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6 - Transportation Demand Management (TDM) Master Plan and work planCITYOFBOULDER TRANSPORTATION ADVISORY BOARD AGENDAITEM MEETING DATE: March 13, 2006 AGENDA TITLE: Staff briefing and TAB input on Transportation Demand Management (TDM) master plan and work lan PRESENTER/S: Tracy Winfree, Director of Public Works for Transportation Michael Gardner-Sweeney, Transportation Planning and Operations Coordinator Mar[ha Roskowski, GO Boulder Manager Andrea Robbins, TDM Planner Randall Rutsch, Senior Transportation Planner PURPOSE: As part of the approval process for the 2003 Transportation Master Plan (TMP), Planning Boazd asked that the TDM portion of the plan be more fully developed. In its adoption of the plan, Council directed that a more detailed TDM implementation plan be prepazed. Given existing budget and personnel constraints, staff has been working on the TDM program but the current environment has not allowed for significant new TDM initiatives. However, with planning underway for the Boulder Transit Village Area Plan, a new opportunity has been presented for piloting TDM measures in the community. Staff has prepared the assessment and work program in Attachments A and B to document ongoing TDM programs, identify areas to be enhanced and suggest new initiatives that could be piloted in the Boulder Transit Village azea. BACKGROUND: During the development of the 2003 TMP, Planning Boazd was provided detailed briefings on several occasions on the policies and development of the Plan. In addition, the Board participated in a joint study session with City Council in July 2003 that refined and confirmed the policy direction and implementation strategies of the plan. However, when the plan was presented to the Board for a recommendation on approval to City Council, the Boazd recommended against approval. On a motion by Macon Cowles that was seconded by John Spitzer, the Planning Board recommended that City Council not approve the Transportation Master Plan because of failure to adequately address Transportation Demand Management (TDM) as set forth below. "Transportation Demand Management (TDM) represents an important opportunity to make more efficient use of transportation infrastructure, to ease congestion and to encourage a shift to alternate modes from the SOV. Resolution 922 makes room for an additiona15Q000-60,000 jobs in Boulder, which will be accommodated in new non-residential buildings that total 15,000,000 TransportationAdvisory Board Agenda Item V. Page 1. to 18,000,000 squaze feet. Resolution 922 also makes room for an additional 10,000-15,000 residential housing units. Given the scale of growth authorized by the Resolution, it is important to maintaining the character of the Boulder Valley as set forth in the Boulder Valley Comprehensive Plan that the Transportation Master Plan (TMP) set forth an aggressive plan for TDM.1 The Planning Boazd recommends that the TMP section on TDM be drafted so that new construction over a certain threshold achieve a performance-based TDM goal that can be objectively measured, and that will be monitored over time. Such a goal might be achieved by providing the common sense, easily achieved TDM features set forth below:2 1. Kiosk which will be actively managed to provide up-to-date information about transportation alternatives. 2. On-site transportation coordinator. 3. Fueling station for electric vehicles 4. Free parking spaces for cazs available for hourly rental from "Caz Shaze." 5. Two small electric vehicles for employees or residents to use for shoR trips. 6. Eco Passes for all residents and employees. Includes a ride on demand for urgent needs (such as when a parent receives word of a sick child at school). 7. Secure and covered bike pazking with showers for bike commuters 8. Preferred parking spaces for vanpools and carpools. While these measures are interesting and thoughtful in the context of the development in which they were proposed, the Planning Boazd recommends that the TMP include a performance-based TDM goal that leaves specific measures to the ingenuity of developers and property owners as to how the goal can be achieved in any single project. But the TMP needs to bring that goal into the Comprehensive Plan, so that it can be implemented through appropriate Land Use Regulations, including Site Review Criteria which aze cunenfly inadequate to the challenges that lie ahead. This motion passed with a vote of 4-2; E. Jones, S. Mole, J. Spitzer and M. Cowles supported the motion, and B. Pommer and A. O'Hashi opposed the motion. "3 Subsequently at the Sept. 16, 2003 City Council meeting, the update to the Transportation Master Plan (TMP) was presented for Council's consideration. At this meeting Council voted 7:1, Councilmember Riggle opposed, to approve the TMP Update based on the TAB recommendaGon and directed staff to develop a more detailed TDM implementation plan based on the Transportation Options Tool Kit. The city's budget has been repeatedly cut since the TMP was adopted, and the city has launched an Economic Vitality initiative aimed at retaining and supporting existiog businesses in the community. Given the limited available resources and the fact that many business people perceive TDM as a burden to business, the last couple of yeazs have not been a time to launch ~ The consultants retained by [he city to explore TDM emphasized that congestion cannot be adequately addressed without having a parking plan that deals specifically wi[h [he parking demand of commuters. Z 7'hese TDM features are those tha[ are found in the volun[ary TDM plan submitted by the developers of One BoWder Plaza. 