Table 1: Existing Policies in Colma
Area of
Research Relevant Policies, Programs, and Initiatives
Implications for VMT
Analysis and
Thresholds
CEQA
transportation
thresholds or
LOS goals
Policies in the Mobility Element of the 2040 General Plan and EIR require improving mobility along major segments and intersections. The Final EIR for the 2040 General Plan EIR found VMT impacts to be less than significant.
The following goal and policies establish a VMT standard and outline specific actions and programs the Town will undertake to ensure a multimodal approach to traffic impact analysis:
Goal M-2 Improve mobility along major street segments and at major intersections.
Policies:
M-2-1: Reduce Vehicle Miles Traveled.
M-2-2: Other Traffic Flow Benchmarks.
M-2-3: VMT Transportation Performance Measures.
M-2-4: Multi-Modal Impact Fee.
M-2-5: LOS Planned Operating Conditions.
M-2-6: Development Review Requirements.
New development
projects to achieve a
reduction in VMT,
using VMT standards
for traffic impact
analysis vs LOS
Transportation
Plans
The Town has adopted the 2030 Climate Action Plan (CAP) Reducing emissions from the transportation sector requires: 1) expanding zero emission vehicle infrastructure and increasing zero emissions vehicles versus fossil fuel vehicles which have high carbon intensity 2) increasing vehicle efficiency, and 3) reducing vehicle miles traveled. The 2030 CAP has established the following emission reducing strategies:
• Establish smart growth policy
• Expand walkable and bikeable street landscape and green infrastructure
• Encourage and incentivize bike and car sharing companies to operate in the Town
• Support Safe Routes to School Program
• Develop low emission, off-road equipment program
• Support local farmer’ markets
• Promote & educate benefits of electric vehicle ownership • Expand EV charging infrastructure through incentives and partnerships
• Establish commercial and residential green building policy: EV charging
• Enhance infrastructure to promote shared electric bikes and scooters
Encouraging the use
of VMT reduction
strategies and
methods to
encourage non-
automobile travel.
Town of Colma
VMT Thresholds and Screening Guidelines- June 2023
Area of
Research Relevant Policies, Programs, and Initiatives
Implications for VMT
Analysis and
Thresholds
• Update vehicle procurement policy to require municipal vehicles to be ZEV
• Establish flexible schedules policy for public employees • Promote commute alternatives program to businesses
Transportation
Demand
Management
(TDM)
The Town participates in TDM program outlined by C/CAG, new major developments require detailed and verifiable TDM program during the review of the application process.
The C/CAG program
applies to all projects
that generate more
than 100 daily trips.
The overall goal is to
achieve a 65% or less
drive alone
modeshare
throughout the
County.
Parking
requirements
The 2040 General Plan states that encouraging an efficient and adequate parking supply can reduce the negative effects of parking on the pedestrian environment and surrounding neighborhood, and support the Town’s goals for complete streets, walkability, bike ability, and effective transit. A shared public parking approach and “park-once” strategy allows motorists to complete multiple daily tasks before moving their vehicle, thereby reducing both vehicle trips and parking demand, particularly in mixed-use areas.
The following goal and policies outline specific actions the Town will undertake to ensure on and off-street parking supply can be used more efficiently.
Goal M-8: Provide a comprehensive parking strategy that considers alternative transportation modes and connections to efficiently serve the needs of residents, visitors, and businesses.
Polices:
M-8-1: Parking Standards.
M-8-2: Flexible Residential Parking Standards.
M-8-3: Town-wide Parking Zone Adjustments.
M-8-4: Residential Parking Permit Program.
M-8-5: Alternative Energy Vehicle Parking.
By reducing the
number of available
parking for residents
and encouraging
alternative
transportation
opportunities, overall
VMT could be
achieved.
Housing
Element
A new Housing Element Overlay District is proposed where future projects no longer have minimum parking requirements. The overlay district includes parcels that are within ½ mile high-quality transportation corridors, which will factor in VMT reduction.
Reduced required
parking spaces will
allow for increased
units (affordable).
Also parcels in
overlay are located
along high-quality
transit corridors.
Town of Colma
VMT Thresholds and Screening Guidelines- June 2023
Area of
Research Relevant Policies, Programs, and Initiatives
Implications for VMT
Analysis and
Thresholds
Impact fees 2040 General Plan considers a transportation impact fee for new developments tied to performance measures.
VMT Impact fee can
be used towards
VMT reduction
measures and
programs.
VEHICLE MILES TRAVELED METRICS
This section defines and describes the calculations for the different VMT metrics recommended by OPR for analysis (Figure 1). Vehicle Miles Traveled measures the amount and distance people drive by personal vehicle to a destination. Typically, development projects that are farther from other complementary land uses, and in areas lacking transit or active transportation infrastructure, generate more VMT per capita than development projects that are near complementary land uses and robust transportation options.
