HomeMy WebLinkAboutItem No. 33 Adopt of Vehicle Miles Traveled ThresholdsCity of Lake Elsinore 130 South Main Street
Lake Elsinore, CA 92530
www.lake- elsinore.org
City Council Agenda Report
File Number: ID# 19 -647
Agenda Date: 6/23/2020 Version: 2 Status: Approval Final
In Control: City Council / Successor Aqency File Type: Council Business
Item
Agenda Number: 33)
Adoption of Vehicle Miles Traveled Thresholds for California Environmental Qualitv Act
Compliance
1. Adopt A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF LAKE ELSINORE,
CALIFORNIA, APPROVING VEHICLE MILES TRAVELED THRESHOLDS FOR CALIFORNIA
ENVIRONMENTAL QUALITY ACT COMPLIANCE RELATED TO TRANSPORTATION ANALYSIS;
and
2. Adopt the City of Lake Elsinore's Traffic Impact Preparation Guide dated May 2020 which sets forth
the required formats and methodologies that are required to be utilized in the preparation of traffic
impact analyses, and authorize the City Engineer to modify the guide, as may be necessary in the
future, based on changes in State law, potential case law, or new substantial evidence.
City of Lake Elsinore Page 1 Printed on 611812020
CITY OF
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REPORT TO CITY COUNCIL
To: Honorable Mayor and Members of the City Council
From: Grant Yates, City Manager
Prepared by: Richard J. MacHott, Planning Manager
Date: June 23, 2020
Subject: Adoption of Vehicle Miles Traveled Thresholds for California Environmental
Quality Act Compliance
Recommendation
1. Adopt A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF LAKE ELSINORE,
CALIFORNIA, APPROVING VEHICLE MILES TRAVELED THRESHOLDS FOR
CALIFORNIA ENVIRONMENTAL QUALITY ACT COMPLIANCE RELATED TO
TRANSPORTATION ANALYSIS; and
2. Adopt THE CITY OF LAKE ELSINORE'S TRAFFIC IMPACT ANALYSIS PREPARATION
GUIDE DATED MAY 2020 WHICH SETS FORTH THE REQUIRED FORMATS AND
METHODOLOGIES THAT ARE REQUIRED TO BE UTILIZED IN THE PREPARATION OF
TRAFFIC IMPACT ANALYSES, AND AUTHORIZE THE CITY ENGINEER TO MODIFY
THE GUIDE, AS MAY BE NECESSARY IN THE FUTURE, BASED ON CHANGES IN
STATE LAW, POTENTIAL CASE LAW OR NEW SUBSTANTIAL EVIDENCE.
Background
Historically, Level of Service (LOS) has been used for the environmental review of traffic
impacts under CEQA. LOS focuses on the delay that vehicles experience at intersections and
on roadway segments. The LOS standards used as thresholds of significance are established
on page 2 -27 of the City's General Plan. Traffic mitigation for increased delay usually involves
increasing roadway width, redesigning intersections by adding lanes or signalization of
intersections.
Senate Bill 743 (SB 743) was signed into law by Governor Brown on September 27, 2013. SB
743 changes the focus of traffic analysis prepared for projects under CEQA from LOS to
"Vehicle Miles Traveled" or VMT. VMT measures the amount and distance people drive by
motorized vehicle to a destination. Other relevant considerations include the effects of the
project on transit, bicycle and pedestrian modes, and the safety of all travelers.
The shift to VMT is intended to align CEQA analysis more closely with other State goals, most
particularly greenhouse gas emission reduction goals. The shift is also intended to promote the
development of multimodal transportation networks (i.e., networks that serve a variety of users
including pedestrians, bicyclists, transit riders and drivers) and diversity of land uses.
Adoption of Vehicle Miles Traveled Thresholds for CEQA
June 23, 2020
Page 2
All cities are required to switch to use VMT for CEQA analysis purposes by July 1, 2020;
provided however, requests to extend the effective date have been submitted to the Governor.
In the event the required implementation of VMT is extended by the California legislature or
action of the Governor, the effective date of City's VMT will be similarly extended.
Planning Commission Workshop — June 2, 2020
The Planning Commission held a workshop on June 2, 2020 regarding the adoption of VMT
Thresholds for CEQA compliance. Staff presented background information regarding the long-
standing use of LOS for determining the significance of traffic impacts under CEQA and the
required change to VMT analysis. The Commission asked several questions for clarification
and unanimously supported staff recommendations to the City Council pertaining to Senate Bill
SB 743. Nobody from the public spoke.
In order to provide additional opportunity for public input, following the Commission workshop,
staff posted information regarding the transition from LOS to VMT and the information provided
to the Commission on the City's website at http: / /www.lake- elsinore.org /city- hall /community-
develooment /Dlannina /transitionina- from - level -of- service -to- vehicle - miles - traveled.
Discussion
To implement SB 743 the City of Lake Elsinore needs to determine an appropriate VMT
methodology, thresholds, and feasible mitigation measures. To assist with SB 743
implementation, WRCOG (Western Riverside Council of Governments), with support from the
Southern California Association of Governments' (SCAG), developed implementation guidance
and a VMT impact screening tool with the WRCOG SB 743 Implementation Pathway Study. The
guidance is to ensure that all projects reviewed by the City use the same data, approaches, and
analytical tools.
Because SB 743 represents a significant departure from the City's current practice of using
LOS, the City must address the following questions prior to taking any action:
Methodology — What methodology should be used to forecast projected - generated
VMT and the project's effect on VMT under baseline and cumulative conditions, and
how does the selection of a threshold influence the methodology decision?
2. Thresholds — What threshold options are available to each jurisdiction and what
substantial evidence exists to support selecting a specific VMT threshold?
3. Mitigation — What would constitute feasible mitigation measures for a VMT impact
given the land use and transportation context of the WRCOG region?
The following is a description of the methodologies analyzed to forecast "project- generated
VMT," criteria used to establish VMT thresholds of significance, and the identification of
potential mitigation measures that can be used to address CEQA.
Adoption of Vehicle Miles Traveled Thresholds for CEQA
June 23, 2020
Page 3
Methodology
Base Year (2012) total VMT per service population (i.e., population plus employment), home -
based VMT per capita, and home -based work VMT per worker were calculated using outputs
from SCAG's Regional Transportation Plan travel forecasting model and the Riverside County
Transportation Analysis Model (RIVTAM). In addition, data from the California Household
Travel Survey was used to compare model- derived estimates of home -based VMT with those
based on survey observations. VMT results and comparisons of results from different data
sources were displayed graphically to aid in determining the appropriate VMT metric and data
source for calculating VMT for use in the WRCOG subregion.
Based on the different options analyzed, WRCOG recommended that cities utilize the Riverside
County Travel Demand Model (RIVTAM / RIVCOM) and the VMT per service population data,
as noted in the WRCOG analyses. The City's Traffic Consultant, Nick Lowe, concurs with this
recommendation. Jurisdictions and technical experts have been utilizing RIVTAM since 2009,
so there is a familiarity with the model. Furthermore, a new version of the Riverside County
Travel Demand Model is being developed by WRCOG and is expected to be ready for use by
the end of 2020. The new version of the model (called RIVCOM), will be updated and refined to
improve compliance with SB 743 expectations (i.e., full external trip lengths).
To implement SB 743, the City determined appropriate VMT methodologies, thresholds, and
feasible mitigation measures. Since VMT is a new methodology to analyze traffic impacts, there
was a need to update the City's Traffic Impact Analysis (TIA) Preparation Guide for projects
subject to environmental review. The revised guide will ensure that all projects subject to review
by the City use the same data, approaches, and analytical tools. A copy of the revised TIA
Preparation Guide is attached to this report.
Proposed VMT Impact Thresholds
As described in more detail in the TIA Guide Preparation Guide, a project would result in a
significant project - generated VMT impact under either of the following conditions:
The baseline project - generated VMT per service population exceeds the City's baseline
VMT per service population, or
2. The cumulative project - generated VMT per service population exceeds the City's
baseline VMT per service population.
Additionally, the project's effect on VMT would be considered significant if it resulted in either of
the following conditions:
1. The baseline link -level boundary VMT per service population (City boundary) to increase
under the plus project condition compared to the no project condition, or
2. The cumulative link -level boundary VMT per service population (City boundary) to
increase under the plus project condition compared to the no project condition.
VMT Mitigation
As described in the TIA Guide Preparation Guide, to mitigate VMT impacts, the following
choices are available to project applicants:
1. Modify the project's built environment characteristics to reduce VMT generated by the
project
Adoption of Vehicle Miles Traveled Thresholds for CEQA
June 23, 2020
Page 4
2. Implement transportation Demand Management (TDM) measures to reduce VMT
generated by the project.
