SR-05-27-2014-8BCity Council Meeting: May 27, 2014
Agenda Item: 0
To: Mayor and City Council
From: David Martin, Director of Planning and Community Development
Subject: Memorandum of Understanding with the Los Angeles County Metropolitan
Transportation Authority and the Exposition Metro Line Construction
Authority for operation of a light rail transit system within the City of Santa
Monica
Recommended Action
Staff recommends that the City Council authorize the City Manager to negotiate and
execute a Memorandum of Understanding (MOU) with the Los Angeles County
Metropolitan Transportation Authority (Metro) and the Exposition Metro Line
Construction Authority (Construction Authority) regarding train operation on City streets.
Executive Summary
On September 13, 2011, Council approved an ordinance that approved a Master
Cooperative Agreement (Cooperative Agreement) with the Construction Authority. The
Construction Authority currently also has a cooperation agreement with the City of Los
Angeles for both Phase 1 and Phase 2 of the Expo Line. The Cooperative Agreement
sets the respective duties of each party and also establishes the parameters on how
each of the parties will interact in the construction of Phase 2. To date the Cooperative
Agreement has proven to be effective in allowing the construction of Phase 2 to
progress within the City with few problems.
In order to ensure that future train operations can meet the needs of both the City of
Santa Monica and Metro, both in terms of train and street traffic operations, specific
design and construction activities are required. As outlined below, staff have been
working with Metro and the Construction Authority to determine the appropriate design
elements required to meet the operational needs of Metro and the City. Therefore, staff
recommends a Memorandum of Understanding (MOU) and all other appropriate
agreements with Metro and the Construction Authority regarding train operation on City
streets. Although still subject to negotiation and possible change, a copy of the
proposed draft MOU is attached.
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Background
The Expo Line will connect Downtown Los Angeles to Downtown Santa Monica. The
three stops in Santa Monica will be at the 26th Street/Bergamot Station, Colorado /171h
Street/SMC Station, and the Downtown Santa Monica Station. The Construction
Authority is designing and building the Expo Line. Once complete, the Expo Line will be
turned over to Metro for operation. Phase 1 of the line to Culver City opened April 2012,
just as construction began on Phase 2 to extend the line to Santa Monica. Phase 2 of
the Expo Line is scheduled to open in early 2016.
Discussion
In April 2013 the Construction Authority's contractor, Skanska -Rados Joint Venture
(SRJV), began design efforts related to train control and associated traffic signal
operation. On Colorado Avenue, between 17th and 4th Streets the Expo Light Rail line
will operate as a "street running" train. This type of operation requires the train to
adhere to all traffic signals, and requires extensive modifications to the City's existing
traffic signal system in order to accommodate the operation. Since the light rail
vehicles are much larger and heavier than standard automobiles, and since the trains
operate under very different controls than standard automobiles, light rail operations on
City streets could have the potential to greatly alter traffic signal operations.
City staff has been working with SRJV and Metro to identify operational parameters and
associated traffic signal modifications to ensure that normal traffic signal operations
would not be substantially altered by future light rail operations. The operations and
associated train and traffic signal equipment described in the MOU would provide for
maximum flexibility in future light rail and traffic signal operations, ensuring that the
operations as currently planned, and any future changes to operations, can occur while
minimizing the impacts to traffic signal operations and other roadway, users.
The MOU establishes the operational parameters for future light rail operation. Metro
and the City desire that Expo Phase 2 trains have the capability to operate at headway
intervals of no greater than every five minutes in each direction, to be scheduled and
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operated on the basis of Metro's rail system service delivery requirements, with notice
provided to the City for the purpose of coordinating City traffic signal requirements. This
would require that the design, construction and operation of train control systems, train
movement and grade crossing warning devices be coordinated with City -owned
vehicle /pedestrian traffic signal controllers. Further, to achieve five - minute headways at
certain intersections, City traffic signals would need to be programmed to provide
preemption by holding vehicle and pedestrian traffic to allow trains to move through the
intersection without stopping ( "train system priority control "). At other intersections, train
movements may require priority over vehicle traffic by programming City traffic signal
cycle time to accommodate train movement when a train is present, and vehicle
movement when a train is not present ( "train system preemption control ,,).
