July 19, 2005
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SUBJECT: |
2004-0168– City of Sunnyvale – Study Issue to consider options for Transportation Demand Management (TDM) for new High-Density Residential Development. |
REPORT IN BRIEF
The purpose of this study is to examine how high-density residential development may encourage reductions in single occupant vehicle trips during the peak hour traffic periods. The general term used to describe transportation management systems is Transportation Demand Management (TDM). Methods of implementing TDM are divided into two categories for this report, land use (site development standards) and programmatic (incentives and information) techniques. Historically, both nationally and locally, TDM has been implemented at the demand or employer end of the spectrum rather than at the supply or residential end. This point of emphasis is due primarily to financial aspects, practicable management of programs, and inflexibility of employment location compared to flexible residential location. Sunnyvale has had success with high intensity industrial development implementing site design features and other TDM programs. However, Sunnyvale does not have experience with residential TDM program techniques.
This study provides the opportunity to consider strengthening of Sunnyvale's existing multi-modal policies and encourage new high-density residential development to take advantage of the many transportation resources that are available. The City currently has multiple land use policies, design guidelines, and zoning standards supporting choices for walking, bicycling, public bus transit, public light rail transit, Caltrain rail system, as well as regional ride share and carpooling programs. Staff has identified three geographic areas of Sunnyvale that are good candidates for emphasized TDM due to their proximity to transit, likelihood of new development or redevelopment, and existing high-density development zoning or general plan designation. These areas are Tasman and Fair Oaks (ITR 8), Downtown, and along El Camino Real. Staff is recommending new polices that identify these areas as targeted high-density TDM development that require specialized attention to TDM site development features. Staff also recommends additional site development policies outlining expected transit and pedestrian orientation for building and site improvements. On June 27, 2005, the Planning Commission voted 7-0 to endorse the staff recommendations.
BACKGROUND
The Study Issue is entitled Transportation Demand Management for Higher Density Residential Projects. The issue was originally proposed by City Council in 2003 but fell below the line. During the 2004 Study Issue process the project was ranked third by the City Council and 1 out of 5 by the Planning Commission. The Bicycle and Pedestrian Advisory Committee ranked the item 8 out of 14 in 2004. The project was deferred until 2005 due to midyear reranking last year to study signage requirements along El Camino Real for auto dealerships and large retail.
Transportation Demand Management (TDM) is commonly defined as actions that reduce single occupant vehicle trips during the peak hours. However, as congestion has increased over time and the demand has spread beyond the typical peak hour of commuting, TDM research is evolving to account for total vehicle miles traveled, not just peak hour trips. Sunnyvale TDM programs address the peak hour traffic period which is on weekdays from 4-6 p.m. The objective of TDM is to improve traffic flow and ease congestion. Related aspects of TDM are implied higher rates of public transit utilization and improved air quality by reduced vehicle emissions from fewer miles traveled. TDM generally supports a variety of choices for reduced vehicle usage, such as the following:
- Walking
- Bicycling
- Public Transit (bus, light rail)
- Rail (Caltrain, ACE)
- Carpool
- Telecommuting
The following tables show comparisons of how people choose to travel to work.
|
Mode of Transportation to Work (Census 2000) |
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|
% Drive Alone |
% Carpool |
% Transit |
% Bike |
% Walk |
% Work at Home |
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Sunnyvale |
80% |
10% |
4% |
1% |
2% |
3% |
|
SC County |
77% |
12% |
4% |
1% |
2% |
3% |
|
Bay Area |
68% |
13% |
10% |
1% |
3% |
4% |
|
CA |
72% |
15% |
5% |
1% |
3% |
4% |
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Sunnyvale Work Trips % Mode Changes 1990-2000 (Census) |
|
Method |
1990 Mode % |
2000 Mode % |
Points |
|
|
Drove Alone |
81.97% |
80.14% |
-1.83 |
|
|
Carpooled |
9.60% |
10.43% |
0.83 |
|
|
Bus |
1.77% |
2.60% |
0.83 |
|
|
Rail |
1.18% |
1.12% |
-0.06 |
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Bicycle |
0.91% |
0.73% |
-0.17 |
|
|
Walk |
1.60% |
1.54% |
-0.06 |
|
|
Work at Home |
2.26% |
2.62% |
0.35 |
|
|
Other Modes |
.93% |
0.81% |
-0.12 |
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|
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|
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Sunnyvale has previously required employers to implement TDM Programs for certain developments. TDM requirements have been negotiated on a project specific basis in Sunnyvale for high intensity industrial development (greater than 35% FAR). The Moffett Park Specific Plan requires high intensity development above the standard FAR to implement a predetermined level of TDM. However, there are no City mandated or sponsored residential TDM programs in place for Sunnyvale.
Although TDM goals for trip reduction are firm, the methods for reaching the goals are flexible. Traditionally each individual TDM program outlines the goal and which techniques are intended to achieve the stated goal. However, the individual techniques vary by location, and even by the year, based on efficiency and effectiveness. Techniques may be altered annually to meet the needs of the business. There is no one-size-fits-all solution to TDM.
EXISTING POLICY
Selected Goals and Policies are listed below. Attachment "F" includes a comprehensive list of relevant Goals and Polices from the General Plan.