Total VMT
Vehicle Miles Traveled, or VMT, measures the amount and distance people drive by personal vehicle to a destination. Total VMT is calculated by multiplying the total number of vehicles on all roadway segments within a geographical area by the average miles traveled per vehicle. Using an absolute VMT metric like total VMT may be appropriate for assessing a project’s cumulative impacts.
Household VMT per capita
Household VMT per capita is calculated as the total miles of household vehicle travel divided by the total population within a specific geography. OPR recommends using VMT per capita for analyzing transportation impacts for residential projects. Projects that generate VMT per capita that exceeds 15 percent below existing levels, measured regionally or at the city level, may indicate a significant transportation impact.
Employment VMT per employee
Employment VMT per employee is calculated as the total miles of employment vehicle travel divided by the total number of workers within area specific geography. OPR recommends using VMT per employee for analyzing transportation impacts for office projects. Projects that generate VMT per employee that exceeds 15 percent below existing regional VMT per employee may indicate a significant transportation impact. Travel to and from work typically crosses city boundaries, and therefore the threshold is set using a regional average baseline. The region can be defined as the County or regional planning body.
Town of Colma
VMT Thresholds and Screening Guidelines- June 2023
Figure 1 Vehicle Miles Traveled Metrics
OPR recommends the use of per capita metrics for office and residential land use, and the project’s effect on total VMT for retail land use but does not provide guidance on other land uses.
Town of Colma
VMT Thresholds and Screening Guidelines- June 2023
Table 2 below summarizes the recommended VMT Metrics where they differ from OPR guidance.
Table 2: Summary of Common VMT Metrics
Project Type
OPR Recommended
Metric
Colma Recommended
Metric Rationale
Office, R&D, Light
Industrial
Home-based Work
VMT per Employee
Home-based Work
VMT per Employee
Project types are limited in Colma.
Residential Home-based VMT per
Resident
Home-based VMT per
Resident
Small residential population with
limited parcels for future
development.
Retail Project Effect on Total
Regional VMT
Project Effect on Total
Regional VMT
Colma is a regional destination for
retail, with people traveling from
surrounding communities to shop.
[Other land uses] Project Effect on Total
Regional VMT or
Appropriate per
Capita Metric
Project Effect on Total
Regional VMT
76 percent of land in Colma is
dedicated to cemetery use;
therefore, the Town does not expect
expansion or development of non-
standard land uses. Total regional
VMT would be considered as a metric
for these land uses, if proposed.
VMT IMPACT SIGNIFICANCE THRESHOLDS
SB 743 changes the focus of transportation impact analysis in CEQA from measuring impacts to drivers, to measuring the impact of driving. Lead agencies have discretion in setting thresholds of significance for what constitutes a significant impact in CEQA. Pursuant to Section 21099 of the Public Resources Code, the criteria for determining the significance of transportation impacts must:
• Promote the reduction of greenhouse gas (GHG) emissions; • Develop multimodal transportation networks; and
• Create a greater diversity of land uses.
Town of Colma
VMT Thresholds and Screening Guidelines- June 2023
OPR considers the following land use projects would have a significant impact on the environment if:
• Residential. The home-based VMT per resident generated by the project is more than 15 percent1 below the nine-county Bay Area regional average or citywide average2 home-based VMT per resident.
• Office/Employment. The home-based-work VMT per worker generated by the project is more than 15 percent below the nine-county Bay Area regional3 average home-based-work VMT per worker.
• Retail and Other Land Uses. The project results in a net increase in VMT within its sphere of influence.
The following summarizes OPR guidance and recommendations for the Town of Colma:
Table 3: Criteria for Significant Impacts
Element of Impact Criteria OPR Recommendation Colma Recommended Metric Threshold: VMT Reduction from
Baseline
15% Below Baseline VMT per Capita
(2015) 15% Below Baseline VMT per Capita (2015)
Threshold: Project Effect on VMT No increase in Regional VMT No increase in Regional VMT
1 As noted in OPR’s Technical Advisory, “OPR recommends that a per capita VMT that is fifteen percent below that of existing development may be a reasonable threshold” and that “fifteen percent reductions are achievable at the project level in a variety of place types”, while also acknowledging that “emissions from statewide passenger vehicle travel per capita [have been] increasing and going in the wrong direction” based on the California’s Air Resource Board (ARB) 2018 Progress Report on California’s Sustainable Communities and Climate Protection Act. Other potential thresholds referenced in Table 4 include VMT reduction values that the 2017 and 2022 ARB Scoping Plan Updates, which indicated that California may need to reduce VMT further to meet statewide GHG targets. Previous versions of Table 4 listed the VMT reduction presented in ARB’s Draft 2022 Scoping Plan (May 2022) of 22 percent, which was updated to 25 percent by 2030 and 30 percent by 2045 in the ARB’s Final 2022 Scoping Plan (November 2022). All ARB documents can be accessed here: https://ww2.arb.ca.gov/our-work/programs/ab-32-climate-change-scoping-plan/2022-scoping-plan- documents.
