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Innovation Quadrant
Transportation System Development Charge Overlay Project Report
Prepared for:
Submitted by:
Teamed With:
and
May 2011
Innovation Quadrant Transportation System Development Charge Overlay Project Report
Prepared for: City of Portland
Prepared by:
Henderson Young & Company
Teamed with:
May 2011
Innovation Quadrant TSDC Overlay Project May 2011
TABLE OF CONTENTS Executive Summary ................................................................................................................................... iii Chapter 1 Introduction ......................................................................................................................... 1 Data Sources .......................................................................................................................................... 1 Data Rounding ........................................................................................................................................ 1 Chapter 2 Legal Requirements and Issues Affecting SDC Calculations ........................................ 2 Oregon Systems Development Act ........................................................................................................ 2 SDCS and Impacts of Development ....................................................................................................... 2 SDC Adjustments ................................................................................................................................... 3 Timing of TSDC Payments ..................................................................................................................... 3 Uses of TSDC Revenue ......................................................................................................................... 3 Receipt and Expenditure of TSDCs........................................................................................................ 4 Chapter 3 TSDC Overlay Project List.................................................................................................. 5 Modes of Travel ...................................................................................................................................... 5 Identification of Projects to be Eligible for TSDCS .................................................................................. 5 TSDC Overlay Project List...................................................................................................................... 5 Project Costs .......................................................................................................................................... 6 Chapter 4 Rate Schedule Calculations ............................................................................................... 9 Overview of TSDC Calculations ............................................................................................................. 9 Prepare TSDC Overlay Project List (Step 1) ........................................................................................ 11 Allocate Mode Costs for Each Project (Step 2) .................................................................................... 11 Determine Growth Portion of Project Costs (Step 3)............................................................................ 11 Determine TSDC Overlay Portion of Cost of each Project (Step 4) ..................................................... 12 Calculate Overlay Growth Costs (Step 5) ............................................................................................ 13 Forecast New Trips Generated by Each Mode (Step 6) ...................................................................... 16 Calculated Cost per Trip End (Step 7) ................................................................................................. 17 Generate Person Trips for Various Types of Development (Step 8).................................................... 17 Produce TSDC Rate Schedule (Steps 9 and 10) ................................................................................. 20 Chapter 5 Public Participation Process for the Development of the TSDC Overlay.................... 24
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LIST OF FIGURES
Figure 3-1 Figure 4-1. Figure 4-2
Map of TSDC Overlay Projects and Overlay Area ................................................................ 8 How TSDC Rates were Developed ..................................................................................... 10 Generation of Trips by Development Type ......................................................................... 18
LIST OF TABLES
Table 1: Eligible TSDC Costs ..................................................................................................................... iv Table 2. TSDC Overlay Rates by Mode...................................................................................................... iv Table 3-1: TSDC Overlay Project List .......................................................................................................... 6 Table 4-1: Project Costs Attributable to Motorized Travel ......................................................................... 14 Table 4-2: Project Costs Attributable to Transit Travel .............................................................................. 14 Table 4-3: Project Costs Attributable to Non-Motorized Travel ................................................................. 15 Table 4-4: Eligible TSDC Costs ................................................................................................................. 15 Table 4-5. Growth in Employment and Households .................................................................................. 16 Table 4-6. Growth in Daily Person Trip Ends............................................................................................. 16 Table 4-7. TSDC Overlay Rates by Mode ................................................................................................. 17 Table 4-8: TSDC Trip Generation by Mode ............................................................................................... 21 Table 4-9: Innovative Quadrant TSDC Overlay Rates ............................................................................... 23
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EXECUTIVE SUMMARY
System development charges are one-time fees paid by new development to pay for capital costs of public facilities needed to serve new development and the people who occupy or use the new development. The purpose of this study is to establish rates for transportation system development charges (TSDCs) in the Innovation Quadrant (IQ), an area covering the south downtown/south central eastside of the City of Portland, Oregon. The City of Portland first adopted Citywide TSDCs in 1997, and updated the TSDCs in 2007. In 2009, the City adopted an overlay TSDC for the North Macadam urban renewal area that is in addition to the Citywide TSDC rates. The IQ TSDC Overlay uses the same methodology as the North Macadam TSDC Program. TSDCs are calculated by dividing the eligible cost of transportation capital improvements by the number of additional trips that will be generated by development. The result is the cost per trip that will be charged to new development. The following sections summarize the steps in calculating the IQ TSDC. Selection of Projects First, stakeholders identified over 30 projects as candidates to be funded by the TSDC Overlay. To be eligible for TSDC Overlay funding, projects need to be part of the Transportation System Plan, add capacity to the transportation system, be located on a public street or regional transit facility, and serve additional population and or employment over the next 20 years. The City worked with community stakeholders to select six multi-modal transportation improvement projects for TSDC Overlay funding. Cost Allocation Next, each project was analyzed to determine the portion of its cost that was attributable to the three modes of travel: motorized, transit, and non-motorized based on the number of persons served by each mode and the cost of the improvements for each mode. Some project costs are not eligible for the IQ TSDC. The following adjustments were made to identify the costs that are eligible: 1) Exclude existing deficiencies because they were not caused by development. 2) Exclude “through” trips that do not start or stop in the Innovation Quadrant because they have no connection to development in the IQ. 3) Reduce costs by the amount of revenues already budgeted to the TSDC projects. The total cost of the TSDC Overlay projects is approximately $90.4 million. This includes Portland’s $55 million share of the $1.5 billion Portland-Milwaukie Light Rail Project. The TSDC Overlay projects, total costs and eligible TSDC costs are listed in Table 1.
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TABLE 1: ELIGIBLE TSDC COSTS Project Name Portland-Milwaukie Light Rail Close the Loop SE Water Avenue Relocation SW 4th Avenue Streetscape Broadway Cycle Track and Streetscape Clinton to the River Multi-Use Path Total Total Cost ($) $55,000,000 $22,518,465 $4,633,839 $2,402,138 $1,244,573 $4,625,597 $90,424,612 Total TSDC Cost ($) $5,000,000 $5,425,243 $1,565,478 $1,301,088 $674,107 $600,000 $14,565,916
To avoid any duplicate charges from projects on both the Citywide TSDC Project List and the IQ Project List, the eligible costs were reduced by $362,848 to equal $14,203,068. Growth in the Overlay area New trips on the transportation network are primarily caused by growth in population and employment. The Portland Metro travel demand model forecasts 9,792 new employees and 1,776 new households in the Overlay area by the year 2030. Based on this 20-year land use growth, the model forecasts 77,525 new daily person trip ends1 in the TSDC Overlay area. TSDC Rates TSDC rates for each land use depend on two factors: (1) cost per trip, and (2) the type of development and number of trips it generates. The cost per trip end for each mode is calculated by dividing the costs that are eligible for TSDCs by the number of trip ends for each mode of travel, as shown in Table 2. The Portland-Milwaukie Light Rail Project is part of the Citywide TSDC. The reduction for the Citywide TSDC removes any potential for double-charging for the light rail project.
TABLE 2. TSDC OVERLAY RATES BY MODE Cost Eligible for TSDC ($) $1,017,634 $10,648,524 $2,899,759 TSDC per Daily 20-Year Growth in TSDC per Daily Reduction for Person Trip End Daily Person Trip Person Trip End Citywide TSDC ($) Ends ($) 35,870 22,678 18,977 $28 $470 $153 N/A $(16) N/A $28 $454 $153
Mode Motorized Transit Non-Motorized
TSDC rates vary according to the impact on the transportation network caused by each type of development. The impacts are measured as daily person trip ends. Table 4-9, at the end of this study, presents the dollar amount per unit of development for a variety of land use categories.
A trip travels between an origin and a destination. Each trip has two trip ends, one each at the origin and destination. Trip ends are used in the calculation of TSDC rates.
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CHAPTER 1
INTRODUCTION
The purpose of this study is to establish rates for an overlay district for transportation system development charges (TSDCs) for transportation facilities in the Innovation Quadrant, an area covering the south downtown/south central eastside of the City of Portland, Oregon. System development charges are one-time fees paid by new development to pay for capital costs of public facilities needed to serve new development and the people who occupy or use the new development. The City of Portland adopted Citywide TSDCs that became effective October 18, 1997, and updated the TSDCs in October 2007. In 2009, the City adopted an overlay TSDC for the North Macadam urban renewal area that is in addition to the Citywide TSDC rates. The Innovation Quadrant TSDC Overlay (TSDC Overlay) uses the same methodology as the North Macadam TSDC Program. This rate study includes: Chapter 1. Introduction Chapter 2. Summary of legal requirements and issues that affect the calculation of TSDC rates in Oregon Chapter 3. TSDC Overlay project list Chapter 4. Rate schedule of TSDCs for various types of development in the TSDC Overlay
Local governments charge SDCs for several reasons: ? ? To obtain revenue to pay for some of the cost of new public facilities. To implement a public policy requiring new development to pay a portion of the cost of facilities that it requires, and ensuring existing development does not pay all of the cost of such facilities. To assure that public facilities will be constructed in a timely manner to achieve and maintain local standards for new development without decreasing the level of service for existing residents and businesses. To provide predictability to developers and builders about the type, timing, and amount of exactions required by local governments.
?
?
Chapter 5. Public participation process for the development of the TSDC Overlay
DATA SOURCES
The data in this study were provided by the City of Portland, Metro, and TriMet as cited in the report.
DATA ROUNDING
The data in this study were prepared using computer spreadsheet software. In some tables there will be very small variations from results that would be obtained using a calculator to compute the same data. The reason for these slight differences is that the spreadsheet software was allowed to calculate results to more places after the decimal than is reported in the tables of these reports.
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CHAPTER 2
LEGAL REQUIREMENTS AND ISSUES AFFECTING SDC CALCULATIONS
OREGON SYSTEMS DEVELOPMENT ACT
In 1989, the State of Oregon adopted the Oregon Systems Development Act (ORS 223.297 - 223.314) to “provide a uniform framework for the imposition of system development charges by local governments.” The statutes outline the types of charges that are considered to be System Development Charges (SDCs) and impose a variety of requirements on governments that impose SDCs. ORS provisions that directly affect calculation of SDC rates require the City of Portland to: 1) Adopt a capital improvement plan (to designate capital improvements that can be funded with SDCs). 2) Set forth a methodology for the SDC. 3) Calculate the SDC as a “reimbursement” fee, or an “improvement” fee, or a combination of both: a. “Reimbursement fee” means a fee associated with capital improvements already constructed or under construction when the fee is established, for which the local government determines that capacity exists. b. “Improvement fee” means a fee for costs associated with capital improvements to be constructed. 4) Limit SDCs to five types of capital improvements: transportation, water, sewer, drainage, parks, and recreation.
SDCS AND IMPACTS OF DEVELOPMENT
When determining SDCs, cities generally take the following impacts into account: 1. Demand (Impacts) Demands placed on public facilities vary among different types of development. The TSDC Overlay is based on the number of trips generated on the transportation system by each type of development. Each type of development generates a different number of trips per unit of development. Local government SDC rate studies are based on a “standard” impact on public facilities created by “typical” development of different types. The TSDC Overlay is based on trip generation rates reported nationally by the Institute of Transportation Engineers (ITE) and mode of travel data from the Portland area. Portland’s City Code 17.15.070 allows developers to submit data and analysis to demonstrate that the impacts of their proposed development are less than the impacts used in this rate study. In order for the City to accept alternative (reduced) impacts, they must be permanent and enforceable (i.e., through land use restrictions, deed restrictions, lease terms, etc.). 2. Benefit Criteria Benefit criteria include personal use and use by others in the family or business enterprise of the feepaying property (direct benefit), and use by persons or organizations who provide goods or services to the fee-paying property (indirect benefit). As noted, the TSDC Overlay is based on the number of trips generated on the transportation system by each type of development, which includes some direct benefit trips and some indirect benefit trips. Each
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trip, regardless of benefit type, constitutes a unit of demand (impact) on the system, thus each development’s total trip count quantifies the impact of that development. By basing the TSDC on the number of trips, the TSDC is related to the impacts generated and benefits received by the development. 3. Levels of Service The City of Portland determines its needs for transportation facilities by reviewing a variety of factors, including the volume of traffic and levels of congestion on major roads. Chapter 3 of this study presents the criteria used to identify transportation projects that are eligible for the TSDC Overlay program. 4. Size of Development SDCs are typically charged on the basis of the size of the development (e.g., number of dwelling units or number of square feet of development). The IQ TSDC Overlay rate schedule lists the TSDC amount per unit of development. The size of each proposed development is multiplied times the TSDC rate per unit.
SDC ADJUSTMENTS
SDCs cannot “double dip” (i.e., they need to take into account the payment by new development of other fees, taxes, etcetera that the government uses to pay for the capital cost of the same public facilities). These other revenues are accounted for by subtracting them from the cost of capital improvement projects that are attributable to SDCs. The adjustment includes only the other revenues that are earmarked for or pro-ratable to the same capital improvements that are the basis for the SDC. Portland uses General Transportation Revenue (GTR), grants, and funding from other local, state and federal sources to pay for portions of its transportation improvement projects. The TSDC Overlay takes into account the future use of GTR, grants and other funding by subtracting City budgeted commitments for those revenues from the cost of projects in the TSDC Capital Improvement Program (see Table 4-5). The TSDC Overlay program also makes an adjustment for Citywide TSDCs paid by development in the TSDC Overlay area (see Table 4-7). In addition to the adjustment described above, a developer may reduce the amount of SDC due by contributing land, improvements or other assets to receive a "credit" for Qualified Public Improvements. Portland’s City Code 17.15.050 allows an exemption from payment of the TSDC for affordable housing. In 2007, the Citywide TSDC Citizens Advisory Committee recommended phasing out the TSDC discount for Transit Oriented Developments (TODs) and this change was adopted in 2007. Consistent with the current City policy, the Innovative Quadrant TSDC Overlay does not include a TOD exemption.
TIMING OF TSDC PAYMENTS
Portland’s City Code 17.15.040 authorizes imposition of the TSDC at the time of application for a building permit. The TSDC is due upon issuance of the building permit.
USES OF TSDC REVENUE
SDC revenue can be used for the capital cost of public facilities. SDCs cannot be used for operating or maintenance expenses. The cost of capital facilities that can be paid for by TSDCs are specified in Portland’s City Code 17.15.100.