3Plannning Board minutes from Sept. 1 l, 2003 Transponation Advisory Board Agenda I[em V. Page 2. significant new TDM measures. However, as part of the Boulder Transit Village Area Plan (BTVAP), it has become clear that TDM could play a significant role in minimizing the potential impacts of redevelopment in the azea. Depending on the ultimate vision and direction of the plan, it is likely that managed parking could be required to achieve the urban design and public spaces objectives of the plan. Consolidated swctured parking increases the flexibility for providing and managing required parking, supports a pedestrian orientation, and frees up land for public spaces. The BTVAP represents an opportunity to pilot a number of new TDM efforts in the community and to integrate these programs into the redevelopment of the azea from the start. Focusing the research and development of new TDM efforts in the Boulder Transit Village area has been identified by staff as the next high-value, strategic effort for testing and implementing the TDM programs supported by the TMP. TAB ACTION REQUESTED: The TAB is asked to consider the proposed 2006 Transportation Demand Management Work Plan in Attachment A and the Programs and Strategies in Attachment B to provide comments and suggestions. A specific focus should be on consistency of the draft work program with the goals and objective identified in the 2003 TMP. STAFF RECOMMENDATION: While city resources are cunently limited, the Boulder Transit Village (BTV) azea represents an excellent opportunity for the city to test and expand the strategies and programs ouClined within the TDM toolbox. The expected result of a successful pilot would be to expand these programs and strategies beyond the BTV area to other parts of the community. The timing of this seems right with the current support and energy devoted to the BTVAP including mu16-board involvement and the opportunity to consider the addition of significant transit service. Staff believes that the proposed work program is reasonable and identifies the high-value opportunities to advance TDM in the communiry of Boulder. NEXT STEPS: After integrating input from TAB, the Work Program will go to Planning Boazd on March 23 and City Council in April. Staff will focus efforts to reseazch and develop new TDM efforts on the Boulder Transit Village Area Plan. Attachment A. 2006 Transportation Demand Management Work Plan B. 2006 TDM Programs and Strategies Tronsporration Advisory Board Agenda Item V. Page 3. Attachment A. 2006 Transportation Demand Management Work Plan Feb.16,2006 Background: Transportation Demand Management (TDM) influences travel decisions by providing a menu of travel options to all types of travelers. A combination of financial incentives, cost savings, education, pricing, and travel services (such as transit) presented as an integrated TDM program gives drivers a reason to consider a different way to traveL These strategies, which can take the form of transportation options, programs and initiatives, effectively increase available travel choices by offering a range of opportunities as to how, when and if a commute will be made by car or in some other way. Managing the demand placed on the transportation system results in an increase in the efficiency of our community's transportation facilities. These choices can be as obvious as improved transit service or more innovative options, such as developing localized transportation management organizations (TMOs), teleworking, pazking management or instituting a TDM ordinance. Benefits: ^ Improved mobility • Improved access to site or business ^ Increased parking availability ^ Greater access to pool of employees ^ Improved employee retention • Tax benefits ^ Cost savings to employer and employee TDM Strategies: TDM strategies include travel options and/or implementation steps that developers, employers, employees and residents can choose from to customize programs that fit their specific needs. Integration of the vazious strategies is key to creating and maintaining a successful program. TDM strategies recommended in the Transportation Master Plan (TMP) Action Plan and those that are currently in place include, but are not limited to: Strategy Current Status Transpodation Options Too] Developed. distributed on an as-needed basis to managers of new developments. May Kit be u dated to create a more s stematic a roach. Transportation Management Boulder East, a