2 OPR’s guidance notes that City’s may select the citywide average baseline value applies until such time that a City exceeds the housing allocation for the City as identified in the Sustainable Communities Strategy (SCS) for the Bay Area region, which is Plan Bay Area 2050; if a City exceeds the SCS housing allocation, the nine-county Bay Area regional average should apply.
3 OPR Guidance notes that, “In cases where the region is substantially larger than the geography over which most workers would be expected to live, it might be appropriate to refer to a smaller geography, such as the county, that includes the area over which nearly all workers would be expected to live.” If this approach is selected, substantial evidence, such as market or other travel studies, would be required to substantiate this.
Town of Colma
VMT Thresholds and Screening Guidelines- June 2023
Element of Impact Criteria OPR Recommendation Colma Recommended Metric Baseline
2015 Regional Average (Region: MTC
9-County Region) or citywide
average for residential
2015 Regional Average
Thresholds to Apply to Individual Land Use Types
Residential Per Capita VMT Reduction from
Baseline Per Capita VMT Reduction from Baseline
Office / R&D / Light Industrial Per Capita VMT Reduction from Baseline Per Capita VMT Reduction from Baseline
Retail Project Effect on regional VMT Project Effect on regional VMT Other land uses N/A
76 percent of land in Colma is dedicated to
cemetery use; therefore, the Town does not expect
expansion or development of non-standard land
uses. Total regional VMT would be considered as a
metric for these land uses, if proposed.
SCREENING CRITERIA FOR LAND USE PROJECTS
Under SB 743, it is assumed that some types of development can be exempt from a Transportation Impact Analysis (TIA) based on project characteristics that contribute to an inherently less than significant impact on VMT. A less than significant impact on VMT may result from a project’s location, size, or the land use of the development. A project only needs to meet one of four screening criteria to “screen out” of the requirement to complete a TIA under CEQA. OPR’s Technical Advisory provides guidance on screening the following four types of projects:
• Projects Located Near Transit Stations: The project is located within ½ mile of high-quality transit (either a rail station, or a bus stop with service at least every 15 minutes during the AM and PM peak periods)
• Map Based Screening in areas with low VMT: For Residential and Office projects located in an area where existing VMT per capita meets the VMT thresholds (e.g., 15% below existing rates of VMT if that threshold is selected)
• Small Projects: The project is small, and generates fewer than 110 daily vehicle trips • Affordable Residential Development: The project consists of 100% affordable housing
However, projects are not eligible for location-based screening (based on transit proximity or location in a low VMT area) if any of the following are true:
• Project is low density (<0.75 Floor Area Ratio)
• Project provides more parking than is required by code • Project replaces existing affordable housing units with a smaller number of market rate units • Project is inconsistent with Plan Bay Area
Town of Colma
VMT Thresholds and Screening Guidelines- June 2023
Colma has limited land available for new development given that 76% of its two square miles is devoted to cemetery land uses. Remaining land uses include developed residential properties and commercial uses. Despite its small size and limited land resources, opportunities do exist for new affordable housing with good transit access. All Colma’s new housing is anticipated to be within the Priority Development Area “PDA”.
Small Projects and Affordable Housing
Absent substantial evidence that a project would generate a significant level of VMT, OPR recommends that projects that generate less than 110 total trips per day may be assumed to cause a less-than significant transportation impact. In addition, the project must be consistent with the City’s general plan and regional Sustainable Communities Strategy (Plan Bay Area).
CEQA provides a categorical exemption for existing facilities, including additions up to 10,000 square feet, if the project is sufficiently served by public infrastructure and not in an environmentally sensitive area. OPR recommends that the equivalent daily trips for a development of this size be used as the size screen to encourage infill development. Per ITE Trip Generation Manual (10th Edition), 10,000 square feet of building area utilized by the most common employment types of land use (offices) produce an estimated 110-124 daily trips.
It is also appropriate to use that trip count threshold as the screen for residential land uses. Small infill projects significantly served by public infrastructure are presumed to have a less-than- significant impact. Therefore, employment and residential land uses that generate fewer than 110- 124 daily trips are presumed to have a less-than-significant impact.
OPR’s Technical Advisory provides evidence to support a presumption of less than significant impact for 100 percent affordable residential projects in infill locations and suggest lead agencies may develop their own screens based on the amount of affordable housing, local circumstances, and evidence.
The recommendations provided in Table 4 are based upon the ITE Trip Generation Manual and OPR recommended 110 daily trip threshold.