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RECEIPT AND EXPENDITURE OF TSDCS
Portland’s City Code 17.15.100 requires TSDC revenues to be deposited into separate accounts of the City of Portland. Portland’s City Code 17.15.090 requires refunding of TSDC payments that are not expended within 10 years from receipt (on the premise that if they cannot be expended in a reasonable time, they were probably not “needed” nor did they contribute to achieving and maintaining an adequate transportation system for new development).
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CHAPTER 3
TSDC OVERLAY PROJECT LIST
Oregon’s System Development Act requires that SDCs be based on an adopted capital improvement program (CIP). This chapter presents the City’s TSDC capital improvement program for the Innovative Quadrant TSDC Overlay, termed the TSDC Overlay Project List. Adoption of this rate study by the City of Portland, and adoption of the TSDC ordinance that incorporates this rate study by reference, constitute adoption of the TSDC Overlay project list by the City for the purpose of calculating TSDCs.
MODES OF TRAVEL
In the City of Portland, TSDCs are designed to support the principal modes of travel in a multi-modal system. For the purpose of organizing and analyzing data that supports the TSDCs, the City identified three categories to encompass different modes of travel: 1) Motorized: travel by automobiles, trucks and motorcycles, but not buses or railcars 2) Transit: travel by rail and bus 3) Non-motorized: pedestrian and bicycle travel
IDENTIFICATION OF PROJECTS TO BE ELIGIBLE FOR TSDCS
During the first phase of the TSDC Overlay project, stakeholders identified over 30 projects as candidates to be funded by the TSDC Overlay. The City used a set of criteria to identify transportation capital improvement projects that are eligible for TSDCs. The criteria were developed to meet legal requirements (see Chapter 2) and the multi-modal transportation needs of the overlay area. The following minimum qualifications were required for projects to be considered: ? ? ? ? ? Project includes a component that adds capacity to the transportation system; Project is in the Transportation System Plan; Project is on a public street, or a regional transit facility; Project is not a maintenance project; and, Project is designed to serve additional population and or employment over the next 20 years.
Projects that met these qualifications and add new multi-modal capacity to the transportation system were considered potentially eligible for TSDC Overlay funding. The City, working with community stakeholders, selected the six highest priority projects.
TSDC OVERLAY PROJECT LIST
Six multi-modal capacity improvement projects were selected for TSDC Overlay funding. The TSDC projects are listed in Table 3-1 and depicted in Figure 3-1. For each project, the list shows: ? ? ? Project name Total cost: estimated total cost of project Allocation of total costs among the three modes: motorized, transit and non-motorized
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The project list covers improvements needed during the next 20 years. The table shows the percentage and resulting cost of each project allocated to each mode.
PROJECT COSTS
The overall project cost for the Portland-Milwaukie Light Rail Project is approximately $1.5 billion. The City of Portland’s funding responsibility for the light rail project is $55 million. For the other projects, cost estimates were prepared using typical costs of the components of each project. City engineering staff obtained unit costs from recent bid tabs and applied common contingency costs to establish a consistent set of current year project costs.2 Cost estimates were developed using a common set of unit costs. To reflect the base year 2010 cost, any planned future inflation for labor and materials was removed. The total cost of the TSDC Overlay projects is approximately $90.4 million. These costs are reflected in the totals shown in Table 3-1.
TABLE 3-1: TSDC OVERLAY PROJECT LIST NonNonMotorized Transit Cost Motorized Transit Motorized Motorized Cost ($) ($) % % Cost ($) % 0% 0% 60% 0% 0% 0% 100% 100% 20% 0% 0% 0% 0% 0% 20% 100% 100% 100% $$$2,780,303 $$$$2,780,303 $55,000,000** $22,518,465 $926,768 $$$$$$926,768 $2,402,138 $1,244,573 $4,625,597
Project Name*
Total Cost ($)
Portland-Milwaukie Light Rail $55,000,000** Close the Loop SE Water Avenue Relocation SW 4th Avenue Streetscape Broadway Cycle Track and Streetscape Improvements Clinton to the River Multi-Use Path Total $22,518,465 $4,633,839 $2,402,138 $1,244,573 $4,625,597 $90,424,612
$78,445,233 $9,199,076
**The cost represents the City of Portland’s funding responsibility for the project.
* Project Descriptions Portland-Milwaukie Light Rail Provides high capacity transit service along the Portland-Milwaukie Corridor, including five stations in the Overlay area and a multimodal bridge across the Willamette River. Connects the Eastside Streetcar Project currently under construction to existing service in South Waterfront with ramps to the new multimodal bridge, and switches and technology to share the rail connection on the bridge. Project includes additional streetcar vehicles.
Close the Loop
2
The cost estimates for the SW 4th Avenue Streetscape and Broadway Cycle Track and Streetscape Improvement Projects were prepared by Kurahashi and Associates.
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* Project Descriptions SE Water Avenue Relocation Includes realignment of Water Avenue and construction of 1,300 feet of roadway, with two auto travel lanes, bike lanes, and sidewalks. The project will support the new Portland-Milwaukie Light Rail and streetcar connections to the multimodal bridge, providing access between the east and west sides of the river. Improves the street environment on SW 4th Avenue adjacent to Portland State University by adding bicycle facilities, curb bulb-outs, signalized pedestrian crossings, green street features, and marked crosswalks. Enhances the existing cycle track and sidewalks on SW Broadway adjacent to Portland State University. Includes the construction of a raised cycle track, sidewalk amenities, green street features, ADA improvements, pedestrian islands, and curb bulb-outs. Improves the non-motorized connection between the new multimodal Willamette River bridge and the regional trail network by constructing a multi-use path along the Portland-Milwaukie Light Rail alignment.
SW 4th Avenue Streetscape
Broadway Cycle Track and Streetscape Improvements Clinton to the River Multi-Use Path
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Figure 3-1
Map of TSDC Overlay Projects and Overlay Area
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CHAPTER 4
RATE SCHEDULE CALCULATIONS
This chapter contains the formulas, variables and data used to calculate the TSDC Overlay rates for the City of Portland. The TSDC Overlay area is a subset of the whole City and the calculations shown in this chapter are aimed at just the cost attributable to the TSDC Overlay area. The chapter begins with an overview of how the TSDC rates were calculated. The balance of the chapter presents the formulas, variables, data, and rate schedule for the TSDC Overlay.
OVERVIEW OF TSDC CALCULATIONS
The TSDCs for the overlay area were calculated using the following steps. These are diagrammed in Figure 4-1. 1) Identify transportation projects that are needed to serve new development. 2) Analyze each project to determine what portion of its cost should be allocated to the modes of travel: motorized, transit, and non-motorized (pedestrian and bicycle). 3) Determine the portion of the project costs that serves growth and the portion that addresses existing deficiencies. The growth portion becomes the basis of the TSDCs. The deficiency portion is excluded from TSDCs, and must be paid by other sources of revenue. 4) Identify the portion of the growth travel that begins and/or ends within the TSDC Overlay area versus the “through” trips that do not start or stop in that area. Trips that pass through the Overlay area without stopping are excluded from TSDC Overlay calculations and must be paid by other sources of revenue. 5) Calculate the amount of the project cost that can be attributable to growth within the Overlay area. This calculation removes the deficiencies (step 3), “through” trips (step 4), and any adjustment for other revenues. 6) Estimate the growth in trip ends3 (over 20 years) that will be generated for each mode of travel in the TSDC Overlay area. 7) Calculate the cost per new trip end (for each mode) by dividing the costs that are eligible for TSDCs (from steps 1 to 5 above) by the number of new trip ends (from Step 6). 8) Calculate the number of new trip ends that are generated by various types of development. These trip ends are estimated for each modal type using the percentage of usage by each mode. 9) Calculate the TSDC rate for each type of development and for each mode. The trip rates per development type (Step 8) are multiplied times the cost per trip end (Step 7) to produce TSDC rates. The TSDC rates are expressed in terms of costs per unit of development (e.g., housing units, square feet). 10) Combine the TSDC rates for each mode to determine the total TSDC for each type of development. The result is the composite TSDC that can be published as the TSDC rate schedule for the Overlay. The remainder of this chapter describes these steps in greater detail.
A trip travels between an origin and a destination. Each trip has two trip ends, one each at the origin and destination. Trip ends are used in the calculation of TSDC rates.
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Figure 4-1.
How TSDC Rates were Developed
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PREPARE TSDC OVERLAY PROJECT LIST (STEP 1)
Chapter 3 describes the City’s process for identifying the transportation projects needed to serve new development in the TSDC Overlay area. The projects are listed in Table 3-1 and mapped in Figure 3-1.
ALLOCATE MODE COSTS FOR EACH PROJECT (STEP 2)
Each project was analyzed to determine the portion of its cost that was attributable to the three modes of travel: ? ? ? Motorized: automobile, truck, and motorcycle Transit: rail and bus Non-motorized: pedestrian and bicycle
Allocation of project costs among the modes was estimated based on the number of persons served by each mode, cost of the improvements for each mode, and factoring that the relocation of SE Water Avenue will enable the streetcar to connect to the new multi-modal bridge across the Willamette River. Table 3-1 (Chapter 3) shows modal percentages for each TSDC project.
DETERMINE GROWTH PORTION OF PROJECT COSTS (STEP 3)
The growth portion of a project serves new development, contrasted to the deficiency portion that serves existing development. The growth portion is the basis of TSDCs. The deficiency portion is excluded from TSDCs and must be paid by other sources of revenue. Each project on the TSDC list was analyzed to estimate the percentage needed to eliminate existing deficiencies. The remainder of each project was available to serve new growth, and included in the TSDC rate calculation. The following general equations were used to determine the percent of the project available for growth: Percent of project for growth = (100) minus (Percent for deficiency) The calculation was performed separately for each mode (motorized, transit, and non-motorized). The calculations used are consistent with the methodologies used for the citywide TSDC program adopted in 2007. Motorized Deficiency Values For motorized projects, the amount of the project intended to address existing deficiencies was initially calculated using the following formula developed for the citywide TSDC program: Motorized Deficiency = (Existing Traffic Volume) minus (Existing Capacity) (Future Capacity) minus (Existing Capacity) If current traffic volume exceeds existing capacity, the amount of this excess volume is the deficient amount. The remainder of future capacity not being used by existing volumes can be allocated to growth.
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SE Water Avenue Relocation is the only TSDC project that will serve the motorized mode. Using the above methodology, the SE Water Avenue Relocation project showed zero percent motorized deficiencies. Transit Deficiency Values For TSDC projects with a transit element, the deficiency was evaluated using the average maximum load factor for TriMet bus routes serving the project. This analysis was conducted in the PM peak hour for the peak direction of transit service. The maximum load factor indicates the degree of passenger loading that occurs on the route and run and equals the ratio of passengers to seats on the bus for that run. For projects that have multiple bus routes, the load factor was calculated as the average of the bus routes. Transit Deficiency = (100) minus (average maximum load factor for route(s)) The Portland-Milwaukie Light Rail Project will replace TriMet Bus Routes 31, 32, 33 and 99X. The average maximum load factor for the peak direction, peak hour transit service for these four routes showed a 5 percent existing deficiency. The Close the Loop and SE Water Avenue Relocation Projects did not show an existing transit deficiency. Non-Motorized Deficiency Values For the TSDC Overlay, the non-motorized deficiency values were calculated by Portland Transportation System Plan (TSP) district, using both a pedestrian deficiency value and a bicycle deficiency value. The selected non-motorized deficiency value was the higher of the two deficiencies. The pedestrian deficiency for each district is the percent of arterials without sidewalks. This is based on the latest census of sidewalks on arterials throughout Portland. The bicycle deficiency for each district represents the degree to which each district is served by bicycle facilities (existing plus currently funded). Within each district, the mileage of bicycle facilities was divided by the number of households to compute a value of bike lane-miles per 1,000 households. This value was then compared to a citywide average of bicycle lane-miles per 1,000 households. If the district value was less than the citywide average, the percentage difference is considered to be the bicycle deficiency. If the district value was higher than the citywide average, the bicycle deficiency calculation was set at zero (0). The portion of the TSDC Overlay area west of the Willamette River is within the Central City District, which has zero non-motorized deficiencies. Therefore, no deficiency is assumed for the SW 4th Avenue Streetscape and Broadway Cycle Track and Streetscape Improvement Projects. For the portion of the TSDC Overlay area east of the Willamette River, the study team decided to apply a conservative deficiency value of 46 percent to the non-motorized project elements. This value reflects the highest non-motorized deficiency percentage for districts within the City. The 46 percent was removed from the non-motorized costs of the Clinton to the River and SE Water Avenue Relocation Projects.
DETERMINE TSDC OVERLAY PORTION OF COST OF EACH PROJECT (STEP 4)
Trips on a transportation network have a beginning (origin) and end (destination). In the jargon of transportation planning, both are called “trip ends.” Many trips that use the TSDC Overlay transportation system have one or both “ends” within the Overlay area. Some trips, however, begin and end outside the Overlay area and are known as “through” trips. The through trips are excluded from the TSDC
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calculation. The cost of the through-trip portion of projects must be absorbed by others because the City cannot collect TSDCs from development occurring outside the Overlay area.4 Each mode of travel was analyzed separately to determine the “through” trips for each project on the TSDC Overlay project list. For motorized travel a “select-link” trip analysis was used. The select-link technique uses the City’s travel demand model to identify the origins and destinations of traffic using a specific roadway segment. The resulting trip data were used to calculate the percentage of the traffic that started or ended within the Overlay area. For transit and non-motorized modes, the travel model was used to create trip matrices showing the trip origins and destinations of each trip. “Overlay” trips for these two modes were defined as trips that started or ended within the Overlay area. Conversely, the trips that had a beginning and end outside the district were treated as “through” trips. The percent of “Overlay” trips were calculated as follows: Percent of “Overlay” trips =(100) minus (Percent “through” trips) The resulting “Overlay” trip percents were used in Tables 4-1 through Table 4-3 to calculate the portion of each project’s growth that relates to the Overlay district.
