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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. 1 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 2 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 3 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 4 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 5 MOU re 5- Minute Headways.37.14 Date IF Date Reference: MOU No. 9913 (CCS)