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HomeMy WebLinkAbout08/06/99 BAKERSFIELD CITY MANAGER'S OFFICE MEMORANDUM August 6, 1999 TO: HONORABLE MAYOR AND CITY COUNCIL FROM: ALAN TANDY, CITY MANAGER SUBJECT: GENERAL INFORMATION 1. The improvement in the balance sheet at year end for the Arena / Convention Center was better than we projected in the budget. Even with the Arena open only 9 months of the fiscal year, the operating loss was reduced from $1.1 million the year before to $593,065. Congratulations to Ogden! 2. Good News - At a late Thursday afternoon meeting in Fresno, we apparently resolved the Amtrak Station funding issue. We will be proposing adding it to the agenda of August 11th as a bid award to Colombo Construction. The resolution to the funding arose after the agenda. 3. The sound wall work along Coffee (Palm-Olive) will begin on August 9th and should conclude by the end of August. 4. The 2020 Vision Plan is no longer a Chamber project, but has been picked up by private citizens. John Stinson has been attending sessions and an update is enclosed for your information. 5. Assignments have been given to the department heads to accomplish the City Council goals, which were adopted by the Council on June 30th. We are tracking their completion and will be reporting to Council on progress, periodically. A copy is attached. 6. Enclosed is a response to a request from CARE Ambulance Service to apply for a Certificate of Public Convenience and Necessity for'ambulance services in the city. It is our understanding that they are interested in providing non-emergency service within the city. They currently provide ambulance service in the Kernville area. The City Manager may issue the permit after evaluating the application and conducting a public hearing, which must include notice to other ambulance providers who have been issued a certificate. The applicant can appeal any decision by the City Manager to the City Council. The application is at the preliminary stages. We will keep you informed as it progresses through the process. Honorable Mayor and City Council August 6, 1999 Page 2 7. Progress Report #16 for the Wasterwater Treatment Plant No. 2 expansion is enclosed for your information. 8. Per the enclosed update, staff met again this week with representatives from the Rosedale Rio Bravo Water Storage District and Kern Water Agency to discuss the water recharge test ponds east of Allen Road. Tests are underway to compare recharge capacity in the existing ponds to the proposed new area. 9. The City Clerk's office now has.a computer located at the front counter for use by the public to access City information, including Council Minutes, Agendas and Administrative Reports. 10. The July activity report from Recreation and Parks is enclosed. 11. Also enclosed is Development Services latest activity report. '12. Responses to Council referrals are enclosed, as follows: · Progress report on maintenance practices for Riverlakes Ranch area; · Traffic Sheds report from American Planning Association enclosed. cc: Department Heads Pamela McCarthy, City Clerk Trudy Slater, Administrative Analyst BAKERSFIELD CITY MANAGER'S OFFICE MEMORANDUM August 4, 1999 .TO: Alan Tandy, City Manager FROM: John W. Stinso0n,~)A~ssistant City Manager SUBJECT: Vision 2020 Per your direction I have been attending the Vision 2020 meetings, representing the City in order to promote coordination and communication between the group and city planning efforts. David Price 6f the County has also attended these meetings in a similar role for the County. Up until today the meetings have been somewhat informal and conceptual in nature, focusing on developing a broad visioning process for metropolitan Bakersfield. The group initially was associated with the Chamber of Commerce and produced the Greater Bakersfield 2020 Vision report and Community Development Summit Report. Subsequent to the completion of that report some members of the Chamber and the 2020 vision group continued to meet with an interest in developing a vision for metropolitan Bakersfield. As the meetings have progressed the Chamber of Commerce has limited their direct involvement in the process, and the group has changed from the previous 2020 vision members to a more autonomous group. Significant actions were taken today which have formalized the process that you should be made aware of. The group agreed to proceed with incorporation as a non-profit corporation with the members of the "Leadership Team" i.e. those attending the recent meetings to serve as the Board of Directors. I declined from serving on the board as did David Price due to the necessity to get direction from our respective agencies, whom we represent. Also, the group voted to elect a President to oversee the operation of the corporation and project. It was recommended that Sheryl Barbich be selected. It was stated that the President position would be a paid position which would work about 20-30 hours per week and would be paid about $3,000 per month or $36,000 per year. She was appointed with a unanimous vote of the board (I did not participate in the vote, since I chose not to be on the board). They also nominated and elected the following corporate officers: Chair of the Board .- Susan Hershberger (pending her decision to accept the position) Secretary Bernie Herman Treasurer Lou Barbich S:XJOHN~vision 2020 memo.wpd There was also discussion about creating honorary co-chairs for the organization. It was discussed that possibly Jim Burke and Mary Kay Shell would serve in that capacity. Sheryl Barbich explained that they had been offered or pledged approximately $63,000 in contributions. They included: $10,000 from Chevron; $10,000 from the Californian; $10,000 from Pac Bell; $10- 15,000 from the Superintendent of Schools; other cash and in kind donations from: Bakersfield Chamber of Commerce, Catholic Health West of Central California; Channel 17 (Ray Watson); Barbich, Longcrier, Hooper & King, and MAOF. She also indicated the proposed budget is $210,000 and explained that fund raising efforts needed to get underway to support the proposed budget. A list of potential donors was being developed and board members were asked to identify five or six potential donors. Because I had an appointment, I had to leave before the meeting had concluded. When I was leaving I was asked to sign a document (attached) which was sent to me by E-mail the prior day. I explained that similar to my situation regarding board membership I would be unable to sign the document. I do not know if any discussion occurred regarding the document or if any changes were made subsequent to my leaving the meeting. I believe there is another meeting set for August 18~. However, I will be out of town on vacation and will be unable to attend. Please let me know how you would like me to proceed regarding this matter. I have also attached a copy of the "Leadership Team" Roster for your information. S:XJOHN~vision 2020 memo.wpd 6rearer Bakersfield Vision 2020 Key Messages Overview Greater Bakersfield Vision ?070 is a broad-based community effort to create Vision for the Greater Bakersfield area and set in motion efforts to realize the Vision. The Vision will be a comprehensive, integrated picture of what the community wants the Greater Bakersfield area to be in 20 years. The VisiOn will encompass the physical city and its infrastructure; the business and economic climate; educational strategies to improve the future workforce; and the desired quality of life of our community, including the cultural, social and civic fabric of the city, the environment, and the health and welfare of our residents. The Vision will be created through a broad-based, collaborative, consensus-based process involving business, the City of Bakersfield, Kern County, the non-profit sector, and the community at large, including our youth. The anticipated timeline for this Process is two years. The process is as important as the Vision and resulting action plans. A "Facilitating Team" of individuals representing the broad diversity of our community has come together to design and run this process. The Vision will be actionable, that is, its elements will be translated into short' and long term action plans to be implemented by the city, the county, business and industry, the non-profit sector, and individuals. The Process phase Z Planning A purpose statement and a' process to achieve the purpose (six months) Phase Z]; Assessment A comprehensive assessment of community pluses and minuses (three months) Phase ;ITl Visioning A comprehensive, integrated Vision for Greater Bakersfield (five months) Phase ;IV Action Plans to implement the Vision (six months) Early benefits: Actions with broad support identified over the next year during Phases II and III can become "Spin-off" projects and be implemented quickly, ,Tuly 28, 1999 Greater Bakersfield Vision 2020 Key Messages without waiting for the entire process to be completed. These "quick wins" will help to build momentum and credibility. Key Messages Greater Bakersfield Vision 2020 is a broad-based community effort to create a Vision for the Greater Bakersfield area and set in motion actions to realize