CALCULATE OVERLAY GROWTH COSTS (STEP 5)
The project costs allocated to growth in the Overlay are calculated and shown in Table 4-1 (motorized), Table 4-2 (transit), and Table 4-3 (non-motorized). Each project from the TSDC Overlay project list includes its name and total project cost. The next three columns contain (1) the percentage of the project that is attributed to the mode (from Table 3-1); (2) the percentage of the project that is attributed to new growth (as opposed to existing deficiencies); and, (3) the percentage of the project that is attributed to Overlay (“non-through”) traffic. The equation for the cost allocation process multiplies the project cost times each of the three factors to determine the portion of project costs that is eligible for TSDC Overlay funding. The last column contains the results of this calculation, which is the portion of the cost of the project that is attributable to growth in the Overlay area on that mode of travel. (Project cost attributable to TSDC)m = (Project cost) X (Mode %)m X (Growth %)m X (“ Overlay”%)m Where m = mode (motorized, transit, non-motorized)
4
Note that the adopted Citywide TSDC includes some contribution of Citywide TSDC funds to the Portland-Milwaukie Light Rail Project. This adjustment is calculated in Step 5.
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Innovation Quadrant TSDC Overlay Project May 2011
TABLE 4-1: PROJECT COSTS ATTRIBUTABLE TO MOTORIZED TRAVEL Total Cost ($) $55,000,000 $22,518,465 $4,633,839 $2,402,138 $1,244,573 $4,625,597 $90,424,612 Percent for Motorized Mode 0% 0% 60% 0% 0% 0% Percent Serving Growth N/A N/A 100% N/A N/A N/A Overlay Portion of Growth N/A N/A 37% N/A N/A N/A Costs Attributable to Motorized TSDC ($) N/A N/A $1,017,634 N/A N/A N/A $1,017,634
Project Name Portland-Milwaukie Light Rail Close the Loop SE Water Avenue Relocation SW 4th Avenue Streetscape Broadway Cycle Track and Streetscape Improvements Clinton to the River Multi-Use Path Total
TABLE 4-2: PROJECT COSTS ATTRIBUTABLE TO TRANSIT TRAVEL Total Cost ($) $55,000,000 $22,518,465 $4,633,839 $2,402,138 $1,244,573 $4,625,597 $90,424,612 Percent for Transit Mode 100% 100% 20% N/A N/A N/A Percent Serving Growth 95% 100% 100% N/A N/A N/A Overlay Portion of Growth 16% 24% 24% N/A N/A N/A Costs Attributable to Transit TSDC ($) $8,099,820 $5,425,243 $223,281 N/A N/A N/A $13,748,344
Project Name Portland-Milwaukie Light Rail Close the Loop SE Water Avenue Relocation SW 4th Avenue Streetscape Broadway Cycle Track and Streetscape Improvements Clinton to the River Multi-Use Path Total
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Innovation Quadrant TSDC Overlay Project May 2011
TABLE 4-3: PROJECT COSTS ATTRIBUTABLE TO NON-MOTORIZED TRAVEL Total Cost ($) $55,000,000 $22,518,465 $4,633,839 $2,402,138 $1,244,573 $4,625,597 $90,424,612 Percent for Non-Motorized Mode N/A N/A 20% 100% 100% 100% Percent Serving Growth N/A N/A 54% 100% 100% 54% Overlay Portion of Growth N/A N/A 65% 54% 54% 65% Costs Attributable to Non-Motorized TSDC ($) N/A N/A $324,564 $1,301,088 $674,107 $1,619,931 $3,919,690
Project Name Portland-Milwaukie Light Rail Close the Loop SE Water Avenue Relocation SW 4th Avenue Streetscape Broadway Cycle Track and Streetscape Improvements Clinton to the River Multi-Use Path Total
Adjustment for Other Revenue As stated previously, SDCs must take into account payment of other fees and taxes by new development for the capital cost of the same public facilities. Portland uses General Transportation Revenue (GTR), grants, and funding by partner agencies to pay for a portion of its transportation improvement projects. Consequently, Portland’s SDCs take into account future use of GTR, grants and partner funding by subtracting estimated non-TSDC revenues from the cost of projects in the TSDC Capital Improvement Program. Table 4-4 presents the amounts of non-TSDC revenues that have been estimated for specific projects that are eligible for TSDC Overlay, and calculates the remaining funds needed. If the cost that is unfunded (column A in Table 4-4) is greater than the eligible cost (column B), the eligible cost was used in the TSDC calculation. For the Overlay area, this situation occurred for four of the six projects. For the Portland-Milwaukie Light Rail and the Clinton to the River projects, the eligible costs are greater than the unfunded costs. Therefore, the TSDC cost was adjusted to match the unfunded costs (column A).
TABLE 4-4: ELIGIBLE TSDC COSTS Estimated Remaining Non-TSDC Funds Funds for Needed TSDC (A) Projects ($) $- $22,518,465 $3,029,840 $1,603,999 $- $2,402,138 $- $1,244,573 $4,025,597 $600,000 Eligible TSDC TSDC Cost Adjustment Final TSDC ($) Needed? Cost ($) (compare A to B) (B) $8,099,820 $5,425,243 $1,565,478 $1,301,088 $674,107 $1,619,931 Yes No No No No Yes $5,000,000 $5,425,243 $1,565,478 $1,301,088 $674,107 $600,000 $14,565,916
Project Name
Total Cost ($)
Portland-Milwaukie Light Rail $55,000,000 $50,000,000 $5,000,000 Close the Loop SE Water Avenue Relocation SW 4th Avenue Streetscape Broadway Cycle Track and Streetscape Improvements Clinton to the River Multi-Use Path Total $22,518,465 $4,633,839 $2,402,138 $1,244,573 $4,625,597
$90,424,612 $57,055,437 $33,369,175 $18,685,667
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Innovation Quadrant TSDC Overlay Project May 2011
FORECAST NEW TRIPS GENERATED BY EACH MODE (STEP 6)
New trips on the transportation network are primarily caused by growth in population and employment. Table 4-5 displays the demographic growth used in the Portland Metro travel demand model for the Overlay area. The years selected for the TSDC analysis were 2010 and 2030.
TABLE 4-5. GROWTH IN EMPLOYMENT AND HOUSEHOLDS TSDC Overlay Area Land Use Employees Households 2010 32,138 6,176 2030 41,930 7,952 20-Year Growth 9,792 1,776
Source: Portland Metro travel demand model
The City’s travel demand model uses employees and households to predict the number of trips that will be generated on the transportation network. The model is able to generate total person trips and trips for each mode (motorized, transit, and non-motorized). Table 4-6 shows the forecast of trip ends for 2010 and 2030. Trip “ends” represent the beginning and end of each trip. These data show that transit and non-motorized trips will increase at a faster rate than motorized trips during the next 20 years. The mode share of the 77,525 growth trips is shown in the last column of Table 4-6, and these percentages are used in the Step 8 calculations.
TABLE 4-6. GROWTH IN DAILY PERSON TRIP ENDS TSDC Overlay Area Trip Type Motorized Transit Non-Motorized Total Daily Person Trip Ends 2010 228,551 39,723 38,304 306,578 2030 264,421 62,401 57,281 384,103 20 Year Growth 35,870 22,678 18,977 77,525 Growth Percent 16% 57% 50% 25% Growth Mode Share 46% 29% 25% 100%
Note: Data shown are trip 'ends'. Each trip has two ends. Source: Portland Metro travel demand model
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Innovation Quadrant TSDC Overlay Project May 2011
CALCULATED COST PER TRIP END (STEP 7)
TSDC rates for each land use depend on two factors: (1) cost per trip, and (2) number of trips generated by the new development. The cost per trip end for each mode is calculated by dividing the costs that are eligible for TSDCs (from Table 4-4) by the number of trip ends (from Table 4-6). The following formula is used: Cost per person trip end = (Total cost attributable to TSDC) m (20-year growth in daily person trip ends) m Where m = mode (motorized, transit, non-motorized) The calculations of cost per trip end are shown in Table 4-7. The results vary by mode, depending on the modal allocation of the costs and the magnitude of growth occurring in the TSDC Overlay area. Table 4-7 shows that a “Citywide TSDC Reduction” was made to the rates. Of the six TSDC Overlay projects, only the Portland-Milwaukie Light Rail Project is part of Citywide TSDC Project List. All City developments pay for a portion of the light rail project. The reduction equals the amount of the Citywide TSDC paid by development in the Overlay area that would be allocated to the light rail project. The reduction removes any potential for double-charging of TSDC fees. The Citywide TSDC reduction for the light rail project equals $362,848 ($16 per transit trip end multiplied by 22,678 new daily transit trip ends projected in the next 20 years). As a result of the reduction for Citywide TSDC, the gross TSDC eligible cost would be reduced to a net cost of $14,203,068.
TABLE 4-7. TSDC OVERLAY RATES BY MODE 20-Year Growth in Daily Person Trip Ends 35,870 22,678 18,977 TSDC per Daily Person Trip End ($) $28 $470 $153 Reduction for Citywide TSDC N/A $(16) N/A TSDC per Daily Person Trip End ($) $28 $454 $153
Mode Motorized Transit Non-Motorized
Cost Eligible for TSDC ($) $1,017,634 $10,648,524 $2,899,759
GENERATE PERSON TRIPS FOR VARIOUS TYPES OF DEVELOPMENT (STEP 8)
TSDC rates vary according to the impact on the transportation network caused by each type of development. Impacts are measured in “trip ends.” Trip generation rates for each development type were derived from the Institute of Transportation’s (ITE) report, Trip Generation (8th Edition, 2008). The ITE rates are expressed as daily vehicle trip ends entering and leaving a property.
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Innovation Quadrant TSDC Overlay Project May 2011
The ITE rates were adjusted to match the needs of the TSDC program. There were three primary adjustments: 1) Conversion of vehicle trips to person trips 2) Removal of the “pass-by” trips 3) Separation into trips by mode (i.e., motorized, transit, non-motorized) A further adjustment for trip lengths was made for the motorized trip component. Figure 4-2 shows the flow of steps used to develop the trip rates. Figure 4-2 Generation of Trips by Development Type
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Innovation Quadrant TSDC Overlay Project May 2011
Derive Person Trips The daily vehicle trip rates were converted to person trips per unit as follows: Daily Total Person Trips/unit = (Daily vehicle trips/unit) X (Average Vehicle Occupancy) (Motorized mode %) The daily vehicle trips per unit were taken from the ITE Trip Generation report, 8th Edition (2008). These rates represent national averages for land uses surveyed primarily in urban fringe and suburban areas. The conversion units for person trips were chosen to match these geographic conditions. Average vehicle occupancy of 1.13 was selected based on review of region-wide traffic count data for Portland and other national sources. A motorized mode share of 90 percent was used to represent the geographical locations typical of the ITE trip generation surveys. Combining these factors resulted in a factor of 1.26 used to multiply vehicle trip rates to create person trip rates. Separate “New” Trips versus “Pass-by” Trips The trip generation rates represent total traffic entering and leaving a property at driveway points. For some land uses (e.g., retail), a substantial amount of this traffic is already passing-by the property and merely interrupts a trip between two other locations. These pass-by trips do not add to the impact on the surrounding street system. As a result, pass-by trips are subtracted from the total trips generated by each type of land use. The remaining trips are considered "new" to the street system and are therefore subject to TSDC calculation. Pass-by trip percentages are derived primarily from ITE data and from available surveys conducted around the country. This adjustment was applied in Table 4-8 by multiplying the daily person trips per unit by the corresponding “new” trip percentage for each land use type. Separate Into Trips by Mode “New” person trips were split into the three modal categories by applying forecasted modal shares for the TSDC Overlay for 2030. These mode shares, shown in the last column of Table 4-6, are as follows: Motorized mode share = 46% Transit mode share = 29% Non-motorized mode share = 25% Each mode share is multiplied by total new person trips to produce trips by mode. The results are displayed in Table 4-8 for the land uses included in the TSDC calculations.
