 1 Clerical consultants supplies $70,000* 91,000* 33,000* 20,000 35,000 Total: $249,000 * This figure includes benefits Projected Revenues 1st Year 2nd Year 3rd Year 4th Year 4th Year (90% Cap) $ 75,000 172,079 3l5,468 287,992 291,742 - s - . . YEAR 1 REVENUE ESTIMATES 100+ EMPLOYERS TOTAL NUMBER OF EMPLOYEES: 25,000 ASSUME 50% PARTICIPATION DUE TO AQMD PLAN OPTION FEE IS $6 PER EMPLOYEE NO TMA PARTICIPATION IN FIRST YEAR # OF EMPLOYEES FEE REVENUES 50% PARTICIPATION TOTAL 25,000 $6 $150,000 $75,000 $75,000 TOTAL REVENUE FOR YEAR 1 = $75,000 -~~ . . YEAR 2 REVENUE ESTIMATES 100+ EMPLOYERS NUMBER OF EMPLOYEES: 25,000 ASSUME 100% PARTICIPATION 25% WILL BE IN A TMA AND RECEIVE 25% FEE REDUCTION TMA RECEIVES 50% FEE REDUCTION FOR AVR 1.5 THUS A TOTAL DISCOUNT OF 75% 75% NO TMA 25% TMA # OF EMPLOYEES FEE REVENUES 75% DISCOUNT ~ 18,750 $6 $112,500 6,250 $6 $37,500 $9,375 TOTAL $121,875 50 -99 EMPLOYERS NUMBER OF EMPLOYEES: 8,925 ASSUME 100% PARTICIPATION 25% WILL BE IN A TMA WITH NO AVR DISCOUNT FIRST YEAR 75% NO TMA 25% TMA II OF EMPLOYEES FEE REVENUES 25% DISCOUNT 6,694 $6 $40,164 2,231 $6 $13,386 $10,040 TOTAL $50,204 TOTAL REVENUE FOR YEAR 2: $172,079 .7- . 100+ EMPLcvERS . YEAR 3 REVENUE ESTIMATES NUMBER OF EMPLOYEES: 25,000 ASSUME 100% PARTICIPATION 25% WILL BE IN A TMA AND RECEIVE 25% FEE REDUCTION TMA RECEIVES 60% FEE REDUCTION FOR AVR 1.5 FOR 2 YEARS TOTAL REDUCTION OF 85% FOR TMA MEMBERS # OF EMPLOYEES FEE REVENUES 85% DISCOUNT TOTAL 50 -99 EMPLOYERS 75% NO TMA 25% TMA 18,750 $6 $112,500 6,250 $6 $37,500 $5,625 $118,125 NUMBER OF EMPLOYEES: 8,925 ASSUME 100% PARTICIPATION 25% WILL BE IN A TMA AND RECEIVE 25% FEE REDUCTION TMA RECEIVES 50% FEE REDUCTION FOR AVR 1.5 FIRST YEAR TOTAL REDUCTION OF 75% FOR TMA MEMBERS # OF EMPLOYEES FEE REVENUES 75% DISCOUNT TOTAL 10 - 49 EMPLOYERS 75% NO TMA 25% TMA 6,694 $6 $40,164 2,231 $6 $13,386 $3,347 $43,511 NUMBER OF EMPLOYEES: 20,5l0 ASSUME 100% PARTICIPATION 25% WILL BE IN A TMA WITH NO AVR DISCOUNT FIRST YEAR $8 FEE FOR EMPLOYERS WITH LESS THAN 50 EMPLOYEES (I OF EMPLOYEES FEE REVENUES 25% DISCOUNT 75% NO TMA 25% TMA 15,383 $8 $123,064 5,128 $8 $41,024 $30,768 TOTAL $153,832 TOTAL REVENUE FOR YEAR 3: $315,468 -8. . . YEAR 4 REVENUE ESTIMATES 100+ EMPLOYERS NL~BER OF EMPLOYEES: 25,000 ASSUME 100% PARTICIPATION 25% WILL BE IN A TMA AND RECEIVE 25% FEE REDUCTION TMA RECEIVES 80% FEE REDUCTION FOR AVR 1.5 FOR 3 YEARS TOTAL REDUCTION OF 105% FOR TMA MEMBERS (NO REBATE) 75% NO TMA 25% TMA # OF EMPLOYEES FEE REVENUES 100% DISCOUNT 18,750 $6 $112,500 6,250 $6 $37,500 $0 TOTAL $112!500 50 -99 EMPLOYERS NUMBER OF EMPLOYEES: 8,925 ASSUME 100% PARTICIPATION 25% WILL BE IN A TMA AND RECEIVE 25% FEE REDUCTION TMA RECEIVES 60% FEE REDUCTION FOR AVR 1.5 FOR 2 YEARS TOTAL REDUCTION OF 85% FOR TMA MEMBERS 75% NO TMA 25% TMA # OF EMPLOYEES FEE REVENUES 85% DISCOUNT 6,694 $6 $40,164 2,231 $6 $l3,386 $2,008 TOTAL $42,172 10 - 49 EMPLOYERS NUMBER OF EMPLOYEES: 20,510 ASSUME 100% PARTICIPATION 25% WILL BE IN A TMA AND RECEIVE A 25% DISCOUNT TMA RECEIVES 50% FEE REDUCTION FOR AVR 1.5 FIRST YEAR TOTAL DISCOUNT OF 75% FOR TMA MEMBERS $8 FEE 75% NO TMA 25% TMA # OF EMPLOYEES 15,383 5,128 FEE $8 $8 REVENUES $123,064 $41,024 75% DISCOUNT $10,256 TOTAL $133,320 TOTAL REVENUE FOR YEAR 4: $287,992 - ~. YEAR 4 REVEN~ESTIMATES - WITH 90% RED~ION CAP 100+ EMPLOYERS NUMBER OF EMPLOYEES: 25,000 ASSUME 100% PARTICIPATION 25% WILL BE IN A TMA AND RECEIVE 25% FEE REDUCTION TMA RECEIVES 80% FEE REDUCTION FOR AVR 1.5 FOR 3 YEARS TOTAL REDUCTION OF 90% FOR TMA MEMBERS DUE TO CAP # OF EMPLOYEES FEE REVENUES 90% DISCOUNT TOTAL 50 -99 EMPLOYERS 75% NO TMA 25% TMA 18,750 $6 $112,500 6,250 $6 $37,500 $3,750 $116,250 NUMBER OF EMPLOYEES: 8,925 ASSUME 100% PARTICIPATION 25% WILL BE IN A TMA AND RECEIVE 25% FEE REDUCTION TMA RECEIVES 60% FEE REDUCTION FOR AVR 1.5 FOR 2 YEARS TOTAL REDUCTION OF 85% FOR TMA MEMBERS # OF EMPLOYEES FEE REVENUES 85% DISCOUNT TOTAL 10 - 49 EMPLOYERS 75% NO TMA 25% TMA 6,694 $6 $40,164 2,231 $6 $13,386 $2,008 $42,172 NUMBER OF EMPLOYEES: 20,510 ASSUME 100% PARTICIPATION 25% WILL BE IN A TMA AND RECEIVE A 25% DISCOUNT TMA RECEIVES 50% FEE REDUCTION FOR AVR 1.5 FIRST YEAR TOTAL DISCOUNT OF 75% FOR TMA MEMBERS $8 FEE # OF EMPLOYEES FEE REVENUES 75% DISCOUNT 75% NO TMA 25% TMA 15,383 $8 $123,064 5,128 $8 $41,024 $10,256 TOTAL $133,320 TOTAL REVENUE FOR YEAR 4: $291,742 -10- . . RESPONSE TO COMMENTS ON TRANSPORTATION