Table 4: Screening Criteria for Small Land Use Projects and Affordable Housing Land Use Type Land Use Category Colma Recommended
Residential Single Family Residential 12 dwelling units Multifamily Housing 20 dwelling units
Affordable Housing 100 percent affordable
Employment
Land Use
Office 10,000 square feet
Industrial 22,000 square feet
Retail Shopping Center 50,000 square feet
Town of Colma
VMT Thresholds and Screening Guidelines- June 2023
A land use project must show consistency with the General Plan Land Use Plan. Projects that are inconsistent with the Land Use Plan are automatically considered inconsistent with the VMT policy and shall conduct a VMT analysis.
Map Based Screening
Map-based screens help to simplify VMT analysis by easily identifying projects that can presumably fall below the VMT thresholds of significance. Together the screens are intended to streamline development aligned with the implementation of General Plan development goals by removing the time and expense of complex EIRs when the transportation impacts can be presumed to not have a significant impact. This allows the development process to focus on other aspects of the project such as design and non-transportation impacts.
Land use projects must show consistency with the General Plan Land Use Plan. Projects that are inconsistent with the Land Use Plan are automatically considered inconsistent with the VMT policy and shall conduct a VMT analysis.
Projects that are not likely to lead to a substantial or measurable increase in VMT and are presumed to be less than significant include, but are not limited to, the following:
• Projects located within prescreened areas on the VMT Screening Maps shown in Figures 2 and 3. Screening maps (Resident VMT per Capita and Employee VMT per Employee). • Project located within ½ mile of an existing major transit stop or an existing high-quality transit corridor (Figure 4).
Town of Colma
VMT Thresholds and Screening Guidelines- June 2023
Figure 2: Resident VMT per Capita
Residential Projects: Figure 2 shows the Residential VMT Per Capita Screening Map that identifies areas in the City that are exempt from quantitative VMT analysis. These include sites that have been pre-screened through citywide VMT analysis using the latest City/County Association of Governments of San Mateo County (C/CAG) base year model. Pre-screened areas are shown in dark green and have been determined to result in 15 percent or below the regional average for VMT per capita established for that land use designation if built consistent with the General Plan Land Use Plan.
Town of Colma
VMT Thresholds and Screening Guidelines- June 2023
Figure 3: Employee VMT per Employee
Office Projects: Figure 3 shows the Employee VMT Per Employee Screening Map based on VMT per employee that identifies areas in the City that are exempt from quantitative VMT analysis. These include sites that have been pre-screened through citywide VMT analysis using the latest City/County Association of Governments of San Mateo County (C/CAG) base year model. Pre- screened areas are shown in green and have been determined to result in 15 percent or below the regional average for VMT per capita established for that land use designation if built consistent with the General Plan Land Use Plan.
Town of Colma
VMT Thresholds and Screening Guidelines- June 2023
Development within High-Quality Transit Corridor
A high-quality transit corridor is a fixed route bus corridor with service every 15 minutes or better during the peak commute period. OPR’s Technical Advisory recommends that residential, retail, office, and mixed-use projects located within a half-mile of an existing major transit stop should be assumed to have less than significant impact on VMT.
Figure 4: High-Quality Transit Corridor
For projects to be presumed to have a less than significant impact and be screened out of further VMT analysis, they must be located within half mile of eligible transit service (shown in yellow in Figure 4) and meet minimum criteria to support the presumption. Residential, employment, retail and other transit-compatible land use projects can be presumed to have a less than significant impact if they are located within a half mile of a major transit stop or high-quality transit corridor and meet the baseline criteria presented below:
Density. For residential projects, a minimum of 20 units per acre (or maximum allowed if zoned at a lower density). For commercial or employment land use the minimum density is a floor area ratio of
0.75 (or maximum allowed if zoned at a lower density). Minimum density is required to ensure that projects are transit supportive and would result in low VMT. Projects can propose a higher density than the minimum required if the zoning and other plans allow for higher density.
Parking Supply. Projects are ineligible for screening if they provide more parking than indicated by current rates of demand or as indicated by the current edition of the ITE Parking Generation Manual. Excess parking supply is associated with induced and higher levels of VMT and should be avoided to ensure low VMT of screened projects.
Town of Colma
VMT Thresholds and Screening Guidelines- June 2023
Regional Plans. Projects must be consistent with Plan Bay Area as determined by the lead agency.
The proposed land use should be compatible with the regional plan, an example of an incompatible project would be screening a development in area that is identified as open space in Plan Bay Area.
Displacement. Projects that replace affordable residential units with a smaller number or higher income residential units cannot be eligible for screening. Removing affordable units can increase the VMT of the former residents.
SCREENING CRITERIA FOR TRANSPORTATION PROJECTS
The City will conduct an initial assessment to determine if the proposed transportation project is likely to substantially increase VMT, as determined by the City Traffic Engineer. Projects that are anticipated to substantially increase VMT would likely be subject to a quantitative VMT analysis that considers the effects of induced travel.