the Vision. The Vision will be a comprehensive, integrated picture of what the community wants the Greater Bakersfield area to be in 20 years and in the interim. The Vision will be by and for the residents of the Greater Bakersfield area. The process to create the Vision will involve the input and active participation of all segments of the community. The city and county will be active participants in the process to create the Vision and will play a key role in its implementation. Vision 2020 builds on the past (Future Bakersfield; 2020 Summits) and will not duplicate present endeavors (2010 Plan update; Kern County General Plan update; KEDC Natelson Report). Vision 2020 is much more than a city/county land-use plan as it involves all aspects of the community - infrastructure., jobs, education, quality of life, and the health of our residents. The role of the Facilitating Team is to develop and implement an open and inclusive process to create and realize the Vision. The process can lead to quick improvements in our community through the identification and early implementation of "Spin-off" projects. Louis J. Barbich Sheryl Barbich July 28, 1999 Gr¢~tcr Bakersfield Vision 2020 Key I~¢ssagcs Richard Beene · Roger Mclntosh Dr. Kelly F. Blanton Jack Pandol, Sr. Vic Bolton David Price III Ken Carter Linda Quinones-Vaughan Martin V. Castro Edward Spaulding Tom Corson John Stinson Holly Culhane David Strong Brent Dezember Ray Watson Chris Frank Wendy Wayne Harvey Hall Barbara Harris, Esq. Bernie Herman Susan Hersberger Ed Hickman Tony Martinez ~Tuly 28. 1999 MEMORANDUM To: Greater Bakersfield Vision 2020 Leadership Team Members From: Chris Frank Date: July 22, 1999 Subject: Leadership Team Roster Attached for your review you will find an updated ."Leadership Team" roster for your use. Please review your information carefully and immediately advise the Chamber office of any changes. Thank you in advance for your assistance to this matter and your dedication to this project. Greater Bakersfield Chamber of Commerce Your Partner in Business. 1725 Eye' Street · RO. Box 1947, Bakersfield, CA 93303 · Tel 661.327,4421 · Fax 661.327.8751 · http://www, bakersfield.org/chamber GROUP ROSTER Group: VISION 2020 LEADERSHIP TEAM ID: 0232 Notes: Sheryl Barbich 325-4454 -1999 Chair .Filter: Status(es) - A,B,C,L,M,N,P,X Attributes - (no restrictions) Order: Rep name Rep Name & AddreSs ID S Phone ~'s Mr. Louis J. Barbich 03361-AA A Barbich Longcrier Hooper & King Phone #1: (661) 637-2201 5001 E Commercenter Dr 350 Phone ~2.: (661) 332-6862 Po Box 11171 Fax: (661) 631-0244 Bakersfield, CA 93389 E-mail:'Lou@BLHK.com Sheryl. Barbich, President 04642-AAA Integrated Knowledge Group, Inc. Phone #1: (661) 325-4454 2225 E. Street, Ste. 200 Phone #2: (661) 637-2207 voice Bakersfield, CA 93301 Fax: (661) 631-1088 E-mail: Sherylb@ikg.com Mr. Richard Beene, Chief Executive Officer 01072-AY A The Bakersfield Californian Phone #1: (661) 395-7387 PO Box 440 Phone #2: ( ) Bakersfield, CA 93302 Fax: (661) 3.95-7519 E-mail: rbeene@bakersfield.com Dr. Kelly F. Blanton 01161-AA A Kern County Superintendent of Schools Phone ~1: (661) 636-4000 1300 17th St Phone ~2: (661) 636-4624 Bakersfield, CA 93301-4533 Fax: (661) 636-4130 E-mail: keblanton@fc.kern.org Mr. Vic Bolton 01671-AL A Pacific Bell Phone #1: (661) 327-6565 5101 OffiCe Park Drive, Ste. 102 Phone #2: (661) 394-5953 pager Bakersfield, CA 93309 Fax: (661) 327-6572 E-mail: vic.bolton@pactel.com Mr. Ken Carter 01912-AI A Watson Realty Company Phone #1: (661) 859-5555 5701 Truxtun Avenue Ste 100 Phone #2: ( ) Bakersfield, CA 93309 Fax: (661) 861-7474 E-mail: kencarter@watsonrealty.com 07/22'/1999 - 1 - Mr. Martin V. Castro, Administrator 01624-AF A Mexican American Opportunity Foundation Phone #1: (661) 336-6943 2001 28th Street Phone #2: ( ) Bakersfield, CA 93301 Fax: (661) 336-6861 Mr. Tom Corson 05332-AA P Kern County Collaborative Phone #1: (661) 861-5253 2000 24th Street Phone #2: ( ) Bakersfield, CA 93301 Fax: (661) 5239 E-mail: tocorso@zeus.kern.org Ms. Holly Culhane, Owner 02294-AA A P*A*S Associates Phone #1: (661) 631-2165 1401 19th Ste 420 Phone #2: ( ) Bakersfield, CA 93301 Fax: (661) 631-2841 E-mail: hculhane@aol.com Mr. Brent Dezember, President 05262-AA A Golden Empire Concrete Products, Inc. Phone #1: (661) 833-4490 8261 McCutchen Rd Phone #2: ( ) Bakersfield, CA 93311 Fax: (661) 833-4493 E-mail: dezember@lightspeed.net Mrs. Chris Frank 02029-AB P Greater Bakersfield Chamber of Commerce Phone #1: (661) 327-4421 1725 Eye Street Phone #2: ( ) P. O. Box 1947 Fax: (661) 327-8751 Bakersfield, CA 93303 E-mail: cfrank@kern.com Mr. Harvey Hall, President 01482-AB A Hall Ambulance Servicer Phone #1:.(661) 322-1625 1001 21st Street Phone #2: ( ) Bakersfield, CA 93301 Fax: (661) 322-1638 E-mail: hlh@lightspeed.net Ms. Barbara Harris 05334-AA P Harris, Barbara Phone #1: (661) 322-3863 5400 Planz Road #56 Phone #2: ( ) Bakersfield, CA Fax: (661) 1024 E-mail: barbie_esq@yahoo.com Mr. Bernie Herman, President 01617-AB A CHW Central California Phone #1: (661) 632-5000 2215 Truxtun Avenue Phone #2: (661) 632-5377 P. O. Box 119 Fax: (661) 327-2592 Bakersfield, CA 93302 E-mail: bherman@chw.edu Ms. Susan Hersberger, Public Affairs Director 01790-AN A Aera Energy LLC Phone #1: (661) 665-5602 10000 Ming Ave Phone #2: ( ) PO Box 11164 Fax: (661) 665-5297 Bakersfield, CA 93389-1164 E-mail: schersberger@aeraenergy.com 07/22/1999 - 2 - ~r.~d Hickman, CEO 01813'AF A Bank of Stockdale Phone #1: (661)'833-9292 5151 Stockdale Highway Phone #2: ( ) Bakersfield, CA 93309 Fax: (661) 833-1791 E-mail: ehickman@lightspeed.net Mr. Tony Martinez, Community Service 02494-AG M Bakersfield Police Department Phone #1: (661) 326-3922 1601 Truxtun Avenue Phone #2: (661) 326,3818 Bakersfield,. CA 93301 Fax: ~(661) 613-2305 E-mail: copps007@aol.com Mr. Roger McIntosh 02219-AA A Martin - McInt0sh Phone #1: (661) 834-4814 2001 Wheelan Ct Phone #2: ( ) Bakersfield, CA 93309 Fax: (661) 834-0972 E-mail: mmcengr@aol.com Mr. Jack Pandol Jr., Owner 05002-AA A Grapery Phone #l: (661) 397-2150 1405.Avenida Sabia, Ste. i Phone #2: ( ) Bakersfield, CA 93309 Fax: (661) 397-2151 E-mail: jpandolsr@aol~com Mr. David Price III, Agency Director 03259-AA A Kern County Resource Management Agency Phone #1: (661) 862-8802 2700 M Street Ste 350 Phone #2: (661) 336-1777 pager Bakersfield, CA 93301-2370 ~ Fax: (661) 862-8801 E-mail: dave@co.kern.ca.us Ms. Linda Quinones-Vaughan, Public Affairs 01673-AH A Pacific Gas & Electric Phone #1: (661) 321-4407 1918 H Street Phone #2: (661) 321-4468 Bakersfield, CA 93301 Fax: (661) 321-4545 Mr. Edward Spaulding, Public Affairs Manager 01816-AA A The Chevron Companies Phone #1: (661) 633-4500 4900 California Ave. Phone #2: (661) 633-4501 P.O~ Box 1392 Fax: (661) 633-4478 Bakersfield, CA 93302 E-mail: ersp@chevron.com Mr. John Stinson 02116-AV M City of Bakersfield Phone #1: (661) 326-3751 1501 Truxtun Avenue Phone #2: ( ) Bakersfield, CA 93301 Fax: (661) 32'4-1850 E-mail: jwstinsOn@ci.bakersfield.ca.us Mr David Strong 02820-AL M County of Kern Phone #1: (661) 868-3198 1115 Truxtun Avenue, 503 Phone #2: ( ) Bakersfield, CA 93301 Fax: (661) 868-3190 E-mail: strong@kerncounty.com Mr. Ray Watson 01577-AA A KGET-TV Phone #1: (661) 283-1700 2120 L Street Phone #2: ( ) P. O. Box 1700 Fax: (661) 283-1855 Bakersfield, .CA 93302 07/22/1999 - 3 - ~-mg~l: rwatson@ackerley.com Ms. Wendy Wayne '01161-AM A KCSOS Child Development & Family Service Phone #1: (661) 861-5212 2000 24th Street Ste 100 Phone #2: (661) 636-4624 Bakersfield, CA 93301-4533 ,Fax: (661) 861-5262 Count: 26 07/22/1999 - 4 - 1999 - 2000 CITY COUNCIL GOALS GOAL DEPT HEAD ASSIGNMENT DUE DATE STATUS G-OAL#1: 'ENHANCE THE cITY'S iTRANSPORTATION NETWORK 1.Maintain and improve the quality of Raul Rojas June 2000 existing surface streets and arterials A. enhance the road resurfacing program, including a significant reduction of the maintenance backlog B. increase funding for street maintenance C. adopt funding mechanisms for new roadway construction D. increase education efforts with the community and the opportunity for public input E. Hire a lobbyist to promote City interest with local, state and federal agencies. 