MANAGEMENT PLAN FROM SANTA MONICA CHAMBER OF COMMERCE 1) lilt is possible for a TMA to operate as an 'employer' for the purpose of preparing and implementing a plan...Alternative1y, the TMA can be nothing more than a source of information for its employer members" A) "If the City is to encourage the use of THA'S, a reduction should be made available to employers joining either type of TMA. The amount of the reduction should depend upon whether the TMA is an employer TMA or an information TMA." Response: Staff agrees that a TMA may serve as a source of information. However, the 25% discount on the employer impact fee will only be provided to employer TMA's since they will be preparing and implementing plans for a number of employers. An information TMA will be providing assistance to employers but not reducing the amount of work required by the city TMP office to review the plans. B) "section 9227(d) recognizes the two different types of TMAs but the concept is not fully adhered to throughout the ordinance". Response: Staff agrees and will modify the Ordinance for consistency. C) Section 9227(d) requires the execution of covenants, conditions and restrictions or similar legal instruments which set forth the obligations of each member employer. First, any requirement of this type should apply only to employer TMAs....Second, it is not clear what type of document is contemplated." Response: Staff agrees that the requirement for CC&Rs only apply to employer TMAs. The City will work with - 11 - . . employers to develop an appropriate document to guarantee that all employers are equally responsible for implementing the plans. CC&Rs are one alternative. D) "The concept of joint and several liability established in section 9227(d) is a disincentive sUfficiently strong to discourage any employer from participating in a TMA.1I Response: Staff believes that formation of TMAs will be attractive to employers for both the reduction in the impact fee and the ability to achieve the 1.5 AVR requirement at an earlier point through cooperation and coordination. The formation of a TMA would be similar to that of a partnership, with all employers who join being equally responsible for implementing the approved Plan. Should an employer decide not to comply with the approved Plan, the TMA would have the ability of removing the employer from the TMA. E) "Section 9227(d) on page 19 gives the City the right to require the formation of a TMA. This provision is inappropriate_If Response: The requirement to form a TMA will only occur when staff believes that synergism of a large number of small employers will greatly enhance their chances of achieving an AVR of 1.5. 2) "Before the amount of the fee is established, a budget should be presented which takes into account the $1,000,000 available from the Water Garden and Arboretum projects and shows how the money will be spent.n Response: A budget will be presented to the City Council outlining the expected revenues from the fee and the costs of staffing the City TMP office. It is expected that the revenues raised by the fee will not be sufficient to fund the initial start of the program for the first two years. Money from the Water Garden and Arboretum projects are available to fund a portion of the TMP program, but those monies may also be used for other mitigation measures and therefore should only be used to - 12 - . . implement the TMP ordinance as necessary. See attachment for more information. 3) "The Ordinance should contemplate an annual review of the amount of the fee in light of actual revenue and costs." Response: The fees will be reviewed each year as part of the budgetary process to determine if there is a surplus or shortfall occurring. 4) "The Ordinance should exempt the Santa Monica Malibu Unified School District from payment of the fee.1I Response: There are no fee or plan exemptions for any employers, as all employer sites will be responsible for preparing a plan which the City must review. 5) "The definition of this term (Average Vehicle Ridership) works well enough when the methods used to increase AVR are ridesharing in nature. However, if the employer, like the City itself, ehooses to reduce peak period traffic through flexible work hours or alternative schedules, AVR, as defined, will be affected even though the purpose of the Ordinance has been implemented.1I Response: The definition of AVR in the Ordinance is very general. We agree that it needs to be amended to account for compressed work weeks. 