Projects that are not likely to lead to a substantial or measurable increase in VMT include, but are not limited to, the following:
• Public transit (establishing new routes or services or modifying existing routes or services) • Addition of active transportation improvements (class II bicycle lanes, shared use paths, sidewalks, pedestrian pathways)
• Addition of roadway capacity on local and collector roadways only provided for the purpose of improving conditions for pedestrians, cyclists, and transit users • Resurfacing, rehabilitating, maintenance, preventive maintenance, replacement, and repair projects that do not add additional roadway capacity
• Installation, removal, or modification of turn lanes
• Installation, removal, or modification of traffic control devices, including traffic signals, wayfinding, HAWK, RRFB and traffic signal priority systems • Traffic signal optimization and or coordination to improve vehicle, bicycle or pedestrian flow • Installation of roundabouts
• Installation or modification of traffic calming devices • Lane reductions (i.e. road diets)
• Addition of auxiliary lanes that do not add additional roadway capacity • Removal of off-street parking and addition, adoption, or modification of parking devices and management strategies
• Safety improvements, including roadway shoulder enhancements and auxiliary lanes, and grade separations for rail, transit, pedestrian, and bicycle facility enhancements • Sidewalk infill, removing barriers to accessibility, and ADA improvements • Installation or modification of access control restrictions • Complete streets projects that do not add additional roadway capacity • Other improvements to the circulation system that do not add additional roadway capacity
Town of Colma
VMT Thresholds and Screening Guidelines- June 2023
PROJECT IMPACT ANALYSIS- FORECASTING VMT
VMT is typically calculated and forecasted using a travel demand model. Using a travel demand model is typically preferred over other methods because the travel model is better able to account for both project generated VMT and the project’s effect on total area wide VMT, both of which are important in a CEQA analysis. The OPR Technical Advisory recommends that the method used to define a VMT threshold should be the same method that is used to evaluate a project’s VMT against that threshold.
The two travel models most commonly used to assess projects in San Mateo County are C/CAG VMT Estimation Tool and Travel Model 1.5 (“MTC Travel Model”), which is maintained by the Metropolitan Transportation Commission (MTC) and used for large-scale regional planning efforts.
C/CAG’s VMT Estimation Tool is a web based application to support local jurisdictions in San Mateo County. This tool can help with conducting baseline VMT screening and VMT reduction analysis for specific land use projects.
Small and medium projects that are unlikely to have a large effect on jurisdiction-wide travel patterns are unlikely to require use of a model; but large projects that have a VMT per capita or VMT per employee above the threshold and would trigger a VMT impact, the use of the C/CAG VMT Estimation Tool is most appropriate.
Regardless of the approach used, a model run may still be appropriate to calculate total VMT and VMT on local roadways for use in the Greenhouse Gas and Air Quality CEQA topic areas.
Table 5: Project Recommended VMT Calculation
Land Use Type Land Use
Category
VMT Calculation
Residential Single Family
Residential
Use C/CAG’s VMT estimating tool (web link)
Multifamily
Housing
Employment
Land Use
Office Use C/CAG’s VMT estimating tool (web link)
Industrial Use C/CAG’s VMT estimating tool (web link)
Retail Shopping Center When assessing a retail project, the project’s total VMT, as opposed to a residential VMT per capita or employment VMT per worker metric is measured. Grocery Store
Town of Colma
VMT Thresholds and Screening Guidelines- June 2023
VMT MITIGATION
If a development does not screen out and requires mitigation per CEQA, the traffic study should include an assessment of possible VMT reduction strategies to help a development meet their VMT goal. VMT mitigation requires reducing the number and distance of vehicle trips generated by a particular project. This is in contrast to mitigation under congestion-based metrics such as LOS, whereby congestion impacts are mitigated through adding capacity; in some cases, these capacity improvements induce driving, and thus lead to more VMT being generated.
VMT impact mitigation strategies generally take the form of Transportation Demand Management (TDM) measures. TDM measures include strategies related to parking, transit usage, encouraging a mix of land uses on site, and promoting the use of active transportation and higher-occupancy vehicle models (e.g. carpooling and transit). TDM can be applied on a project-by-project basis, or on a community-scale as part of off-site mitigation through a city, county, or regional VMT mitigation program. Unless a program is established, most projects that result in VMT impacts would need to apply TDM strategies on a project-by-project basis.
Lead agencies must demonstrate the effectiveness of the selected mitigation strategies. For example, under congestion-based analyses, one could demonstrate the effectiveness of adding capacity by re-running the traffic operations model with the added capacity to determine the reduction in congestion after implementation of the improvement. The CAPCOA handbook (https://www.caleemod.com/handbook/full_handbook.html
) represents the current state of the
practice for California communities and developers to leverage in quantifying VMT reductions. Using the latest research, handbook authors outline different VMT mitigating measures and how to estimate their predicted effectiveness in one’s own jurisdiction.