T'MO-offering community transportation options in its third yeaz, is Organizations (1'MOs) guided by a board of eight business leaders. The TMP recommends that up to six areas be served by TMOs over the next 10 to 15 yeazs. Boulder East serves three of these recommended areas. Projections estimate that Boulder's T'MOs will reduce single ocwpancy vehicle trips during peak commute hours from three percent to 10 percent of all tri s de endin on where the TMO is located. General Improvement District A continuing challenge is Ihe funding of TMOs and area wide [ransportation (GID)/ Business improvements. The GID BID model has been successfully used for this purpose Improvement District (BID) throughout the country. Research is beginning to determine if a GID or BID might be beneficial to the 29'" Street, BT'V or Ara ahoe Villa e areas. Transportation Center Funding for the Central Area General Improvement District (CAGID) azea's transportation center was depleted, and this office has been closed. GO Boulder and the Downtown Management Commission (DMC) offices continue to carry on the functions that were offered b this office. Employee Transportation GO Boulder communicates monthly or more frequently with over 400 Boulder ETCs. Coordinators (ETCs) Boulder East also has a ou of I50 ETCs that the su ort and rovide services to on Transportation Advisory Board Agenda I[em V. Page 4. Attachment A. a re laz basis. Employee Shuttle Boulder East piloted a shuttle program with the assistance of federal funding. The program was cost-prohibitive to continue without this funding, but the trial was valuable and will be researched fuRhec It could morph into a more cos[ efficient car/van share ro am in the future. Eco/Transit Passes Business Eco (BECO) Pass sales for Boulder increased 15 percent (an additional 2600 eligible employees) from 2005 to 2006 and the Neighborhood Eco (NECO) program increased by nearly 25 percent (an additional 1200 eligible neighbors) from 2005 to 2006. Currendy there are a total of neazly 60,000 people in Boulder eligible to receive the NECO, BECO, CAGID or CU Smdent Eco Pass. The TMP goal is 100,000 passes in the communit under the Action Plan. Transit Shelters/Facilities The city in partnership with CU Boulder has installed 23 displays that provide real Traveler Information time transit information (NextBus). The NextBus technology is cunently being updated to provide more acwrate predictions. The city is wrrently working with RTD to develop a long-term installation and maintenance plan to enhance transit stop facilities throu hout the communit . Ridesharing Promotion, education and tracking aze provided by the Denver Regional Council of Governments (DRCOG). Boulder East and GO Boulder aided in formation of 3 VanPools from the Ft. Collins area in the last year. The Action Plan goal is the formation of five to 10 new vanpools per year. Real-time ridesharing as recommended in the TMP Action Plan but has not et been im lemented. Vehicle Pools and Car Carvshazing programs provide a fleet of vehicles, a computerized reservation system and Sharing use tracking for program members. Vehicles are conveniently placed and available to members for short-term use. The city is currently partnering with RTD and regional T'MOs to negotiate an agreement for F1exCaz to set up and operate in the DenvedBoulder area. Pool Bikes In 2005, 12 companies in east Boulder supported bike pool programs. In 2006, the number has increased to 20 companies that provide pool bikes for employees to use durin the work da . Telework DRCOG is currentl revam in , reinvi oratin and reintroducin this ro am. Bicycle/Walking (Incl. The city supports facilities that encourage walking and biking including changing, showers, lockers, stations, locker and shower facilities which overcome one of the primary stated reasons for not etc.) walkin or bikin to work. Preferential Parking Preferential parking recognizes and suppoRS ride sharing by providing discounted or preferred location parking for caz pools. The city provides preferential parking to employees that carpool, and encourages other businesses through the ETC network and the develo ment review rocess to follow this model. Unbundled Parking Leases The cost of providing parking is typically bundled in a lease or hidden from the and Pazking Cash Out employee/user. Making this cost explicit and providing the opportunity to decide how much pazking to purchase changes travel patterns and parking demand. This is a strate su ested in the TDM toolkit, but it is currentl underutilized. Transportation Allowance The ciry piloted a program to test the transportation allowance concept of paying employees not to drive; however, before the program was one-year-old, it was eliminated because of cit wide bud et cuts. TDM Friendly Site Design GO Boulder bicycle/pedestrian and transit planners review plans as they come through development review to analyze the bicycle, pedestrian and transit elements and connections for effectiveness and a ro riateness. Promotion, Marketing, and Strong promotions