2. Support the development of Raul Rojas September beltways 1999 B. provide periodic workshops to update the Council on status of the freeway and beltway projects as outlined in the MTIS 3.Support the development of an Raul Rojas December Intermodal Transportation Hub 1999 A. actively pursue high speed rail system 5.Support efforts for adequate air transportation A. work with the county to retain jet A. Alan Chdstensen December service at Meadows Field; and for the John W. Stinson 1999 construction of a new terminal B. develop a policy that encourages City B. Alan Chdstensen September use of air transportation at Meadows John W. Stinson 1999 Field as a preferred travel alternative C. encourage Kern County businesses C. Jake Wager December to adopt similar policies 1999 GOAL #2i PROvIDEQUALI~ PUBLIC SAFE ~TYSERVlCES 1. Proactively plan to reduce gang violence, domestic violence and child abuse A. enhance city-wide efforts to address Al Eric Matlock July 2000 gangs and drugs B. increase the number of B. Edc Matlock June 2000 neighborhoods participating in the Neighborhood Watch program C. establish performance measures for C. Edc Matlock June 2000 police services June 2000 D. establish a five-year target plan for D. Eric Matlock police protection E. provide City Council workshops on E. Eric Matlock / Ron Fraze September Police and Fire department standard 1999 response times F. expand enforcement of ddvers F. Eric Matlock December running red lights, and study video 1999 camera enfo. rcement at intersections 2. Establish standards for fire safety and employee performance A. implement new station development A. Ron Fraze December plans: 2001 1. funding for future fire stations and locations 2. use technology to develop faster, safer, and more efficient responses to emergencies B. Ron Fraze July 2000 B. establish comprehensive database . for emergency information: 3. plan for access of information C. Ron Fraze December to in field crews and E.O.C. operations 1999 C. update disaster plan Citywide: D. Ron Fraze 4. obtain compliance with State December OES and .FEMA 1999 D. define entrance qualifications and promotion procedures GOAL #3: CONTINUE PosITIVE DOWNTOWN DEVELOPMENT 1. Continue to build on the success of the Convention Center Hotel, Centennial Plaza, Centennial Garden and Amtrak Station A. develop concepts for projects which A. Alan Tandy July 2000 contain the following elements: entertainment, trees, family activities, pedestrian-friendly, safety, attractiveness, and making railroad tracks positive rather than negative B. study a Town Square or downtown B. Alan Tandy December park concept 1999 C. proactively clear blight from the C. Alan Tandy December redevelopment areas around the arena, 2000 Amtrak Station and Hotel 3. Address downtown parking needs Jake Wager Ongoing A. enhance and improve parking o. pportunities for the publIc dudng (]owntown events o' Develop a quality downtown . Jake Wager December ousin(~ proiect that brings fami,ies 2000 the cro~vnfown area 5. Evaluate the termination of new Jake Wager December fun.ding for the URM program, . 1999 includ,ng funding alternatives ann report back to Council 6. Exl=and Chester Avenue Raul Rojas December Streetscape 2000 'GOAL #4: 'PI-AN FOR GROWTH A~ND DEVELOPMENT 3. Facilitate annexations where staff Alan Christensen December is sensitive to the areas and where 1999 support starts with the neighbors A. educate the public on the community-wide advantages .oT in-fill development (County islands) . . C. develop, an informational packet th. at compares [ax bill.s~services, and costs between City aha uounty 4. Support affordable housing for Jake Wager December seniors and Iow/moderate income 2000 residents tSTo. Use red. ev.elop, ment pr. oject ar_e.a.s Jake Wager July 2000 pro.m, ote ~_.eve,opment ,n the own Kern-Pioneer and Southeast areas of Bakersfield ~-O-A'[. ifS: MAINYAIN AND, .UPGRADE THE CITY'S I~FRASTRUCTURE, - ' 2. Review and update the Kern River Parkway Plan A. mainfain water in the Kem River as A. Gene Bogart Ongoing often as feasible B. Gene Bogart July 2001 B. complete the Kem River Parkway roject D. Gene Bogart D..make Pa..rl~va.y a touds, t attraction ano accessible Trom the oowmown E.. Gene Bogart E. develop Parkway from Gosford Road to Beach Park as a greenbelt area 3. Incoroorate recreational trails into Stan Ford December the City's infrastructure. . 2001 A. maintain/construct trai~s Tot bikes, walking, jogging and equestrian 4. Establish acceptable level of Raul Rojas August 2000 maintenance for existing propertieS, including curbs, gutters and alleys $. Develop a comprehensive master Greg Klimko December plan for all infrastructure John Stinson 2000 A. plan for construction and future funding of water facilities, fire stations, etc. GOAL#6: ENSURE EFFICIENT USE OF FISCAL RESOURCES 1. Remain fiscally solvent Alan Christensen July 2000 A. pursue grants and pdvate donations pdor to reducing service level 2. Establish administrative / financial Greg Klimko July 2000 policy of full cost accounting John Stinson A. review and prioritize each service: real cost, level of service B. maintain lowest possible fee structure for all services 3. Streamline government operations to be more responsive A. develop process for all non-profit A. John Stinson December agencies to access General Fund 2000 monies o B. establish benchmarks for financial B. Greg Klimko / John Stinson Ongoing responsibility of departments D. encourage utilization of local vendors D. Greg Klimko Ongoing wherever possible 4. Develop an investment policy that . Greg Klimko July 2000 provides opportunities for City funds to be invested locally if all other conditions such as rate of return are the same iGOAL#7: ATTRACT AND rFOSTER A QUALIFIED WORKFORCE 1. Create an environment that Alan Chdstensen July 2000 encourages employees to achieve A. provide customer service training for employees B. explore incentives for employees to reside in the City 2. Establish labor negotiation Alan Chdstensen December strategies to ensure effective 2000 resolution 3. Involve all staff equally in Alan Christensen Mamh 2000 implementing the goals and John Stinson objectives of the City A. develop a mission statement that promotes cultural equity in employment · iG-O ,L #8-: IMPRoVE'CITY GOVERNMENT ...... ~,~_q~M UNICATIONS 1. Design ways to educate the John Stinson December citizenry on the City Councirs role Alan Christensen 2000 A. promote successful projects/programs/legislation B. provide more positive Council interaction with public 2. Utilize surveys to obtain feedback Alan Chdstensen June 2000 from residents and businesses about (ongoing) living and working in Bakersfield 3. Improve internal Council relations D. design process to assist in resolving D. John Stinson July 2000 difficult and controversial issues E. Alan Chdstensen July 2000 E. meet twice a year for team building and goal setting GOAL #9:- STRENGTHEN AND' ~DIVERSlFY OUR ECONOMIC BASE 1. Enhance the City's economic development opportunities A. Jake Wager December 1999 A. give businesses reasons to feel good about residing in Bakersfield C. Jake Wager July'2000 C. attract industries which best suit our Iocational advantages E. Jake Wager December E. recruit and locate a grocery store in 2000 (ongoing) the Southeast area 2. Review and enhance the TEAM BAKERSFIELD concept A. obtain input and feedback from A. Jake Wager July 2000 customers on permit processing B. Jake Wager July 2000 B. review business license fee structure and policy C. Greg Klimko December C. provide City procurement information 1999 to local vendors 3. Continue a program that focuses on job creation B. create higher paying jobs that can B. Jake Wager Ongoing support families, such as professional high tech jobs 'G-OAL #10: PROMOTE .~0_OM MUN! _'l'y PRIDE 1. Establish a comprehensive community relations program A. deliver a customer attitude survey to A. Alan Christensen July 2000 residents and report results to City Council B. promote customer service orientation B. Alan Christensen July 2000 C. implement a plan to improve the C. Alan Christensen July 2000 image of the City D. Alan Christensen July 2000 D. design media packet and news releases E. Stan Ford September E. perhaps sponsor a concert or event 2000 at the Centennial Garden which is free to the public using talent from the local community 2. Develop a campaign against Stan Ford September littering 2000 3, Facilitate the development of Alan Tandy July 2001 cultural and recreational facilities A. baseball complex B. cultural arts C. encourage corporate capital investments iGOAL #11' ENHANCE CITY-wIDE ~E_CREATION SERVICES 1. Develop a comprehensive Stan Ford July 2000 recreation plan for all citizens 2. Promote programs for children Stan Ford December and families focusing on honesty, 2000 ethics and respect A. develop a youth service plan to include recreation and health B. identify role models to assist in youth outreach efforts 3. Pursue building a regional park in Stan Ford December West Bakersfield 2000 A. evaluate the feasibility of a North Chester park facility B. evaluate the feasibility of a downtown park and town square ~oAL #12:- SUPPORT POSITIVE iNTERGOVERNMENTAL~ R_ELATIONS 2. Proactively pursue Alan Christensen July 2000 intergovernmental legislation at the (ongoing) county, state and federal levels A. monitor, take a position and actively pursue pending legislation B. expand annual lobbying effort with state representatives C. invite legislators to Council workshops or other activities 3. Hold joint City Council/County Alan Christensen September Board of Supervisor meetings to 1999 discuss various issues A. work harder at City/County relations B. discuss joint participation in updating the 2010 General Plan C. discuss solid waste issues and encourage the County to adopt universal refuse collection 4. Partner with school districts on Stan Ford December recreation and education programs 2000 to reduce youth violence, drugs and crime BAKERSFIELD Alan Tandy · City Manager August 3, 1999 Mr. Robert Bohn, President CARE Ambulance Service 11345 Kernville Rd. P.O. Box 2008 Kernville, CA 93238 Dear Mr. Bohn: Attached please find the application for the certificate of public convenience and necessity to provide ambulance services within the City of Bakersfield pursuant to Bakersfield Municipal Code~Section 5.10. You will need to provide the information requested and submit it to me in order to process your application. I have also enclosed a copy of Section 5.10 to provide you with information regarding the application process and time lines. Once we have received your completed application, a hearing will be set, and public notice and notification of other persons possessing certificates of public convenience and necessity will be made. Should you have any questions regarding the application, please contact Assistant City Manager John Stinson at 661r326-3751. Sincerely, ~.