HAYWARD DOWNTOWN SPECIFIC PLAN AND ASSOCIATED ZONING CODE UPDATE DRAFT EIR CITY OF HAYWARD TRANSPORTATION AND CIRCULATION 4.13 TRANSPORTATION This chapter describes the existing transportation and circulation network in the Specific Plan Area and evaluates the potential environmental consequences of future development that could occur by adopting and implementing the proposed project. This chapter provides a summary of the relevant regulatory setting necessary to evaluate potential environmental impacts resulting from the proposed project, describes potential impacts, and discusses existing and proposed goals, policies, and implementation programs and zoning regulations that would avoid or reduce those potential impacts. The analysis in this chapter is based in part on the Hayward Downtown Specific Plan Traffic Impact Analysis, prepared by Kittelson & Associates, Inc. on October 2018. A complete copy of this traffic study is included in Appendix E, Transportation and Circulation Data, of this Draft EIR. 4.13.1 ENVIRONMENTAL SETTING 4.13.1.1 REGULATORY FRAMEWORK This section summarizes applicable local and municipal plans and regulations that apply to the Specific Plan Area. This information provides a context for the impact discussion related to the proposed Specific Plan consistency with applicable policies, plans, laws and regulations. Federal Regulations The Unites States Department of Transportation (USDOT) provides a number of grant programs, primarily for the construction and upgrading of major highways and transit facilities. Many of these grants are administered by the State and regional governments. Use of federal grant funding also invokes the National Environmental Protection Act in some cases. The Federal Highway Administration sets design standards (such as interchange spacing) for interstate highways, such as Interstate 880 (I-880). The Federal Railroad Administration within the USDOT establishes safety rules regarding the operation of railroads (e.g., maximum train speeds, maximum allowed highway crossing blockage time). State Regulations The California Department of Transportation (Caltrans) has jurisdiction over state highways in the Planning Area. Caltrans constructs and maintains all State highways and sets design standards that are often copied by local government. The Metropolitan Transportation Commission (MTC) is the State-designated metropolitan planning organization for the nine-county San Francisco Bay Area; it has authority for regional planning, distributing and administering federal and State funds for all modes of transportation, and assuring that projects are consistent with the Regional Transportation Plan. PLACEWORKS 4.13-1 HAYWARD DOWNTOWN SPECIFIC PLAN AND ASSOCIATED ZONING CODE UPDATE DRAFT EIR CITY OF HAYWARD TRANSPORTATION AND CIRCULATION Caltrans Authority of the State Highway System Caltrans is responsible for planning, design, construction and maintenance of all interstate freeways and State routes. It sets design standards that are often used by local governments. Caltrans requirements are described in their Guide for Preparation of Traffic Impact Studies,1 which covers the information needed for Caltrans to review the impacts to State highway facilities, including freeway and arterial segments, on- and off-ramps, and signalized intersections. Caltrans builds, maintains, and operates the State Highway system in California with a goal to allow for the safe and efficient use of the State transportation system for all users. Caltrans has set standards for the operational goals of its facilities pertaining to intersection, arterial segment, and freeway segment level of service (LOS). These standards are set forth in the Caltrans Guide for the Preparation of Traffic Impact Studies. This document establishes procedures to uniformly review the operational standards of Caltrans- maintained facilities in terms of measures of effectiveness. Statewide Transportation Improvement Plan The Statewide Transportation Improvement Plan (STIP) is a capital improvement program that plans transportation projects related to state facilities in California for the next five years. The program is updated every two years with new construction projects as more funding is provided. The California Transportation Commission approves the fund estimate and then Caltrans and regional planning agencies submit plans for transportation improvement projects. If the projects are programmed in the STIP, then relevant agencies can begin the implementation process. California’s Complete Streets Law The Complete Streets Law (Assembly Bill (AB) 1358) requires that cities include the needs of all users, including bicyclists and pedestrians, when updating local general plans. Caltrans specifically adopted Deputy Directive 