Parks and Transportation System Development Charge Methodology

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1 City of Sandy Parks and Transportation System Development Charge Methodology March, 2016 Background In order to implement a City Council goal the City of Sandy engaged FCS Group in January of 2015 to update the City s Transportation and Parks System Development Charges (SDCs) and develop new SDCs for Bike and Pedestrian improvements and Trail Improvements. While all three types of improvements are transportation related it was determined that trail improvements are more recreation oriented and any SDC changes would become part of the existing Parks SDC. Bike and pedestrian improvements are transportation oriented and contribute towards reducing motor vehicle trips (and improving capacity) on the street network and these SDC changes are proposed to become part of the existing Transportation SDC. In order to include bike and pedestrian improvements in the SDC the methodology for Transportation SDCs is proposed to change from one based on motor vehicle trips to one based on person trips. Methodology SDCs may include two components, a reimbursement (or buy-in ) fee to recover the cost of eligible existing improvements or capacity in the Transportation and Parks systems and an improvement fee to assign some of the cost of planned, eligible capacity-increasing improvements in each system to new development. Due to the difficulty in establishing value of existing improvements and since many of the City s transportation and park improvements were built in conjunction with development, funded by grants, transferred from other agencies (contributed assets) or have been fully-depreciated no reimbursement fee was calculated. The same is true for the existing trail and bike/ped improvements. For trail improvements a level of service was developed to determine what percentage of planned improvements benefit new development or add capacity in the systems to accommodate growth. The percentage result is multiplied by the total project cost to come up with the SDC-eligible costs which are then divided by the expected population growth between 2015 and 2035 to determine the per capita SDC. This result is multiplied by the number of persons per household for each residential category to determine the SDC per dwelling unit. These calculations are shown on the Parks and SDC tabs in the spreadsheet.

2 Using data from the US Census National Housing Travel Survey and the latest edition of the Institute of Traffic Engineers (ITE) Trip Generation Manual FCS Group converted motor vehicle trips to person trips by multiplying the average daily motor vehicle trips per housing type or by industry type (for employment trips) by 1.68 and then multiplied by the number of housing units (or jobs) to arrive at the total number of average daily person trips. Similar to the calculations for the trail SDC the dollar cost of capacity-expanding Bike Ped capital improvement plan was divided by the number of person trips generated by growth between 2015 and 2035 to arrive at the SDC per person trip. These calculations are shown on the Cust BikePed, Growth, Imp Bike and SDC tabs on the spreadsheet. Project costs in the motor vehicle capital improvement plan were multiplied by the percent of benefit to new development for each project to arrive at the cost benefitting new development (shown on the Imp MV tab on the spreadsheet). The determination of benefit to new development for each project was determined by the City s consulting traffic engineer, (see appendix A). The eligible cost of the entire plan was divided by the number of person trips generated by growth between 2015 and 2035 to arrive at the SDC per person trip. These calculations are shown in the Growth and SDC Fee tabs on the spreadsheet. It should be noted that Scenario 2 (Average Daily Trips) was used to calculate the SDC per person trip instead of Scenario 1 (Average Weekday Trips) to reflect the higher volume of traffic in Sandy on weekends when market trips to and from the greater Sandy trade area pass through the City. Finally, tables were developed using land use types from the ITE Trip Generation manual (Trip Gen MV Sc2, Cust BikePed and MV Sc2 TSDC tabs on the spreadsheet) to determine the calculated SDC per ITE land use category.

3 REPLINGER & ASSOCIATES LLC TRANSPORTATION ENGINEERING TO: FROM: SUBJECT: Mr. Mike Walker, Director of Public Works John Replinger, PE SDC Project Benefits Attributable to Existing Users In response to your request, I evaluated the anticipated benefits attributable to existing users for projects proposed by the city for partial funding using transportation Systems Development Charges (SDC). The project list includes projects in several categories: intersection projects on Oregon Department of Transportation (ODOT) facilities; intersections of city streets; new city streets; and reconstruction of city streets. For each of these categories, I developed a specific methodology for dividing the benefit of the project between existing users and new users. My primary sources of data for my analysis were the 2011 Transportation System Plan (TSP), including Chapters 3 and 4, and Technical Memorandum 2. Major ODOT Intersections For the intersection projects on US 26, my methodology was based on the ODOT mobility standard specified in the Oregon Highway Plan and the city s TSP. Depending on the intersection, the mobility standard uses a volume-to-capacity ratio (v/c) of 0.70 or According to the TSP, the applicable mobility standard is being exceeded during the pm peak hour for each of the intersections. In assigning the benefit between existing users and new users, I evaluated how much the v/c was expected to increase above the mobility standard. For example, assume following: the mobility standard is 0.70, the existing v/c is 0.80, and the predicted v/c is Using my recommended methodology, the v/c exceeds the mobility standard by 0.10 and is predicted to exceed it by 0.20 so the existing users account for 50 percent of the exceedence of the standards. Using this example, I would attribute 50 percent of the project benefit to existing users. City Intersections For city intersections, the performance standard is based on Level of Service (LOS). The performance standard specified in the TSP is LOS D. Unlike the ODOT intersections, none of the city intersections on the proposed SDC project list is currently exceeding the adopted performance standard. For intersections that are currently meeting the city s LOS D standard, I assigned no benefit to existing users for the proposed projects. New City Streets Several new collector streets are specified in the TSP and are included in the proposed SDC project list. Since existing users are able to satisfy their travel needs without these streets, I assigned no benefit to existing users. Once these streets are constructed, some existing users will undoubtedly use these new street connections, but I consider this to be an insignificant benefit relative to their travel needs and the entire TSP. The shift of existing users to the new street segments will be offset by the travel on existing streets by residents and businesses associated with new development.