3. Participate in a VMT fee program and /or VMT mitigation exchange /banking program (if
they exist) to reduce VMT from the project or other land uses to achieve acceptable
levels
As part of the WRCOG Implementation Pathway Study, the following key TDM measures that
are appropriate to the region were identified:
• Diversifying land use
• Improving pedestrian networks
• Implementing traffic calming infrastructure
• Building low- street bicycle network improvements
• Encouraging telecommuting and alternative work schedules
• Providing ride -share programs
Due to limitations of project -by- project approaches to reducing VMT, an evaluation of larger
mitigation programs was conducted by WRCOG. The evaluation considered existing programs
such as the WRCOG Transportation Uniform Mitigation Fee (TUMF) Program and new
mitigation program concepts. While the TUMF funds a variety of projects including those that
would contribute to VMT reduction, the overall effect of the Program results in an increase in
VMT due to substantial roadway capacity expansion. The TUMF could be modified to separate
the VMT, reducing projects into a separate impact fee program based on a VMT reduction
nexus, but it could not be relied upon for VMT mitigation in its current form. New program
concepts included VMT mitigation banks and exchanges. These are innovative concepts that
have not yet been developed and tested but are being considered in areas where limited
mitigation options would otherwise exist. To further assist lead agencies in implementing SB
743, WRCOG is undertaking a study to look into the feasibility of a VMT mitigation bank or
exchange.
Updated Traffic Impact Analysis Preparation Guide
The TIA Preparation Guide incorporates VMT guidance consistent with the information from the
WRCOG SB 743 Implementation Pathway Study. The updated guide requires the use of VMT
analysis and forecasting through the latest version of the Riverside County Travel Demand
Model (RIVTAM) or the RIVCOM model (once complete) to determine if proposed projects have
a significant VMT impact.
Per the updated TIA Preparation Guide, in the future two TIA reports will be required instead of
the single report prepared in the past. One report, using VMT analysis will be used for CEQA
purposes in order to determine the significance of the project's traffic impacts, and to determine
appropriate mitigation. The second report will use the traditional LOS analysis to determine
project impacts on transportation infrastructure and to determine consistency with the General
Plan. The LOS report will not be used for CEQA purposes.
Recommendation
In order to implement SB 743, the attached resolution identifies both the methodology that will
be used to measure a project's VMT and its CEQA impacts, and the threshold that will be used
to determine whether those impacts are significant. Specifically, the resolution establishes:
Adoption of Vehicle Miles Traveled Thresholds for CEQA
June 23, 2020
Page 5
1. Utilizing the Riverside County Travel Demand Model (RIVTAM /RIVCOM) as the
methodology to measure VMT.
2. Utilizing the Riverside County Travel Demand Model (RIVTAM /RIVCOM) the method to
analyze a project's VMT impact.
3. Utilizing a threshold consistent with the City's current average VMT per service
population (population plus employment).
Environmental Determination
The proposed adoption of the Vehicle Miles Traveled Thresholds for California Environmental
Quality Act (Cal. Publ. Res. Code § §21000 et seq. "CEQA ") compliance related to transportation
analysis and the adoption of the Traffic Impact Analysis Preparation Guide dated May 2020,
which are actions consistent with Senate Bill ( "SB ") 743, are exempt from CEQA and the State
CEQA Guidelines (14. Cal. Code Regs § §15000 et seq.), specifically pursuant to pursuant to
Sections 15060(c)(2), 15060(c)(3), and 15061(b)(3) of the State CEQA Guidelines because it
will not result in a direct or reasonably foreseeable indirect physical change in the environment,
because there is no possibility that it may have a significant effect on the environment, and
because it is not a "project" as that term is defined in Section 15378 of the State CEQA
Guidelines.
Fiscal Impact
There is no fiscal impact associated with this action.
Exhibits
A. - Resolution
B. - TIA Preparation Guide — May 2020
RESOLUTION NO. 2020-
A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF LAKE ELSINORE,
CALIFORNIA, ADOPTING "VEHICLE MILES TRAVELED" THRESHOLDS OF
SIGNIFICANCE FOR PURPOSES OF ANALYZING TRANSPORTATION IMPACTS
UNDER THE CALIFORNIA ENVIRONMENTAL QUALITY ACT
Whereas, the California Environmental Quality Act Guidelines ( "CEQA Guidelines ") encourage
public agencies to develop and publish generally applicable "thresholds of significance" to be
used in determining the significance of a project's environmental effects; and
Whereas, Section 15064.7(a) of the CEQA Guidelines defines a threshold of significance as
"an identifiable quantitative, qualitative or performance level of a particular environmental effect,
noncompliance with which means the effect will normally be determined to be significant by the
agency and compliance with which means the effect normally will be determined to be less than
significant "; and
Whereas, Section 15064.7(b) of the CEQA Guidelines requires that when thresholds of
significance are adopted for general use as part of a Lead Agency's environmental review
process, they must be adopted by ordinance, resolution, rule, or regulation, developed through
a public review process, and be supported by substantial evidence; and
Whereas, pursuant to Section 15064.7(c) of the CEQA Guidelines, when adopting thresholds of
significance, a public agency may consider thresholds of significance adopted or recommended
by other public agencies provided that the decision of the agency is supported by substantial
evidence; and
Whereas, Senate Bill 743, enacted in 2013 and codified in Public Resources Code Section
21099, required changes to the CEQA Guidelines regarding the criteria for determining the
significance of transportation impacts of projects; and
Whereas, in 2018, the Governor's Office of Planning and Research ( "OPR ") proposed, and the
California Natural Resources Agency certified and adopted, new CEQA Guidelines Section
15064.3 that identifies vehicle miles traveled ( "VMT ") — meaning the amount and distance of
automobile travel attributable to a project — as the most appropriate metric to evaluate a
project's transportation impacts; and
Whereas, as a result, automobile delay, as measured by "Level of Service" and other similar
metrics, generally no longer constitutes a significant environmental effect under CEQA; and
Whereas, CEQA Guidelines Section 15064.3 goes into effect on July 1, 2020, unless otherwise
extended by the California legislature or action of the Governor; and
Whereas, on June 2, 2020, at a the Planning Commission considered evidence presented by
the Community Development Department and other interested parties with respect to this item,
unanimously supported staff recommendations to the City Council; and
Whereas, on June 23, 2020 at a duly noticed public meeting, the City Council has considered
the Planning Commission's support of staff recommendations, as well as evidence presented by
the Community Development Department and other interested parties with respect to this item.
Res. No. 2020 -
Page 2 of 3
NOW, THEREFORE, THE CITY COUNCIL OF THE CITY OF LAKE ELSINORE DOES
HEREBY RESOLVE, DETERMINE AND ORDER AS FOLLOWS:
Section 1: The City Council hereby finds and determines that the adoption of the Vehicle Miles
Traveled Thresholds for California Environmental Quality Act (Cal. Publ. Res. Code § §21000 et
seq. "CEQA ") compliance related to transportation analysis, which is an action consistent with
Senate Bill ( "SB ") 743, are exempt from CEQA and the State CEQA Guidelines (14. Cal. Code
Regs § §15000 et seq.), specifically pursuant to pursuant to Sections 15060(c)(2), 15060(c)(3),
and 15061(b)(3) of the State CEQA Guidelines because it will not result in a direct or reasonably
foreseeable indirect physical change in the environment, because there is no possibility that it
may have a significant effect on the environment, and because it is not a "project" as that term is
defined in Section 15378 of the State CEQA Guidelines.
Section 2: The City Council hereby finds and determines that the VMT methodology and
thresholds of significance for purposes of analyzing transportation impacts under CEQA have
been developed through a public review process and are supported by substantial evidence, as
required by CEQA Guidelines Section 15064.7.
Section 3: The City of Lake Elsinore hereby adopts the following which shall be effective
commencing the later of July 1, 2020 or such later effective date as authorized by the California
legislature or action by the Governor:
1. Utilizing the Riverside County Travel Demand Model (RIVTAM /RIVCOM) as its methodology
to measure VMT.
2. Utilizing the Riverside County Travel Demand Model (RIVTAM /RIVCOM) as its method to
analyze a project's VMT impact.
3. Utilizing a threshold consistent with the City's current average VMT per service population
(population plus employment).
Section 4: This Resolution shall take effect immediately upon its adoption.
Passed and Adopted on this day of 2020.
Brian Tisdale
Mayor
Attest:
Candice Alvarez
City Clerk
STATE OF CALIFORNIA )
COUNTY OF RIVERSIDE ) ss.