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Innovation Quadrant TSDC Overlay Project May 2011
PRODUCE TSDC RATE SCHEDULE (STEPS 9 AND 10)
The TSDC rate schedule is a table where rates are represented as dollars per unit of development for a variety of land use categories (as defined in ITE’s Trip Generation). Table 4-9 shows the calculations used to derive these rates for each mode, which are then combined into a total TSDC rate. For each mode, the TSDC rate equals the person trip rate (from Table 4-8) times the cost per person trip end (from Table 4-7). The equation for the TSDC for each mode is: (Motorized TSDC) lu = (daily new motorized person trips/unit) lu X (trip length adjustment factor) lu X (cost per motorized trip end) (Transit TSDC) lu = (Non-Motorized TSDC) lu = Where lu = land use category Trip Length Adjustment for Motorized Trips A variable that affects motorized traffic impacts is the length of trips generated by each type of land use. ITE trip rates represent an “average” trip without regard to the length of each trip. If a given trip is shorter than the average, then its relative traffic impact on the street system will be less. Conversely, longer trips will impact a larger portion of the transportation network. To reflect these differences, an adjustment factor is used, which is calculated as the ratio between the trip length for a particular land use type and the “average” trip length for Portland. Trip length data were estimated using limited national survey results. The adjustment uses a ratio of each land use’s trip length to the average of all trip lengths. Table 4-9 shows the trip length adjustment factor for each land use type and its application to the motorized TSDC rate per unit. These adjustment factors are consistent with the factors applied in the Citywide TSDC program. (daily new transit person trips/unit) lu X (cost per transit trip end) (daily new non-motorized person trips/unit) lu X (cost per non motorized trip end)
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Innovation Quadrant TSDC Overlay Project May 2011
TABLE 4-8: TSDC TRIP GENERATION BY MODE
Unit of Measure* Daily Percent Daily Person "New" Vehicle Trips/Unit Trips/Unit2 Trips "New" Person Trips/Unit NonTotal Motorized Transit Motorized 46% 29% 25%
LUC ¹ Future Mode Split Residential Single Family 210 Multiple Family 220 Senior Housing, detached 251 Accessory Dwelling Unit 1/2 of 210 Rowhouse / Townhouse / Condo 230 Nursing Home 620 Congregate Care/Asst Living 253 Commercial - Services Bank 912 Day Care 520 Library 590 Post Office 732 Hotel/Motel 310 3 944 Service Station/Gasoline Sales Movie Theater 444 Carwash 947 Health Club 492 Marina 420 Commercial - Institutional School, K-12 520, 530 avg University/College 550 Church 560 Hospital 610 Park 411 Commercial -Restaurant Restaurant 931 Quick Service Restaurant (Drive-through) 934 Commercial - Retail Miscellaneous Retail 814 Shopping Center 820 Supermarket 850 4 851 Convenience Market Free Standing Discount Store 815 Car Sales - New/Used 841 Commercial Office Administrative Office 710 Medical Office/Clinic 720 Industrial Light Industrial / Manufacturing 130 Warehousing/Storage 150 Self Storage 151 Truck Terminal 30
dwelling dwelling dwelling dwelling dwelling bed dwelling sq ft/GFA student sq ft/GFA sq ft/GFA room VFP Screen Wash Stall sq ft/GFA berth student student sq ft/GFA sq ft/GFA acre sq ft/GFA sq ft/GFA sq ft/GLA sq ft/GLA sq ft/GFA sq ft/GFA sq ft/GFA sq ft/GFA sq ft/GFA sq ft/GFA sq ft/GFA sq ft/GFA sq ft/GFA acre
9.57 6.65 3.71 4.79 5.81 2.37 2.02 148.15 1.29 56.24 108.19 8.17 168.56 153.33 108 32.93 2.96 1.5 2.38 9.11 16.5 1.59 89.95 496.12 44.32 42.94 102.24 737.99 57.24 33.34 11.01 36.13 6.96 3.56 2.5 81.9
12.02 8.35 4.66 6.01 7.29 2.98 2.54 186.01 1.62 70.61 135.84 10.26 211.64 192.51 135.60 41.35 3.72 1.88 2.99 11.44 20.72 2.00 112.94 622.91 55.65 53.91 128.37 926.59 71.87 41.86 13.82 45.36 8.74 4.47 3.14 102.83
100% 100% 100% 100% 100% 95% 95% 80% 85% 75% 75% 100% 40% 85% 65% 90% 90% 85% 90% 95% 85% 85% 75% 40% 50% 65% 60% 35% 70% 80% 90% 75% 90% 90% 95% 100%
12.02 8.35 4.66 6.01 7.29 2.83 2.41 148.81 1.38 52.96 101.88 10.26 84.65 163.64 88.14 37.21 3.34 1.60 2.69 10.87 17.61 1.70 84.70 249.16 27.82 35.04 77.02 324.31 50.31 33.49 12.44 34.02 7.86 4.02 2.98 102.83
5.56 3.86 2.16 2.78 3.38 1.31 1.11 68.85 0.64 24.50 47.14 4.75 39.17 75.71 40.78 17.22 1.55 0.74 1.24 5.03 8.15 0.79 39.19 115.28 12.87 16.21 35.64 150.05 23.28 15.49 5.76 15.74 3.64 1.86 1.38 47.58
3.51 2.44 1.36 1.76 2.13 0.83 0.70 43.53 0.40 15.49 29.80 3.00 24.76 47.87 25.78 10.88 0.98 0.47 0.79 3.18 5.15 0.50 24.78 72.89 8.14 10.25 22.53 94.87 14.72 9.80 3.64 9.95 2.30 1.18 0.87 30.08
2.94 2.04 1.14 1.47 1.79 0.69 0.59 36.43 0.34 12.96 24.94 2.51 20.72 40.06 21.58 9.11 0.82 0.39 0.66 2.66 4.31 0.42 20.73 60.99 6.81 8.58 18.85 79.39 12.31 8.20 3.05 8.33 1.93 0.98 0.73 25.17
* For uses w ith Unit of Measure in sq ft, trip rate is given as trips per 1000 sq ft and the TSDC rate is per sq ft GFA = Gross Floor Area GLA = Gross Leasable Area VFP = Vehicle Fueling Positions (Maxim um num ber of vehicles that can be fueled sim ultaneously)
1) Land Use Code - Reference TRIP GENERATION, 8th Edition, Institute of Transportation Engineers, 2008 2) Daily Person Trips/Unit = Daily Vehicle Trips/Unit m ultiplied by 1.26 3) With or Without Minim art (not to exceed 1,500 SF) and/or Carw ash (Fuel is Prim ary Use) 4) If gasoline sales included on-site, use Service Station/Gasoline Sales SDC rate.
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Innovation Quadrant TSDC Overlay Project May 2011
These results are shown in adjacent columns of Table 4-9 for each mode. The TSDC for motorized travel also includes an adjustment for trip lengths, as described in the text box. The total TSDC rate is the sum of the rates for each mode and is shown in the final column of the table. This is the rate that would be required to fully fund all of the TSDC Overlay eligible costs of identified projects. The total TSDC rate per unit in Table 4-9 is used to calculate the total TSDC that is to be paid by each new development. The type of development is identified in the first column of Table 4-9, the number of units is identified from the application for development, and the number of units is multiplied times the TSDC rate per unit in Table 4-9. The result is the total TSDC for the proposed development. Because the final step in calculating TSDCs depends on the number of units of development in each proposed development, a separate calculation is made for each development using this study and the developer's application.
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Innovation Quadrant TSDC Overlay Project May 2011
TABLE 4-9: INNOVATIVE QUADRANT TSDC OVERLAY RATES
Motorized LUC ¹ Unit of Measure* Transit Non-Motorized Total
Trip Trip Length Person TSDC/Unit Person TSDC/Unit Person TSDC/Unit TSDC/Unit Length Adjustment Trips/Unit ($) Trips/Unit ($) Trips/Unit ($) ($) (Miles) Factor 28 4.00 454 153
Cost per Trip End Average Trip Length (Miles)
Residential Single Family 210 Multiple Family 220 Senior Housing, detached 251 Accessory Dwelling Unit 1/2 of 210 Rowhouse / Townhouse / Condo 230 Nursing Home 620 Congregate Care/Asst Living 253 Commercial - Services Bank 912 Day Care 520 Library 590 Post Office 732 Hotel/Motel 310 2 944 Service Station/Gasoline Sales Movie Theater 444 Carwash 947 Health Club 492 Marina 420 Commercial - Institutional School, K-12 520, 530 avg University/College 550 Church 560 Hospital 610 Park 411 Commercial -Restaurant Restaurant 931 Quick Service Restaurant (Drive-through) 934 Commercial - Retail Miscellaneous Retail 814 Shopping Center 820 Supermarket 850 3 851 Convenience Market Free Standing Discount Store 815 Car Sales - New/Used 841 Commercial Office Administrative Office 710 Medical Office/Clinic 720 Industrial Light Industrial / Manufacturing 130 Warehousing/Storage 150 Self Storage 151 Truck Terminal 30
dwelling dwelling dwelling dwelling dwelling bed dwelling sq ft/GFA student sq ft/GFA sq ft/GFA room VFP Screen Wash Stall sq ft/GFA berth student student sq ft/GFA sq ft/GFA acre sq ft/GFA sq ft/GFA sq ft/GLA sq ft/GLA sq ft/GFA sq ft/GFA sq ft/GFA sq ft/GFA sq ft/GFA sq ft/GFA sq ft/GFA sq ft/GFA sq ft/GFA acre
5.56 3.86 2.16 2.78 3.38 1.31 1.11 68.85 0.64 24.50 47.14 4.75 39.17 75.71 40.78 17.22 1.55 0 0.74 1.24 5.03 8.15 0.79 39.19 115.28 12.87 16.21 35.64 150.05 23.28 15.49 5.76 15.74 3.64 1.86 1.38 47.58
3.5 3.7 2.8 3.5 3.7 2.8 2.8 1.5 2.0 1.7 1.7 4.0 1.7 2.3 1.6 3.1 3.1 2.0 3.0 3.7 5.0 5.0 3.4 2.0 1.7 1.7 2.1 1.3 2.1 4.6 5.1 4.8 5.1 5.1 5.1 5.1
0.88 0.93 0.70 0.88 0.93 0.70 0.70 0.38 0.50 0.43 0.43 1.00 0.43 0.58 0.40 0.78 0.78 0.50 0.75 0.93 1.25 1.25 0.85 0.50 0.43 0.43 0.53 0.33 0.53 1.15 1.28 1.20 1.28 1.28 1.28 1.28
138 101 43 69 89 26 22 0.73 9 0.30 0.57 135 472 1,235 463 0.38 34 11 26 0.13 0.29 28 0.95 1.64 0.16 0.20 0.53 1.38 0.35 0.51 0.21 0.54 0.13 0.07 0.05 1,721
3.51 2.44 1.36 1.76 2.13 0.83 0.70 43.53 0.40 15.49 29.80 3 25 48 26 10.88 1 0.47 0.79 3.18 5.15 0.50 24.78 72.89 8.14 10.25 22.53 94.87 14.72 9.80 3.64 9.95 2.30 1.18 0.87 30.08
1,594 1,108 618 798 968 375 320 19.74 183 7.03 13.52 1,361 11,232 21,711 11,694 4.94 444 212 357 1.44 2.34 225 11.24 33.06 3.69 4.65 10.22 43.03 6.67 4.44 1.65 4.51 1.04 0.53 0.40 13,643
2.94 2.04 1.14 1.47 1.79 0.69 0.59 36.43 0.34 12.96 24.94 3 21 40 22 9.11 1 0.39 0.66 2.66 4.31 0.42 20.73 60.99 6.81 8.58 18.85 79.39 12.31 8.20 3.05 8.33 1.93 0.98 0.73 25.17
449 312 174 225 273 106 90 5.57 51 1.98 3.81 384 3,166 6,121 3,297 1.39 125 60 101 0.41 0.66 63 3.17 9.32 1.04 1.31 2.88 12.13 1.88 1.25 0.47 1.27 0.29 0.15 0.11 3,846
2,181 1,521 835 1,092 1,330 507 432 26.04 243 9.31 17.90 1,880 14,870 29,067 15,454 6.71 603 283 484 1.98 3.29 316 15.36 44.02 4.89 6.16 13.63 56.54 8.90 6.20 2.33 6.32 1.46 0.75 0.56 19,210
* For uses w ith Unit of Measure in sq ft, trip rate is given as trips per 1000 sq ft and the TSDC rate is per sq ft GFA = Gross Floor Area GLA = Gross Leasable Area VFP = Vehicle Fueling Positions (Maxim um num ber of vehicles that can be fueled sim ultaneously)
1) Land Use Code - Reference TRIP GENERATION, 8th Edition, Institute of Transportation Engineers, 2008 2) With or Without Minim art (not to exceed 1,500 SF) and/or Carw ash (Fuel is Prim ary Use) 3) If gasoline sales included on-site, use Service Station/Gasoline Sales SDC rate.
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Innovation Quadrant TSDC Overlay Project May 2011
CHAPTER 5
PUBLIC PARTICIPATION PROCESS FOR THE DEVELOPMENT OF THE TSDC OVERLAY
The TSDC Overlay District described in this rate study was developed with substantial involvement by area residents, businesses, and property owners. Specifically, the project team used a three-tiered Public Engagement and Communications (PE&C) process to develop the recommended Overlay District. The first tier of the PE&C effort was a Project Advisory Committee (PAC) representing neighborhood and business associations from the affected area, as well as property owners and developers who would likely be assessed TSDC Overlay District fees. The PAC met five times from October 2010 through March 2011. With technical assistance from the project team and Portland Bureau of Transportation (PBOT) staff, the PAC discussed in depth the various components of a TSDC Overlay, including rates, boundaries and a project list. Members of the PAC included: ? ? ? ? ? ? ? ? ? ? ? ? ? ? Jean Baker, Division/Clinton Business Association Bernie Bottomly, Portland Business Alliance Paul Carlson, Oregon Museum of Science and Industry Dick Cooley, Portland Streetcar, Inc. William Danneman, South Portland Neighborhood Association Brian Dunn, Central Eastside Industrial Council Jennifer Geske, Portland Downtown Neighborhood Association Chris Eykamp, Hosford-Abernethy Neighborhood Development Brad Malsin, Beam Development Mike O’Conner, Brooklyn Action Corps Valeria Ramirez, Portland Opera David Weislogel, Greater Brooklyn Business Association Les Youngbar, NW Natural Dan Zalkow, Portland State University
Because the Overlay District is of interest to many who live, work, and own property in inner Southeast and Southwest Portland, the second communications tier included outreach to a variety of key stakeholders. This effort included a series of stakeholder interviews conducted in the summer of 2010 to help identify key issues and potential PAC members. The stakeholders interviewed shared a vested interest in the transportation system needs along the light rail alignment and included property owners and developers, neighborhood and business associations, and government agencies that represent the diverse geographical area. The stakeholder interviews included associations representing downtown, the Central Eastside Industrial District, and the Hosford-Abernethy and Brooklyn neighborhoods.
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Innovation Quadrant TSDC Overlay Project May 2011
Stakeholder outreach continued over the life of the project, and was both proactive and in response to requests from interested individuals and organizations. Stakeholder outreach included presentations to the Portland Business Alliance Development Committee, Central Eastside Industrial Council, CEIC’s Land Use Committee, the Bicycle Advisory Committee, Pedestrian Advisory Committee, Greater Brooklyn Action Corps, Portland Streetcar, Inc. and HAND (Hosford-Abernethy Neighborhood Development), as well as one-on-one conversations with representatives of other interests, including the South Portland Neighborhood Association. The third tier of the PE&C effort focused on the general public. The project team used an array of communications tools to ensure this broader audience was informed of project progress and was provided a significant opportunity to engage in the process. Communications tools to reach the general public primarily consisted of 1) written information, 2) a project Web page, and 3) project open houses. Written information included a Fact Sheet intended for PBOT distribution to interested parties and for PAC member distribution to those they represented. Written materials were also posted on the project Web site hosted by PBOT (http://www.portlandonline.com/transportation/index.cfm?c=53625) so that interested parties could stay up to date on the status of the project. Posted documents included PAC meeting agendas, summaries, and copies of all PAC meeting presentations and handouts. Two public open houses were held to engage the broader public and further engage PAC members and key stakeholders. The two open houses were held on Jan. 20, 2011 – a morning session in Downtown and a late afternoon/evening session in Southeast Portland. The primary purpose of the open houses was to present PBOT-proposed TSDC Overlay District rates, boundaries, and projects and receive public feedback. Notices of both open houses were emailed to the project mailing list of interested parties and to TriMet’s mailing list of those interested in the Portland-Milwaukie Light Rail Project. To increase participation in the public open houses, invitations were sent to neighborhood and business associations, adjacent property owners, the Portland Business Alliance (PBA) Central City Committee, and the "Portland Milwaukie Light Rail" Interest Group list. Ads were placed in the SE Examiner newspaper and information was posted on City, neighborhood, PBA, and the Central Eastside Industrial Council websites. After the open houses, a “virtual” open house was posted on the project Web site to provide Web users an opportunity to review open house materials and provide feedback.