6) "Why should small employers with fewer than SO employees be required to prepare and file plans when there is no requirement to achieve any particular AVR level?1I Response: A) Small employers are required to file plans because it is expected that they will eventually be required to achieve a 1.5 AVR level through Regulation XV. Therefore we include them in the Ordinance now and will amend their requirements as Regulation XV is modified. 7) "section 9227(f) requires that employer plans be consistent - 13 - . . with developer plans previously approved by the city. There seems to be no reason for this requirement and it violates the principle of flexibility." Response: Developer plans focus on facility improvements, therefore, employer plans will be expected to take advantage of those improvements. Employers will not be mandated to use the facilities, but it will be one of their options. 8) Ifsection 9228(a) permits an employer with a plan which has been approved by the AQMD within the previous six months to submit that plan to the City in satisfaction of the first year's requirement. Although this is a positive change from the previous draft of the Ordinance, there seems to be no reason not to expand this provision to include plans approved within the previous twelve months.1I Response: staff believes that it is important to only allow plans approved by AQMD in the previous six months to guarantee that the Plans accepted by the City are up to date. If the Ordinance allows plans that are older than six months, it could be as long as two years before an employer submits an annual update plan. 9) If The AQMD echoed one of our concerns which relates to the forms on which the reports are required. The staff states in its response that 'changes will be made' but we do not yet know what they will be~1I Response: The machine readable form will be struck. City staff will work with AQMD to make sure that City forms are compatible with AQMD forms. 10) "section 9231 sets forth an extensive list of information which employers are required to submit to the City each year. The list appears to be far lODger than necessary." Response: The information required is similar to what is required by AQMD under Regulation XV, and provides valuable information regarding mode choices and other TOM related issues. - 14 - . . 11) "We strongly urge the Council to include a provision which states that the Ordinance will not apply to any employer covered by Regulation XV until the AQMD has provided a letter to the City stating that the exemption will available and that the AQMD will accept the City1s annual monitoring reports under Regulation XV.II Response: staff agrees and the Ordinance will be changed. 12) "If developers are required to perform traffic improvements identified in the EIR as being necessary to mitigate the project1s impact and pay the fee, the aggregate will necessarily require the developer to more than mitigate the impact. II Response: Any improvements required of a developer to mitigate significant traffic impacts under the City'S environmental review process will still be required and should not be allowed as credit against the developer's Impact fee because those are typically local impacts and not citywide or regional impacts which is what the Impact fee will address. However, if the developer funds improvements not required to mitigate significant impacts, a dollar-far-dollar credit will be given against the Impact Fee, subject to mutual agreement by the developer and the City. 13) liThe Ordinance purports to apply t.he fee retroact.ively t.o projects which do not yet have a certificate of occupancy even though these projects were approved through an EIR process which required them to adequately mitigate their traffic impacts; how can the City now attempt to come back and require additional mitigation measures?1I Response: since the building has yet to be occupied, it is still appropriate to assess the developer impact fee to help fund traffic improvements. In addition, all new development has a condition of approval requiring payment of a traffic impact fee prior to the issuance of a certificate of occupancy. The impact fee is to mitigate region-wide impacts, not necessarily the local impacts which is what the ErR process analyzes. 