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sr-111709-1a~r City Council Report City of Santa Monica City Council Meeting: November 17, 2009 Agenda Item: ~ " To: Mayor and City Council From: Eileen Fogarty, Director, Planning & Community Development Department Subject: Westside Cities COG Participation in the Southern California Association of Governments Sustainable Communities Strategy (SCS) Recommended Action Staff recommends that the City Council authorize the City's Westside Cities Council of Governments (WSCCOG) representative to vote for the Westside Cities Subregion to participate in the Southern California Association of Government's (SCAG) collaborative process for preparing a regional Sustainable Communities Strategy (SCS) at the November 19, 2009 WSCCOG meeting. Executive Summary The Westside Cities Council of Governments (WSCCOG) must decide whether the Westside Cities Subregion should participate in the Southern California Association of Governments (SCAG) collaborative process for preparing a regional Sustainable Communities Strategy (SCS) or prepare its own SCS. SCAG's Westside Cities Subregion includes the four cities of Beverly Hills, Culver City, Santa Monica and West Hollywood; .the City. of Los Angeles and County of Los Angeles are classified as separate SCAG subregions. The WSCCOG Board will consider support of the option to participate in the SCAG collaborative process at the November 19, 2009 WSCCOG meeting,. and the City of Santa Monica's WSCCOG representative requires the Council's authorization in order to vote on this matter. Staff recommends support for the collaborative process because it will afford sufficient opportunity for the subregion to address issues of importance to the Westside Cities without requiring the WSCCOG to allocate additional resources that would be necessary to produce its own SCS. Background SB375, which became effective on July 1, 2009, requires each Metropolitan Planning Organization (MPO) in the state to prepare a SCS to reduce greenhouse gas emissions from vehicles. SB375 includes language applicable only to the SLAG region, in which a subregion may opt to prepare its own SCS. If it chooses to do so, the subregion must 1 ensure that its SCS achieves greenhouse gas (GHG) reduction targets, as determined by the California Air Resources Board (GARB). By the end of 2009, each subregion must inform SCAG whether it intends to accept delegation or participate in SCAG's collaborative process. At the time of this report, staff has received information that both the City of Los Angeles and County of Los Angeles are considering participating in the collaborative process, although these decisions have not yet been reached. Although other subregions have not made formal decisions, staff has learned that only two or three of the larger subregions, representing entire counties, are considering preparing their own SCS. The SCS is required to integrate land use, housing and transportation considerations and will constitute the land use component of the 2012 Regional Transportation Plan (RTP). Future transportation projects and funding priorities are required to conform to the RTP. If SB375 targets are addressed in the SCS, proposals that are consistent with the SCS can be relieved of certain California Environmental Quality Act (CEQA) requirements, which will help to streamline the permit process for compatible projects. SCAG has drafted a process and timeline for the region's SCS, and aims to release the first draft in November 2011. In September, SCAG released two "framework" documents outlining the proposed process for subregional delegation and describing the proposed collaborative process. In accordance with the language in SB375, SCAG cannot impose solutions on individual cities or require General Plan changes.. Rather, SCAG must work collaboratively with its subregional partners and County Transportation Commissions (CTCs) to reduce the region's impact on climate change. Ultimately, the ability to reduce GHGs to the legally required target levels relies on local jurisdiction policies and activities, as well as larger regional plans for transportation, goods movement and other multi-jurisdictional issues. 