CITY OF LAKE ELSINORE )
Res. No. 2020 -
Page 3 of 3
I, Candice Alvarez, City Clerk of the City of Lake Elsinore, do hereby certify that Resolution
No. 2020- , was adopted by the City Council of the City of Lake Elsinore at the regular
meeting of , 2020, by the following vote:
AYES:
NOES:
ABSENT:
ABSTAIN:
Candice Alvarez
City Clerk
CITY OF
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Traffic Impact Analysis
Preparation Guide
Remon Habib, PE
City Engineer
1.0 INTRODUCTION
The City of Lake Elsinore ( "City ") requires that the traffic and circulation impacts of proposed
development projects, General Plan Amendments, and Specific Plans be analyzed. The
traffic impacts of proposed developments are to be analyzed through the preparation of two
Traffic Impact Analyses (TIAs) prepared in conformance with City requirements. While
CEQA only requires vehicle miles traveled (VMT) analysis for projects, the City is also
requiring the use of level of service analysis to determine project impacts on transportation
infrastructure. The two Traffic Impact Analyses, as described below, must each be prepared,
signed and sealed by a Traffic Engineer or a Civil Engineer registered in the State of
California, qualified to practice traffic engineering ( "Engineer "). This Traffic Impact Analysis
Preparation Guide identifies the required formats and methodologies that are required to be
utilized in the preparation of the studies, subject to the review and approval of the City.
2.0 PURPOSE
Two separate Traffic Impact Analysis documents are to be prepared to assess the following:
Report No. 1 (CEQA Analysis)
All Projects: Will the project create an increase in vehicle miles traveled (VMT)
versus the existing baseline VMT of the City? If so, what will be required to lower
VMT or mitigate these impacts?
Report No. 2 (General Plan Consistency Analysis)
Subdivisions, Design Review, Conditional Use Permits, etc.: Will the Level of
Service (LOS) required by the General Plan be maintained at all affected
intersections with the addition of traffic from the proposed project? If not, what
conditions of approval will be necessary in order to provide the required Level of
Service? If conditions of approval or design changes are necessary, are they feasible
to implement? Will the project deteriorate traffic operations or safety on and off site?
• General Plan Amendments and Specific Plans: Will the ultimate circulation system
planned for the area be able to provide the required Level of Service, even with the
additional traffic impact of the proposed land use changes? If not, what conditions of
approval or project changes will be required in order to provide the required Level of
Service?
3.0 TRAFFIC IMPACT ANALYSIS EXEMPTIONS
Certain types of projects, because of their size, nature, or location, may be exempt from the
requirement of preparing a TIA. The types of projects that are generally exempt from
preparing a TIA are described in Exhibit A.
The City, at its discretion, may require that a TIA be prepared for any development,
regardless of size, if there are concerns over safety, operational issues, or if located in an
Traffic Impact Analysis -2- May 2020
Preparation Guide
area heavily impacted by traffic. A focused traffic study may be required by the City to
analyze certain aspects of a project.
4.0 COORDINATION WITH CITY /MANDATORY SCOPING
AGREEMENT
In order to streamline the TIA preparation and review process, the Engineer shall solicit input
and approval for the City prior to the preparation and submittal of a draft document. A
"Scoping Agreement for Traffic Impact Study" (Scoping Agreement), attached as Exhibit B,
shall be prepared by the Engineer and submitted to the City for review and approval prior to
the preparation of a draft TIA. The Scoping Agreement provides for agreement of key points
before initiating the TIA including the following:
• Determination of study area, intersections, and roadway links to be analyzed.
• Project trip generation, distribution, and assignment.
• Use of other approved projects for background traffic, traffic growth assumptions,
or integration with the traffic Model.
• Analysis scenarios.
• For those projects located near another city, unincorporated County area, and /or
Caltrans roadways the Engineer shall also solicit comments on the above from the
respective agency staff. The Engineer shall submit all comments from other
agencies to the City for review and consideration for the scoping form.
A traffic study scoping agreement shall be filled out and signed by the applicant or
applicant's representative for all development projects regardless of exempt status.
5.0 TRAFFIC IMPACT ANALYSIS - CEQA ANALYSIS
5.1 REQUIRED METHODOLOGY
A key element of SIB 743, signed in 2013, is the elimination of automobile delay and LOS as
the basis of determining CEQA impacts. For purposes of SIB 743 compliance, a VMT
analysis shall be conducted for land use projects as deemed necessary by the City and
would apply to projects that have the potential to increase the average VMT per service
population (e.g. population plus employment) compared to the City's baseline threshold.
Using this metric allows the user to compare the project to the remainder of the City for
purposes of identifying transportation impacts.
The following VMT guidelines are based on the WRCOG Implementation Pathway Study,
March 2019, which provides options for both methodologies and VMT screening. The
methodologies and significance thresholds presented below are based on WRCOG
recommendations from the Implementation Pathway Study. The Implementation Pathway
Study can be found at https: / /www.fehrandpeers.com /wrcog- sb743/.
Traffic Impact Analysis -3- May 2020
Preparation Guide
A Project Screening
There are three types of screening that lead agencies can apply to effectively screen
projects from project -level assessment. These screening steps are summarized below:
Step 1: Transit Priority Area (TPA) Screening
A TPA is defined as a half -mile area around an existing major transit stop or an
existing stop along a high - quality transit corridor. Major transit stops are rail, ferry, or
bus terminals served by bus or rail service at the intersection of two or more major
bus routes with a service interval frequency of 15 minutes or less during the morning
and afternoon peak periods. A high - quality transit corridor is a corridor with fixed
route bus service with service interval frequency of 15 minutes or less during the
morning and afternoon peak periods.
Projects located within a TPA may be presumed to have a less than significant impact
absent substantial evidence to the contrary. This presumption may not be appropriate
if the project:
1. Has a Floor Area Ratio (FAR) of less than 0.75;
2. Includes more parking for use by residents, customers, or employees of the
project than required by the jurisdiction (if the jurisdiction requires the project to
supply parking);
3. Is inconsistent with the applicable Sustainable Communities Strategy (as
determined by the lead agency, with input from the Metropolitan Planning
Organization); or
4. Replaces affordable residential units with a smaller number of moderate- or high -
income residential units.
Step 2: Low VMT Area Screening
Residential and office projects located within a low VMT - generating area may be
presumed to have a less than significant impact absent substantial evidence to the
contrary. In addition, other employment - related and mixed -use land use projects may
qualify for the use of screening if the project can reasonably be expected to generate
VMT per service population that is similar to the existing land uses in the low VMT
area.
For this screening in the WRCOG area, the RIVTAM travel- forecasting model was
used to measure VMT performance for individual jurisdictions and for individual traffic
analysis zones (TAZs). TAZs are geographic polygons similar to Census block
groups used to represent areas of homogenous travel behavior. Total daily VMT per
service population (population plus employment) was estimated for each TAZ. This
presumption may not be appropriate if the project land uses would alter the existing
built environment in such a way as to increase the rate or length of vehicle trips.
Traffic Impact Analysis -4- May 2020
Preparation Guide
To identify if the project is in a low VMT- generating area, the analyst may review the
WRCOG screening tool and apply the appropriate threshold within the tool.
Additionally, as noted above, the analyst must identify if the project is consistent with
the existing land use within that TAZ and use professional judgement that there is
nothing unique about the project that would otherwise be misrepresented utilizing the
data from the travel demand model.
The WRCOG screening tool can be accessed at the following location:
http:/ /gis.fehrandpeers.com/WRCOGVMT/
Step 3: Project Type Screening
Local serving retail projects less than 50,000 square feet may be presumed to have a
less than significant impact absent substantial evidence to the contrary. Local serving
retail generally improves the convenience of shopping close to home and has the
effect of reducing vehicle travel.
In addition to local serving retail, the following uses can also be presumed to have a
less than significant impact absent substantial evidence to the contrary as their uses
are local serving in nature:
• Local- serving K -12 schools
• Local parks
• Day care centers
• Local- serving gas stations
• Local- serving banks
• Local- serving hotels (e.g. non - destination hotels)
• Student housing projects
• Local serving community colleges that are consistent with the assumptions
noted in the RTP /SCS
Projects generating less than 110 daily vehicle trips per California OPR VMT
Guidance
B. VMT Assessment for Non - Screened Development
Projects not screened through the steps above should complete VMT analysis and
forecasting through the latest version of the RIVTAM model or the RIVCOM model
(once complete) to determine if they have a significant VMT impact. This analysis
should include `project generated VMT' and `project effect on VMT' estimates for the
project TAZ (or TAZs) under the following scenarios:
Baseline conditions - This data is already available in the web - screening map.
• Baseline plus project for the project - The project land use would be added to
the project TAZ or a separate TAZ would be created to contain the project land
uses. A full base year model run would be performed and VMT changes would
Traffic Impact Analysis -5- May 2020
Preparation Guide
be isolated for the project TAZ and across the full model network. The model
output must include reasonableness checks of the production and attraction
balancing to ensure the project effect is accurately captured. If this scenario
results in a less- than - significant impact, then additional cumulative scenario
analysis may not be required (more information about this outcome can be
found in the Thresholds Evaluation discussion later in this chapter).