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doc_541730111.pdf
Transport or transportation is the movement of people, animals and goods from one location to another. Modes of transport include air, rail, road, water, cable, pipeline and space.
Innovation Quadrant
Transportation System Development Charge Overlay Project Report
Prepared for:
Submitted by:
Teamed With:
and
May 2011
Innovation Quadrant Transportation System Development Charge Overlay Project Report
Prepared for: City of Portland
Prepared by:
Henderson Young & Company
Teamed with:
May 2011
Innovation Quadrant TSDC Overlay Project May 2011
TABLE OF CONTENTS Executive Summary ................................................................................................................................... iii Chapter 1 Introduction ......................................................................................................................... 1 Data Sources .......................................................................................................................................... 1 Data Rounding ........................................................................................................................................ 1 Chapter 2 Legal Requirements and Issues Affecting SDC Calculations ........................................ 2 Oregon Systems Development Act ........................................................................................................ 2 SDCS and Impacts of Development ....................................................................................................... 2 SDC Adjustments ................................................................................................................................... 3 Timing of TSDC Payments ..................................................................................................................... 3 Uses of TSDC Revenue ......................................................................................................................... 3 Receipt and Expenditure of TSDCs........................................................................................................ 4 Chapter 3 TSDC Overlay Project List.................................................................................................. 5 Modes of Travel ...................................................................................................................................... 5 Identification of Projects to be Eligible for TSDCS .................................................................................. 5 TSDC Overlay Project List...................................................................................................................... 5 Project Costs .......................................................................................................................................... 6 Chapter 4 Rate Schedule Calculations ............................................................................................... 9 Overview of TSDC Calculations ............................................................................................................. 9 Prepare TSDC Overlay Project List (Step 1) ........................................................................................ 11 Allocate Mode Costs for Each Project (Step 2) .................................................................................... 11 Determine Growth Portion of Project Costs (Step 3)............................................................................ 11 Determine TSDC Overlay Portion of Cost of each Project (Step 4) ..................................................... 12 Calculate Overlay Growth Costs (Step 5) ............................................................................................ 13 Forecast New Trips Generated by Each Mode (Step 6) ...................................................................... 16 Calculated Cost per Trip End (Step 7) ................................................................................................. 17 Generate Person Trips for Various Types of Development (Step 8).................................................... 17 Produce TSDC Rate Schedule (Steps 9 and 10) ................................................................................. 20 Chapter 5 Public Participation Process for the Development of the TSDC Overlay.................... 24
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Innovation Quadrant TSDC Overlay Project May 2011
LIST OF FIGURES
Figure 3-1 Figure 4-1. Figure 4-2
Map of TSDC Overlay Projects and Overlay Area ................................................................ 8 How TSDC Rates were Developed ..................................................................................... 10 Generation of Trips by Development Type ......................................................................... 18
LIST OF TABLES
Table 1: Eligible TSDC Costs ..................................................................................................................... iv Table 2. TSDC Overlay Rates by Mode...................................................................................................... iv Table 3-1: TSDC Overlay Project List .......................................................................................................... 6 Table 4-1: Project Costs Attributable to Motorized Travel ......................................................................... 14 Table 4-2: Project Costs Attributable to Transit Travel .............................................................................. 14 Table 4-3: Project Costs Attributable to Non-Motorized Travel ................................................................. 15 Table 4-4: Eligible TSDC Costs ................................................................................................................. 15 Table 4-5. Growth in Employment and Households .................................................................................. 16 Table 4-6. Growth in Daily Person Trip Ends............................................................................................. 16 Table 4-7. TSDC Overlay Rates by Mode ................................................................................................. 17 Table 4-8: TSDC Trip Generation by Mode ............................................................................................... 21 Table 4-9: Innovative Quadrant TSDC Overlay Rates ............................................................................... 23
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EXECUTIVE SUMMARY
System development charges are one-time fees paid by new development to pay for capital costs of public facilities needed to serve new development and the people who occupy or use the new development. The purpose of this study is to establish rates for transportation system development charges (TSDCs) in the Innovation Quadrant (IQ), an area covering the south downtown/south central eastside of the City of Portland, Oregon. The City of Portland first adopted Citywide TSDCs in 1997, and updated the TSDCs in 2007. In 2009, the City adopted an overlay TSDC for the North Macadam urban renewal area that is in addition to the Citywide TSDC rates. The IQ TSDC Overlay uses the same methodology as the North Macadam TSDC Program. TSDCs are calculated by dividing the eligible cost of transportation capital improvements by the number of additional trips that will be generated by development. The result is the cost per trip that will be charged to new development. The following sections summarize the steps in calculating the IQ TSDC. Selection of Projects First, stakeholders identified over 30 projects as candidates to be funded by the TSDC Overlay. To be eligible for TSDC Overlay funding, projects need to be part of the Transportation System Plan, add capacity to the transportation system, be located on a public street or regional transit facility, and serve additional population and or employment over the next 20 years. The City worked with community stakeholders to select six multi-modal transportation improvement projects for TSDC Overlay funding. Cost Allocation Next, each project was analyzed to determine the portion of its cost that was attributable to the three modes of travel: motorized, transit, and non-motorized based on the number of persons served by each mode and the cost of the improvements for each mode. Some project costs are not eligible for the IQ TSDC. The following adjustments were made to identify the costs that are eligible: 1) Exclude existing deficiencies because they were not caused by development. 2) Exclude “through” trips that do not start or stop in the Innovation Quadrant because they have no connection to development in the IQ. 3) Reduce costs by the amount of revenues already budgeted to the TSDC projects. The total cost of the TSDC Overlay projects is approximately $90.4 million. This includes Portland’s $55 million share of the $1.5 billion Portland-Milwaukie Light Rail Project. The TSDC Overlay projects, total costs and eligible TSDC costs are listed in Table 1.
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TABLE 1: ELIGIBLE TSDC COSTS Project Name Portland-Milwaukie Light Rail Close the Loop SE Water Avenue Relocation SW 4th Avenue Streetscape Broadway Cycle Track and Streetscape Clinton to the River Multi-Use Path Total Total Cost ($) $55,000,000 $22,518,465 $4,633,839 $2,402,138 $1,244,573 $4,625,597 $90,424,612 Total TSDC Cost ($) $5,000,000 $5,425,243 $1,565,478 $1,301,088 $674,107 $600,000 $14,565,916
To avoid any duplicate charges from projects on both the Citywide TSDC Project List and the IQ Project List, the eligible costs were reduced by $362,848 to equal $14,203,068. Growth in the Overlay area New trips on the transportation network are primarily caused by growth in population and employment. The Portland Metro travel demand model forecasts 9,792 new employees and 1,776 new households in the Overlay area by the year 2030. Based on this 20-year land use growth, the model forecasts 77,525 new daily person trip ends1 in the TSDC Overlay area. TSDC Rates TSDC rates for each land use depend on two factors: (1) cost per trip, and (2) the type of development and number of trips it generates. The cost per trip end for each mode is calculated by dividing the costs that are eligible for TSDCs by the number of trip ends for each mode of travel, as shown in Table 2. The Portland-Milwaukie Light Rail Project is part of the Citywide TSDC. The reduction for the Citywide TSDC removes any potential for double-charging for the light rail project.
TABLE 2. TSDC OVERLAY RATES BY MODE Cost Eligible for TSDC ($) $1,017,634 $10,648,524 $2,899,759 TSDC per Daily 20-Year Growth in TSDC per Daily Reduction for Person Trip End Daily Person Trip Person Trip End Citywide TSDC ($) Ends ($) 35,870 22,678 18,977 $28 $470 $153 N/A $(16) N/A $28 $454 $153
Mode Motorized Transit Non-Motorized
TSDC rates vary according to the impact on the transportation network caused by each type of development. The impacts are measured as daily person trip ends. Table 4-9, at the end of this study, presents the dollar amount per unit of development for a variety of land use categories.
A trip travels between an origin and a destination. Each trip has two trip ends, one each at the origin and destination. Trip ends are used in the calculation of TSDC rates.
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CHAPTER 1
INTRODUCTION
The purpose of this study is to establish rates for an overlay district for transportation system development charges (TSDCs) for transportation facilities in the Innovation Quadrant, an area covering the south downtown/south central eastside of the City of Portland, Oregon. System development charges are one-time fees paid by new development to pay for capital costs of public facilities needed to serve new development and the people who occupy or use the new development. The City of Portland adopted Citywide TSDCs that became effective October 18, 1997, and updated the TSDCs in October 2007. In 2009, the City adopted an overlay TSDC for the North Macadam urban renewal area that is in addition to the Citywide TSDC rates. The Innovation Quadrant TSDC Overlay (TSDC Overlay) uses the same methodology as the North Macadam TSDC Program. This rate study includes: Chapter 1. Introduction Chapter 2. Summary of legal requirements and issues that affect the calculation of TSDC rates in Oregon Chapter 3. TSDC Overlay project list Chapter 4. Rate schedule of TSDCs for various types of development in the TSDC Overlay
Local governments charge SDCs for several reasons: ? ? To obtain revenue to pay for some of the cost of new public facilities. To implement a public policy requiring new development to pay a portion of the cost of facilities that it requires, and ensuring existing development does not pay all of the cost of such facilities. To assure that public facilities will be constructed in a timely manner to achieve and maintain local standards for new development without decreasing the level of service for existing residents and businesses. To provide predictability to developers and builders about the type, timing, and amount of exactions required by local governments.
?
?
Chapter 5. Public participation process for the development of the TSDC Overlay
DATA SOURCES
The data in this study were provided by the City of Portland, Metro, and TriMet as cited in the report.
DATA ROUNDING
The data in this study were prepared using computer spreadsheet software. In some tables there will be very small variations from results that would be obtained using a calculator to compute the same data. The reason for these slight differences is that the spreadsheet software was allowed to calculate results to more places after the decimal than is reported in the tables of these reports.
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CHAPTER 2
LEGAL REQUIREMENTS AND ISSUES AFFECTING SDC CALCULATIONS
OREGON SYSTEMS DEVELOPMENT ACT
In 1989, the State of Oregon adopted the Oregon Systems Development Act (ORS 223.297 - 223.314) to “provide a uniform framework for the imposition of system development charges by local governments.” The statutes outline the types of charges that are considered to be System Development Charges (SDCs) and impose a variety of requirements on governments that impose SDCs. ORS provisions that directly affect calculation of SDC rates require the City of Portland to: 1) Adopt a capital improvement plan (to designate capital improvements that can be funded with SDCs). 2) Set forth a methodology for the SDC. 3) Calculate the SDC as a “reimbursement” fee, or an “improvement” fee, or a combination of both: a. “Reimbursement fee” means a fee associated with capital improvements already constructed or under construction when the fee is established, for which the local government determines that capacity exists. b. “Improvement fee” means a fee for costs associated with capital improvements to be constructed. 4) Limit SDCs to five types of capital improvements: transportation, water, sewer, drainage, parks, and recreation.
SDCS AND IMPACTS OF DEVELOPMENT
When determining SDCs, cities generally take the following impacts into account: 1. Demand (Impacts) Demands placed on public facilities vary among different types of development. The TSDC Overlay is based on the number of trips generated on the transportation system by each type of development. Each type of development generates a different number of trips per unit of development. Local government SDC rate studies are based on a “standard” impact on public facilities created by “typical” development of different types. The TSDC Overlay is based on trip generation rates reported nationally by the Institute of Transportation Engineers (ITE) and mode of travel data from the Portland area. Portland’s City Code 17.15.070 allows developers to submit data and analysis to demonstrate that the impacts of their proposed development are less than the impacts used in this rate study. In order for the City to accept alternative (reduced) impacts, they must be permanent and enforceable (i.e., through land use restrictions, deed restrictions, lease terms, etc.). 2. Benefit Criteria Benefit criteria include personal use and use by others in the family or business enterprise of the feepaying property (direct benefit), and use by persons or organizations who provide goods or services to the fee-paying property (indirect benefit). As noted, the TSDC Overlay is based on the number of trips generated on the transportation system by each type of development, which includes some direct benefit trips and some indirect benefit trips. Each
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trip, regardless of benefit type, constitutes a unit of demand (impact) on the system, thus each development’s total trip count quantifies the impact of that development. By basing the TSDC on the number of trips, the TSDC is related to the impacts generated and benefits received by the development. 3. Levels of Service The City of Portland determines its needs for transportation facilities by reviewing a variety of factors, including the volume of traffic and levels of congestion on major roads. Chapter 3 of this study presents the criteria used to identify transportation projects that are eligible for the TSDC Overlay program. 4. Size of Development SDCs are typically charged on the basis of the size of the development (e.g., number of dwelling units or number of square feet of development). The IQ TSDC Overlay rate schedule lists the TSDC amount per unit of development. The size of each proposed development is multiplied times the TSDC rate per unit.
SDC ADJUSTMENTS
SDCs cannot “double dip” (i.e., they need to take into account the payment by new development of other fees, taxes, etcetera that the government uses to pay for the capital cost of the same public facilities). These other revenues are accounted for by subtracting them from the cost of capital improvement projects that are attributable to SDCs. The adjustment includes only the other revenues that are earmarked for or pro-ratable to the same capital improvements that are the basis for the SDC. Portland uses General Transportation Revenue (GTR), grants, and funding from other local, state and federal sources to pay for portions of its transportation improvement projects. The TSDC Overlay takes into account the future use of GTR, grants and other funding by subtracting City budgeted commitments for those revenues from the cost of projects in the TSDC Capital Improvement Program (see Table 4-5). The TSDC Overlay program also makes an adjustment for Citywide TSDCs paid by development in the TSDC Overlay area (see Table 4-7). In addition to the adjustment described above, a developer may reduce the amount of SDC due by contributing land, improvements or other assets to receive a "credit" for Qualified Public Improvements. Portland’s City Code 17.15.050 allows an exemption from payment of the TSDC for affordable housing. In 2007, the Citywide TSDC Citizens Advisory Committee recommended phasing out the TSDC discount for Transit Oriented Developments (TODs) and this change was adopted in 2007. Consistent with the current City policy, the Innovative Quadrant TSDC Overlay does not include a TOD exemption.
TIMING OF TSDC PAYMENTS
Portland’s City Code 17.15.040 authorizes imposition of the TSDC at the time of application for a building permit. The TSDC is due upon issuance of the building permit.
USES OF TSDC REVENUE
SDC revenue can be used for the capital cost of public facilities. SDCs cannot be used for operating or maintenance expenses. The cost of capital facilities that can be paid for by TSDCs are specified in Portland’s City Code 17.15.100.
