Caltrans SB 743 Implementation
|
|
Today’s update on SB 743 implementation at Caltrans includes the following topics:
- When are VMT Impacts from a Project Acceptable?
- VMT Analysis of Auxiliary Lanes
- Mitigation playbook
- Mitigation calculator
- Funding Opportunities
- Staffing announcements
|
|
When are VMT Impacts from a Project Acceptable?
CEQA lead agencies such as Caltrans have substantial discretion to determine the extent to which various public policies may warrant the approval of a project, notwithstanding the potential that the project may cause significant adverse impacts. This post addresses how Caltrans intends to address one such impact, induced travel, measured as vehicle-miles traveled (VMT). What follows is not intended as rigid guidance, but instead as insight into the process the Department will employ in making its decisions on whether a VMT-inducing project may proceed. The examples provided are hypothetical illustrations of how some types of projects might be viewed, based in part on these general considerations:
- Has the project development team (PDT) worked thoroughly to identify VMT-reducing or -neutral project alternatives, and provided a compelling reason for not selecting those alternatives?
- Has the PDT described its efforts to revise the preferred alternative to eliminate or minimize induced VMT?
- Has the PDT worked thoroughly to identify VMT-mitigation options including those regarding active transportation, transit, land use, lane management, and transportation demand management? In that effort, has the PDT meaningfully engaged partners and affected communities on anticipated VMT impacts and meaningful mitigation options?
- Has the PDT availed itself of feasible mitigation options, including those that require enforceable agreements with partners?
- Has the PDT documented the facts and rationale used when concluding mitigation options not included were deemed to be infeasible?
- Has the PDT shown that mobility benefits from the project will not be eroded by induced VMT attributable to the project?
If project teams can successfully address considerations such as those above, as they apply to the project, the Department will weigh whether the project’s benefits outweigh the negative VMT impacts. The Department may be able to be more definitive in this judgment over time, as projects are reviewed and the courts weigh in. For now, these are some hypothetical examples of potential reasons to move forward with a project with induced VMT that is not mitigated below a level of significance, with some additional specific considerations relevant to each:
- Roadway capacity changes are necessary to reduce fatal and severe injury crashes. Project teams should demonstrate that operational or other non-VMT-generating options would not be effective and should also cite crash histories and locations or other specific data showing the need for the proposed safety improvement. Any crash modification factors (CMFs) or countermeasures cited should relate to effectiveness in reducing fatal and severe injuries. Safety measures should be consistent with a safe-systems approach. Any VMT increases are forecast would likely lead to safety degradation, e.g. at freeway ramps where added traffic from induced VMT poses hazards to active travelers and motorists on surface streets, raising the burden on the project to show a safety benefit.
- Projects that occur in low-congestion conditions and that 1) do not substantially affect travel times, now or in the future, or 2) do not serve as low-density development attractors. In these cases, even where lane-miles-based tools may suggest induced VMT, the context may argue that such effects will be less than significant. Any project that promises to create time-travel savings and attendant economic benefits, as calculated in the CalBC or similar tools, would not qualify for such consideration, by definition.
- Projects that may induce VMT at the project level but can be shown to have a greater downward effect as an element in a system or corridor. A new managed-lane segment may induce VMT, but if it allows for new system-level roadway pricing that provides funding for non-auto travel, it may have a net benefit for VMT. Note the future condition would need to be enforceable and demonstrably effective in lowering VMT, as not all managed-lane strategies would do so.
- Projects envisioned as part of a VMT-neutral corridor plan, even if the projects themselves do induce VMT. Again the corridor plan would need to be enforceable. If the VMT-inducing project comes after the VMT-reducing elements of the corridor plan, a showing that both were conceived as a coherent plan or joint development would be needed. A lengthy time gap between the projects will make that showing more difficult.