• Cumulative no project - This data is available from WRCOG.
Cumulative plus project - The project land use would either be added to the
project TAZ or a separate TAZ would be created to contain the project land
uses. The addition of project land uses should be accompanied by a
reallocation of a similar amount of land use from other TAZs; especially if the
proposed project is significant in size such that it would change other future
developments. Land use projects will generally not change the cumulative no
project control totals for population and employment growth. Instead, they will
influence the land use supply through changes in general plan land use
designations and zoning. If project land uses are simply added to the
cumulative no project scenario, then the analysis should reflect this limitation
in the methodology and acknowledge that the analysis may overestimate the
project's effect on VMT.
The model output should include total VMT, which includes all vehicle trips and trip
purposes, and VMT per service population (population plus employment). Total VMT
(by speed bin) is needed as an input for air quality, greenhouse gas (GHG), and
energy impact analysis while total VMT per service population is recommended for
transportation impact analysis.
Both "plus project" scenarios noted above will summarize two types of VMT: (1)
project generated VMT per service population and comparing it back to the
appropriate benchmark noted in the thresholds of significance, and (2) the project
effect on VMT, comparing how the project changes VMT on the network looking at
Citywide VMT per service population and comparing it to the no project condition.
Project - generated VMT shall be extracted from the travel demand - forecasting model
using the origin- destination trip matrix and shall multiply that matrix by the final
assignment skims. The project- effect on VMT shall be estimated using the City limit
and extracting the total link -level VMT for both the no project and with project
condition.
A detailed description of this process is attached to these guidelines in Exhibit F.
C. VMT Impact Thresholds
A project would result in a significant project - generated VMT impact if either of the
following conditions are satisfied:
1. The baseline project - generated VMT per service population exceeds the City's
baseline VMT per service population, or
Traffic Impact Analysis -6- May 2020
Preparation Guide
2. The cumulative project - generated VMT per service population exceeds the
City's baseline VMT per service population.
The project's effect on VMT would be considered significant if it resulted in either of
the following conditions to be satisfied:
1. The baseline link -level boundary VMT per service population (City boundary)
to increase under the plus project condition compared to the no project
condition, or
2. The cumulative link -level boundary VMT per service population (City
boundary) to increase under the plus project condition compared to the no
project condition.
Please note that the cumulative no project shall reflect the adopted Regional
Transportation Plan /Sustainable Communities Strategy; as such, if a project is
consistent with the regional RTP /SCS, then the cumulative impacts shall be
considered less than significant subject to consideration of other substantial
evidence.
Potential impacts to public transit, pedestrian facilities and travel, and bicycle facilities
and travel can be evaluated using the following criteria:
• A significant impact occurs if the project conflicts with adopted policies, plans,
or programs regarding public transit, bicycle, or pedestrian facilities, or
otherwise decreases the performance or safety of such facilities.
Therefore, the TIA should include analysis of a project to examine if it is inconsistent
with adopted policies, plans, or programs regarding active transportation or public
transit facilities, or otherwise decreases the performance or safety of such facilities
and make a determination as to whether it has the potential to conflict with existing or
proposed facilities supporting these travel modes.
D. VMT Mitigation Measures
To mitigate VMT impacts, the following choices are available to the applicant:
1. Modify the project's built environment characteristics to reduce VMT generated
by the project
2. Implement transportation Demand Management (TDM) measures to reduce
VMT generated by the project.
3. Participate in a VMT fee program and /or VMT mitigation exchange /banking
program (if they exist) to reduce VMT from the project or other land uses to
achieve acceptable levels
As part of the WRCOG Implementation Pathway Study, key TDM measures that are
appropriate to the region were identified and can be accessed at the following
location:
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https: / /www.fehrand peers. com /wp- content/uploads /2019/03 /TDM - Strateg ies-
Evaluation.pdf
Measures appropriate for most of the WRCOG region are summarized in Attachment
B of the TDM Strategies Evaluation Memorandum. Evaluation of VMT reductions
should be evaluated using state -of- the - practice methodologies recognizing that many
of the TDM strategies are dependent on building tenant performance over time. As
such, actual VMT reduction cannot be reliably predicted and monitoring may be
necessary to gauge performance related to mitigation expectations.
The California Environmental Quality Act (CEQA) allows the City Council to approve
development projects even in instances where the VMT thresholds are exceeded, if the
project has overriding benefits. Examples include projects that provide jobs in a local area,
projects that provide needed transportation improvements that otherwise would not be
constructed, projects that provide habitat conservations, projects that implement non -
motorized transportation systems, or projects that provide some unique benefits to the City,
which outweigh the traffic impacts. These projects are required to mitigate traffic impacts to
the extent that it is economically feasible as determined by the City Council, based on a
value engineering analysis.
Projects that may have a significant traffic impact and require a finding of overriding
considerations will be required to prepare an Environmental Impact Report (EIR). The need
to prepare an EIR shall be determined through consultation between the City's Engineering
and Planning Departments, and the City Attorney.
5.2 TRAFFIC IMPACT ANALYSIS FORMAT — CEQA ANALYSIS
The traffic impact analysis report for CEQA should generally have the following items:
1. Project and Analysis Introduction
a. Purpose
b. Study Objectives
c. Project Location and Description
d. Project Consistency with General Plan
2. Methodology
a. City and Regional Guidelines and Requirements
b. Screening Results
c. RivTAM or RivCOM Description
d. City Baseline and Cumulative Conditions
3. Results
a. Baseline Plus Project Conditions
b. Cumulative Plus Project Conditions
c. Comparison Between Conditions to Determine Impacts
4. Mitigations, if any
5. Conclusion
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6.0 GENERAL PLAN CONSISTENCY ANALYSIS
6.1 REQUIRED METHODOLOGY
A Intersection Analysis
The City requires the use of the Transportation Research Board - Highway Capacity Manual
6 (HCM6) or most recent release. Unsignalized and signalized intersections are to be
analyzed using Highway Capacity Manual. Refer to Exhibit C for default input parameters for
software analysis. For default values not specifically provided in Exhibit C, the Engineer shall
refer to the HCM6 or most recent release.
The City accepts all microsimulation software for intersection analysis as long as they
conform to HCM6 (or later) analysis methodologies.
Riverside County has established, as a countywide target, an LOS "C" on all County -
maintained roads and conventional state highways. As an exception, LOS "D" may be
allowed in Community Development areas at intersections with any combination of
secondary highways, major highways, arterials, urban arterials, expressways, conventional
state highways or at freeway ramp intersections. LOS "E" may be allowed in designated
community centers to the extent that it would support transit - oriented development and
walkable communities.
Software analysis using existing traffic signal timing is not required for study intersections
with the exception of Railroad Canyon Road - Diamond Drive between Lakeshore Drive -
Mission Trail and Grape Street - Summerhill Drive, and Central Avenue between Dexter
Avenue and Riverside Street. Caltrans or other agencies may require the use of existing
signal timing for analysis on Caltrans facilities. Existing signal timing documentation for City
intersections is available upon request.
B. Roadway Segment ADT Analysis
The City may require that analysis of Average Daily Traffic (ADT) on roadway segments be
conducted in certain cases, such as when intersection analyses are not the controlling factor
or for planning purposes or when the project requires analysis of buildout conditions. Level
of service for roadway segments shall be analyzed by calculating daily vehicle -to- capacity
ratios. Peak hour through traffic to lane capacity ratios are not acceptable. Roadway
capacities shall be per Table 1, Daily Traffic Volume Capacity Values. Roadways that are
not at the ultimate condition as shown in Table 1 are to use the roadway capacities per City
of Lake Elsinore General Plan Figure 2.2.
Roadway segment LOS criteria shall be per Table 2, Daily Level of Service Criteria.
Roadway segments operating at "Potentially Exceeds Capacity" levels may be acceptable if
adjacent intersections are operating acceptably in the peak hour. Roadway segments
operating at "Deficient" levels shall be improved with additional through lanes along the
segment.
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Table 1, Daily Traffic Volume Capacity Values
ROADWAY
NUMBER OF
MAXIMUM TWO -WAY TRAFFIC VOLUME (ADT)
CLASSIFICATION
LANES
SERVICE LEVEL E
Collector
2
13,000
Divided Collector
2
18,000
Secondary
4
25,900
Major
4
34,100
Urban Arterial
6
53,900
Urban Arterial
8
71,800
NOTES
1. All capacity figures are based on optimum conditions and are intended as guidelines for planning purposes only.
2. Maximum two -way ADT values are based on the 1999 Modified Highway Capacity Manual Level of Service
Tables as defined in the Riverside County Congestion Management Program. Divided Collector interpolated.
3. Two -lane roadways designated as future arterials that conform to arterial design standards for vertical and
horizontal alignment are analyzed as arterials.