2 Discussion Option I: WSCCOG Prepares its Own SCS If the subregion wishes to prepare its own SCS, SCAG will assist with data development and use of its models, but the responsibility for producing the document would fall to the subregion's staff. The subregion would also develop and implement its own public participation outreach strategy. SCAG does not intend to "assign" subregional targets, as it does for the Regional Housing Needs Assessment (RHNA) process. Thus, a subregional SCS would focus on demonstrating the measures that the various jurisdictions are undertaking, or plan to undertake, and would provide an analysis and quantification of the reduction in GHGs that these measures would produce. The SCS would comprise the same components as the regional SCS that SCAG will produce, including: a growth distribution and land use patterns; transportation network projects; transportation policies; and'best management practices (BMPs). It should be noted that growth distributions and land uses will need to be consistent with the upcoming Regional Housing Needs Assessment (RHNA), which will be released in draft form in April 2012. The WSCCOG does not maintain professional staff to undertake such projects. As a small subregion, the Westside Cities could not gather, process and analyze the data and prepare the report without outside consultant help, even with SCAG's assistance in running its models. Therefore, the subregion would need to hire a consultant to work with the COG staff committees. If the COG decided to accept delegation, the WSCCOG would need to identify funding for the purpose of hiring a consultant. Several other issues also need to be considered if the WSCCOG were to accept delegation. SCAG cannot indemnify subregions that prepare their own SCS, so the subregion would retain liability for legal challenges. Another consideration is that a separate Westside Cities SCS would exclude some parts of the WSCCOG umbrella because the City of Los Angeles and County of Los Angeles are classified as separate SCAG subregions. Finally; if the subregion were to prepare its own SCS, the planning 3 process would, to some extent, require input of data to be generated by SCAG, such as the RHNA allocation. However, at the same time, the subregion would be expected to meet certain deadlines despite any delays that may occur. Option II: The WSCCOG Participates in the Collaborative Process SCAG envisions the collaborative process as a series of iterative discussions between SCAG, its subregions, counties and cities, and CTCs, with the collective goal of identifying GHG reduction strategies. This will include identifying transit projects, policies that promote alternative transportation, and jurisdictional land use and transportation policies and BMPs that will lead to reduced GHG emissions. SCAG also plans to develop additional regional policies aimed at reducing GHG emissions, over. and above the reductions to be achieved by the General Plan strategies throughout the region. SCAG will perform regional transportation model runs, and other types of analysis to determine whether the collective strategies in the jurisdiction will in fact achieve the region's GHG reduction target. The flexible collaborative process will allow the subregions to participate within their existing resources as they deem necessary and appropriate. Analysis Staff recommends participation in the collaborative process rather than accepting delegation for a number of reasons. Overall, staffs conclusion is that the collaborative process provides the Westside Cities with sufficient opportunity for participation and input on the issues that will matter most to the subregion and to the individual jurisdictions. Collaboration would provide SCAG with accurate data for the subregion, assuring that the SCS is representative of planning processes currently underway while not overburdening the member cities. Considering the additional financial burden and demand for staff time, the benefits of accepting delegation do not appear to warrant the unfunded resources, and the collaborative process appears to be a reasonable way for the Westside Cities to have a significant voice. 4 In choosing to participate in SCAG's regional SCS process, the WSCCOG will establish a unified approach for bringing concerns forward early and consistently. Staff from all of the Westside Cities will maintain a high level of involvement in the process to ensure that the SCS includes transportation components and BMPs that are relevant to the subregion and appropriately reflect the individuality and character of each jurisdiction. Financial Impacts & Budget Actions The recommended action does not have any budget impacts. Participation in the collaborative process would involve providing existing City data and information, and providing City staff time already included in the FY09/10 budget. Prepared by: Elizabeth Bar-EI, AICP, Senior Planner Approved.: ~-n tueen N. Fogarty, v Planning & Community Development Department Fo Council: Attachment: SCAG SCS Options Memo, Updated October 27, 2009 5 SOUTHERN CALIFORNIA ASSOCIATION OF GOVERNMENTS DRAFT (October 27, 2009) SUSTAINABLE COMMUNITIES STRATEGY CO I. INTRODUCTION SB 375 (Steinberg), also known as California's Sustainabl( Protection Act, is a new state law which became effective`~g integration of transportation, land use, and housing planning, greenhouse gas (GHG) emissions as one of the overarching g `sx „. working with the County Transportation Commis to = (CTC within the SCAG Region, is responsible for impleme `S this endeavor is dependant on collaborafion with a ~~nge of p region. ;a.,,~ ,~, Briefly summarized here, SB 3 ~, unities Strategy and Climate %x;'2009. SB 375 calls for the dso establishes the reduction of 'oxxegional planning. SCAG, l~the subregional organizafions in the SCAG region. Success in and private partners throughout the Planning Organization (MPO) to: • Prepare a Sustainable Co um Strategy (SCS) as part of the 2012 Regional Transportafion~Flan (RT' The ,will meet aState-determined regional GHG emission reduction tai e rf rt rs feasi a to do so. • Prepare an Al ve Planrt~~'ug Strategy (APS) that is not part of the RTP if the SCS is unable to meet th egton target. • Integrate SCAG plarunjg-processes, in particular assuring that the Regional Housing Needs Assessment (RHNA) is consistent with the SCS, at the jurisdicfion level. • Specific to„SCAG only, allow for subregional SCS/APS development. • DevelopY~ substantial public participation process involving all stakeholders. In addifion, the following are SCAG's preliminary goals for implementing SB 375: o Achieve the regional GHG emission reduction target for cars, light, and medium trucks through a SCS. o Fully integrate SCAG's pIamung processes for transportation, growth, intergovernmental review, land use, housing, and the environment. o Seek areas of cooperafion that go beyond the procedural statutory requirements, but that also result in regional plans and strategies that are mutually supportive of a range of goals. o Build trust by providing an interactive, participatory and collaborative process for all stakeholders. Provide, in particular, for the robust participation of local jurisdictions, subregions and CTCs in the development of the SCAG region's SCS and implementation of the subregional provisions of the law. Assure that the SCS adopted by SCAG and submitted to California Air Resources Board (ARB) is a reflection of the region's strategy and vision for the future. Develop strategies that incorporate and are respectful of local and subregional priorities, plans, and projects. In sum, the SCAG region will develop and finalize a SCS as part of the 2012 Regional Transportation Plan. This Strategy will emerge through extensive dialogue and collaboration involving SCAG, its 14 subregions, member and non-member jurisdictions, CTCs, and a variety of other stakeholders and participants including the general public. As described further in this document, SCAG has established several goals for this process. SCAG intends to use this process to foster collaj~orafion, such that the eventual regional SCS is a reflection of the region's own vision for its future:'` .~-.~, In addition, SCAG has detailed, in a separate document, the Draft Sub~e°gional Framework and Guidelines, the specific roles and responsibilities that a SCAG sul~~egioriy`iall undertake, should any subregion elect to prepare a Subregional SCS for its subregion~(~ttachmenf~)~, ~. Reducing GHG emissions in the SCAG region will partners: Subregions, CTCs, Air Districts, Countfei Flexibility, rather than formal arrangements is enca in terms of a series of iterative discussions between CTCs, with the collective goal of idenhf~~g GHG of effort and participation. ~. c~cnsr=couaooranon among many and many other stakeholders. Izplanning process should be viewed s subregions, counties and cities, and strategies. SCAG welcomes all levels This SCS plannnrg process ~:, o Identifying transit protects ; ~exrstmg; plannedlprogrammed; new projects/concepts) o Identifymg~rertransportahon protects and policies that may reduce GHG emissions o Identifymg Chaitpt~n/Green cities (demonstration projects/policies for GHG reductions) o Holding collaborati~;" ~~shops (outreach and education) o Reviewing and refinini~RB's "Best Management Practices" (BMPs) o Reviewing and refinin``g local data with SCAG staff o Developinghdditional regional policies to reduce GHG emissions (above and beyond reduction's from existing General Plan strategies) o Performing regional transportation model runs (along with other types of analysis) If a subregion exercises the option of preparing and adopting their own SCS, then two additional steps would be required: Subregional Board adoption of the subregional SCS and a documented public outreach effort. This SCS Collaborative Process presents each subregion with a flexible range of approaches