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RECEIPT AND EXPENDITURE OF TSDCS
Portland’s City Code 17.15.100 requires TSDC revenues to be deposited into separate accounts of the City of Portland. Portland’s City Code 17.15.090 requires refunding of TSDC payments that are not expended within 10 years from receipt (on the premise that if they cannot be expended in a reasonable time, they were probably not “needed” nor did they contribute to achieving and maintaining an adequate transportation system for new development).
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CHAPTER 3
TSDC OVERLAY PROJECT LIST
Oregon’s System Development Act requires that SDCs be based on an adopted capital improvement program (CIP). This chapter presents the City’s TSDC capital improvement program for the Innovative Quadrant TSDC Overlay, termed the TSDC Overlay Project List. Adoption of this rate study by the City of Portland, and adoption of the TSDC ordinance that incorporates this rate study by reference, constitute adoption of the TSDC Overlay project list by the City for the purpose of calculating TSDCs.
MODES OF TRAVEL
In the City of Portland, TSDCs are designed to support the principal modes of travel in a multi-modal system. For the purpose of organizing and analyzing data that supports the TSDCs, the City identified three categories to encompass different modes of travel: 1) Motorized: travel by automobiles, trucks and motorcycles, but not buses or railcars 2) Transit: travel by rail and bus 3) Non-motorized: pedestrian and bicycle travel
IDENTIFICATION OF PROJECTS TO BE ELIGIBLE FOR TSDCS
During the first phase of the TSDC Overlay project, stakeholders identified over 30 projects as candidates to be funded by the TSDC Overlay. The City used a set of criteria to identify transportation capital improvement projects that are eligible for TSDCs. The criteria were developed to meet legal requirements (see Chapter 2) and the multi-modal transportation needs of the overlay area. The following minimum qualifications were required for projects to be considered: ? ? ? ? ? Project includes a component that adds capacity to the transportation system; Project is in the Transportation System Plan; Project is on a public street, or a regional transit facility; Project is not a maintenance project; and, Project is designed to serve additional population and or employment over the next 20 years.
Projects that met these qualifications and add new multi-modal capacity to the transportation system were considered potentially eligible for TSDC Overlay funding. The City, working with community stakeholders, selected the six highest priority projects.
TSDC OVERLAY PROJECT LIST
Six multi-modal capacity improvement projects were selected for TSDC Overlay funding. The TSDC projects are listed in Table 3-1 and depicted in Figure 3-1. For each project, the list shows: ? ? ? Project name Total cost: estimated total cost of project Allocation of total costs among the three modes: motorized, transit and non-motorized
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The project list covers improvements needed during the next 20 years. The table shows the percentage and resulting cost of each project allocated to each mode.
PROJECT COSTS
The overall project cost for the Portland-Milwaukie Light Rail Project is approximately $1.5 billion. The City of Portland’s funding responsibility for the light rail project is $55 million. For the other projects, cost estimates were prepared using typical costs of the components of each project. City engineering staff obtained unit costs from recent bid tabs and applied common contingency costs to establish a consistent set of current year project costs.2 Cost estimates were developed using a common set of unit costs. To reflect the base year 2010 cost, any planned future inflation for labor and materials was removed. The total cost of the TSDC Overlay projects is approximately $90.4 million. These costs are reflected in the totals shown in Table 3-1.
TABLE 3-1: TSDC OVERLAY PROJECT LIST NonNonMotorized Transit Cost Motorized Transit Motorized Motorized Cost ($) ($) % % Cost ($) % 0% 0% 60% 0% 0% 0% 100% 100% 20% 0% 0% 0% 0% 0% 20% 100% 100% 100% $$$2,780,303 $$$$2,780,303 $55,000,000** $22,518,465 $926,768 $$$$$$926,768 $2,402,138 $1,244,573 $4,625,597
Project Name*
Total Cost ($)
Portland-Milwaukie Light Rail $55,000,000** Close the Loop SE Water Avenue Relocation SW 4th Avenue Streetscape Broadway Cycle Track and Streetscape Improvements Clinton to the River Multi-Use Path Total $22,518,465 $4,633,839 $2,402,138 $1,244,573 $4,625,597 $90,424,612
$78,445,233 $9,199,076
**The cost represents the City of Portland’s funding responsibility for the project.
* Project Descriptions Portland-Milwaukie Light Rail Provides high capacity transit service along the Portland-Milwaukie Corridor, including five stations in the Overlay area and a multimodal bridge across the Willamette River. Connects the Eastside Streetcar Project currently under construction to existing service in South Waterfront with ramps to the new multimodal bridge, and switches and technology to share the rail connection on the bridge. Project includes additional streetcar vehicles.
Close the Loop
2
The cost estimates for the SW 4th Avenue Streetscape and Broadway Cycle Track and Streetscape Improvement Projects were prepared by Kurahashi and Associates.
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* Project Descriptions SE Water Avenue Relocation Includes realignment of Water Avenue and construction of 1,300 feet of roadway, with two auto travel lanes, bike lanes, and sidewalks. The project will support the new Portland-Milwaukie Light Rail and streetcar connections to the multimodal bridge, providing access between the east and west sides of the river. Improves the street environment on SW 4th Avenue adjacent to Portland State University by adding bicycle facilities, curb bulb-outs, signalized pedestrian crossings, green street features, and marked crosswalks. Enhances the existing cycle track and sidewalks on SW Broadway adjacent to Portland State University. Includes the construction of a raised cycle track, sidewalk amenities, green street features, ADA improvements, pedestrian islands, and curb bulb-outs. Improves the non-motorized connection between the new multimodal Willamette River bridge and the regional trail network by constructing a multi-use path along the Portland-Milwaukie Light Rail alignment.
SW 4th Avenue Streetscape
Broadway Cycle Track and Streetscape Improvements Clinton to the River Multi-Use Path
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Figure 3-1
Map of TSDC Overlay Projects and Overlay Area
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CHAPTER 4
RATE SCHEDULE CALCULATIONS
This chapter contains the formulas, variables and data used to calculate the TSDC Overlay rates for the City of Portland. The TSDC Overlay area is a subset of the whole City and the calculations shown in this chapter are aimed at just the cost attributable to the TSDC Overlay area. The chapter begins with an overview of how the TSDC rates were calculated. The balance of the chapter presents the formulas, variables, data, and rate schedule for the TSDC Overlay.
OVERVIEW OF TSDC CALCULATIONS
The TSDCs for the overlay area were calculated using the following steps. These are diagrammed in Figure 4-1. 1) Identify transportation projects that are needed to serve new development. 2) Analyze each project to determine what portion of its cost should be allocated to the modes of travel: motorized, transit, and non-motorized (pedestrian and bicycle). 3) Determine the portion of the project costs that serves growth and the portion that addresses existing deficiencies. The growth portion becomes the basis of the TSDCs. The deficiency portion is excluded from TSDCs, and must be paid by other sources of revenue. 4) Identify the portion of the growth travel that begins and/or ends within the TSDC Overlay area versus the “through” trips that do not start or stop in that area. Trips that pass through the Overlay area without stopping are excluded from TSDC Overlay calculations and must be paid by other sources of revenue. 5) Calculate the amount of the project cost that can be attributable to growth within the Overlay area. This calculation removes the deficiencies (step 3), “through” trips (step 4), and any adjustment for other revenues. 6) Estimate the growth in trip ends3 (over 20 years) that will be generated for each mode of travel in the TSDC Overlay area. 7) Calculate the cost per new trip end (for each mode) by dividing the costs that are eligible for TSDCs (from steps 1 to 5 above) by the number of new trip ends (from Step 6). 8) Calculate the number of new trip ends that are generated by various types of development. These trip ends are estimated for each modal type using the percentage of usage by each mode. 9) Calculate the TSDC rate for each type of development and for each mode. The trip rates per development type (Step 8) are multiplied times the cost per trip end (Step 7) to produce TSDC rates. The TSDC rates are expressed in terms of costs per unit of development (e.g., housing units, square feet). 10) Combine the TSDC rates for each mode to determine the total TSDC for each type of development. The result is the composite TSDC that can be published as the TSDC rate schedule for the Overlay. The remainder of this chapter describes these steps in greater detail.
A trip travels between an origin and a destination. Each trip has two trip ends, one each at the origin and destination. Trip ends are used in the calculation of TSDC rates.
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Figure 4-1.
How TSDC Rates were Developed
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PREPARE TSDC OVERLAY PROJECT LIST (STEP 1)
Chapter 3 describes the City’s process for identifying the transportation projects needed to serve new development in the TSDC Overlay area. The projects are listed in Table 3-1 and mapped in Figure 3-1.
ALLOCATE MODE COSTS FOR EACH PROJECT (STEP 2)
Each project was analyzed to determine the portion of its cost that was attributable to the three modes of travel: ? ? ? Motorized: automobile, truck, and motorcycle Transit: rail and bus Non-motorized: pedestrian and bicycle
Allocation of project costs among the modes was estimated based on the number of persons served by each mode, cost of the improvements for each mode, and factoring that the relocation of SE Water Avenue will enable the streetcar to connect to the new multi-modal bridge across the Willamette River. Table 3-1 (Chapter 3) shows modal percentages for each TSDC project.
DETERMINE GROWTH PORTION OF PROJECT COSTS (STEP 3)
The growth portion of a project serves new development, contrasted to the deficiency portion that serves existing development. The growth portion is the basis of TSDCs. The deficiency portion is excluded from TSDCs and must be paid by other sources of revenue. Each project on the TSDC list was analyzed to estimate the percentage needed to eliminate existing deficiencies. The remainder of each project was available to serve new growth, and included in the TSDC rate calculation. The following general equations were used to determine the percent of the project available for growth: Percent of project for growth = (100) minus (Percent for deficiency) The calculation was performed separately for each mode (motorized, transit, and non-motorized). The calculations used are consistent with the methodologies used for the citywide TSDC program adopted in 2007. Motorized Deficiency Values For motorized projects, the amount of the project intended to address existing deficiencies was initially calculated using the following formula developed for the citywide TSDC program: Motorized Deficiency = (Existing Traffic Volume) minus (Existing Capacity) (Future Capacity) minus (Existing Capacity) If current traffic volume exceeds existing capacity, the amount of this excess volume is the deficient amount. The remainder of future capacity not being used by existing volumes can be allocated to growth.
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SE Water Avenue Relocation is the only TSDC project that will serve the motorized mode. Using the above methodology, the SE Water Avenue Relocation project showed zero percent motorized deficiencies. Transit Deficiency Values For TSDC projects with a transit element, the deficiency was evaluated using the average maximum load factor for TriMet bus routes serving the project. This analysis was conducted in the PM peak hour for the peak direction of transit service. The maximum load factor indicates the degree of passenger loading that occurs on the route and run and equals the ratio of passengers to seats on the bus for that run. For projects that have multiple bus routes, the load factor was calculated as the average of the bus routes. Transit Deficiency = (100) minus (average maximum load factor for route(s)) The Portland-Milwaukie Light Rail Project will replace TriMet Bus Routes 31, 32, 33 and 99X. The average maximum load factor for the peak direction, peak hour transit service for these four routes showed a 5 percent existing deficiency. The Close the Loop and SE Water Avenue Relocation Projects did not show an existing transit deficiency. Non-Motorized Deficiency Values For the TSDC Overlay, the non-motorized deficiency values were calculated by Portland Transportation System Plan (TSP) district, using both a pedestrian deficiency value and a bicycle deficiency value. The selected non-motorized deficiency value was the higher of the two deficiencies. The pedestrian deficiency for each district is the percent of arterials without sidewalks. This is based on the latest census of sidewalks on arterials throughout Portland. The bicycle deficiency for each district represents the degree to which each district is served by bicycle facilities (existing plus currently funded). Within each district, the mileage of bicycle facilities was divided by the number of households to compute a value of bike lane-miles per 1,000 households. This value was then compared to a citywide average of bicycle lane-miles per 1,000 households. If the district value was less than the citywide average, the percentage difference is considered to be the bicycle deficiency. If the district value was higher than the citywide average, the bicycle deficiency calculation was set at zero (0). The portion of the TSDC Overlay area west of the Willamette River is within the Central City District, which has zero non-motorized deficiencies. Therefore, no deficiency is assumed for the SW 4th Avenue Streetscape and Broadway Cycle Track and Streetscape Improvement Projects. For the portion of the TSDC Overlay area east of the Willamette River, the study team decided to apply a conservative deficiency value of 46 percent to the non-motorized project elements. This value reflects the highest non-motorized deficiency percentage for districts within the City. The 46 percent was removed from the non-motorized costs of the Clinton to the River and SE Water Avenue Relocation Projects.
DETERMINE TSDC OVERLAY PORTION OF COST OF EACH PROJECT (STEP 4)
Trips on a transportation network have a beginning (origin) and end (destination). In the jargon of transportation planning, both are called “trip ends.” Many trips that use the TSDC Overlay transportation system have one or both “ends” within the Overlay area. Some trips, however, begin and end outside the Overlay area and are known as “through” trips. The through trips are excluded from the TSDC
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calculation. The cost of the through-trip portion of projects must be absorbed by others because the City cannot collect TSDCs from development occurring outside the Overlay area.4 Each mode of travel was analyzed separately to determine the “through” trips for each project on the TSDC Overlay project list. For motorized travel a “select-link” trip analysis was used. The select-link technique uses the City’s travel demand model to identify the origins and destinations of traffic using a specific roadway segment. The resulting trip data were used to calculate the percentage of the traffic that started or ended within the Overlay area. For transit and non-motorized modes, the travel model was used to create trip matrices showing the trip origins and destinations of each trip. “Overlay” trips for these two modes were defined as trips that started or ended within the Overlay area. Conversely, the trips that had a beginning and end outside the district were treated as “through” trips. The percent of “Overlay” trips were calculated as follows: Percent of “Overlay” trips =(100) minus (Percent “through” trips) The resulting “Overlay” trip percents were used in Tables 4-1 through Table 4-3 to calculate the portion of each project’s growth that relates to the Overlay district.