64, which addresses the needs of people of all ages and abilities concerning transportation planning. It also recognizes that transportation improvement projects are opportunities to improve safety, access, and mobility for motorists, bicyclists, pedestrians, and transit users. The Complete Streets Implementation Action Plan2 provides an overview of the program. Senate Bill 743 On September 27, 2013, Senate Bill (SB) 743 was signed into law.3 The Legislature found that with the adoption of the Sustainable Communities and Climate Protection Act of 2008 (SB 375), the State had signaled its commitment to encourage land use and transportation planning decisions and investments that reduce vehicle miles traveled (VMT) and thereby contribute to the reduction of greenhouse gas emissions (GHG), as required by the California Global Warming Solutions Act of 2006 (AB 32). Additionally, the Complete Streets Act (AB 1358), requires local governments to plan for a balanced, multimodal 1 Caltrans, December 2002, Guide for the Preparation of Traffic Impact Studies. 2 Caltrans, February 2010, Complete Streets Implementation Action Plan. 3 Public Resources Code Section 21099 4.13-2 JANUARY 7, 2019 HAYWARD DOWNTOWN SPECIFIC PLAN AND ASSOCIATED ZONING CODE UPDATE DRAFT EIR CITY OF HAYWARD TRANSPORTATION AND CIRCULATION transportation network that meets the needs of all users. To further the State’s commitment to the goals of SB 375, AB 32 and AB 1358, SB 743 adds Chapter 2.7, Modernization of Transportation Analysis for Transit-Oriented Infill Projects, to Division 13 (Section 21099) of the Public Resources Code. SB 743 started a process that could fundamentally change transportation impact analysis as part of CEQA compliance. These changes will include the elimination of auto delay, level of service (commonly referred to as “LOS”), and other similar measures of vehicular capacity or traffic congestion as a basis for determining significant impacts in many parts of California (if not statewide). Further, parking impacts will not be considered significant impacts on the environment for select development projects within infill areas with nearby frequent transit service. SB 743 includes amendments that revises the definition of “in- fill opportunity zones” to allow cities and counties to opt out of traditional level-of-service standards established by congestion management programs (CMPs) and requires OPR to update the CEQA Guidelines and establish “criteria for determining the significance of transportation impacts of projects within transit priority areas (commonly referred to as “TPAs”). As part of the new CEQA Guidelines, the new criteria “shall promote the reduction of GHG emissions, the development of multimodal transportation networks, and a diversity of land uses.” Key guidance from OPR includes the following: . VMT is the most appropriate metric to evaluate a project’s transportation impact. OPR recommends tour- and trip-based travel models to estimate VMT, but ultimately defers to local agencies to determine the appropriate tools. OPR recommends measuring VMT for residential and office projects on a “per rate” basis. Specifically, OPR recommends VMT per capita for residential projects and VMT per employee for office projects. OPR’s recommended impact threshold for residential and office projects is VMT per capita 15 percent below the city or regional average (whichever is applied). In other words, an office project that generates VMT per employee that is more than 85 percent of the regional VMT per employee could result in a significant impact. This threshold is in line with statewide greenhouse gas emission reduction targets. For retail projects, OPR recommends measuring the net decrease or increase in VMT in the Specific Plan Area with and without the project. The recommended impact threshold is any increase in total VMT. Lead agencies ultimately have the discretion to set or apply their own significance thresholds, provided they are based on significant evidence. Cities and counties still have the ability to use metrics such as level of service for other plans, studies, or network monitoring. However, level of service and similar metrics cannot constitute the sole basis for CEQA impacts. While the updated CEQA Guidelines went into effect on January 3, 2019, cities and other agencies have an opt-in period until July 1, 2020 before SB 743 compliant CEQA analysis becomes mandatory statewide. PLACEWORKS 4.13-3 HAYWARD DOWNTOWN SPECIFIC PLAN AND ASSOCIATED ZONING CODE UPDATE DRAFT EIR CITY OF HAYWARD TRANSPORTATION AND CIRCULATION Local Regulations Metropolitan Transportation Commission The Metropolitan Transportation Commission (MTC) is designated by the State as the regional transportation planning agency for the nine-county