~ City Manager Enclosures S:~lOHN~AMB\Certificete of Public Convenience and Necessity - Letter.wpd City of Bakersfield · City Manager's Office · 1501 Truxtun Avenue -Bakersfield · California · 93301 (661) 326-3751 · Fax (661) 852-2050' Application ~for Certificate of Public Convenience and Necessity for Ambulance Services City of Bakersfield Pursuant to Bakersfield Municipal Code Section 5.10 certain information will be needed to complete your application for a certificate of public convenience and necessity with the City of Bakersfield to provide ambulance Service. The information requested shall be submitted in writing to the City Manager for review, investigation and appropriate action. The application will consist of a cover letter signed by the applicant(s) with the appropriate enclosures as outlined below. The application content listed below outlines the minimum required, and the applicant may submit additional information as deemed necessary. The City Manager at his/her discretion may request additional information as needed, to evaluate the application. The following information shall be submitted in writing by the applicant: A. Cover letter of intent will contain: 1. A general description of the applicant's intent to conduct ambulance service in the City of Bakersfield in narrative form. 2. A description of the applicant's short and long range goals to provide ambulance service in the City of Bakersfield. Short range equates to one year, while long range equates to a three to five year period. 3. Level or levels of service to be provided. 4. A narrative geographical description of the transport operating area desired to be served. 5. A target date for commencement of operations. 6. Applicant signature(s). This shall be either the president or chief executive officer of the organization that is applying to provide ambulance service in Kern County. B. Business and Financial Information (Enclosure One to cover letter): 1. The name of the applicant and the trade name, if any, through which he or she intends to conduct the business; or if a corporation, its name, date and place'of incorporation, address of its principal place of business, and the names of its principal officers, together with their respective residence addresses; or if a partnership, association or unincorporated company, the names of the partners, or the persons comprising such association or company, and the business and residence address of each partner or person. ApplicatiOn for Certificate of Public Convenience and Necessity for Ambulance Services Page 2 of 5 2. Business name, address, phone number. 3. A statement providing information from the applicant indicating the applicant's past experience in the operation of ambulance services including a brief resume of the experience of the owner, or if a corporation, the chief executive officer, relating to the management of ambulance services. 4. A description of applicant's organization structure. A copy of the applicant's organization chart will suffice. 5. A letter from a bank or financial institution, signed by an officer of the institution, which attests to the financial capability of.the applicant to provide an ambulance service at the level contained in the application. 6. Copy of existing or proposed ambulance service rate categories, category criteria, and specific rates for each category. All rate categories must be defined in Sufficient detail so as to be understandable to the public. 7. Description of the applicant's policy of accepting assignment for government medical insurance. For instance, if the applicant "accepts assignment" for all Medicare patients, or 0nly accepts assignment on a case-by-case basis, the policy should be described. 8. Description of any employee incentive programs in existence or proposed to be used. 9. Description of any public membership programs in existence or planned, with copies of brochures and/or contracts, if applicable. C. Ambulance Service Licenses and Certificates (Enclosure Two to cover letter): 1. A photocopy of valid City of Bakersfield business license(s). 2. A photocoPy of Ambulance Service License(s) issued by the Commissioner of the California Highway Patrol for the operation of privately owned or operated ambulances in accordance with California Vehicle Code, Section 2501 and California Code of Regulations, Title 13. 3. Photocopy of each valid ambulance identification card or ambulance inspection form indicating authorization to operate from the California Highway Patrol. 4. Certificates of insurance coverage indicating policy coverage and limitations, that meet the requirements of Bakersfield Municipal Code Section 5.10. Application for Certificate of Public Convenience and Necessity for Ambulance Services Page 3 of 5 5. · A photocopy of a valid ambulance permit to provide service from Kern County. D. . Emergency Vehicles (Enclosure Three to cover letter): 1. A description of the make, model, year, mileage, license number, vehicle identification number, copy of registration, general patient transport capacity and configuration (e.g. type of "box") of each ambulance or other vehicle used or proposed to be used by the applicant. 2. Description of applicant's vehicle preventative maintenance program used to ensure safe mechanical operation of vehicles. As a minimum, describe the periodic maintenance service schedules for emergency vehicles, or if done by contract, what type of maintenance is performed by the existing (or proposed) 'contract. E. Facilities (Enclosure Four to cover letter): 1. Description.of the base for ambulance service operations, including the lOcation, address, and property zoning at which the applicant proposes to operate and maintain such ambulances. 2. Description of each current or proposed ambulance station, address and lOcation(s). 3. Location of dispatch facility and a general description'of hours of opekation. F. Dispatch and Communications (Enclosure Five to cover letter): 1. Description of emergency vehicle telecommunications equipment and each authorized frequency for use and PL configuration. 2. Description of dispatch facility telecommunications equipment, frequency access and the primary use of specific frequencies, PL codes used, and. paging system for field personnel. A description of recording equipment for emergency telephone and radio communications, and how long the recordings are stored. Applicant is required to procure adequate dispatch telecommunications recording equipment within one year of initial issuance of permit. It is intended that the recording be used by the applicant for retrospective review of emergency calls and for review by the City in accordance with incident investigation procedures. 3: Description of emergency dispatch procedures, including logging emergency call information, determining which ambulance and type of ambulance to send, and content of dispatch information. Application for Certificate of Public Convenience and Necessity for Ambulance Services Page 4-of 5 4. Description of ambulance resource dispatch procedures including information on when a primary ambulance is called and unavailable, back-up ambulance response, EMT-Paramedic requests, and no ambulances available for response. As a minimum, these procedures should outline how the applicant will recover information related to ambulance resource dispatch problems, should they occur. 5. Description of auxiliary power source to be used during power failure for operation of radios, phones, recording equipment and lights in the dispatch area. Applicant is required to either: 1) procure adequate auxiliary power source within one year of initial issuance of permit, or 2) describe a plan by which applicant will operate from a secondary location where auxiliary power would be available for the coordination of EMS services. 6. Copy of current or propOsed dispatch log used to record calls. 7. Evidence of applicant's communication system compatibility with City of Bakersfield Police and Fire communications systems. G. Ambulance Service Operations (Enclosure Six to cover letter): 1. Description of ambulance deployment procedures. 2. Listing of the number and level of ambulances to be provided on specified schedules. 3. A general description of ambulance movement or posting strategy to cover areas when various ambulance stations are unmanned or area ambulance(s) are unavailable. 