4. Ramp capacity is given as a one -way traffic volume.
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CITY OF LAKE ELSINORE PROPOSED LAND USE PLAN SCENARIO
RECOMMENDED ROADWAY CROSS - SECTIONS
AUGMENTED URBAN ARTERIAL - STATE HIGHWAY
(8 -LANE)
120'
96'
6' 6' 6' 12' 11' 12' 12' 6' 6' 6'
HE
RAISEOJ
URBAN ARTERIAL HIGHWAY
(6 -LANE)
100'
I
I. I. 6' 15' IT 14 IT 15' 6' S' S'
MEDIAN
MAJOR HIGHWAY
(—ANE)
90'
70'
I
5 tsw 60K "_ 1 `rEDI ` E N Sts
SECONDARY HIGHWAY
(—ANE)
]8'
56'
I 2
.SE
0'� "2 TINTEO
�2�0
DIVIDED COLLECTOR .IKE6 USE SHOULDER
(2LNE)
1r 66
5
5 Illy I 41EI 2 I 5' 111 5' tic 1 t2'�I.12' '�6Ne 5. 5.
NE
COLLECTOR HIGHWAY COLLECTOR HIGHWAY
(4LANE) (24A14E)
sll4
12' 121 12' 12' 1 6' 4'
NEW SPECIAL ROADWAY SHOUT RIEIKELAKE
(2 -LANE)
(PROPOSED FOR LAKESHORE DRIVE IN THE COUNTRY CLUB HEIGHT DISTRICT)
' BIKE LANES ARE NOT MANDATORY UNLESS SHOWN ON THE BIKEWAY CIRCULATION ELEMENT PLAN
PRECISE SIDEWALK LOCATION SUBJECT TO CITY ENGINEER APPROVAL
NOTE: CHECK THE DISTRICT PLAN OF YOUR AREA FOR ANY REQUIRED SPECIAL ROADWAY CROSS - SECTION,
ESPECIALLY THE LAKE EDGE AND COUNTRY CLUB HEIGHTS DISTRICT PLANS.
STRIPPING OF COLLECTOR HIGHWAYAS DIRECTED BY CITY ENGINEER.
CITY OF
LADE , LSIIYOIZE
� I DREAM
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CITY OF LAKE ELSINORE
ROADWAY CROSS SECTIONS
FIGURE 2.2
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Table 2, Daily Level of Service Criteria
LEVEL OF SERVICE
DAILY LEVEL OF SERVICE CRITERIA
INDICATES
V/C RATIO RANGE
A
Acceptable
0 to 0.80
AC
Approaching Capacity
0.81 to 1.00
PEC
Potentially Exceeds Capacity
1.01 to 1.24
D
Deficient
>1.24
C. Freeway Analysis
The City and /or Caltrans may require that freeway operation be analyzed if a project is within
one mile of a state highway or if it impacts freeway facilities experiencing unstable traffic flow
or congestion. Determination may be made during the scoping process or once a deficiency
is identified in the analysis process. Caltrans should be consulted during the scoping phase
to determine freeway analysis requirements. Freeway facility analysis shall be done per
HCM6 methodologies.
D. Queuing, Coordination, Truck Turning, and Other Analysis
The City and /or other agencies may require additional specific traffic analysis to be
completed in the traffic study to determine a project's traffic affects and any requirements
that need to be implemented to determine General Plan consistency. Specific analysis to be
required can be provided by agencies during the scoping process or during the review of the
project's traffic study submittals.
E. Area to be Studied
In general, the minimum area to be studied shall include any intersection of "Collector" or
higher classification street, with other "Collector" or higher classification streets, at which the
proposed project will add 50 or more peak hour trips, not exceeding a 5 -mile radius from the
project site. In addition, project driveways and other nearby intersections may be included as
required by the City. Roadway segments, if required to be analyzed, shall include all
roadway segments with 500 or more daily project trips. The City or other agencies may
require deviation from these requirements based on area conditions.
F. Analysis Scenarios
1. Subdivisions, Design Review, Conditional Use Permit Cases, etc.
The TIA shall include the following analysis scenarios:
a. Existing Traffic. Existing traffic will be counted to determine current conditions.
Traffic count data shall be new or recent. Data up to one year old may be
acceptable with the approval of the City. Any exception to this must be requested
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and granted prior to approval of the scoping agreement. Traffic counts shall be
done during standard weekdays (Tuesdays or Thursdays) when school is in
session and /or weekends as required depending on the type of project. Care shall
be taken when scheduling traffic counts as school bell schedules ad calendars
may vary between schools and neighboring school districts. The existing peak
hour factor (PHF) for each intersection from the counts shall be used in the
analysis.
b. Project Completion (existing + ambient + project). Traffic generated by the
proposed project will be calculated then added to Project Opening Year (existing
+ ambient) volumes to establish Project Completion conditions, and the impacts
on the circulation system will be analyzed. The existing peak hour factor (PHF) for
each intersection from the counts shall be used in the analysis. This will be the
basis for determining project- specific impacts, and conditions of approval.
c. Cumulative (existing + ambient + project + cumulative). Traffic generated by
other approved projects in the study area shall be identified and added to the
Project Completion traffic identified in Scenario 3. This may also include projects
that are proposed and in the review process, but not yet fully approved. A
reasonable absorption rate up to 100% for cumulative project trip generation can
be assumed. The peak hour factor (PHF) for each intersection may be up to 0.95
for analysis. This scenario will be analyzed, and a determination made if
improvements funded through the TUMF or other approved funding mechanism
(DIF, Road and Bridge Benefit District, etc.) can accommodate the cumulative
traffic at the target Level of Service (LOS) identified in the General Plan. If the
"funded" improvements can provide the target LOS, payment into the TUMF (or
other fee structure) may be considered as cumulative measures that are required
through the conditions of approval. Other improvements needed beyond the
"funded" improvements (such as localized improvements to non -TUMF facilities)
should be identified as such and a fair share percentage shall be provided in the
report.
d. Project Phasing. Traffic conditions at each project phase completion are to be
analyzed using the same approach as for the project completion year, if
applicable. Traffic associated with each previous project phase shall be included
in the analyses of each successive phase of the proposed project. This generally
applies to large projects with development construction /occupancy spanning
multiple years. Generally, phases are spaced two or more years apart. If no
phasing analysis is provided, the project will be conditioned as if all project
components are built at one time.
2. Land Use or Circulation General Plan Amendments or Specific Plans
Development proposals that also include a General Plan Amendment, Specific Plan, Zone
Change or other approval that increases traffic beyond what was approved in the General
Plan will also be required to perform a Build -out Analysis to assess long -term impacts. This
analysis will determine if the Circulation Element of the General Plan is adequate to
accommodate projected traffic at the target LOS, or if additional conditions of approval are
necessary. The build -out year shall match the latest general plan. Roadway segments and
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intersections can be assumed to be built to General Plan requirements for the analysis. A
phasing plan for all Specific Plans that identifies the improvement requirements for each
development phase is required.
G. Future Traffic Forecasts
1. Background Traffic for Subdivisions, Design Review, Conditional Use Permit
Cases and Project Phasing
All projects within the study area that have received approvals for development (approved
design reviews, approved tentative tracts, approved conditional use permits, etc.,) shall be
identified, and their traffic generation included as cumulative traffic in the study. Proposed
projects in the study area that have been submitted to the City for processing, but not yet
approved, may also be included at the discretion of the City. The City will also specify an
ambient growth rate to be applied to existing volumes to account for other general traffic
growth in and around the study area. In general, the ambient growth rate is 2% per year.
The traffic from other approved or known projects shall be added to the existing traffic plus
the ambient growth rate plus the proposed project to determine future projected traffic at
"Opening Year" of the project, or any subsequent phase (analysis scenario 4 above).
2. Build -Out Studies for General Plan Amendments and Specific Plans
Traffic projections for Build -out scenarios shall utilize the City of Lake Elsinore's traffic
model. The Engineer shall use the model projections as the basis for determining the base
average daily traffic volumes for segments and turning- movement volumes for the required
intersection analysis. A manual assignment of the project traffic added to the Build -out traffic
may typically be used to determine total future traffic, as approved by the City.
Certain large -scale Specific Plans and General Plan Amendments have the potential to
create traffic impacts that are substantially greater than the traffic projections forecasted in
the City Traffic Model. For these projects, the City may request that the Build -out analysis
utilize and run the City Traffic Model to develop more detailed focused model runs in order to
determine the projected Build -out traffic. The following are guidelines of projects will be
subject to the revised modeling requirements:
• 1,500 dwelling units or greater
• 25 acres of commercial or greater
• 150 acres of industrial or greater
• any project producing 15,000 daily trips or greater
6.2 TRAFFIC IMPACT ANALYSIS FORMAT - GENERAL PLAN CONSISTENCY
The format and required elements to be included in the TIA are specified in Exhibit D.