14) tiThe Ordinance requires developers to prepare 'worksite transportation plans. similar to those prepared by employers. - l5 - . . In our view, these plans are of limited value and should be deleted. II Response: See answer to #7 l5) "If, however, these plans are to be retained, then we have the following comments: A) Although staff has streamlined the requirements somewhat from the prior draft, the Ordinance is still vague as to the content of these points1 (and) B) Section 9231 requires the developer to monitor annual compliance with its plan and submit reports. This seems unnecessary and probably unrealistic." Response: City staff will revise section 9230 to include more specific language on teh content of developer plans. In section 9231 all references to developers will be deleted. 16) "Like other City boards and commissions, we believe this Board (The Worksite Transportation Plan Appeals Board) should be made up of members of the public . . .and that at least some of the Board members have experience in the area, such as employment transportation coordinators for local companies. II Response: One member of the Appeals Board will be appointed by the City Council and Council will have the opportunity to choose a member of the business community or a transportation coordinator. 17) "section 9220(d) contains a specific number of additional trips expected to be added to the City by the year 2010. If the source for this number was the crain City-wide traffic study, it is probably unreliable because of the reduction in permitted levels of development in most areas of the city. In this section, specificity is not necessary in any event." Response: staff will examine the number to make sure it accurately reflects expected trips in the future. la) "This definition (employee) should be clarified by adding the following concepts: A) No employee should be counted who does not work in Santa Monica..... (and) B) No person should - 16 - . . be counted as an employee unless he or she regularly reports to work during one of the peak period.1t Response: The definition is consistent with AQMD's definition and will only affect employees in Santa Monica. 19) liThe AQMD comments raised a question regarding these two definitions (Multi-tenant worksite and worksite) and while the thrust or their comment is not particularly clear, there is an inconsistency between the two terms.1t Response: City staff will change the definitions so they are consistent with one another. 20) liThe Ordinance defines the afternoon peak period to begin at 3:00 and end at 7:00. This is quite an expansive definition of the afternoon peak period which is generally stated to be between 4:00 and 6:00 or 4:00 and 7:00. Response: The peak period between 3:00 p.m. and 7:00 p.m. was chosen due to ever expanding congestion in the afternoon. However, with the expanded peak period, this will likely capture employees with compressed work weeks or flex-time schedules and help employers achieve the 1.5 AVR goal. 21) liThe term 'peak hour' is probably unnecessary as the ordinance typically uses the phrase 'peak period'.1t Response: staff agrees and will make the necessary changes. 22) "A peak period trip includes one which 'begins or ends' within the peak period. This seems inconsistent with the remainder of the Ordinance which focuses upon when the employee reports to work and, as the AQMD notes, creates operational questions. Response: Staff agrees and will make the necessary changes. 23) "In determining the number of employees, this Section (9224) is inconsistent with the definition of 'employee' which requires reporting for work for at least six months." - l7 - . . Response: The definition in Section 9224 relates to the fee calculation and has a different meaning than the definition for employee for AVR purposes. 24) "In paragraph (5), it is not clear that the 50%, 60% and 80% discounts are to be applicable to the annual fee as reduced by 25%; this should be made more explicit... Response: staff agrees and will clarify this issue. 25) "Paragraph (6) exempts from the fee only those employers with an approved AQMD plan which is less than six months old. Why are these provisions limited to six months?" Response: See response to question #8 26) "In paragraph 25% discount? it should be. may be higher members of an (7), is the THA fee to be calculated using the In order to provide an incentive, we believe Otherwise, the fee paid by an 'employer THA' than the aggregate of the fees paid by all 'informational THA'. Response: For employer TMAs, only one fee will be collected thru the TMA, and the TMA fee will be eligible for a 25% fee reduction. 