4. Number and level of ambulance(s) held in reserve or on call, estimated time to call-in additional manpower to staff one ambulance. H. Quality Assurance (Enclosure Seven to cover letter): 1. A description of quality assurance program to include: operational efficiency monitoring, data collection, service performance analysis and service standards, operations management, and supervisory structure and availability. I. Proposed Operating Area Analysis and Justification (Enclosure Eight to cover letter): 1. Estimates of daily, weekly and monthly emergency, non-emergency and inter- facility transfer ambulance call volume. Application for Certificate of Public Convenience and Necessity for Ambulance Services Page 5 of 5 2. Description and geographic map depicting the proposed operating area, base of operations, ambulance stations or posting locations. 3. Estimates of shortest and longest ambulance response time from, each ambulance station location to the closest border of the proposed operating area. 4. Estimates of call volume for each ambulance manned on standard shift interval. 5. A written narrative justification regarding the public need for the proposed ambulance service in the intended area. J. Affirmation Statement (Enclosure Nine to cover letter): 1. A statement affirming that the applicant owns or has under their control required equipment and emergency vehicles to adequately conduct an ambulance service in the proposed operating area in the permit application which meet the requirements established by the California Vehicle Code and California Code of Regulations. 2. A statement affirming that the applicant and each emergency vehicle will conform to all applicable provisions of the California Vehicle Code, the California Code of Regulations, and all other applicable state and local laws, regulations and policies. 3. A statement that the applicant employs sufficient personnel adequately trained and available to deliver ambulance services and prehospital care of good quality at all times in the proposed operating area, in accordance with the application. .08.180--5.08.190 The service fee will be adopted by resolution of the 5.08.180 Confidentiality. city council and reviewed annually to insure that The information furnished and secured pursuant the police department is being reimbursed for the to this chapter shall .be confidential in character, lost manpower and expenses caused by false shall not be subject to public inspection and shall alarms, be kept so that the contents thereof shall not be B. Any person violating any of the provisions known except to persons charged with the of this chapter shall be deemed guilty' of an administration of this chapter. It is declared that infraction and, upon conviction,, shall be the public interest served by not making the punishable by a fine not exceeding fifty dollars for information public clearly outweighs the public a first violation, one hundred dollars for a second interest that might be served by disclosure of the violation within one year, and two hundred fifty information. (Ord. 2793 § I (part), 1982). dollars for each additional violation within one year. 5.08.190 Applicability'to existing C. The conviction or punishment of any alarm systems. person for violation of the provisions of this The provisions of this chapter shall apply to all chapter or for failing to secure a permit as required alarm systems which were installed, connected, by this chapter shall not relieve such l~erson from operated, used or maintained on or prior to the date paying .the permit and service fees due and unpaid on which the ordinance codified in this chapter at the time of such conviction, nor shall payment became effective; provided, however, the permits of any permit fee or service fee prevent criminal required for such alarm systems not heretofore prosecution for violation of any of the provisions under any permit shall be obtained within ninety of this chapter. All remedies shall be cumulative, days from and after the date on which the and the use of one or more remedies by the city ordinance codified in this chapter became effective. shall not bar the use of any other remedy for the (Ord. 2793 § I (part), 1982). purpose of enforcing the provisions of this chapter. The amount of any permit or service fee shall be deemed a debt to the city. An action may Chapter 5.10 be commenced in the name of the city in any court of competent jurisdiction to recover the amount of .AMBULANCES any delinquent fee. All fees shall be deemed delinquent thirty days after they are due and Sections: payable. 5.10.010 Definitions. D. The sections, subsections, paragraphs, 5.10.020 Certificate of public con- sentences, clauses and phrases of this chapter are venience and necessitym and are intended to be severable. If any section, Required--Exceptions. subsection, paragraph, sentence, clause or phrase 5.10.030 Certificate of public of this chapter is declared unconstitutional by the convenience and necessity-- valid judgment or decree of any court of competent Application. jurisdiction, such unconstitutionality shall not 5.10.040 Reserved. affect any of the remaining sections, subsections, 5.10.050 Certificate of public con- paragraphs, sentences, clauses or phrases of this venience and necessity-- chapter. Public hearing before city (Ord. 2793 § 1 (part), 1982). manager. 199 (Bakersfield 6-95} 5.10.010--5.10.020 5.10.060 Certificate of public con- conveyance to any point within or without the city, venience and necessitym except the transportation from hospitals, licensed Issuance. nursing homes, and certified extended care 5.10.070 Certificate of public con- facilities located in the city to points outside the venience and necessity~ city. Notice of decision by city F. "E.M.S. director" means and refers to the manager, public official in charge of emergency medical 5.10.080 Reserved. services for the County of Kern, State of 5.10.09 0 Certificate of public con- California, or his duly authorized representative. venience and necessity~ (Ord. 3638 § I, 1995: Ord. 2945 § 1, 1984: prior Nontransferable. code § 7.62.010). 5.10.100 Certificate of public con- venience and' necessity~ 5,10.020 Certificate of public con- Suspension and revocation, venience and necessity--Re- 5.10.110 Compliance with state law quired--Exceptions. required. A. Except as provided in subsection B of this 5.10.120 Ambulance service charges, section, no person shall engage in the ambulance 5.10.125 Level of service, business without first obtaining a certificate of 5.10.130 Liability insurance, public conVenience and necessity from the city as 5.10.140 Replacement of vehicle, provided in this chapter. This certificate shall be in 5.10.150 Appeals. addition to any business license required by 5.10.160 Reserved. Chapter 5.02 of this'code. B. A provider without a certificate of public 5.10.010 Definitions. convenience and necessity may provide ambulance For the purposes of this chapter, the following service within the city under the following terms shall have the meanings set out in this circumstances: section: 1. Upon request by the city manager or his A. "Ambulance" means any motor vehicle used designee. primarily to transport, move or convey a sick or 2. Upon request of a certificate holder and injured person. · upon approval of the city manager or his designee,' B. "Ambulance:business" means the business when no certificate holder has an ambulance or of owning, operating, managing or maintaining as level of service immediately available within the principal or agent any ambulance defined as in city, and when ambulance service is immediately subsection A of this section, required. C. "Ambulance service charges" means any 3. TO provide medically required specialized charge, fare or other consideration for ambulance transportation services not immediately available service as set forth in Section 5.10.120. for a patient within the city, if such specialized D. "Certificate holder" is any person to whom services have heretofore been approved by the a certificate of public convenience and necessity E.M.S. director, and if authorized by the city has been issued under the provisions of this manager or his designee. chapter and which certificate has not been revoked. (Ord. 3638 § 2, 1995: prior code § 7.62.020). E. "Operation within the city" means the receiving, picking up or embarking within the city of a sick or injured person for transportation or (Bakerafield 6-95) 200 5.10.030--5.10.060 · 5.10.030 Certificate of public con- 5.10.050 Certificate of public con- venience and necessity-- venience and necessity-- Application. Public hearing before city Any person desiring to obtain a certificate of manager. 