and campaigns continue to support TDM programs and strategies. Education 2006 will include a fresh look at these materials, with market reseazch supporting this effort. Individualized transit marketing is being done for Boulder East employers. An individualized marketin ro am will also be in in late 2006 for a nei hborhood in Transportation Advisory Board Agenda I[em V. Page 5. Attachment A. Boulder. This program will be based on the work done in Perth, Australia and Portland, Ore. and is su orted b a federal ant. Flextime Flexible work hours are often essential for employees using transit, which may not arrive accordin to fixed work hours. TDM Ordinances Currentl bein researched for a licabilit . Market-based TDM Initial subsidies are provided for transit pass programs, and vanpool programs are Strate ies su orted b offerin short-term em t seat subsidies. Areas of Focus: TDM strategies support three particulaz potential mazkets or user groups: 1. The Boulder Community 2. Regional Commuters 3. New and Redevelopment through the Development Review Process Generally, the largest transportation impact of about 70 percent can be attributed to the general community. 7mpacts resulting from those traveling within the region account for about 20 percent, and impacts created by expected new development will account for about 10 percent of future Boulder transportation impacts. There aze ongoing programs that address each of these azeas; existing efforts that require improvements and potential strategies are being reseazched as new initiatives. Community Efforts: On2oinQ Efforts to Continue • The partnership with the Boulder East TMO ^ Safe Routes to School, Teen Pass subsidies and other BVSD partnerships ~ Carpool, vanpool, schoolpool and pool bike efforts ^ Eco/NECO Pass suppoR and outreach • Employee Transportadon Coordinator Network ^ Continue to explore other cities and countries best TDM practices Ongoin~Efforts to Improve and StrenQthen • Outreach, education, mazketing and events including Walk and BikeWeek • Community design process of the Community Transit Network (C1N) of HOP, SKIP, JUMP, BOUND, DASH, STAMPEDE buses ^ Real time transit information provided by NextBus ^ The city of Boulder Employee Transportation Coordinator program • The TDM Toolkit Initiate • Mazket reseazch to help better understand who the prime target audience is for TDM messaging, how to best reach this audience, and what programs to develop that will appeal to and encourage them to better utilize their transportation options. This will enable staff to develop more focused programs and outreach efforts. ^ The development and introduction of the CMAQ-funded "Way to GO" e-bike mapping product. Transportation Advisory Board Agenda Item V. Page 6. Attachment A. ^ Boulder Transit Village (BTV) offers an opportunity to pilot innovative TDM programs, including managed parking. • A CMAQ-funded individualized mazketing program that targets a particulaz neighborhood population. This type program has been particularly successful in Perth, Australia and Portland, Ore. Regional Efforts: OngoinQ Efforts to Continue Relationships with community partners including RTD, DKCOG, Boulder County, the North Front Range MPO and Special Transit. Partnerships with local and regional TMOs to address travel on regional corridors. Initiate ^ Efforts set out by the Regional Transit Committee (RTC) to improve transit and TDM programs within Boulder and Broomfield counties. ^ The development of a region wide cazshaze program. Continue to work with RTD, DRCOG, local and regional TMOs etc, to negotiate with F1exCaz to set up a carsharing program in this region. • TDM elements of the FasTracks Local Optimization (FLOW) plan to ensure success of FasTracks in our community. ^ Efforts along US 36 through the Environmental Impact Statement (EIS) process to mitigate transportation impacts that will result from fuwre FasTracks construction. Development Review: As new a development goes through the Development Review process, it is required to submit a TDM plan. This plan may be based on options that aze provided in the TDM toolkit. However, once the plan is negotiated and ultimately approved, cunently there is not a system to track whether the developer is following through with the promised TDM strategies. A feature of TDM programs in other cities is an expanded range of options for negotiations or specific incentives that may be offered by the city in reWrn for developer commitments. For example, a developer may request a higher F1oor Area Ratio (FAR) or fewer pazking spaces than would normally be required in return for establishing a specific TDM program for employees or residents who will ultimately occupy the to-be-developed space. Developers in Boulder to date have shown little interest in either increasing their FARs or decreasing their available parking within the ranges available in the code. Onvoing Efforts to Imorove and Continue Use the existing TDM Toolkit to develop a program that gives developers more guidance as to which options aze the best choice