Consistent with this guidance, San Mateo County has developed a tool that estimates the effectiveness on locally appropriate TDM strategies VMT and provided guidance on TDM program implementation. Statewide tools such as TDM+ (an excel based VMT mitigation calculator) and additional guidance on land use and transportation project mitigation are available from Caltrans (look under the “Tools” tab): https://dot.ca.gov/programs/sustainability/sb-743/sb743-resources .
While the City has not established a VMT Impact Fee at this time, there are program-based approaches that may be available in the future
4. The three specific fee concepts include:
4 VMT Mitigation Through Fees, Banks & Exchanges, April 2020, Fehr & Peers Town of Colma
VMT Thresholds and Screening Guidelines- June 2023
VMT-based Transportation Impact Fee program (VMT-TIF) – The first program concept is a traditional impact fee program in compliance with the mitigation fee act. The nexus for the fee program would be a VMT reduction goal consistent with the CEQA threshold established by a lead agency for SB 743 purposes. The City of LA is the first in California to complete a nexus study for this type of program. The main difference from a fee program based on a metric such as vehicle LOS is that the VMT reduction nexus results in a capital improvement program (CIP) consisting largely of transit, bicycle, and pedestrian projects. These types of fee programs are time consuming to develop, monitor, and maintain but are recognized as an acceptable form of CEQA mitigation if they can demonstrate that the CIP projects will be fully funded and implemented.
VMT Mitigation Exchange – In simple terms, the exchange concept relies on a developer agreeing to implement a predetermined VMT reducing project or proposing a new one. The project may be located in the vicinity of the project or elsewhere in the community, and possibly outside the community. The exchange needs to have a facilitating entity that can match the VMT generator (the development project) with a VMT reducing project or action. The facilitating entity could be the lead agency or another entity that has the ability to provide the match and to ensure through substantial evidence that the VMT reduction is valid. A key unknown with this approach is the time period for VMT reduction. For example, how many years of VMT reduction are required to declare a VMT impact less than significant?
VMT Mitigation Bank – A mitigation bank attempts to create a monetary value for VMT reduction such that a developer could purchase VMT reduction credits. The money exchanged for credits could be applied to local, regional, or state level VMT reduction projects or actions. Like all VMT mitigation, substantial evidence would be necessary that the projects covered by the bank would achieve expected VMT reductions and some form of monitoring may be required. This is more complicated than a simple exchange and would require more time and effort to set up and implement. The verification of how much VMT reduction is associated with each dollar or credit would be one of the more difficult parts of the program.
There are few local examples of VMT mitigation programs and they require support from attorneys and transportation and finance experts. The Metropolitan Transportation Commission is currently investigating pilot programs that could be applied to other jurisdictions and several counties are investigating whether a countywide VMT mitigation program would be more appropriate. For more information on VMT mitigation fee programs, see the August 2022 UC Berkeley white paper:
https://www.law.berkeley.edu/wp-content/uploads/2022/08/Implementing-SB-743-August- 2022.pdf Absent a VMT fee reduction program, developers would likely be limited to only project site mitigation. While this may be less effective, it also lowers their mitigation costs because the available and feasible mitigation would be more limited.
The California Air pollution Control Officers Association CAPCOA handbook (https://www.caleemod.com/handbook/full_handbook.html) is a resource for California communities and developers to leverage in quantifying GHG emissions and VMT reductions. Using the latest research, handbook authors outline different GHG mitigating measures and how to estimate their predicted effectiveness in one’s own jurisdiction.
Town of Colma
VMT Thresholds and Screening Guidelines- June 2023
Review of VMT Mitigation Strategies
This table summarizes potential measures to mitigate VMT impacts for development and transportation projects.
CAPCO
A 2021
ID
VMT Reduction
Measure
Type of VMT
Affected
Score
1 - most
applicable
2 - somewhat
applicable
3 - least
applicable
N/A
Notes
(Related policies/plans/programs,
opportunities for coordination,
considerations for implementation, etc.)