Deviations from this format require the approval of the City. The TIA will generally include
the following major components, as shown in more detail in Exhibit D and described herein:
• Level of Service analysis
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• Proposed conditions of approval
• Traffic signal warrant analysis
• On -site circulation analysis
• Identification of safety and operational improvements
In addition to the above, General Plan Amendments and Specific Plans shall include the
following:
• Specific Plan signalization analysis
• General Plan conformance review
• Caltrans conformance review
• Identification of regional funding mechanisms
Projects that involve special uses, such as truck - intensive projects or special events, may
also be required to perform additional analysis to determine project impacts.
The City can require additional analysis beyond the above major components to be added to
the scoping form. Additional analysis can also be brought up in a City comment after review
of a traffic study draft.
A. Level of Service Analysis
The City of Lake Elsinore General Plan identifies an established minimum Level of Service
standard. These minimums may vary according to the area of the City involved. The Traffic
Impact Analysis shall address whether or not the required Levels of Service will be achieved
after the proposed project is constructed. Level of Service calculations shall be included with
the TIA for all intersections and segments studied. For intersections or roadway links not
meeting the required Level of Service, the intersection or roadway link's Level of Service
must be recalculated using the proposed conditions of approval to verify that the required
Level of Service will be achieved. For sites with heavy truck usage, Passenger Car
Equivalents (PCE's) as approved by the City shall be utilized in the analysis. The City of
Fontana's Truck Trip Generation Study and /or the ITE High Cube Warehouse Vehicle Trip
Generation Analysis may be used for truck split rates and other data as approved by the
City.
The City's Level of Service standards, as published in the City's General Plan are included in
the attached Exhibit E.
B. Proposed Conditions of Approval
All studies that propose increasing the number of travel lanes on a road or intersection,
either beyond existing conditions or for General Plan conditions beyond what is planned for
that level of roadway shall clearly identify the impacts associated with such a change.
Identification of funding mechanisms available to fund the improvements and exhibits
showing the lane configuration must be provided in the report.
The exhibits illustrating the improvements must be to scale but conceptual in nature (not
engineering drawings). The concept illustrations must depict, in addition to existing and
required right -of -way, any physical barriers that might preclude making the needed
improvements. Barriers that may preclude making the improvements, such barriers as
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railroads, major drainage structures, power lines, and others must be identified. Any other
features that might render the improvements infeasible must also be identified. The objective
is to ensure that when Conditions of Approval are written, there will be every expectation that
the required improvements can, in fact, be made.
Concept illustrations, as described above, shall be prepared for the following instances:
All improvements, whether on -site or off -site, necessary to reduce identified traffic
levels that exceed General Plan requirements under Existing plus Ambient Growth
plus Project conditions;
All improvements abutting the proposed project and that are necessary to reduce
identified traffic levels that exceed General Plan requirements under Existing plus
Ambient Growth plus Cumulative Projects plus Project conditions;
• All improvements where the required improvements exceed the number of lanes,
under any traffic scenario, that would typically be developed at full implementation of
roadways per the General Plan and the standards for the applicable roadway
classification.
In all cases, the feasibility of the proposed improvements must be demonstrated and the
availability of right -of -way must be ascertained. Acquisition of additional right -of -way, if
necessary, is the responsibility of the project proponent. If additional right -of -way must be
acquired, either adjacent to the project or off -site, the project proponent must follow the
following procedures:
• When alternate access is required and the alternate access is off -site, or when
any other public improvement is required or proposed off -site, the land divider
shall do each of the following as part of the tentative map review:
a. Provide any studies or information required to adequately evaluate the
environmental impacts of constructing the off -site
improvement /alignment; and,
b. Show all proposed centerline, approximate gradients and radii on the
tentative map in addition to other factors such as street widths,
pavement surface, etc. for the off -site improvement /alignment; and,
c. Provide mailing labels showing the addresses of property owners that
are adjacent to the off -site improvement/alignment for hearing
notification purposes; and,
d Provide written assurance(s) from the owner(s) of the property
underlying the offsite improvement /alignment that sufficient right -of way
to construct will be provided. A formal agreement or offer of dedication
is not necessary to satisfy this requirement, but the owner's willingness
to cooperate must be communicated in a form acceptable to the
Engineering Department.
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In the event that the land divider does not satisfy one or more of the
requirements set forth in the above paragraphs a., b., or c., and no
exception is granted, the tentative map shall be redesigned such that
the off -site improvement /alignment is no longer required. If the land
divider refuses or is unable to redesign, project review staff shall
recommend to the appropriate hearing body that the tentative map be
denied. In the event that the land divider does not satisfy the
requirement set forth in this paragraph, project review staff shall note in
its report the potential need to institute eminent domain proceedings
and the appropriate Advisory Agency or Appeal Board may, in its
discretion, act on the tentative map as designed or require that the map
be redesigned to eliminate the off -site improvement/ alignment.
C. Traffic Signal Warrant Analysis
The Engineer shall review all unsignalized intersections within the study area, including the
project access points, to determine if signal warrants are met for any of the study year
scenarios (existing, opening year with and without project, cumulative, etc.) The signal
warrant analysis shall utilize the Caltrans peak -hour warrants (Warrant 3). The warrant
analysis worksheets shall be included in the study appendices. Warrant outputs from traffic
analysis software programs are acceptable.
D. On -site Circulation and Parking
The TIA shall examine the proposed on -site circulation for the project and address its
adequacy. This includes identifying the desired level of traffic control and adequate vehicle
storage space at project driveways and /or intersections. Queueing analysis at project
driveways or study intersections may be required on the scoping agreement or after review
of a traffic study draft.
On -site parking availability shall be analyzed for all residential, commercial, and industrial
projects unless otherwise agreed upon by the City. Available parking shall be per the City's
Municipal Code. Shortages in required parking can be addressed by providing active
transportation facilities, shared -ride pickup /drop -off areas, and /or be near a transit stop as
approved by the City. Working with the City's planning department prior to beginning of the
traffic study to work out parking requirements is highly recommended.
E Safety and Operational Analysis
The TIA shall examine existing roadway conditions to determine if safety and /or operational
improvements are necessary due to increase in traffic from the project or cumulative
projects. The types of improvements to be identified may include, but are not limited to, the
following:
• Need for separate turning lanes
• Intersections needing future sight distance studies
• Realignment of roadway segments or intersections
• Parking restrictions
• Measures to reduce cut - through project traffic in adjacent residential areas
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• Potential impacts to adjacent schools and businesses
• Queue lengths and impacts to adjacent intersections
• Need for signal interconnect systems
• Traffic calming measures in residential, school, or commercial areas
F. General Plan Conformance
The TIA shall identify if the roadway system proposed in the Circulation Element of the
General Plan is adequate to accommodate traffic from the project, or if changes to the
General Plan are proposed as part of the project approval.
G. Regional Funding Mechanisms
Identify if the project identified in a City fee program, or is located within an existing Road
and Bridge Benefit District (RBBD), Assessment District, Western Riverside Council of
Governments' Transportation Uniform Mitigation Fee (TUMF), or identified in another
regional funding mechanism.
H. Fair Share Contributions
Cumulative deficiencies for intersections or roadway segment should include a fair -share
contribution toward achieving acceptable levels of service. If a cumulatively- deficient location
is included in an existing traffic impact fee program (such as TUMF), payment of those fees
would constitute an appropriate contribution.
Fair share contribution percentage for improvements where the project is not directly
responsible should be calculated by the following formula:
Fair share percentage = project trips
project trips + future development trips
The project will be responsible for the highest fair share percentage of the peak hours at
each facility. For example, if a project results in an AM peak hour fair share of 15% and a
PM peak hour fair share of 20 %, the project will be responsible for the 20% fair share.
Special Uses
• Truck Intensive Uses (Conditional Use Permits, Surface Mining Permits, etc.)
In addition to the standard TIA requirements, or if the standard TIA requirements are
waived, projects that are "truck intensive" (warehouses, surface mining permits, etc.,)
may be required to submit a study addressing the truck access routes, adequacy of
the existing streets to be used (in terms of geometry and structural section), safety
issues relating to the truck traffic, and the impacts of the truck traffic on existing
residences or businesses.
The City may accept trip generation rates and /or truck trip splits from the Fontana
Truck Trip Generation Study, 2003, and /or the ITE High Cube Warehouse Vehicle
Trip Generation Analysis, 2016, for truck intensive projects. PCE rates may also be
required for all truck intensive projects. PCE rates are as follows:
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• Large 2 -axle vehicles — 1.5
• 3 -axle trucks — 2.0
o 4 +axle trucks — 3.0
• Unique Land Uses and Special Event Uses
Unique land uses that do not exhibit typical trip generation characteristics may require
additional analysis. Examples of such uses would be land uses not in the ITE Trip
Generation Manual. Traffic counts at three similar locations in southern California
may be required to determine trip generation rates.