- Projects providing for evacuation routes. Such projects would need to be consistent with one or more of the following: 1) an adopted emergency operations plan, 2) a local general plan safety element that has been updated and adopted pursuant to evacuation route information requirements in Government Code 65302(g)(5) and 65302.15 (see SB 99 [2019] and AB 747 [2019], or 3) recommendations issued by the Board of Forestry and Fire Protection, in consultation with the State Fire Marshall and the local agency, to improve safety of a subdivision with more than 30 dwelling units lacking a secondary egress that is determined by the Board and the State Fire Marshall to be at significant risk, pursuant to Public Resources Code 4290.5.
- Projects that Caltrans believes have been mitigated to a level below significance, but where measurements are qualitative or imprecise. A Statement of Overriding Consideration, addressing any “significant and unavoidable” VMT resulting from the imprecision, could be appropriate.
The Department instituted a process in April 2022 for assessing State Highway System (SHS) roadway capacity increasing projects for risk of being unable to mitigate VMT impacts. This process involves reviews and concurrence steps between districts and headquarters in the Project Initiation and Project Approval/Environmental Document phases. The Caltrans director must sign off on any projects that do not mitigate VMT to below a level of significance before draft and final environmental documents are circulated. As with any project, only after the environmental document is final can design and construction begin.
|
|
VMT Analysis of Auxiliary Lanes
In the 2018 SB 743 OPR technical advisory on induced travel, auxiliary lanes of less than one mile designed to improve roadway safety were included as projects that would not likely lead to a substantial or measurable increase in vehicle travel, and therefore generally should not require an induced travel analysis. As Caltrans has conducted project reviews, it appeared that further guidance on two situations involving auxiliary lanes would be useful to practitioners. The two situations addressed in this supplementary guidance are the extension of an existing auxiliary lane and multiple auxiliary lanes in the same corridor.
For extension of existing auxiliary lanes, the supplementary guidance suggests that the practitioner should review and fully document the rationale supporting the conclusion that a particular project would not likely lead to a measurable and substantial increase in VMT. For multiple auxiliary lanes in the same corridor, practitioners are directed to carefully assess the projects on a case-by-case basis and address the direct, indirect and cumulative effects of the transportation projects.
|
|
Mitigation playbook
There are many potential mitigation measures for induced VMT and a lot of literature on these mitigations and their effects. However, these measures are not conveniently listed in a single place. Caltrans’ Sustainability Program has pulled together a partial list, with explanations and methods for assessing VMT-reducing impacts, in a draft “mitigation playbook.” This guide draws heavily on the CAPCOA GHG handbook released in December. It will be revised and extended over time, in part through a research project recently kicked off with UC-Davis and the University of Wisconsin.
|
|
Mitigation calculator
The California Emissions Estimator Model (CalEEMod) is a tool that is based on the CAPCOA guide. A simplified version, focusing on mitigation measures that could be employed to reduce VMT from a transportation project, can be found here. This beta tool is only calibrated to some California regions. The Sustainability Program will work to extend it to the remainder of the state and provide additional improvements.
|
|
Funding Opportunities
The Affordable Housing and Sustainable Communities (AHSC) Program makes it easier for Californians to drive less by making sure housing, jobs, and key destinations are accessible by walking, biking, and transit.
The Strategic Growth Council, now developing guidelines for the program, is holding a round of stakeholder listening sessions July 28 and 29. Please email ahsc@sgc.ca.gov if you are interested.
|
|
Staffing announcements
Chris Kuzak (chris.kuzak@dot.ca.gov) has joined the Sustainability Program as SB 743 program manager. Eric Sundquist (eric.sundquist@dot.ca.gov), who was serving as sustainability advisor and SB 743 program manager, remains with the program, but now with only the former title.
Sustainability will soon be hiring for several positions to help us work on induced VMT, reporting to Chris. We anticipate that these will be classified as senior transportation planners, and they will be open to both internal and external candidates. If you are interested or know someone who might be, you can contact Chris, who can answer questions and send the job post when it is available.
|
|
Visit the the Caltrans SB 743 implementation website:
https://dot.ca.gov/programs/sustainability/sb-743
Have questions? Contact:
If you received this e-mail via forwarding and would like to receive communications directly, please fill out this form.
|
|
|
|
|
|
|