Land Use – Higher Effectiveness
T-1 Increase
Residential Density
Project-generated
trips
1 2040 General Plan, 6Th Cycle Housing
Element
T-2 Increase Job
Density
Project-generated
trips
3 N/A
T-3 Provide Transit-
Oriented
Development
Project-generated
trips
1 2040 General Plan, 6Th Cycle Housing
Element
T-4 Integrate
Affordable and
Below Market
Rate Housing
Project-generated
trips
1 2040 General Plan, 6Th Cycle Housing
Element
T-17 Improve Street
Connectivity
All neighborhood/city
trips
2 Colma Bike and Pedestrian Master Plan
Trip Reduction Programs – Medium Effectiveness
T-5, T-
6, T-7,
Implement
Commute Trip
Reduction
Program
Employee commute
trips
2 Rideshare program, Colma Bike and
Pedestrian Master Plan, and C/CAG TDM
Program (C/CAG TDM Program requires that
developers participate in the following
program operated by Commute.Org:
https://commute.org/resources/developers
/)
T-8, T-
11 Providing
Rideshare and
Vanpool Programs
Employee commute
trips
2 Rideshare program, C/CAG TDM Program
T-9 Implement
Subsidized or
Discounted Transit
Program
Employee commute
trips
3 Transportation impact fee, C/CAG TDM
Program
T-10 Provide End-of-
Trip Bicycle
Facilities
Employee commute
trips
1 Colma Bike and Pedestrian Master Plan,
C/CAG TDM Program
T-12 Price Workplace
Parking
Employee commute
trips
3 N/A
Town of Colma
VMT Thresholds and Screening Guidelines- June 2023
CAPCO
A 2021
ID
VMT Reduction
Measure
Type of VMT
Affected
Score
1 - most
applicable
2 - somewhat
applicable
3 - least
applicable
N/A
Notes
(Related policies/plans/programs,
opportunities for coordination,
considerations for implementation, etc.)
T-13 Implement
Employee Parking
Cash-Out
Employee commute
trips
3 N/A
T-23 Community-Based
Travel Planning
Household trips 2 Colma Bike and Pedestrian Master Plan, Rideshare program
Parking or Road Pricing/Management – Medium Effectiveness T-15 Limit Residential
Parking Supply
Project-generated
trips
1 Sterling Park permits, Housing Element
Overlay Zoning District
T-16 Unbundle
Residential Parking
Costs from
Property Cost
Project-generated
trips
3 N/A
T-24 Implement Market
Price Public
Parking (On-
Street)
All neighborhood/city
trips
3 Colma has limited on-street parking
Neighborhood Design – Lower Effectiveness
T-18 Provide Pedestrian
Network
Improvements
Household trips 1 2040 General Plan, and Bike and Pedestrian Master Plan
T-19-A,
T-19-B,
T-20
Construct or
Improve Bike
Facilities
All neighborhood/city
trips, Employee
commute trips
1 Colma Bike and Pedestrian Master Plan
T-21-A Implement
Carshare Program
All neighborhood/city
trips
3 N/A
T-22-A,
T-22-B,
T-22-C
Implement
Bikeshare or
Scootershare
Program
All neighborhood/city
trips
2 Colma Bike and Pedestrian Master Plan
Transit – Lower Effectiveness
T-25,
T-26
Extend Transit
Network
Coverage, Hours,
or Frequency
All neighborhood/city
trips
2 Coordination with SAMTRANS, BART
T-27 Implement
Transit-Supportive
Roadway
Treatments
All neighborhood/city
trips
1 Colma Bike and Pedestrian Master Plan
Town of Colma
VMT Thresholds and Screening Guidelines- June 2023
CAPCO
A 2021
ID
VMT Reduction
Measure
Type of VMT
Affected
Score
1 - most
applicable
2 - somewhat
applicable
3 - least
applicable
N/A
Notes
(Related policies/plans/programs,
opportunities for coordination,
considerations for implementation, etc.)
T-28 Provide Bus Rapid
Transit
All neighborhood/city
trips
2 Coordination with SAMTRANS, BART
T-29 Reduce Transit
Fares
All neighborhood/city
trips
2 Coordination with SAMTRANS, BART
NON-CEQA TRANSPORTATION ANALYSIS
Cities can continue to use LOS/auto delay to inform local analysis, such as traffic operations and traffic signal timing needs during the development review process, outside of the CEQA review.
Project conditions of approval (COA) can require changes to the project, transportation demand management (TDM) strategies, or other measures to address LOS analysis outside of CEQA. Project COA cannot induce vehicle travel or increase VMT, both of which are impacts that conflict with SB 743. The Town of Colma will continue to:
• Request a Transportation Analysis for projects proposed along arterial, collectors and intersections to verify LOS Planned Operating Conditions are maintained at an LOS D or better
• Allow Intersections operating at LOS E or lower at the time an application for a development is submitted, if no feasible improvement exists to improve the LOS to continue • Require proposed development projects that could result in increased traffic to include improvements that assure LOS levels do not fall below the established minimum standard • Ensure that improvements are coordinated with roadway improvements programmed for funding through transportation-related impact fees and that the operational benefits of large-scale, automobile capacity-focused improvements are balanced against the induced VMT resulting from the improvements
General Plan Policies M-2-5 and M-2-6
Staff Report - Public Art program – Utility Vaults Page 1 of 3
STAFF REPORT
T
O: Mayor and Members of the City Council
FROM: Brian Dossey, City Manager
DATE: June 14, 2023
SUBJECT: Commission of Public Art
RECOMMENDATION
Staff recommends that the Council make the following motion:
M
OTION TO COMMISSION PUBLIC ART TO BE DISPLAYED ON TWO UTILITY VAULTS ON JUNIPERO SERRA BOULEVARD PURSUANT TO CEQA GUIDELINE 15301 E
XECUTIVE SUMMARY
In March of this year, staff entered into an agreement with Precita Eyes Muralists Association Inc. to partner and collaborate to design and paint a mural on two utility boxes on Junipero Serra Blvd. The proposed artwork is attached as attachments A and B. Staff is seeking authorization from the City Council to commission the artist to paint the proposed murals on the utility vaults.