'public convenience and necessity shall make A. Upon the filing of an application the city application therefor upon forms available from the manager shall fix a time and place for public office of the city manager. Each application shall hearing thereon. be accompanied by a policy of insurance in the B. Ten days' written notice of the heating shall amount provided for by this. chapter. The be given to the applicant by registered mail and to application shall include the following information: all persons to whom certificates of public A. The name of the applicant and trade name, convenience and necessity have previously been if any, under which he or she intends to conduct issued. the business; or if a corporation, its name, date and C. Notice shall be given to the general public place of incorporation, address of its principal by posting the time and place of the hearing in the place of business, and the names of its principal City Hall of the city. officers, together with their respective residence D. Any interested person may file with the city addresses; or if a pannership, association or manager a memorandum in support of or in unincorporated company, the names of the opposition to the issuance of a certificate. partners, or of the persons comprising such (Prior code § 7.62.050). association or company, and the business and residence address of each partner or person. 5.10.060 Certificate of public conven- B. A description of each ambulance or other ience and necessity--Issu- vehicle used or proposed to be used by the ance. applicant; A. The city manager shall consult with the C. The address and a description of the chief of police and the E.M.S. director to premises at which the applicant proposes to determine the ability of the applicant to conduct the maintain and operate such ambulances, business in accordance with laws of Kern County, D. The applicant shall furnish any and all the state and city ordinance. additional information as the city manager may, in B. The city manager shall not issue a permit his discretion, require, pursuant to this chapter unless he finds as follows:' E. The applicant shall pay a fee not to exceed 1. That the application is complete and the cost of processing any such application and truthful; inspecting such business as set forth in section 2. The applicant is financially responsible; 3.70.040. .3. The applicant will conduct said project in an (Ord. 3638 § 3, 1995: prior code § 7.62.030). orderly, proper and lawful manner; 4. The applicant has not had a permit, issued 5.10.040 Reserved.* in the past three years under this chapter, revoked, unless the city manager finds that the reasons for · Editor's Note: Former Section 5.10.040, such revocation are unrelated to this application; Certificate of public convenience and necessity-- 5. Neither the applicant nor his listed partner, · Investigation of applicant, previously codified . manager or principal of the business has been herein and containing portions of prior code § convicted of a crime substantially related to the 7.62.040, was repealed in its entirety by qualifications, functions or duties of the business Ordinance No. 3638. 201 CBaker~fi¢ld 6-95) 5.10.070---5.10.100 for which application is made, unless 'he has' 5.10.090 Certificate of public con- obtained a certificate of rehabilitation; venience and necessity-- 6. That neither the applicant nor a. ny manager Nontransferable. of the business has done any act involving No certificate of public convenience and dishonesty, fraud or. deceit with the intent to necessity granted pursuant to this chapter shall be substantially benefit himself or another, or transferable. (Prior code § 7.62.080). substantially injure another. 7. The applicant is adequately insured, as 5.10.100 Certificate of public con- required by this chapter; venience and necessity - 8. The applicant has satisfied the requirements Suspension and revocation. of this chapter and has complied with all laws of Any certificate issued pursuant to this chapter the state and ordinances of the city applicable ot the may be revoked by the city manager whenever he proposed business operation; finds: 9. Each ambulance described in the application A. That misrepresentations were made on the will be adequate and safe for the purposes for application; or which it is to be used, is not more than five years B. That the applicant has been convicted of a old and it will be equipped as required by this crime substantially related to the qualifications, chapter and the laws of the state; functions or. duties of the ambulance business 10. The public convenience and necessity unless he has obtained a certificate of require the operation of such private ambulance rehabilitation; or business within the limits of the city; and C. That the applicant has done any act 11. That the applicant has a valid operational involving dishonesty, fraud or deceit with the permit issued by Kern County. intent to substantially benefit himself or another, or (Ord. 3638 § 5, 1995: prior code § 7.62.060). substantially injure another; or D. That any of the terms or conditions of said 5.10.0 7 0 Certificate of public conven- certificate have been violated, or that the business ience and necessity--Notice has been operated in violation of local, state or of decision by city manager, federal law; or The city manager shall give the applicant written E. The certificate holder has abandoned its notice of his decision to grant or deny a certificate operation for the ambulance business for a period of public necessity and convenience within ten of thirty days; acts of God, labor disputes and days of the hearing and shall state the reasons for other acts beyond the control of the certificate his decision.' holder which cause abandonment or limitation of (Ord. 3638 § 5, 1995: prior code § 7.62.070). service shall not be considered an abandonment within the meaning of this section; or 5.10.080 Reserved.* F. No suspension or revocation shall be made effective until a hearing has been held by the *Editor's Note: Former Section 5.10.080, city manager. The certificate holder shall have not Certificate of public convenience and necessityt less than ten days' notice of the hearing by Existing businesses--Presumption of public certified mail. convenience and necessity, previously codified (Ord. 3638 86, 1995: prior code 87.62.100). herein and containing portions of prior code section 7.62.090 was repealed in its entirety by Ordinance No. 3638. (Bakersfield 6-95) 202 5.10.110--5.10.130 5.10.110 Compliance with state law re- 5.10.130 Liability insurance. quired. A. The certificate holder ' shall save, hold No certificate of public convenience or neces- harmless and indemnify the city, its officers, sity shall be issued until satisfactory proof of com- agents, employees and volunteers from all claims, pliance with laws of Kern County, except as to demands, damages, judgments, costs or expenses ambulance rates, and the state in respect to ambu- in law or equity that may at any time arise from, or lance operations is furnished to the city manager, be related to, any work performed by the certificate (Ord. 3638 §7, 1995: priorcode § 7.62.110). " holder under the terms of this section. B. No certificate of public convenience and ne- 5.10.12 0 Ambulance service charges, cessity shall be issued unless there is on file with A. Charges forambulance services shall be set the city an insurance policy approved by the city by the following procedure: manager, whereby the owner and the driver of 1. Any certificate holder may file an applica- each of the vehicles described in the certificate are tion to alter the current rate schedule with the city insured against liability for damage to property and prior to January 1 of the year it wishes the sched- for injury to or death of any person resulting from ule to take effect. Such application shall be filed the ownership, operation or other use thereof. The with the city clerk, accompanied by a proposed certificate holder shall have commercial general Ii- schedule of charges, and a fee not to exceed the ability and automobile liability insurance coverage, cost of processing any such application and re- providing Coverage On an occurrence basis for viewing such rates as set forth in Section bodily injury, including death, of one or mom per- 3.70.040. sons, property damage and personal injury, with 2. The city council must review Charges at a limits of not less than one million dollars per noticed public hearing within sixty days of January occurrence. The liability policy shall contain an 1 of the year in which the rates are proposed to additional insured endorsement in favor of the city, change. The proposed charges shall be published its mayor, council, officers, agents, employees as set forth in section 6062a of the Government and volunteers. The automobile liability policy Code. shall provide coverage for owned, non-owned and 3. At the public hearing, the council may in- hired autos. crease, decrease, accept or alter in any other way C. The insurance policy shall contain an en- the charges as submitted. The charges, as in- dorsement providing that the policy of insurance creased, decreased, accepted or altered by the city will not be cancelled until notice in writing has council, shall take effect on April 1 following the been given to the city, addressed to the City Man- public hearing, ager, City Hall, Bakersfield, California, at least (Ord. 3638 § 8, 1995: prior code § 7.62.120). thirty days prior to the time such cancellation be- comes effective. 