Special event land uses that do not exhibit typical trip generation characteristics may
require additional analysis, including weekend and off -peak scenarios. Examples of
such uses would be sports stadiums, racetracks, weekend events, or uses that
exhibit substantial traffic peaking associated with special events that are scheduled
on a periodic basis. Traffic counts at three similar locations in southern California may
be required to determine trip generation rates and traffic characteristics. The traffic
analysis for periodic uses shall include a traffic management plan to control traffic
impacts associated with the special events as needed. Adequate circulation shall be
provided to the site and all impacts shall be alleviated to the maximum extent
possible.
The following types of traffic effects are considered exceed General Plan standards:
1) When existing traffic conditions (Analysis Scenario 1) exceed the General Plan
target LOS.
2) When project traffic, when added to existing traffic (Analysis Scenario 2 and 3),
will deteriorate the LOS to below the target LOS and impacts cannot be reduced
to meet General Plan requirements through project conditions of approval.
3) When cumulative traffic (Analysis Scenario 4) exceeds the target LOS, and
impacts cannot be reduced through the TUMF network (or other funding
mechanism), project conditions of approval, or other implementation
mechanisms.
7.0 SUBMITTAL REQUIREMENTS AND PROCEDURE
A scoping agreement for traffic impact study form must be submitted for approval
prior to preparation of the traffic study. The scoping agreement form shall be
completed and submitted along with the required initial fee to be estimated by the
City, depending on the complexity of the project.
(a) The project scoping form must indicate whether or not the project is part
of a Specific Plan (SP) and, if part of an SP, must provide a listing of other
approved and active projects within the SP, and whether or not an SP
amendment is proposed.
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(b) The scoping form must also show the land use designation per the City
General Plan and the proposed land use designation. The scoping form
provides space to show this information.
(c) The scoping agreement must include the following information in addition
to or as elaboration of the information on the scoping form:
• A description of the intended land uses and quantities
• A legible site plan showing:
i. Existing and proposed driveway locations on site;
ii. Existing and proposed driveways on adjacent properties;
iii. Existing and proposed driveways on the opposite side of
the street frontage, extended 300 feet on either side of the
project extremities;
iv. Access control for proposed driveways (full access, right in-
right -out, left -in, etc.).
• A figure showing study intersections and roadways.
• A figure showing expected trip distribution for the project. Projects
with substantial truck trips or other unique factors may require
separate distributions for each type of vehicle or land use.
(d) An estimate of the trip generation for the project based on ITE Trip
Generation Manual rates or other approved source.
(e) The expected trip distribution for the project. This may be left blank in
favor of distribution figures.
(f) The list of roadway segments to be analyzed, if needed.
(g) The list of intersections to be analyzed.
(h) Any other information in support of the scoping form.
a) Upon approval of the scoping agreement and completion of the traffic study
report, submit the Traffic Impact Study report directly to the City planner
responsible for the project. Submittals shall be electronic in pdf form and
Microsoft Word format upon request. The City may request hard copies of the
report if needed. Clearly identify the project case number on the cover of the
report. The approved scoping agreement and cumulative projects list as provided
by the City shall be included in the appendix of the traffic impact study.
b) If revisions to the Traffic Impact Study are necessary, re- submit complete
electronic copies along with a copy of the comments provided by the City.
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c) Traffic Impact Studies must be submitted to the City within six months after the
Scoping Agreement is signed by the Department. If not, the Scoping Agreement
may be considered void, and a new one may be required.
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Exhibits
A. Traffic Impact Analysis Exemptions
B. Scoping Agreement for Traffic Impact Analysis
C. Signalized Intersection Analysis Input Parameters
D. Traffic Impact Analysis Format
E. Level of Service Standards (from General Plan)
F. VMT Forecasting Information
EXHIBIT A
TRAFFIC IMPACT ANALYSIS
EXEMPTIONS
The following types of development proposals are generally exempt from Traffic Impact
Analysis requirements:
Design Review and Conditional Use Permit Cases for projects of one acre or less.
2. Preschools, Elementary Schools and Middle Schools.
3. Churches, Lodges, Community Centers Neighborhood Parks and Community Parks.
4. Any use which can demonstrate, based on the most recent edition of the Trip
Generation Manual published by the Institute of Transportation Engineers (ITE) or
other approved trip generation data, trip generation of less than 50 vehicle trips during
the AM or PM peak hour.
These exemptions will apply in most cases; however, the City reserves the right to require a
full traffic impact analysis or a focused traffic impact analysis for any development regardless
of size and /or type. The level of analysis shall be determined on an individual basis. The
following are some examples of conditions under which an exemption would not be granted.
a. The presence of an existing or potential safety problem.
b. The location of the development in an environmentally or otherwise sensitive
area, or in an area that is likely to generate public controversy.
c. The presence of a nearby substandard intersection or roadway segment. This
is normally considered to be an existing Level of Service "D" or worse or
substandard improvements.
d. The need for a focused study for access /operational issues.
e. A request from an affected agency, such as Caltrans or an adjacent city, which
is deemed by the City to be reasonable and rational.
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Preparation Guide
Exhibit B
SCOPING AGREEMENT FOR TRAFFIC IMPACT STUDY
This letter acknowledges the City of Lake Elsinore requirements for traffic impact analysis of the
following project. The analysis must follow the City of Lake Elsinore Traffic Study Guidelines dated
May 2020.
Case No. (i.e. TR, PM, CUP, PP)
Related Cases -
SP No. Provide SP No. and list of other approved or active projects within the SP.
EIR No.
GPA No.
CZ No.
Project Name:
Project Address:
Project Description:
Consultant Developer
Name:
Address:
Telephone:
A. Trip Generation Source: (ITE 10th Edition + Supplement or other)
Current GP Land Use Proposed Land Use
Current Zoning Proposed Zoning
Current Trip Generation Proposed Trip Generation (PCE)
In Out Total In Out Total
AM Trips
PM Trips
Internal Trip Allowance ❑ Yes ❑ No ( % Trip Discount)
Pass -By Trip Allowance ❑ Yes ❑ No ( % Trip Discount)
Internal and Pass -By trip allowance percentages shall be per NCHRP 684 and the ITE Trip Generation
Manual. The pass -by trips at adjacent study area intersections and project driveways shall be
indicated on a report figure. Internal trips that use external streets shall be indicated on a report figure.
B. Trip Geographic Distribution: N
(Attach exhibit for detailed assignment)
C. Background Traffic
Project Build -out Year:
Phase Year(s), if needed:
Other area projects to be analyzed
Model /Forecast methodology
% S % E % W %
Annual Ambient Growth Rate: %
(to be provided by the City planning department)
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May 2020
Exhibit B - Scoping Agreement - Page 2
D. Study intersections: (NOTE: Subject to revision after other projects, trip generation and distribution
are determined, or comments from other agencies.)
1. 6.
2. 7.
3. 8.
4. 9.
5. 10.
E. Study Roadway Segments: (NOTE: Subject to revision after other projects, trip generation and
distribution are determined, or comments from other agencies.)
1. 6.
2. 7.
3. 8.
4. 9.
5. 10.
E. Other Jurisdictional Impacts
Is this project within one -mile radius of another jurisdiction or a State Highway? ❑ Yes ❑ No
If so, name of Agency:
F. Site Plan (please attach figure)
G. Specific issues to be addressed in the Study (in addition to the standard analysis described
in the Guideline) (To be filled out by City)
H. Existing Conditions
Traffic count data must be new or recent within 1 calendar year. Provide traffic count dates if using
other than new counts. Date of counts:
I. Traffic Study Requirements
Traffic Study Required:
Focused Study Required:
Except from Analysis:
Recommended by:
Consultant's Representative
Scoping Agreement Submitted on
Revised on
Approved Scoping Agreement:
Date City of Lake Elsinore Engineering Date
Department
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Exhibit C
SIGNALIZED INTERSECTION ANALYSIS INPUT PARAMETERS
PARAMETER
Base Saturation Flow Rate
VALUE
1900 passenger cars /hr /In
Heavy Vehicle factor Determine % heavy vehicle in existing traffic stream based
on count data or consultation with City. Generally, 2%
heavy vehicle percentage is acceptable. Projects with truck
intensive uses must convert project trips to passenger car
equivalents (PCE). Truck intensive uses include heavy
industrial, warehousing or as determined by the City.
Projects near truck intensive areas may be required to use
PCE for existing volumes.
Grade
Exclusive left turn lane
Dual left turn lanes
Protected Left Turn Phasing
Include as appropriate
peak hour volume > 100
peak hour volume > 300
Left turn volume > 240 vph
Minimum green time 7 seconds each movement in areas of light pedestrian
activity. In areas of heavy pedestrian activity, the minimum
green shall be calculated based on the methodology in the
HCM.