The Construction Authority would design, construct and install the necessary
infrastructure, and the City would make the appropriate adjustments to the traffic signals
to work with either train system preemption control or train system priority control
(whichever is necessary to achieve five - minute headways) where Colorado Avenue
intersects with 5th Street, 6th Street, 7th Street and Lincoln Boulevard. The Construction
Authority would design and construct Expo Phase 2, and the City would make the
appropriate adjustments to the traffic signals such that there would be train system
preemption control on Colorado Avenue between 17th Street and Lincoln Boulevard
(including Lincoln Boulevard and 15th Court).
it
Financial Impacts & Budget Actions
There is no immediate financial impact or budget action necessary as a result of
recommended action. Costs associated with maintenance of traffic signal equipment are
included in the Department's approved annual operating budget, and all other costs
associated with maintenance of the light rail line are the responsibility of Metro.
Prepared by: Sam Morrissey, P.E., Manager of Parking and Traffic
David Martin, Director
Planning & Community Development
Attachments:
A) Draft Agreement
N
Forwarded to Council:
Rod Gould
City Manager
Memorandum of Understanding
regarding Five Minute Headways on Expo Line
This Memorandum of Understanding ( "MOU ") is dated as of January _, 2014
and entered into by and among the Los Angeles County Metropolitan Transportation
Authority ( "LACMTA "), the City of Santa Monica (the "CITY ") and the Exposition Metro
Line Construction Authority ( "Construction Authority'). LACMTA, CITY and
Construction Authority are collectively referred to herein as the "Parties" and
individually as a "Party."
RECITALS:
A. The Construction Authority is a public entity created pursuant to Section 13260C
of the California Public Utilities Code ( "PUC ") currently overseeing the planning,
final design and construction of Phase 2 of the Los Angeles — Exposition Metro
Line Light rail project ( "Expo Phase 2 ") located within the City of Santa Monica.
B. PUC Section 132650 requires that LACMTA operate Expo Phase 2 upon
Construction Authority's completion of Expo Phase 2.
C. From the City of Santa Monica boundary at Centinela Avenue to 17th Street,
Expo Phase 2 will be operated within a semi - exclusive right -of -way, with either
grade separation or grade crossing warning systems at all street crossings.
D. From 17th Street to the Downtown Santa Monica Terminus Station, Expo Phase2
will be operated on Colorado Avenue within semi - exclusive street right -of -way
(street- running mode).
E. LACMTA, Construction Authority and CITY desire that Expo Phase 2 trains will
have the capability to operate at headway intervals of no greater than every 5
minutes in each direction ( "5- Minute Headways "), as determined by Metro
Operations in its sole discretion. The Expo Phase II Segment 313/3C Signal
Timing, Review of Median - Running Signal Operations, 5- minute (and Multiples of
5- minute) Cycle Length Alternative report prepared by Kimley -Horn and
Associates, Inc, dated 1/15/2014 , provides further details to achieve 5- minute
Headways.
F. Each party's involvement and cooperation will be required to achieve 5- Minute
Headways. This will require that the design, construction and operation of train
control systems, train movement and grade crossing warning devices are
MOU re 5- Minute Headways.37.14
coordinated with City -owned vehicle /pedestrian traffic signal controllers ( "Traffic
Signals "). Further, to achieve 5- Minute Headways at certain intersections,
Traffic Signals will need to be programmed to provide pre - emption by holding
vehicle and pedestrian traffic to allow trains to move through the intersection
without stopping. California Manual on Uniform Traffic Control Devices
( "MUTCD ") Section 4A.02 describes this programming as Train System
Preemption Control; where regular operation of a traffic control signal transfers to
a special control mode of operation ( "Train System Preemption Control').
G. At other intersections, train movements may require priority over vehicle traffic
by programming Traffic Signal cycle time to accommodate train movement when
a train is present and vehicle movement when a train is not present. California
MUTCD Section 4A.02 describes this programming as Train System Priority
Control; a means by which the assignment of right -of -way is obtained or
modified. ( "Train System Priority Control')
H. Each Party to this MOU desires to enter into this MOU to understand and agree
upon how they will coordinate and work together in order to accomplish 5- Minute
Headways on Expo Phase 2.
NOW THEREFORE, to achieve 5- Minute Headways, the Parties hereby agree as
follows:
AGREEMENT:
1. Construction Authority has or will eliminate from design and construction of
Expo Phase 2 the northbound left turn at 5th Street and Colorado Avenue
( "Left Turn Lane "). CITY understands the need to eliminate the Left Turn
Lane and will provide the necessary associated permits and approvals.
2. Construction Authority will design and construct Expo Phase 2 such that there
will be Train System Preemption Control on Colorado Avenue between 17Th
Street and Lincoln Avenue (including Lincoln Avenue). CITY will make the
appropriate adjustments to the Traffic Signals on Colorado Avenue between
17 h Street and Lincoln Avenue, to work with such Train System Pre - emption
Control.