5.10.125 Level of service. D. The insurance policy must be issued by a All permit holders in the city. of Bakersfield solvent and responsible company authorized to do shall respond to all calls for ambulance service business in the state. The policy shall further with paramedic-staffed and equipped ambulances provide that there shall be a continuing liability (Advanced Life Support "ALS" service) within the thereon, notwithstanding any recovery on the poi- city of Bakersfield. icy. If, at any time, the insurance policy is can- (Ord. 3638 § 11, 1995). celled by the company issuing the same, or the au- thority of said company to do business in the state shall be revoked, the certificate holder shall replace 203 (Bal~rsfield 3-96) 5.10.140--5.12.010 the policy with another policy approved by the city Chapter 5.12' manager. (Ord. 3293 § 1, 1990: prior code § 7.62.130). BINGO GAMES 5.10.140 Replacement of vehicle. Sections: Annually, each certificate holder shall file with 5.12.010 Definitions. the city manager a description of the vehicle aban- 5.12.020 Permit--Required. doned and a description of the vehicle placed in 5.12.030 Application--lssuancem use. Fee. (Ord. 3638 § 9, 1995: prior code § 7.62.160). 5.12.040 Regulations. 5.12.050 Financial report required. 5.10.150 Appeals. 5.12.060 Revocation. A. Should any applicant-be dissatisfied with 5.12.0'/0 Appeal. the decision of the city manager or his designee not to grant a certificate or for the revocation of a per- 5.12.010 Definitions. mit, then said applicant may, no later than ten days Whenever used in this chapter,' unless a differ- after notice of such decision is deposited in the. ent meaning clearly appears from the context, the United States mail, addressed to the applicant or words set out in this section shall have the follow- permittee at the address provided on the applies- lng meanings: tion, make written objection m the city council set- A. "Applicant" means an association or or- ting forth the grounds for dissatisfaction, where- ganization applying for a permit to conduct bingo upon the council shall hear said objections at a games. regular meeting no later than three weeks follow- B. "Bingo" means a game of chance in which lng the filing of the objection'with the city clerk, prizes are awarded on the basis of designated The applicant shall be given written notice no less numbers or symbols on a card which conform to than three days prior to said hearing. The council numbers or symbols selected at random. Bingo may, upon said hearing, sustain, suspend or over- includes cards having numbers or symbols which rule the decision of the city manager, which deci- are concealed and preprinted in a manner providing sion shall be final and conclusive, for distribution of prizes. B. Pending the hearing before the council, the C. "Eligible organization" means one of the decision of the city manager shall remain in full following: force and effect and any rever~i thereof by the city 1. Organization exempted from the payment council shall not be retroactive but shall take effect of the bank and corporation tax by Section as of the dateofthe council's decision. 23701(a), 23701(b), 23701(d), 23701(e), (Ord. 3638 § 10, 1995: prior code § 7.62.170). 23701(f), 23701(g), and 23701(1) of the Revenue and Taxation Code of the state; 5.10.160 Reserved.* 2. Mobile home park a~sociations; *Editor's Note: Former Section 5.10.160, *Editor's Note: Prior ordinances codified ViolationtPenalty, previously codified herein and include prior code sections 7.12.010---7.12.240 containing prior code Section 7.62.180 was and Ordinance Nos. 2639, 2651, 2834, 3166 and repealed in its entirety by Ordinance No. 3438. 3212. (Bakersfield 3-96) 204 BAKERSFIELD PUBLIC WORKS DEPARTMENT MEMORANDUM TO: ALAN TANDY, City Manager FROM: ~/~ ~ ..EA-UL ROJAS, Public Works Director JACQUES R. LaROCHELLE (~ Engineering Services Manager DATE: AUGUST 2, 1999 SUBJECT: WASTEWATER TREATMENT PLANT#2 Attached are eleven copies of Progress Report No, 16 of the Wastewater Treatment Plant # 2 - Expansion Project, prepared by Black & Veatch. Attachments G :\GROU PDA'I'Wlemo\1999\wwtp2report16.wpd plqO~Iq£$$ I~£pOIqo Ivi~Ig~lq lO l~akervf /eld Wa~teY/ater ~rmtmmt Plant)Va. 2 - £~c#a~ian Jteadwar~ A partnered .pu#c 1999 Prepared by ~l~k ~ V~Ich CONSTRUCTION PROGRESS SUMMARY NUMBER SIXTEEN JUNE 1, 1999 to JUNE 30, 1999 CONSTRUCTION PROGRESS I. Kiewit Pacific Co. performed the following: Site: Paved around the Secondary Clarifiers and Trickling Filters. Partially paved near the Primary Clarifiers and Digester Control Building. Headworks: Installed Bar Screens, Conveyor and Isolation Gates. Operations Building: Cleaned the Tunnel and Wet Well area. Installed P~ebar Dowels for rehabilitation work. Set the new Paw Wastewater Pumps and Motors. Primary Clarifiers: Set Weirs on Primary Clarifier 2. Worked on piping installation in Primary Sludge Pump Station. Trickling Filters: Continue circulating water in Trickling Filters 1 & 2 to maintain the bio-mass growth. Recirculation Pump Station: Mechanically complete Secondary Clarifiers: Mechanically complete Secondary Sludge Pump Station: Mechanically complete Digesters: Installed piping for mix flow pumps at Digester No. 1. Installing piping for Overflow Boxes at Digester No. 3 & 4. Painting piping in the Digester Control Building. 'Started testing pumps in the Digester Control Building. Rehab. Work: Finished mechanical work in the Grit Chambers. Page 1 SIGNIFICANT ACCOMPLISHMENTS · The Bar Screen System at the Headworks was completed. AREAS OF CONCERN The need to have the Headworks, Primary System, and a DigeSter in service so testing can proceed. · Grit Pump Station CHANGE ORDERS Change Order 1 - ($92,342.61) Change Order 2 - ($362,133.82) Change Order 3 - $25,812.87 Change Order 4 - $109,382.45 · Change Order 5 - $45,294.03 · Open Change Order Items · Instrument Revisions Existing Raw Wastewater Pumping Station Structure Rehab. Electrical Cost of By-passing (credit) Omit Generator · Delete Propane Gas Line to Waste Gas Flare · Demolition ofductbank East of the Primary Sludge Pump Station and installation of the PSL line. · Knife Gate Installation in RWWPS Drywell · HVAC revision at RWWPS HVAC modification to Headworks · Modify relay wiring at RPS (RFI #138) · Modified Digester Control · ' Modify Effluent Sampler Instrumentation Page 2 REQUEST FOR INFORMATION · 156 RFI's have been received/processed as of June 30, 1999. · 6 Days on average turn around. SHOP DRAWINGS · 364 Shop Drawings have been received/processed as of June 30, 1999. · 11 Days on average turn around. Raw Wastewater'Pump Stat/on Pump Room PLANNED ACTIVITIES FOR JULY 1999 Site: Start installing the Public Address System. Headworks: Complete checkout of Supervisory Control System for the Bar Screens and Conveyor. Raw Wastewater Pump Station: Gunite the Raw Waste Pump Station Wet Well and Tunnel. Startup of the Raw Waste Water Pump Station Pumps. Digesters: Set Mix Flow Pumps at Digester No. 1. Finish piping at Overflow Boxes on Digesters 3 & 4. Page 3 Supervisory Control System: Finish checkout on the Grit Pumps and Bar Screens. Do loop checks on equipment in the Digester Control Building. Primary Sludge Pump Station Page4 CONSTRUCTION PROGRESS SUMMARY DESCRIPTION STATUS Notice to Proceed Dated February 9, 1998 contract Time, Calendar Days 730 Original Completion Date February 8, 2000 SUbstantial Completion Date 'May 7, 199~ Time Extensions Approved " 69 Days Revised Completion Date March 12, 2000 Original Contract Amount $2~,239,800 Change Orders Approved (315,056.38) Revised Contract Amount $28,920,518.89 Amount Earned This Period $27,862,755.62 Amount Earned to Date $28,177,812.00~ Percent COmplete, $ 96.37 Calendar Days Used 507 Percent Complete, calendar Days 66.80 Digester Heat Exchanger 99-315 Page 5 From: Gene Bogart. To: Alan Tandy Subject: Rosedale We met again this week with the Rosedale and Kern Water Agency-people regarding the water recharge test ponds east of Allen Road. All parties have agreed to the method of constructing and measuring the ponds. We expect the earthwork to be completed by the end of next week, with water started into the ponds during the week of August 23rd. The total test program should take 60 days, with our final report out in November. I.D. 4 and Rosedale Rio-Bravo are going to supply the water for the test ,: AUG- 1999 [ " B AKE R S F I E LD CI~ CLERK'S OFFICE MEMORANDUM August 5, 1999 TO: Alan Tandy, City Manager FROM: Pamela A. McCarthy, City Cler~ SUBJECT: Public Access to Information In May 1999, I responded to a request from Council regarding the public's ability to readily access City information. I am pleased to report that we now have a computer located at the Clerk's front counter which provides instant access to over 12,000 official City records including Council Minutes, Agendas and Administrative Reports. With this computer, Citizens can easily research information and obtain printed copies of the documents in a matter of minutes. Staff will be available during normal business hours to assist the public in using the system. pmc cc: John Stinson, Assistant City Manager Alan Christensen, Assistant City Manager S:\MEMOS\TANDY\PUBINFO2.wpd DEPARTMENT OF RECREATION AND PARKS DATE: August 5, 1999 TO: Alan Tandy, City Manager FROM: Stan Ford, Director of Recreation and Parks SUBJECT: Monthly Report for July Attached are monthly reports from the recreation supervisors, recreation specialists, and from the park superintendent. Also attached is a report of participation numbers from individual recreation programs. The aquatics report includes a graph that indicates attendance at the pools for recreational swimming through the end of July. Previous correspondence highlighted the Pacific Yo-Yo ChampionshiPs and the operational audit of the aquatics program that occurred in July. Additional detail is available if needed. c: Citizens' Community'Services Advisory Committee Alan Christensen, Assistant City Manager John Stinson, Assistant City Manager i! /~UG - 5 1999 MONTHLY REPORT - JULY 1999 Linda McVicker 1. David Stricker, who is a Cai Poly student, completed his internship in Recreation Administration with our department. He gained experience in many areas including organizing concerts, rtmning a community center, conducting staff training, coordinating leisure classes and working at special events. His internship teacher from Cai Poly was pleased with the variety of programs that David was introduced to and is interested in sending other students to our department to Complete their internship. 