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.
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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.