CALCULATE OVERLAY GROWTH COSTS (STEP 5)
The project costs allocated to growth in the Overlay are calculated and shown in Table 4-1 (motorized), Table 4-2 (transit), and Table 4-3 (non-motorized). Each project from the TSDC Overlay project list includes its name and total project cost. The next three columns contain (1) the percentage of the project that is attributed to the mode (from Table 3-1); (2) the percentage of the project that is attributed to new growth (as opposed to existing deficiencies); and, (3) the percentage of the project that is attributed to Overlay (“non-through”) traffic. The equation for the cost allocation process multiplies the project cost times each of the three factors to determine the portion of project costs that is eligible for TSDC Overlay funding. The last column contains the results of this calculation, which is the portion of the cost of the project that is attributable to growth in the Overlay area on that mode of travel. (Project cost attributable to TSDC)m = (Project cost) X (Mode %)m X (Growth %)m X (“ Overlay”%)m Where m = mode (motorized, transit, non-motorized)
4
Note that the adopted Citywide TSDC includes some contribution of Citywide TSDC funds to the Portland-Milwaukie Light Rail Project. This adjustment is calculated in Step 5.
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TABLE 4-1: PROJECT COSTS ATTRIBUTABLE TO MOTORIZED TRAVEL Total Cost ($) $55,000,000 $22,518,465 $4,633,839 $2,402,138 $1,244,573 $4,625,597 $90,424,612 Percent for Motorized Mode 0% 0% 60% 0% 0% 0% Percent Serving Growth N/A N/A 100% N/A N/A N/A Overlay Portion of Growth N/A N/A 37% N/A N/A N/A Costs Attributable to Motorized TSDC ($) N/A N/A $1,017,634 N/A N/A N/A $1,017,634
Project Name Portland-Milwaukie Light Rail Close the Loop SE Water Avenue Relocation SW 4th Avenue Streetscape Broadway Cycle Track and Streetscape Improvements Clinton to the River Multi-Use Path Total
TABLE 4-2: PROJECT COSTS ATTRIBUTABLE TO TRANSIT TRAVEL Total Cost ($) $55,000,000 $22,518,465 $4,633,839 $2,402,138 $1,244,573 $4,625,597 $90,424,612 Percent for Transit Mode 100% 100% 20% N/A N/A N/A Percent Serving Growth 95% 100% 100% N/A N/A N/A Overlay Portion of Growth 16% 24% 24% N/A N/A N/A Costs Attributable to Transit TSDC ($) $8,099,820 $5,425,243 $223,281 N/A N/A N/A $13,748,344
Project Name Portland-Milwaukie Light Rail Close the Loop SE Water Avenue Relocation SW 4th Avenue Streetscape Broadway Cycle Track and Streetscape Improvements Clinton to the River Multi-Use Path Total
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TABLE 4-3: PROJECT COSTS ATTRIBUTABLE TO NON-MOTORIZED TRAVEL Total Cost ($) $55,000,000 $22,518,465 $4,633,839 $2,402,138 $1,244,573 $4,625,597 $90,424,612 Percent for Non-Motorized Mode N/A N/A 20% 100% 100% 100% Percent Serving Growth N/A N/A 54% 100% 100% 54% Overlay Portion of Growth N/A N/A 65% 54% 54% 65% Costs Attributable to Non-Motorized TSDC ($) N/A N/A $324,564 $1,301,088 $674,107 $1,619,931 $3,919,690
Project Name Portland-Milwaukie Light Rail Close the Loop SE Water Avenue Relocation SW 4th Avenue Streetscape Broadway Cycle Track and Streetscape Improvements Clinton to the River Multi-Use Path Total
Adjustment for Other Revenue As stated previously, SDCs must take into account payment of other fees and taxes by new development for the capital cost of the same public facilities. Portland uses General Transportation Revenue (GTR), grants, and funding by partner agencies to pay for a portion of its transportation improvement projects. Consequently, Portland’s SDCs take into account future use of GTR, grants and partner funding by subtracting estimated non-TSDC revenues from the cost of projects in the TSDC Capital Improvement Program. Table 4-4 presents the amounts of non-TSDC revenues that have been estimated for specific projects that are eligible for TSDC Overlay, and calculates the remaining funds needed. If the cost that is unfunded (column A in Table 4-4) is greater than the eligible cost (column B), the eligible cost was used in the TSDC calculation. For the Overlay area, this situation occurred for four of the six projects. For the Portland-Milwaukie Light Rail and the Clinton to the River projects, the eligible costs are greater than the unfunded costs. Therefore, the TSDC cost was adjusted to match the unfunded costs (column A).
TABLE 4-4: ELIGIBLE TSDC COSTS Estimated Remaining Non-TSDC Funds Funds for Needed TSDC (A) Projects ($) $- $22,518,465 $3,029,840 $1,603,999 $- $2,402,138 $- $1,244,573 $4,025,597 $600,000 Eligible TSDC TSDC Cost Adjustment Final TSDC ($) Needed? Cost ($) (compare A to B) (B) $8,099,820 $5,425,243 $1,565,478 $1,301,088 $674,107 $1,619,931 Yes No No No No Yes $5,000,000 $5,425,243 $1,565,478 $1,301,088 $674,107 $600,000 $14,565,916
Project Name
Total Cost ($)
Portland-Milwaukie Light Rail $55,000,000 $50,000,000 $5,000,000 Close the Loop SE Water Avenue Relocation SW 4th Avenue Streetscape Broadway Cycle Track and Streetscape Improvements Clinton to the River Multi-Use Path Total $22,518,465 $4,633,839 $2,402,138 $1,244,573 $4,625,597
$90,424,612 $57,055,437 $33,369,175 $18,685,667
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Innovation Quadrant TSDC Overlay Project May 2011
FORECAST NEW TRIPS GENERATED BY EACH MODE (STEP 6)
New trips on the transportation network are primarily caused by growth in population and employment. Table 4-5 displays the demographic growth used in the Portland Metro travel demand model for the Overlay area. The years selected for the TSDC analysis were 2010 and 2030.
TABLE 4-5. GROWTH IN EMPLOYMENT AND HOUSEHOLDS TSDC Overlay Area Land Use Employees Households 2010 32,138 6,176 2030 41,930 7,952 20-Year Growth 9,792 1,776
Source: Portland Metro travel demand model
The City’s travel demand model uses employees and households to predict the number of trips that will be generated on the transportation network. The model is able to generate total person trips and trips for each mode (motorized, transit, and non-motorized). Table 4-6 shows the forecast of trip ends for 2010 and 2030. Trip “ends” represent the beginning and end of each trip. These data show that transit and non-motorized trips will increase at a faster rate than motorized trips during the next 20 years. The mode share of the 77,525 growth trips is shown in the last column of Table 4-6, and these percentages are used in the Step 8 calculations.
TABLE 4-6. GROWTH IN DAILY PERSON TRIP ENDS TSDC Overlay Area Trip Type Motorized Transit Non-Motorized Total Daily Person Trip Ends 2010 228,551 39,723 38,304 306,578 2030 264,421 62,401 57,281 384,103 20 Year Growth 35,870 22,678 18,977 77,525 Growth Percent 16% 57% 50% 25% Growth Mode Share 46% 29% 25% 100%
Note: Data shown are trip 'ends'. Each trip has two ends. Source: Portland Metro travel demand model
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Innovation Quadrant TSDC Overlay Project May 2011
CALCULATED COST PER TRIP END (STEP 7)
TSDC rates for each land use depend on two factors: (1) cost per trip, and (2) number of trips generated by the new development. The cost per trip end for each mode is calculated by dividing the costs that are eligible for TSDCs (from Table 4-4) by the number of trip ends (from Table 4-6). The following formula is used: Cost per person trip end = (Total cost attributable to TSDC) m (20-year growth in daily person trip ends) m Where m = mode (motorized, transit, non-motorized) The calculations of cost per trip end are shown in Table 4-7. The results vary by mode, depending on the modal allocation of the costs and the magnitude of growth occurring in the TSDC Overlay area. Table 4-7 shows that a “Citywide TSDC Reduction” was made to the rates. Of the six TSDC Overlay projects, only the Portland-Milwaukie Light Rail Project is part of Citywide TSDC Project List. All City developments pay for a portion of the light rail project. The reduction equals the amount of the Citywide TSDC paid by development in the Overlay area that would be allocated to the light rail project. The reduction removes any potential for double-charging of TSDC fees. The Citywide TSDC reduction for the light rail project equals $362,848 ($16 per transit trip end multiplied by 22,678 new daily transit trip ends projected in the next 20 years). As a result of the reduction for Citywide TSDC, the gross TSDC eligible cost would be reduced to a net cost of $14,203,068.
TABLE 4-7. TSDC OVERLAY RATES BY MODE 20-Year Growth in Daily Person Trip Ends 35,870 22,678 18,977 TSDC per Daily Person Trip End ($) $28 $470 $153 Reduction for Citywide TSDC N/A $(16) N/A TSDC per Daily Person Trip End ($) $28 $454 $153
Mode Motorized Transit Non-Motorized
Cost Eligible for TSDC ($) $1,017,634 $10,648,524 $2,899,759
GENERATE PERSON TRIPS FOR VARIOUS TYPES OF DEVELOPMENT (STEP 8)
TSDC rates vary according to the impact on the transportation network caused by each type of development. Impacts are measured in “trip ends.” Trip generation rates for each development type were derived from the Institute of Transportation’s (ITE) report, Trip Generation (8th Edition, 2008). The ITE rates are expressed as daily vehicle trip ends entering and leaving a property.
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Innovation Quadrant TSDC Overlay Project May 2011
The ITE rates were adjusted to match the needs of the TSDC program. There were three primary adjustments: 1) Conversion of vehicle trips to person trips 2) Removal of the “pass-by” trips 3) Separation into trips by mode (i.e., motorized, transit, non-motorized) A further adjustment for trip lengths was made for the motorized trip component. Figure 4-2 shows the flow of steps used to develop the trip rates. Figure 4-2 Generation of Trips by Development Type
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Innovation Quadrant TSDC Overlay Project May 2011
Derive Person Trips The daily vehicle trip rates were converted to person trips per unit as follows: Daily Total Person Trips/unit = (Daily vehicle trips/unit) X (Average Vehicle Occupancy) (Motorized mode %) The daily vehicle trips per unit were taken from the ITE Trip Generation report, 8th Edition (2008). These rates represent national averages for land uses surveyed primarily in urban fringe and suburban areas. The conversion units for person trips were chosen to match these geographic conditions. Average vehicle occupancy of 1.13 was selected based on review of region-wide traffic count data for Portland and other national sources. A motorized mode share of 90 percent was used to represent the geographical locations typical of the ITE trip generation surveys. Combining these factors resulted in a factor of 1.26 used to multiply vehicle trip rates to create person trip rates. Separate “New” Trips versus “Pass-by” Trips The trip generation rates represent total traffic entering and leaving a property at driveway points. For some land uses (e.g., retail), a substantial amount of this traffic is already passing-by the property and merely interrupts a trip between two other locations. These pass-by trips do not add to the impact on the surrounding street system. As a result, pass-by trips are subtracted from the total trips generated by each type of land use. The remaining trips are considered "new" to the street system and are therefore subject to TSDC calculation. Pass-by trip percentages are derived primarily from ITE data and from available surveys conducted around the country. This adjustment was applied in Table 4-8 by multiplying the daily person trips per unit by the corresponding “new” trip percentage for each land use type. Separate Into Trips by Mode “New” person trips were split into the three modal categories by applying forecasted modal shares for the TSDC Overlay for 2030. These mode shares, shown in the last column of Table 4-6, are as follows: Motorized mode share = 46% Transit mode share = 29% Non-motorized mode share = 25% Each mode share is multiplied by total new person trips to produce trips by mode. The results are displayed in Table 4-8 for the land uses included in the TSDC calculations.