4 Mr. Mike Walker, Director of Public Works Page 2 Modification of Existing Streets Modification to the intersection of Proctor Boulevard/Alt Avenue will benefit both existing and new users. I assigned the benefit based on the proportion of peak hour traffic under existing conditions relative to predicted 2029 traffic volumes on Proctor Boulevard at its intersection with OR 211 a few blocks east of Alt Avenue. Modification of the section of Bornstedt Road between Redwood Avenue and Cascade Village Drive will also benefit both existing and new users. I assigned the benefit based on the proportion of peak hour traffic under existing and 2029 conditions on Bornstedt Road south of OR 211. Modification of OR 211 between US 26 and Bornstedt Road will benefit both existing and new users. I assigned the benefit based on existing and predicted 2029 traffic volumes at four locations along this road segment. For the connection of Village Boulevard to OR 211, I assigned benefits based on the number of homes in the existing Snowberry subdivision and four proposed subdivisions to the south. In assessing the number of homes for which Village Boulevard would be a likely travel route, I considered the travel distances and subdivision configuration. I calculated that a minority of the homes in some subdivisions would use this new connection with most using other routes. I assigned the benefit based on the number of dwelling units in Snowberrry (an existing development) and the planned subdivisions. Summary of Benefits The attached spreadsheet provided by you describes the projects and indicates the project cost. I provided the values in the column labeled % Benefits to Existing Users. The column labeled Notes is supplemented by the information below. Notes for Benefits to Existing Users Spreadsheet 1) Intersection of US 26/362nd Drive. According to the TSP, the mobility standard is a v/c of 0.70, but the intersection is operating at a v/c of The predicted 2029 v/c with under the no-build condition is Using a ratio between the exceedence of the current v/c relative to the mobility standard and the exceedence for the 2029 conditions, we have: ( )/ ( ) = In other words, 33.3 percent of the traffic that exceeds the defined capacity of the intersection is attributable to existing traffic while 67.7 of the traffic is attributable to new development or regional growth. I assign 33.3 percent of the improvements to this intersection to be a benefit to existing users. 2) Intersection of 362nd Drive/Dubarko Road. According to the TSP, this intersection is operating at a v/c of 0.13 and a LOS of A/B. It is functioning acceptably under current traffic in its existing configuration. I assign no benefit to existing users. 3) 362nd Drive. Most of this road segment does not exist. What little exists does not meet collector standards in the TSP. Existing users are able to make use of existing streets to complete their travel. Although some existing users would be expected to choose this street as alternatives to their current route choices, I do not consider this to be a significant benefit. I assign no benefit to existing users.

5 Mr. Mike Walker, Director of Public Works Page 3 4) Dubarko Road. This road segment does not exist. Existing users are able to make use of 5) Bell Street. This road segment does not exist. Existing users are able to make use of 6) OR 211. This highway segment is expected to experience significant increases in traffic volume between the TSP base year and I obtained traffic counts from the TSP for the existing conditions and those for the 2029 forecast year. I used counts at four locations: south of Pioneer; north of Dubarko; south of Dubarko; and southwest of Bornstedt Road. The total two-way peak hour traffic at these four locations is predicted to increase from approximately 2650 to 4380 by Based on these volumes, I attribute the 60.5 percent of the benefit to existing users and 39.5 percent to new development. 7) Kate Schmitz Ave. This road segment does not exist. Existing users are able to make use of 8) Industrial Way. This road segment does not exist. Existing users are able to make use of 9) Intersection of US 26/Ten Eyck Road. According to the TSP, the mobility standard is a v/c of 0.85, but the intersection is operating at a v/c of The predicted 2029 v/c with under the no-build condition is Using a ratio between the exceedence of the current v/c relative to the mobility standard and the exceedence for the 2029 conditions, we have: ( )/ ( ) = In other words, 8.6 percent of the traffic that exceeds the defined capacity of the intersection is attributable to existing traffic while 91.4 of the traffic is attributable to new development or regional growth. I assign 8.6 percent of the improvements to this intersection to be a benefit to existing users. 10) Bornstedt Road. Using traffic volumes from the TSP for the section immediately south of OR 211, the two-way peak hour volume is predicted to increase from 306 to 360 by Using this ratio, I attribute 85 percent of the benefit to existing users. 11) Intersection 362nd Drive/Industrial Way. According to the TSP, the operational standard of this city intersection is LOS D. It is currently operating at LOS A/B. According to the TSP, the predicted operation of the intersection in 2029 is LOS E. Since the intersection is operating acceptably under current conditions, I attribute no significant benefit to existing users. 12) Intersection of Proctor Boulevard/Alt Ave. The TSP provides no traffic counts for this intersection; the nearest location with counts is Proctor Boulevard/OR 211. At this location, the TSP indicates westbound peak hour volumes will rise from about 1460 to 2070 by Based on these counts, I attribute 70.4 percent of the benefit to existing users.

6 Mr. Mike Walker, Director of Public Works Page 4 13) Intersection of Dubarko Road/Jacoby Road. According to the TSP, this intersection is operating at a v/c of 0.05 and a LOS of A/A. It is functioning acceptably under current traffic in its existing configuration. I assign no benefit to existing users. 14) North End of Village Boulevard to OR 211. Connecting Village Boulevard to OR 211 will provide access to the Snowberry Subdivision and all or portions of four subdivisions to the south with direct access to Village Boulevard. Based on an assessment of travel patterns and access, I estimated that 188 homes would be likely to use this section of Village Boulevard. Since the Snowberry subdivision accounts for 97 homes, I attribute 51.6 percent of the benefit of this new street connection to existing users. If you have any questions or need any further information concerning this assessment, please contact me at replinger-associates@comcast.net or at Sandy/2016SDCReview/SDCBenefits021916