Pedestrian FDW Time Crosswalk length (bottom of ramp to bottom of ramp) divided
by 3.5 feet per second.
Cycle length 60 sec to 120 sec unless otherwise approved by the agency
Platoon Ratio 1.00 unless otherwise approved by the City
Lost time Per HCM Exhibit 10 -17 (below)
Major street Minor Street Number of Phases L (s)
Protected Protected 4 16
Protected Permitted 3 12
Permitted Protected 3 12
Permitted Permitted 2 8
*Any deviation from these parameters requires prior approval from City of Lake Elsinore. Refer to
HCM6 for any default values not specifically identified here.
Intersection analyses should be conducted utilizing acceptable software based on HCM6
methodology. Closely spaced intersections are to be analyzed using analysis tools capable of
accounting for turn lane storage, queue length, blockage, etc. such as Synchro. In cases where
traffic is added from a sizable number of cumulative projects, the consultant shall use their
engineering judgment in the application of peak hour factors to maintain consistency with the
existing conditions analyses. A peak hour factor of 0.95 shall be applied to project buildout traffic
conditions.
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Exhibit D
Traffic Impact Analysis — General Plan Consistency Format
The Traffic Impact Analysis shall generally include the following items, unless waived by the
City.
I. Introduction
A. Purpose of the TIA and Study Objectives
B. Site location and study area exhibit
C. Development project identification - City Project Number and related case numbers,
i.e. S.P.A. amendment number, E.I.R. number, etc.
D. Development project description
1) Project size and description
2) Existing land use and zoning
3) Proposed land use and zoning
4) Site plan of proposed project (reduced)
5) Proposed project opening year
6) Any proposed project phasing
7) Indicate if project is within another agency's boundaries
II. Area Conditions
A. Identify Study Area and Intersections
B. Existing traffic controls and intersection geometrics exhibit
C. Descriptions of existing roads (number of lanes, classification, bicycle facilities,
sidewalks, parking, etc.)
D. Existing traffic volumes - AM and PM peak hour turning movements and daily
roadway links, if required
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E. Existing delay and Level of Service at study intersections /roadway links
F. Provide copy of the City's General Plan Circulation Element figure and cross sections
figure
F. Indicate if Transit service is available in the area and along which routes
III. Projected Future Traffic
A. Project Traffic and Project Phasing (each study year)
1. Ambient growth rate
2. Project Trip generation - (the latest edition of the Institute of Transportation
Engineers (ITE) Trip Generation Manual. Other sources require prior approval by
the City.
3. Project Trip distribution and assignment figures
4. Other factors affecting trip generation (identify any factors used to adjust trip
generation, such as pass -by trips, internal trips, or modal choice. Use of any trip
reduction factors require prior approval by the City and should be based on
accepted traffic engineering documentation such as trip generation manual
5. Project peak hour turning movement traffic
6. Project daily volumes on roadway links, if required
7. Project completion or phase completion traffic volumes
D. Cumulative Traffic (background)
1. Ambient growth rate
2. Identify location of other approved or proposed development projects and provide
figure
3. Trip generation table for other approved projects
4. Trip assignment figure of other approved development projects
5. Total background peak hour turning movement volumes
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IV. Traffic Analysis
A. Capacity and Level of Service and Improvement Analysis
1. Delay and Level of Service for existing traffic conditions without project, with
existing improvements
2. Delay and Level of Service at study years with project, with existing and
committed improvements (funded for construction)
3. Delay and Level of Service at study years with additional improvements (if
required to achieve the General Plan required Level of Service)
4. Delay and Level of service under Cumulative conditions, with existing and
committed improvements (funded for construction) and without and with
additional improvements
V. Findings and Recommendations
A. Traffic Impacts and Level of Service Analysis
1. Proposed measures to achieve LOS at impacted intersections. Identify if
improvements are scheduled for construction, funded for future implementation
by a regional mechanism, or not funded.
B. Traffic signal warrant analysis - indicate intersections found to meet signal warrants
at study year and share of project traffic contribution (use peak hour for existing
intersections and daily for new intersections).
C. Circulation recommendations
1. On -site
2. Area wide - provide exhibit showing roadway improvements and signal locations
3. Phasing (if appropriate)
E. Safety and operational improvements
F. Specific Plan signalization analysis (for Specific Plans only)
G. General Plan Conformance (for Specific Plans and General plan amendments only)
H. Identify existing or proposed Regional funding mechanisms
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Exhibit E
Level of Service Standards
Riverside County has established, as a countywide target, an LOS "C" on all County -
maintained roads and conventional state highways. As an exception, LOS "D" may be
allowed in Community Development areas at intersections with any combination of
secondary highways, major highways, arterials, urban arterials, expressways, conventional
state highways or at freeway ramp intersections. LOS "E" may be allowed in designated
community centers to the extent that it would support transit - oriented development and
walkable communities.
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Exhibit F
VMT Forecasting Information
Most trip -based models generate daily person trip -ends for each TAZ across various trip
purposes (Home -Based Work (HBW), Home -Based Other (HBO), and Non -Home Based
(NHB), for example) based on population, household, and employment variables. This may
create challenges for complying with the VMT guidance because trip generation is not
directly tied to specific land use categories. The following methodology addresses this
particular challenge among others.
Production and attraction trip -ends are separately calculated for each zone, and, generally,
production trip -ends are generated by residential land uses and attraction trip -ends are
generated by non - residential land uses. OPR's guidance addresses residential, office, and
retail land uses. Focusing on residential and office land uses, the first step to forecasting
VMT requires translating the land use into model terms, the closest approximations are:
• Residential: home -based production trips
• Office: home -based work attraction trips
Note that this excludes all non - home -based trips including work -based other and other -
based other trips.
The challenges with computing VMT for these two types of trips in a trip -based model are 1)
production and attraction trip -ends are not distinguishable after the PA to OD conversion
process and 2) trip purposes are not maintained after the mode choice step. For these
reasons, it not possible to use the VMT results from the standard vehicle assignment (even
using a select zone re- assignment). A separate post - process must be developed to re-
estimate VMT for each zone that includes trip -end types and trip purposes. Two potential
approaches to tackle this problem are described below.
1.0 Quick and Easy
This approach uses standard model output files and requires minimal custom calculations. It
is based on a regional MPO trip -based model with peak (PK) and off -peak (OP) skims and
person trip production- attraction (PA) matrices.
• Calculate custom vehicle trip PA matrices from PK and OP person trip matrices
o Keep trip purposes and modes separate
o Use average vehicle occupancy rates for drive -alone and shared ride trips
• Use the final congested drive -alone PK and OP skim matrices to estimate trip length
between zones
• Multiply the skim matrices by vehicle trip matrices to estimate VMT
• Sum the PK and OP results to estimate daily VMT and aggregate mode trip purpose
and mode
• Calculate automobile VMT for individual TAZs using marginal totals:
• Residential (home- based) - row total
• Office (home -based work) - column total
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2.0 Detailed and Complicated
The quick and easy process described above simplifies the approach but does not account
for different congestion patterns throughout the day (AM, MD, PM, and NT), the direction of
travel (all productions are origins and all attractions are destinations), or the benefits of
exclusive lanes (HOV or HOT lanes). This more detailed approach attempts to address
these limitations and better estimate the VMT produced by the vehicle assignment model.
• Re -skim final loaded congested networks for each mode and time period
• Run a custom PA to OD process that replicates actual model steps, but:
• Keeps departure and return trips separate
• Keeps trip purpose and mode separate
• Converts person trips to vehicle trips based on auto occupancy rates and
isolates automobile trips
• Factors vehicle trips into assignment time periods
• Multiply appropriate distance skim matrices by custom OD matrices to estimate VMT
• Sum matrices by time period, mode, and trip purpose to calculate daily automobile
VMT
• Calculate automobile VMT for individual TAZs using marginal totals:
• Residential (home- based) - row of departure matrix plus column of return
matrix
• Office (home -based work) - column of departure matrix plus row of return
matrix
3.0 Appropriateness Checks
Regardless of which method is used, the number of vehicle trips from the custom PA to OD
process and the total VMT should match as closely as possible with the results from the
traditional model process. The estimated results should be checked against the results from
a full model run to understand the degree of accuracy. Note that depending on how each
model is setup, these custom processes may or may not include IX /XI trips, truck trips, or
special generator trips (airport, seaport, stadium, etc.).
When calculating VMT for comparison at the study area, citywide, or regional geography, the
same methodology that was used to estimate project- specific VMT should be used. The
VMT for these comparisons can be easily calculated by aggregating the row or column totals
for all zones that are within the desired geography.
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Preparation Guide