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Innovation Quadrant TSDC Overlay Project May 2011
PRODUCE TSDC RATE SCHEDULE (STEPS 9 AND 10)
The TSDC rate schedule is a table where rates are represented as dollars per unit of development for a variety of land use categories (as defined in ITE’s Trip Generation). Table 4-9 shows the calculations used to derive these rates for each mode, which are then combined into a total TSDC rate. For each mode, the TSDC rate equals the person trip rate (from Table 4-8) times the cost per person trip end (from Table 4-7). The equation for the TSDC for each mode is: (Motorized TSDC) lu = (daily new motorized person trips/unit) lu X (trip length adjustment factor) lu X (cost per motorized trip end) (Transit TSDC) lu = (Non-Motorized TSDC) lu = Where lu = land use category Trip Length Adjustment for Motorized Trips A variable that affects motorized traffic impacts is the length of trips generated by each type of land use. ITE trip rates represent an “average” trip without regard to the length of each trip. If a given trip is shorter than the average, then its relative traffic impact on the street system will be less. Conversely, longer trips will impact a larger portion of the transportation network. To reflect these differences, an adjustment factor is used, which is calculated as the ratio between the trip length for a particular land use type and the “average” trip length for Portland. Trip length data were estimated using limited national survey results. The adjustment uses a ratio of each land use’s trip length to the average of all trip lengths. Table 4-9 shows the trip length adjustment factor for each land use type and its application to the motorized TSDC rate per unit. These adjustment factors are consistent with the factors applied in the Citywide TSDC program. (daily new transit person trips/unit) lu X (cost per transit trip end) (daily new non-motorized person trips/unit) lu X (cost per non motorized trip end)
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Innovation Quadrant TSDC Overlay Project May 2011
TABLE 4-8: TSDC TRIP GENERATION BY MODE
Unit of Measure* Daily Percent Daily Person "New" Vehicle Trips/Unit Trips/Unit2 Trips "New" Person Trips/Unit NonTotal Motorized Transit Motorized 46% 29% 25%
LUC ¹ Future Mode Split Residential Single Family 210 Multiple Family 220 Senior Housing, detached 251 Accessory Dwelling Unit 1/2 of 210 Rowhouse / Townhouse / Condo 230 Nursing Home 620 Congregate Care/Asst Living 253 Commercial - Services Bank 912 Day Care 520 Library 590 Post Office 732 Hotel/Motel 310 3 944 Service Station/Gasoline Sales Movie Theater 444 Carwash 947 Health Club 492 Marina 420 Commercial - Institutional School, K-12 520, 530 avg University/College 550 Church 560 Hospital 610 Park 411 Commercial -Restaurant Restaurant 931 Quick Service Restaurant (Drive-through) 934 Commercial - Retail Miscellaneous Retail 814 Shopping Center 820 Supermarket 850 4 851 Convenience Market Free Standing Discount Store 815 Car Sales - New/Used 841 Commercial Office Administrative Office 710 Medical Office/Clinic 720 Industrial Light Industrial / Manufacturing 130 Warehousing/Storage 150 Self Storage 151 Truck Terminal 30
dwelling dwelling dwelling dwelling dwelling bed dwelling sq ft/GFA student sq ft/GFA sq ft/GFA room VFP Screen Wash Stall sq ft/GFA berth student student sq ft/GFA sq ft/GFA acre sq ft/GFA sq ft/GFA sq ft/GLA sq ft/GLA sq ft/GFA sq ft/GFA sq ft/GFA sq ft/GFA sq ft/GFA sq ft/GFA sq ft/GFA sq ft/GFA sq ft/GFA acre
9.57 6.65 3.71 4.79 5.81 2.37 2.02 148.15 1.29 56.24 108.19 8.17 168.56 153.33 108 32.93 2.96 1.5 2.38 9.11 16.5 1.59 89.95 496.12 44.32 42.94 102.24 737.99 57.24 33.34 11.01 36.13 6.96 3.56 2.5 81.9
12.02 8.35 4.66 6.01 7.29 2.98 2.54 186.01 1.62 70.61 135.84 10.26 211.64 192.51 135.60 41.35 3.72 1.88 2.99 11.44 20.72 2.00 112.94 622.91 55.65 53.91 128.37 926.59 71.87 41.86 13.82 45.36 8.74 4.47 3.14 102.83
100% 100% 100% 100% 100% 95% 95% 80% 85% 75% 75% 100% 40% 85% 65% 90% 90% 85% 90% 95% 85% 85% 75% 40% 50% 65% 60% 35% 70% 80% 90% 75% 90% 90% 95% 100%
12.02 8.35 4.66 6.01 7.29 2.83 2.41 148.81 1.38 52.96 101.88 10.26 84.65 163.64 88.14 37.21 3.34 1.60 2.69 10.87 17.61 1.70 84.70 249.16 27.82 35.04 77.02 324.31 50.31 33.49 12.44 34.02 7.86 4.02 2.98 102.83
5.56 3.86 2.16 2.78 3.38 1.31 1.11 68.85 0.64 24.50 47.14 4.75 39.17 75.71 40.78 17.22 1.55 0.74 1.24 5.03 8.15 0.79 39.19 115.28 12.87 16.21 35.64 150.05 23.28 15.49 5.76 15.74 3.64 1.86 1.38 47.58
3.51 2.44 1.36 1.76 2.13 0.83 0.70 43.53 0.40 15.49 29.80 3.00 24.76 47.87 25.78 10.88 0.98 0.47 0.79 3.18 5.15 0.50 24.78 72.89 8.14 10.25 22.53 94.87 14.72 9.80 3.64 9.95 2.30 1.18 0.87 30.08
2.94 2.04 1.14 1.47 1.79 0.69 0.59 36.43 0.34 12.96 24.94 2.51 20.72 40.06 21.58 9.11 0.82 0.39 0.66 2.66 4.31 0.42 20.73 60.99 6.81 8.58 18.85 79.39 12.31 8.20 3.05 8.33 1.93 0.98 0.73 25.17
* For uses w ith Unit of Measure in sq ft, trip rate is given as trips per 1000 sq ft and the TSDC rate is per sq ft GFA = Gross Floor Area GLA = Gross Leasable Area VFP = Vehicle Fueling Positions (Maxim um num ber of vehicles that can be fueled sim ultaneously)
1) Land Use Code - Reference TRIP GENERATION, 8th Edition, Institute of Transportation Engineers, 2008 2) Daily Person Trips/Unit = Daily Vehicle Trips/Unit m ultiplied by 1.26 3) With or Without Minim art (not to exceed 1,500 SF) and/or Carw ash (Fuel is Prim ary Use) 4) If gasoline sales included on-site, use Service Station/Gasoline Sales SDC rate.
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Innovation Quadrant TSDC Overlay Project May 2011
These results are shown in adjacent columns of Table 4-9 for each mode. The TSDC for motorized travel also includes an adjustment for trip lengths, as described in the text box. The total TSDC rate is the sum of the rates for each mode and is shown in the final column of the table. This is the rate that would be required to fully fund all of the TSDC Overlay eligible costs of identified projects. The total TSDC rate per unit in Table 4-9 is used to calculate the total TSDC that is to be paid by each new development. The type of development is identified in the first column of Table 4-9, the number of units is identified from the application for development, and the number of units is multiplied times the TSDC rate per unit in Table 4-9. The result is the total TSDC for the proposed development. Because the final step in calculating TSDCs depends on the number of units of development in each proposed development, a separate calculation is made for each development using this study and the developer's application.
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Innovation Quadrant TSDC Overlay Project May 2011
TABLE 4-9: INNOVATIVE QUADRANT TSDC OVERLAY RATES
Motorized LUC ¹ Unit of Measure* Transit Non-Motorized Total
Trip Trip Length Person TSDC/Unit Person TSDC/Unit Person TSDC/Unit TSDC/Unit Length Adjustment Trips/Unit ($) Trips/Unit ($) Trips/Unit ($) ($) (Miles) Factor 28 4.00 454 153
Cost per Trip End Average Trip Length (Miles)
Residential Single Family 210 Multiple Family 220 Senior Housing, detached 251 Accessory Dwelling Unit 1/2 of 210 Rowhouse / Townhouse / Condo 230 Nursing Home 620 Congregate Care/Asst Living 253 Commercial - Services Bank 912 Day Care 520 Library 590 Post Office 732 Hotel/Motel 310 2 944 Service Station/Gasoline Sales Movie Theater 444 Carwash 947 Health Club 492 Marina 420 Commercial - Institutional School, K-12 520, 530 avg University/College 550 Church 560 Hospital 610 Park 411 Commercial -Restaurant Restaurant 931 Quick Service Restaurant (Drive-through) 934 Commercial - Retail Miscellaneous Retail 814 Shopping Center 820 Supermarket 850 3 851 Convenience Market Free Standing Discount Store 815 Car Sales - New/Used 841 Commercial Office Administrative Office 710 Medical Office/Clinic 720 Industrial Light Industrial / Manufacturing 130 Warehousing/Storage 150 Self Storage 151 Truck Terminal 30
dwelling dwelling dwelling dwelling dwelling bed dwelling sq ft/GFA student sq ft/GFA sq ft/GFA room VFP Screen Wash Stall sq ft/GFA berth student student sq ft/GFA sq ft/GFA acre sq ft/GFA sq ft/GFA sq ft/GLA sq ft/GLA sq ft/GFA sq ft/GFA sq ft/GFA sq ft/GFA sq ft/GFA sq ft/GFA sq ft/GFA sq ft/GFA sq ft/GFA acre
5.56 3.86 2.16 2.78 3.38 1.31 1.11 68.85 0.64 24.50 47.14 4.75 39.17 75.71 40.78 17.22 1.55 0 0.74 1.24 5.03 8.15 0.79 39.19 115.28 12.87 16.21 35.64 150.05 23.28 15.49 5.76 15.74 3.64 1.86 1.38 47.58
3.5 3.7 2.8 3.5 3.7 2.8 2.8 1.5 2.0 1.7 1.7 4.0 1.7 2.3 1.6 3.1 3.1 2.0 3.0 3.7 5.0 5.0 3.4 2.0 1.7 1.7 2.1 1.3 2.1 4.6 5.1 4.8 5.1 5.1 5.1 5.1
0.88 0.93 0.70 0.88 0.93 0.70 0.70 0.38 0.50 0.43 0.43 1.00 0.43 0.58 0.40 0.78 0.78 0.50 0.75 0.93 1.25 1.25 0.85 0.50 0.43 0.43 0.53 0.33 0.53 1.15 1.28 1.20 1.28 1.28 1.28 1.28
138 101 43 69 89 26 22 0.73 9 0.30 0.57 135 472 1,235 463 0.38 34 11 26 0.13 0.29 28 0.95 1.64 0.16 0.20 0.53 1.38 0.35 0.51 0.21 0.54 0.13 0.07 0.05 1,721
3.51 2.44 1.36 1.76 2.13 0.83 0.70 43.53 0.40 15.49 29.80 3 25 48 26 10.88 1 0.47 0.79 3.18 5.15 0.50 24.78 72.89 8.14 10.25 22.53 94.87 14.72 9.80 3.64 9.95 2.30 1.18 0.87 30.08
1,594 1,108 618 798 968 375 320 19.74 183 7.03 13.52 1,361 11,232 21,711 11,694 4.94 444 212 357 1.44 2.34 225 11.24 33.06 3.69 4.65 10.22 43.03 6.67 4.44 1.65 4.51 1.04 0.53 0.40 13,643
2.94 2.04 1.14 1.47 1.79 0.69 0.59 36.43 0.34 12.96 24.94 3 21 40 22 9.11 1 0.39 0.66 2.66 4.31 0.42 20.73 60.99 6.81 8.58 18.85 79.39 12.31 8.20 3.05 8.33 1.93 0.98 0.73 25.17
449 312 174 225 273 106 90 5.57 51 1.98 3.81 384 3,166 6,121 3,297 1.39 125 60 101 0.41 0.66 63 3.17 9.32 1.04 1.31 2.88 12.13 1.88 1.25 0.47 1.27 0.29 0.15 0.11 3,846
2,181 1,521 835 1,092 1,330 507 432 26.04 243 9.31 17.90 1,880 14,870 29,067 15,454 6.71 603 283 484 1.98 3.29 316 15.36 44.02 4.89 6.16 13.63 56.54 8.90 6.20 2.33 6.32 1.46 0.75 0.56 19,210
* For uses w ith Unit of Measure in sq ft, trip rate is given as trips per 1000 sq ft and the TSDC rate is per sq ft GFA = Gross Floor Area GLA = Gross Leasable Area VFP = Vehicle Fueling Positions (Maxim um num ber of vehicles that can be fueled sim ultaneously)
1) Land Use Code - Reference TRIP GENERATION, 8th Edition, Institute of Transportation Engineers, 2008 2) With or Without Minim art (not to exceed 1,500 SF) and/or Carw ash (Fuel is Prim ary Use) 3) If gasoline sales included on-site, use Service Station/Gasoline Sales SDC rate.
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Innovation Quadrant TSDC Overlay Project May 2011
CHAPTER 5
PUBLIC PARTICIPATION PROCESS FOR THE DEVELOPMENT OF THE TSDC OVERLAY
The TSDC Overlay District described in this rate study was developed with substantial involvement by area residents, businesses, and property owners. Specifically, the project team used a three-tiered Public Engagement and Communications (PE&C) process to develop the recommended Overlay District. The first tier of the PE&C effort was a Project Advisory Committee (PAC) representing neighborhood and business associations from the affected area, as well as property owners and developers who would likely be assessed TSDC Overlay District fees. The PAC met five times from October 2010 through March 2011. With technical assistance from the project team and Portland Bureau of Transportation (PBOT) staff, the PAC discussed in depth the various components of a TSDC Overlay, including rates, boundaries and a project list. Members of the PAC included: ? ? ? ? ? ? ? ? ? ? ? ? ? ? Jean Baker, Division/Clinton Business Association Bernie Bottomly, Portland Business Alliance Paul Carlson, Oregon Museum of Science and Industry Dick Cooley, Portland Streetcar, Inc. William Danneman, South Portland Neighborhood Association Brian Dunn, Central Eastside Industrial Council Jennifer Geske, Portland Downtown Neighborhood Association Chris Eykamp, Hosford-Abernethy Neighborhood Development Brad Malsin, Beam Development Mike O’Conner, Brooklyn Action Corps Valeria Ramirez, Portland Opera David Weislogel, Greater Brooklyn Business Association Les Youngbar, NW Natural Dan Zalkow, Portland State University
Because the Overlay District is of interest to many who live, work, and own property in inner Southeast and Southwest Portland, the second communications tier included outreach to a variety of key stakeholders. This effort included a series of stakeholder interviews conducted in the summer of 2010 to help identify key issues and potential PAC members. The stakeholders interviewed shared a vested interest in the transportation system needs along the light rail alignment and included property owners and developers, neighborhood and business associations, and government agencies that represent the diverse geographical area. The stakeholder interviews included associations representing downtown, the Central Eastside Industrial District, and the Hosford-Abernethy and Brooklyn neighborhoods.
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Innovation Quadrant TSDC Overlay Project May 2011
Stakeholder outreach continued over the life of the project, and was both proactive and in response to requests from interested individuals and organizations. Stakeholder outreach included presentations to the Portland Business Alliance Development Committee, Central Eastside Industrial Council, CEIC’s Land Use Committee, the Bicycle Advisory Committee, Pedestrian Advisory Committee, Greater Brooklyn Action Corps, Portland Streetcar, Inc. and HAND (Hosford-Abernethy Neighborhood Development), as well as one-on-one conversations with representatives of other interests, including the South Portland Neighborhood Association. The third tier of the PE&C effort focused on the general public. The project team used an array of communications tools to ensure this broader audience was informed of project progress and was provided a significant opportunity to engage in the process. Communications tools to reach the general public primarily consisted of 1) written information, 2) a project Web page, and 3) project open houses. Written information included a Fact Sheet intended for PBOT distribution to interested parties and for PAC member distribution to those they represented. Written materials were also posted on the project Web site hosted by PBOT (http://www.portlandonline.com/transportation/index.cfm?c=53625) so that interested parties could stay up to date on the status of the project. Posted documents included PAC meeting agendas, summaries, and copies of all PAC meeting presentations and handouts. Two public open houses were held to engage the broader public and further engage PAC members and key stakeholders. The two open houses were held on Jan. 20, 2011 – a morning session in Downtown and a late afternoon/evening session in Southeast Portland. The primary purpose of the open houses was to present PBOT-proposed TSDC Overlay District rates, boundaries, and projects and receive public feedback. Notices of both open houses were emailed to the project mailing list of interested parties and to TriMet’s mailing list of those interested in the Portland-Milwaukie Light Rail Project. To increase participation in the public open houses, invitations were sent to neighborhood and business associations, adjacent property owners, the Portland Business Alliance (PBA) Central City Committee, and the "Portland Milwaukie Light Rail" Interest Group list. Ads were placed in the SE Examiner newspaper and information was posted on City, neighborhood, PBA, and the Central Eastside Industrial Council websites. After the open houses, a “virtual” open house was posted on the project Web site to provide Web users an opportunity to review open house materials and provide feedback.
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