to develop a SCS. SCAG has requested that each subregion identify, and submit in writing to SCAG, the approach it proposes to undertake by December 31, 2009. A. SCS Development: Timeline The following provides a brief outline of the five phases leading to the development of a SCS: Phase 1: Pro¢ram Setup and Conceptual Scenario [1/2009-12/2009] • Developed amended Public Participation Plan and Conceptual Land Use Scenario • Providing informational presentations and workshops Phase 2: Taz¢et Settin¢/Scenario Plannine/Outreach [6/2009-9/2010] • Participated in the Statewide Target Setting process (RTAC) • Initiate sketch/scenario planning with subregions and local jurisdictions • Develop Regional Tazget recommendation for ARB B. SB 375 of the develol with thi Framev develoX red by SB 375) n the preparation i CTCs, to G regional SCS, s Subregional process in the - ----o---_. This SCS Collaborative Process presents a flexible array of roles and responsibilities among the various partners and stakeholders, that can be tailored and refined to reflect the best working arrangements within each subregion. As a starting point, the possible roles and responsibilities are as follows: SCAG's Roles and Responsibilities: • Develop and adopt an integrated growth forecast for the SCAG region Develop and adopt 2012 RTP/SCS/APS, and RHNA • Adopt Public Participation Plan and Subregional Framework and Guidelines • Provide growth forecast datasets as required by the SCS/RTP and RHNA planning efforts • Develop and conduct a public process • Convene and facilitate workshops and other dialogue ^ Develop, maintain and disseminate data, maps and other information as needed in SCS • Develop models, technical tools, and methodologies, and provide technical analysis and modeling results regarding estimates of GHG emissions • Facilitate partnership arrangements among other participants (e.g., subregions and CTCs) Subregions' Potential Roles and Resnonsibilities• • Convene and facilitate workshops and other dialogue with local jurisdictions and stakeholders • Provide planning assistance to SCAG and/or local governments • Identify strategies or strategy elements that can be considered and developed for SCS • Identify key partners, stakeholders, and Champion Cities within their areas • Compile and submit input to SCAG on growth forecast/strategy , . • Adopt subregional RHNA distribution " • Work with CTCs to prepare transportation investment strategy , • Develop and adopt subregional SCS/APS at their option (s~~blectfiF~ramework & Guidelines) • Identify transportation investments that support the land use components of a SCS ^ Work with subregions and local governments to develop strategy options • Participate in workshops and dialogue • Work with SCAG and/or subregions to deve~o'~r ~ ~k"' }. es' and Counties' Potential Roles and Responsrbililies ~. • Participate in workshops alogrie -: "` • Compile and submit inpul° CAG~o~owth•forecast • Work with subregions, CTCs;~„d SCAG fo develop strategies that can be included in a SCS • Work with SCAGc~1or one of=tfip14,SCAG subregions to develop SCS C. SCS development and levels of participation will vary from subregion to subregion, depending on local funds availabIi, time, staffing, expertise, and available data. SCAG will encourage a flexible approach to theed velopment of a SCS, which includes VMT and GHG reduction strategies. A menu of options/approaches will be developed collaboratively with the 14 SCAG subregions and CTCs, and may include some or all of the following actions: o Strategy development to reduce GHG, including developing and testing alternative growth patterns, and alternative transportation investment bundles in conjunction with the CTCs and SLAG. o Outreach and educafion, including convening and hosting workshops, and developing materials. 4 o Data and information compilation, including subregional best practices, development typologies, and Model Traffic Analysis Ordinances and mitigation policies, as appropriate. o Work with local governments to identify the location of land uses, residential densities, and building intensities within the subregion based on updated local housing elements and identify any planning or investment bamers to achieving transportation efficiency in terms of both VMT and GHG reductions. o Work with the respective CTC and subregions) to develop a regional and/or subregional SCS and related metrics if necessary, and to measure progress in reducing VMT and achieving the regional GHG reduction target. SCAG will facilitate discussions with each subregion to help deteunine thnost appropriate roles and sets of activities for the subregion to undertake. SCAG is requesting%'that each subregion specify its role by action of the subregional governing body. This action shoul`d~lZe reported to SCAG by December 31, 2009. ~ ~, b 4 &~x%j D. Transportation Integration ~ ~ a,. ~`~ . 