Land Use and Transportation Element
Policy R1.9 Support flexible and appropriate alternative transportation modes and transportation system management techniques that reduce reliance on the automobile and serve changing regional and City-wide land use and transportation needs.
Action Statements
R1.10.2 Support alternative transportation services, such as light rail, buses, and commuter rail, through appropriate land use planning.
R1.10.3 Encourage mixed uses near transit centers.
Policy C2.4 Determine appropriate density for housing based on site planning opportunities and proximity to services.
Action Statements
C2.4.1 Locate higher density housing with easy access to transportation corridors, rail transit stations, bus transit corridor stops, commercial services, and jobs.
GOAL C3 ATTAIN A TRANSPORTATION SYSTEM THAT IS EFFECTIVE, SAFE, PLEASANT, AND CONVENIENT.
Action Statements
C3.1.5 Promote the reduction of single occupant vehicle (SOV) trips, and encourage an increase in the share of trips taken by all other forms of travel.
Policy C3.5 Support a variety of transportation modes.
Action Statements
C3.5.3 Support land uses that increase the likelihood of travel mode split.
Policy C3.6 Minimize expansion of the current roadway system, while maximizing opportunities for alternative transportation systems and related programs.
Action Statements
C3.6.2 Promote public and private transportation demand management.
C4.2.3 Develop incentive programs to reduce parking demand, support alternative transportation, and reduce peak period traffic.
Air Quality Sub Element
Policy 3.7B.1 Utilize land use strategies to reduce air quality impact.
Action Statements
3.7B.1a. Promote extension of transit systems, and locate higher density development/redevelopment along transit corridors.
3.7B.1b. Promote mixed land use development that provides commercial services such as day care, restaurants, banks and stores near employment centers, reducing auto trip generation by promoting pedestrian travel. Promote neighborhood commercial and park uses within residential developments to reduce short auto trip generation by making pedestrian and bicycle trips feasible (for example, require sidewalks, bike trails and bicycle parking areas).
Policy 3.7B.2 Assist employers in meeting requirements of Transportation Demand Management (TDM) plans for existing and future large employers and participate in the development of TDM plans for employment centers in Sunnyvale.
Citywide Design Guidelines
Site Plan
A9. Provide pedestrian links between residential developments and nearby employment and shopping centers, schools and parks to encourage pedestrian activities.
Parking Circulation
A7. Separate pedestrian and automobile traffic paths, and minimize conflict areas for safety.
A9. Large developments shall provide sufficient bicycle parking and covered lockable racks close to building entrances.
Downtown Specific Plan
GOAL B. ESTABLISH THE DOWNTOWN AS THE CULTURAL, RETAIL, FINANCIAL AND ENTERTAINMENT CENTER OF THE COMMUNITY, COMPLEMENTED BY EMPLOYMENT, HOUSING ANDTRANSIT OPPORTUNITIES.
GOAL C. PROMOTE A BALANCED STREET SYSTEM THAT SERVES ALL USERS WELL REGARDLESS OF THEIR MODE OF TRAVEL.
Policy C.2. Encourage strong pedestrian and bicycle linkages through the downtown.
Policy C.3. Promote the use of public transit by intensifying land use and activities
near transit cores.
Policy C.4. Encourage shared parking in the downtown to minimize the amount of
land devoted for parking areas and manage parking so it does not dominate mode choice decisions or the built environment.
Public Improvements for Future Downtown
Chapter 7 Circulation Plan
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Enhancement of bus transfer facility on Frances Street
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Creation of bicycle lanes on Evelyn, Iowa and Sunnyvale Avenues
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Installation of Mathilda Avenue railroad overpass improvements
Housing and Community Revitalization Sub Element
Policy A.1 Maintain a supply of residential land for new housing construction.
Action Statements
A.1.d Study increasing the density of residential areas near transit stops and along major transportation corridors in conjunction with regional transportation plans.
Policy A.3 Continue to allow housing in commercial zoning districts.
Action Statements
A.3.a Maintain provisions of the zoning code that permit housing to be constructed in commercial districts after planning review.
DISCUSSION
The Transportation Demand Management concept has limited practice with supply (residential) implementation across the nation. An abundance of information is available pertaining to TDM techniques from the demand (employer) side of the equation. Cost benefit analysis of approaches, as well as likelihood of trip reduction rates, has been thoroughly reviewed from both conceptual and specific project approaches for employer based TDM. In fact, the City of Sunnyvale already has a "TDM Toolkit" prepared by a consultant that is used for guidance on implementing employer-based TDM requirements.
During this study of TDM for residential uses, staff relied heavily upon employer based TDM techniques to supplement the general lack of residential TDM experience and resources to draw from. The primary sources of information researched for the project included contact with VTA Staff administering the Residential ECO Pass program, local housing developer experience, the City of Berkeley analysis of TDM requirements for its Downtown, the City of Boulder citywide TDM efforts, the County of Arlington, Virginia requirements for special site plan review permits requiring TDM techniques, and Federal Highway Administration reports. City staff has also used GIS to provide background data and mapping for an understanding of current travel patterns and land use in the City.
This report addresses a variety of planning factors involved in determining appropriateness and potential success of implementing a TDM program. The outline for this discussion is stated below.
Planning Factors