FISCAL IMPACT
The cost for design and painting of the utility vaults is $6,000. The FY2023-24 Capital Improvement Project budget for this program is $15,000.
BACKGROUND
The Town of Colma Strategic Plan for 2020-2022 and 2023-2025 includes an objective of developing a public art program, in the interest of building upon our community identity and maintaining quality of life. On October 13, 2021, the Planning Department presented a public art study session to the City Council in order to gauge interest in implementing public art in Colma in future years.
At the October Council meeting, the Council expressed interest in pursuing such a program and provided feedback to staff on their priorities and concerns for a public art program in Colma.
The Planning Department built a public art program proposal based on that feedback.
Item #6
Staff Report - Public Art program – Utility Vaults Page 2 of 3 Staff returned in February 2022 building on City Council feedback from the October 2021 City Council meeting and additional information. The following feedback was given at the 2022 study session.
• Start small, create a foundation for future years. In the coming years commission 2-3 pieces of small public art (i.e. utility vaults, bike rack and or small sculpture). • Create standards, document templates, and processes that can be re-used and improved upon in later years (i.e. call for artists, project plan, materials statement, and contract for each piece of small art should be easily adaptable for use in later and potentially larger projects).
• Funding is a concern, but there are several options that Colma could pursue: general fund, funding ordinance, including private sponsorship, fundraising, and a percent-for- the-arts ordinance.
• Use a streamlined public input process for small art. Allow staff to make a recommendation to City Council about which design should be chosen. For small scale public art, allow the public to comment at a public meeting where the design is selected but bypass the more in-depth public engagement process that may be warranted for larger public art projects.
In 2022 and into 2023, staff worked with Dragonfly Designs to recruit residents to participate in creating the artwork for the utility vault public art program. Outreach was promoted through the Recreation Department where Dragonfly Designs would offer classes to resident artists where skills and techniques were taught prior to creating the artwork for the utility vaults.
Sadly, over approximately six months of advertising the program to the community, little to no interest was generated and Dragonfly Designs recommended The Town reach out Precita Eyes Muralists to hire an artist to commission the artwork for the utility vaults.
Over the past three to four months staff has worked with the selected artist from Precita Eyes Muralists in creating the conceptual designs that are attached for City Council approval.
ANALYSIS
Staff recommends the City Council make a motion approving the commission of the proposed murals (Attachments A & B) for two utility vaults on Junipero Serra Blvd. The Town of Colma Strategic Plan for 2020-2022 and 2023-2025 includes an objective of developing a public art program, in the interest of building upon our community identity and maintaining quality of life.
Staff has been working with Precita Eyes Artist, Marta Ayala Minero for the last three to four months on ideas, concepts and impressions on what the murals should represent. Staff toured the Town with Ms. Minero and using landscapes and hardscapes in Colma, Ms. Minero has created images from Colma’s past and present into her design.
The images in attachment A & B are rough drafts and to get a better idea of Ms. Minero’s finished works please visit her website at
https://www.martaayala.com/public-
murals/index.html.
Staff Report - Public Art program – Utility Vaults Page 3 of 3 Also attached in attachments C & D are pictures of the two vaults along Junipero Serra Blvd. where the murals will be displayed. The murals will wrap around three sides of the utility vault so it can be seen from the roadway.
If the City Council approves the proposed motion, staff will authorize Precita Eyes Artist, Marta Ayala Minero to produce the artwork on the utility vaults.
Council Adopted Values
Public Art supports the Council-adopted value of Community , since it can build upon the Town’s identity and maintain quality of life.
ENVIRONMENTAL
The City Council’s action in commissioning the artwork on the existing utility vaults is exempt from environmental review under the California Environmental Quality Act (CEQA) pursuant to CEQA Guideline 15301 as the operation, maintenance, and/or minor alteration of existing structures/mechanical equipment having no expansion of existing or former use.
CONCLUSION
Staff recommends the City Council approve the motion commissioning the proposed murals for two utility vaults on Junipero Serra Blvd.
ATTACHMENTS
A. Proposed Mural 1
B. Proposed Mural 2
C. Utility Vault 1
D. Utility Vault 2
ATTACHMENT A
ATTACHMENT A
ATTACHMENT B
ATTACHMENT B
ATTACHMENT C
ATTACHMENT D