3. Construction Authority will design, construct and install the necessary
infrastructure consistent with the Approved for Construction (AFC) plans to
MOU re 5- Minute Headways.3.7.14
work with either Train System Preemption Control or Train System Priority
Control (whichever is necessary to achieve 5- minute headways) at the
intersections where Colorado Avenue intersects with 5th Street, 6th Street,
7th Street and Lincoln Boulevard. CITY will make the appropriate
adjustments to the Traffic Signals at the intersections where Colorado Avenue
intersects with 5th Street, 6th Street, and 7th Street to work with such Train
System Preemption Control and Train System Priority Control.
4. Train System Preemption Control is needed at the intersection of 15th
Street /Court Avenue. Construction Authority has confirmed to LACMTA that
Train System Preemption Control can be achieved at the intersection of 15th
Street/Court Avenue using the detectors shown in the latest design [to be
located at the west end of the 17th Street Station Platform and without the
need for additional infrastructure.
5. CITY will program the pedestrian crossing phase at Colorado Ave. /5th Street
to activate by push button only when pedestrians are present.
Construction Authority will design, construct and install the necessary
infrastructure consistent with the Approved for Construction (AFC) plans,
for the City to operate emergency vehicle preemption ( "EVP ") across
Colorado Avenue at Lincoln Boulevard and at Colorado Avenue at 14th
Street, except when the Traffic Signal at such intersections are in Railroad
Preemption Control mode. EVP will generally work as follows: When an
emergency vehicle is responding to an emergency, Traffic Signals at 14th
Street and Lincoln Boulevard will be programmed by the City to provide
preemption for the emergency vehicle only where a train is not approaching
the intersection. The Traffic Signal will also be programmed by the City to
provide at those intersections where a train is approaching the intersection,
the emergency vehicle will be required to stop if it has a red light and proceed
through the intersection only if safe to do so. CITY will prepare specific
operational protocols to implement the emergency preemption as described
herein. CITY will allow LACMTA to review and comment on such operational
protocols so the two agencies can coordinate and maximize public safety
during an emergency.
7. Provided Construction Authority and CITY perform as set forth herein and
barring unforeseen conditions, LACMTA will have the capability to operate 5-
Minute Headways when required by Metro operations, at its sole discretion, at
95% on -time performance.
Construction Authority has evaluated the potential impacts of the specific
actions described in this MOU, including without limitation, elimination of the
Left Turn Lane and determined that such actions will not result in new or more
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MOU re 5- Minute Headways.3.7.14
adverse significant environmental impacts of Expo Phase 2 evaluated in the
Final Environmental Impact Report or otherwise require the preparation of a
supplement to the Final Environmental Impact Report.
9. If an issue arises during design, construction, testing, pre- revenue and /or
revenue operation of Expo Phase 2 which impacts LACMTA's ability to
achieve 5- Minute Headways, the Parties agree to work cooperatively together
to resolve any outstanding issues.
10. This MOU shall be binding upon and inure to the benefit of each Party to this
Agreement and their respective successors and assigns.
11. The terms and provisions of this MOU may not be amended, modified or
waived, except by an instrument in writing signed by the Parties.
12. Waiver by any Party to this MOU of any term, condition, or covenant of this
MOU shall not constitute a waiver of any other term, condition, or covenant.
Waiver by any Party of any breach of the provisions of this MOU shall not
constitute a waiver of any other provision, nor a waiver of any subsequent
breach or violation of any provision of this MOU.
13. This MOU shall be interpreted, construed and governed according to the laws of
the State of California.
14. This Agreement constitutes the entire agreement of the Parties with respect to
the subject matter hereof and supersedes all prior or contemporaneous
agreements, whether written or oral, with respect thereto
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MOU re 5- Minute Headways.3.7.14
IN WITNESS WHEREOF, the Parties hereto have caused this MOU to be executed by
their authorized representatives.
LOS ANGELES COUNTY METROPOLITAN TRANSPORTATION AUTHORITY
ARTHUR T. LEAHY
Chief Executive Officer
CITY OF SANTA MONICA
m
ROD GOULD
City Manager
EXPOSITION METRO LINE CONSTRUCTION AUTHORITY
0
RICHARD D. THORPE
Chief Executive Officer
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MOU re 5- Minute Headways.37.14
Date
IF
Date
Reference:
MOU No. 9913
(CCS)