for reducing traffic impacts at their site at a cost that is feasible for them or develop groups of TDM packages that they can choose from in order to help speed up [he process. As a part of Development Review's TDM process, enhanCe the system to track and administer the approved TDM programs to follow up with developers after building and occupancy aze complete. Transportation Advisory Board Agenda Item V. Page 7. Attachment A. New initiatives Strategies that the city is investigating to strengthen the TDM element of the development review process include: • Developing a program similaz to the "Green Points" program. A first iteration of this program was presented in September 2001. The goal was to tie together pazking requirements and TDM options in a point system format. The points assigned would have been determined by land use type as well as transportation options' accessibility to the site. Another option cunently being researched envisions a point system that is related to the number of trips reduced. ~ Developing TDM standards that would be applied across the board to all new development which would be based on the existing toolkit. ^ The possibility of creating a TDM ordinance that requires the submission of a TDM plan or fees in lieu of a TDM plan to be provided as a part of the development review process. ^ Developing case studies and standardized surveys to track and document results and mode shifts. ^ Using theBoulder Transit Village (BTV) to pilot innovative TDM programs that include pazking management for low, medium and high density levels, and for implementing a Business or General Improvement District. The BID/GID would enable this azea to support many of its own transportation options such as transit pass programs, information centers, shuttles etc. Staff Recommendation: Staff recommends that the Boulder Transit Village be a used as pilot program to test some of the new initiatives mentioned above including: The formation of a GIDBID enabling this azea to self-support many of its own transportation options. Pazking management initiatives. History and research support the notion that TDM programs have the best chance of succeeding when combined with strong pazking management programs. These pazking management programs could include preferenual parking for caz share cars, carpools, bikes eta It might also include pazking masimums (rather than minimums), pazking fees, shared-pazking programs and parking management based on vazying densities. Additional staff recommendations include: That a TDM administrative program be developed and put in place. This program would oversee TDM programs to ensure that all promised elements aze put into place as promised during the development review process. This may or may not involve the development of TDM ordinance. The TDM toolkit be revised to create a program that is more in line with the "Green Points° program, thus giving developers more guidance as to which options are the best choice for reducing traffic impacts at their site at a cost that is feasible for them. Investigating the idea of offering a quicker review process for developers that agree to develop, administer and track a TDM program aimed at reducing transportation impacts at their site. This may include offering prepackaged TDM programs for developers to choose from. Transportation Advisory Board Agenda Item V. Page 8. Attachment A. ^ Research the implications of implementing an ordinance requiring TDM plans be submitted, administered and tracked as a part of the development review process. TransponationAdvisory Board Agenda Item V. Page 9. Attachment B. r I n i~ t Ni ,ea wt i v e s NOTE This yellow color identifies projects with new energy, enthusiasm andlor resources Community Efforts Significant impact Explore Best Practices ' Don Shoup *Other experfs Business Eco Pass support 8 outreach ETC Network Residential NEGO Pass support & outreach Partnering with Boulder East poolbikes intlividualized TDM plans EcoPass Xtra Case studies City Employee ETC program Partnerships ' with Boulder Caunty Development Review Focused ImpacE Negotiated TDM Plans Targeted market research to identify barriers, improve programs and fine- tune messages (undenvay) e-Bike Mapping Product (funded) Boulder Transit Village: Opportunity to pilot innovative TDM programs, including managed parking (untlerway) Individualized Marketing Program (funded) Regional Transit Committee countywitle transit & TDM effort (possible'06 ballot issue) FlexCar DenverlB~ulder (under discussion) FasTracks Local Optimization (underway) Construction mitigation efforts within US 36 EIS (draft summer'06, future funtling) Boulder Transit Village: Opportunity to pilot innovative TDM programs, inclutling managed parking . Explore opportunities to strengthen tlevelopment review: * Atld administrative follow-up ' Green points ' TDM standards ' TDM ordinances (staff review underway) Explore options that developers value that could be offered to enc~urage developers to provitle significant TDM strategies as a part of their development.