6"w~E:~ SB 375 calls for development of a strategy integrating local landaase and transportation strategies. Broadly, transportation strategies can be divided into a, -=' ~~ ~~ Capital projects {capacity enhancements/expans~o~o<~e transportation network) Policies and programs (such as congestion pi~eing, operational improvements transportation demand management (TDM~s~sfrafe`gies, etc) 'Y. ., Development of a SCS presents a' " ~pporit~'to focus less on capital intensive investments, and to develop better approaches to s epi management and operational improvements, implementing pricing po~ncres"an~ampr 'ti gdhe coordination between transit services and non- motorized transportatcn, with the°gaal of , seating more, livable communities. Developing the transit ~~tment component of a SCS will require extensive collaboration among subregional stakeholders anldrCo~tYy Transportation Commissions in order to derive higher performance from the transportaton system. The CTCs have a major role to play with the following: o Facilitate tle~'dialogue between subregions and CTCs, and SCAG. o Monitor'~~evelopment of RTP Guidelines being considered at the State level. o Assist in the analyses of SCS scenarios. o Discuss/suggest projects/strategies to complement SCS scenarios. o Provide technical and modeling expertise to analyze and evaluate projects and strategies that may complement SCS strategies. o Assist in building consensus. E. Maior Comuonents of SCS The required elements of a SCS are outlined in Government Code §65080(b)(2)(B). While there are eight required elements, in essence the SCS is built azound three major components, in addition to "best management practices", that work in concert to reduce GHG emissions. The SCS must also identify areas within the region sufficient to horse all of the population of the region both during the long-term RTP planning period and the short-term eight-yeaz RHNA period, which typically have not been included in an RTP. Brief descriptions of these major SCS components are: 1. Growth Distribution and Land Use The growth distribution, for SCS purposes, is the adopted growth forecast used for the RT'~ SB 375 . r, requires that this forecast be developed in such a way that it demonstrates-reduced VMT~~and GHG emissions due to land use strategies as compared to current conditions,efined as a 2005 base year). This growth distribution will also be the basis for the jurisdiction leKeI`A allocation. 2. Transportation Investments The transportation network consists of the existing and pl~ned transportation projects. SB 375 requires that these projects be "consistent" (with some excep ~s based on grandfathering provisions in the law) with the SCS. In other words, the development of ~ tore transportation network should proceed in such a way that it serves the antrcrp~ated growt)~a`iegy grid distribution reflected in the SCS. Transportation projects, in order to be consrdere~ partyof the SCS, must be included in the constrained 2012 RTP. ~. >~" 3. Transportation Policies n a trop to transportation projec~,~thea~,~eantns policies such as Transportation Demand Management {TDM) or Tran ortahorn~~stem Nfanagement (TSM) policies. These include ride sharing, smart shuttles, ~refe~~pazkh~ eeway metering, etc. These policies can be layered with the other two major elements ofthe SAS in order to achieve additional reductions. It is anticipated that TDM/~VI policies;~vill be of particular use in locales that do not have substantial existing or planned transY~tinfrastruCjin'e. Best Management Practices:~,~e use of a menu of best management practices (BMP), as discussed to date at the State level by the Regional Targets Advisory Committee (RTAC}, could potentially be a planning and conu~}'$mications tool within the regional process. A BMP list would consist of ~: available land us`,e and transportation policies and practices that are expected to result in GHG reductions. The BMP tool discussed by the RTAC would be formatted in an easy-to-use; and understand, chart or spreadsheet, which would indicate the approximate level of GHG reduction that could be achieved by implementing a particular strategy or set of strategies in a particular setting. The BMP spreadsheet tool could serve as an initial screening tool to help facilitate decision making by planning commissions, city councils and county boards to evaluate SCS strategies during their planning processes.. Tlie following elements are under consideration for inclusion in a BMP menu: Land Use, Transportation, Pricing, and TDM/I'SM.