27) "Section 9225(a) contains a new prov1s1on permitting the use of fees for 'development and operation of TMAs.' What is contemplated here?" Response: As requested by the Chamber, staff has included the possible use of fees for development and operation of TMAs. The City will, working with large employers, provide mapping of potential areas for TMAs and will work cooperatively with the Chamber in establishing new TMA areas. 28) "Section 9225(b) (1) contemplates the use of developer impact - 18 - . . fees for TDM measures. Such a use seems inconsistent with the nature of the developer fee, particularly when the operations of the TMP office are to be funded through the employer fees." Response: Some TDM measures require capital or facility type improvements, like bike facilities, bus turnouts and preferential parking. These TDM measures are appropriate for the developer impact fees. 29) nIt is unclear how a reduction in the length of trips would directly affect AVR and, it the provision was intended to relate to jObS-housing balance, as the statt suggests, how can it be implemented by an employer?" Response: Employees living closer to a worksite provides more opportunities for employees to use carpools, vanpools, transit, bicycles or walking as an alternative commute mode. liThe word I employee' in the first line of the first paragraph on page 20 should probably be 'employer.' why is the one-halt mile limit imposed in paragraph page 21?" 30) Response: full Also, Ce) on staff agrees that the word 'employee' should be 'employer'. The one-half mile limit was imposed in order to remain consistent with AQMD. 31) nThe timing of approval (for sUbmission of developer plans) is odd because it is to come after the project itself is approved. II Response: As part of the development review process, the application will require developers to submit proposals regarding the development. However, final approval is not until all city permits are secured and the issuance of a building permit occurs. 32) "Paragraph Cd) on page 24 refers to a 'subsequent owner' of the building. This requirement appears inconsistent with staff's statement to the AQMD that building owners are not subject to the Ordinance. In any event, of what relevance is - 19 - . . the developer's plan after the building is complete and occupied?" Response: This is to apply to developers in the event they sell a building before it is occupied. 33) nparagraph (1) on page 25 seems to duplicate a part of paragraph (10) on page 26. If paragraph (1) is to be reworded to require calculation of the AVR, as suggested by AQMD, perhaps paragraph (10) should be deleted. Also, there is no need to 'determine' peak periods since these are defined. There is also no need to determine 'vehicle trips to and from the site' since only the AVR is important." Response: Staff agrees there is no need to determine peak period and will modify the Ordinance accordingly. However, staff does feel there is a need to know the vehicle trips generated by each site in order to verify plan calculations. 34) "Paragraph (4) on Page 25 refers to unspecified 'goals'." Response: staff agrees and will make the necessary changes to the Ordinance. 35) liAs stated earlier, several paragraphs may require a calculation or explanation which is not part of the employer's plan. Therefore, some phrase should be included in the lead-in language which states that the report may be limited to the applicable items." Response: Everything listed as required information on the plan is information that the city will require of all employers to determine annual monitoring. 36) "Paragraph (13) on page 26 requires a 75% response rate for the employee survey. This rate strikes us as quite high; if it cannot be achieved, is the entire report invalid?" Response: This is an AQMD requirement, and surveys that do not achieve a 75% response rate will not be valid. - 20 - . . A new survey will have to be conducted until a 75% response rate is achieved. 37) liThe reference to section 9230C in paragraph (5) on page 29 should be to section 9232C." Response: staff agrees and will make the necessary changes. - 21 -