2. Leisure Class Attendance: Class Total Participants Monthly Attendance Aquamotion 32 178 Art Studio 15 58 Ballet & Gymnastics 15 59 Cycling 4 4 Clogging 19 35 Drum Lessons 4 16 Dance & Gym 44 173 Dog Obedience 9 72 Golf 12 48 Harmony Road Music 1 1 Hawaiian Dance 7 28 Jazzercise 20 125 Jazz & Gymnastics 19 76 Karate 3 12 Pressed Flower Workshop 11 11 Rollerskating 9 36 Spanish 4 16 Tennis Lessons - Children 12 96 Tennis Lessons - Adults 7 56 247 1,100 3. The Silver Creek Center was rented 5 times during the month of July. It was rented for a wedding reception, two baby showers, a family reunion and a church concert. The total attendance for rentals was 600. 4. The Silver Creek Day Camp is full for all five sessions. A total of $39,672 has been collected in registration fees. The theme for this session was Christmas in July. The campers put up a Christmas tree, made Christmas ornaments and sang Christmas songs. Other activities included a trip to a roller rink, swim lessons and sports activities. 5. The Beale Park band concert series continued throughout the month of July on Sunday evenings at 8:00 pm. Attendance at the concerts fluctuated between 500 to 800 participants depending on the weather. The 4~h of July concert was by far the most popular. The Mayor presented the conductor, Wesley Moore, with a plaque thanking him for his fifty years of service to the community. Other activities included dancing before the concerts by various groups including swing, square, and hula dancing. These traditional concerts have been popular for 60 years. 6. The High School Summer League ended July 12. The boy's football passing league had a total of 7 teams with approximately 140 participants. The spectator attendance was approximately 200 per league game. The boy's basketball league had a total of 32 teams with approximately 480 participants. The spectator attendance was approximately 250 per night. with a total revenue of $6345. The girl's basketball league had a total of 30 teams with approximately 360 participants. The spectator attendance was approximately 200 per night with a total revenue of $6000. 7. The concerts at Silver Creek are being held on Tuesdays at 7:30 pm. Four bands played in July including Lucky Strikes playing swing music, Southside Chicago Seven with jazz, the Love Sick Prairie Dogs playing country music and the Mike Montano Band playing blues. Average attendance at each concert has been 250. Upcoming concerts include Friends of the Man singing gospel music on August 3fa, and MentoBuru playing reggae on August 10th. 8. Total attendance for the Silver Creek Center in June: Leisure Class ......................... 1,015 Day Camp ............................. 1,250 Rentals .................................... 600 2,865 DATE: August 2, 1999 TO: Stan Ford, Director FROM: Tim Ruiz, Recreation.Supervisor RENTALS $470 was collected in rent for the month of July- 1999 FITNESS ROOM 532 Participants month of July GAME ROOM 972 Participants month of July GYM 928 Participants month of July TENNIS 16 Participants month of July (Saturday's only) WOMEN'S EXERCISE Unavailable at this time LUNCH PROGRAM 6,965 Participants month of july NJTL TENNIS PROGRAM 663 Participants month of July MARTIN LUTHER KING COMMUNITY CENTER Listed below are activities the camper's enjoyed for the month of July. July 2nd Freddy the Fireplug July 8t~ Viva Mexico Show July 9t~ Skate land and yo-yo presentation July 14~ Kern School Credit Union July 16th Organ presentation July 23rd Buena Vista Museum July 28tl~ Kern School Credit Union July 29th Calm Bird presentation July 30th Skate land Spotlight Event - 2na Annual Summer Talent Show The summer talent show was held in the Gym on July 29~ from 6:00 p.m. to 7:30 p.m. Thirty youths, ages 6 - 17 years of age danced, sang and performed for a packed gym of 300 spectators. The event was a total success. Rich in culture, support and participation from the community. Plans are under way.to expand the talent show to a fall spring & summer schedule for 1999 - 2000. Sent By: Lowell Neighborhood Center; 805 6318928; Aug-4-@9 2:55PU; Page 1/1 LOWELL COMMUNITY CENTER JULY' MONTHLY REPORT 1999 DANCE CLASSES: TOTALS SALSA CLASS: 160 DANCE CLASS: 88 LOWELL CENTER: SUMMER CAMP 441 (JUL 1'~' - JUL 16'"') AFTER SCHOOL 486 School began again thc middle of July and the al'ret school attendance has already started picking JULY 1999 MONTHLY REPORT Submitted by: Sally Ihmels AQUATICS AREA Aquatic Staff Update · Three new Lifeguards/Swim Instructors were hired this month. · July performance evaluations were handed out to the aquatic staff. · Internal audit of monetary control system at pools was conducted. · Planz pool staff earned "pool of the session" honors for session two. · Sent out staff survey to manage Fall Aquatic programs. Summer Program · Cumulative Recreation Swim Attendance for the pools is 30,133~ Attendance is broken down by pool on the attached graphs. · Recreation swim income for all the pools is approximately $2,870.73 (this does not include day camps) · Various pools were closed for specified days during the month. Most closures were the result of fecal accidents. The report is attached. · Currently developing operations manual and winter maintenance schedule for the aquatics program. · Developing next year's training schedule and recruiting additional staff to become Ellis & Associate's trainers. · Sent out Swim Team and Swim Lesson evaluations to parents. · Informally met with swim team parents at Siemon Pool to discuss concerns they had with our program. SPECIAL EVENT AREA · A recreation meeting was held to brainstorm about corporate involvement in special events. · Developed a sponsor target list and system for seeking sponsorships. · Working on a few new special event ideas for spring/summer. MONTHLY REPORT -July 1999 RECREATION- Terri Elison, Recreation Specialist 1. I helped coordinate the Pacific Coast Yo Yo Championship on July 10, 1999 at Silver Creek RecreatiOn Center. * Attendance was estimated at 500 spectators. * Competitors came from throughout the state as well as out of state. * There were 7 categories of competition plus the Bakersfield City Championship 2. I coordinated the Summer Carnival at Wilson Park on July 20th from 5-7:30 p,m. * Attendance was estimated at 250 * There were 16 activity booths, a City Fire Truck, and a food booth run by a non- profit organization. * Entertainment was provided various community groups. 3. I have been working on the after school playground program-Bakersfield B.E.S.T. * Assisted in getting Greenfield Union School District contract for 1999-2000. * Working on staff recruitment and participated in Greenfield Union School District's Job Fair at Valley Plaza on 14th. * Participated in several days of assessment interviews for new staff. * Working with both the Greenfield Union School District and Bakersfield City School District in preparing to implement the program by their start dates. 4. Dean and I have been coordinating the Summer Game Centers and Teen Center. The Teen Center had to close a week earlier due to some maintenance problems at BHS. The Teen Center's attendance was Iow this year but we hope to build on 'these numbers for next year. Highlights of this program were: * Tournaments were held at a different site each week with Wayside Park just edging Greenfield Jr. High for first place standings over-all. * A Star-Search Talent Show for all sites was held on July 30th at Jastro Park. There were 12 different performers showcasing their singing and dancing abilities. * Greenfield Jr. High enjoyed a field trip every Thursday in July to Planz Pool. * Greenfield Jr. High also were bused to Fairview School for their daily lunch program. * Demonstrations to various sites in July by the Bakersfield City Fire Department, Operation Railroad Lifesavers, and the Probation Department. * Water sports, arts and crafts, games, and parties were some of the activities this month. Washington Middle School Total Attendance for June: 1011 Wayside Park Total Attendance for July: 1695 Jastro Park Total Attendance for July: 401 Greenfield Jr. High Total Attendance for July: 1384 Teen Center at BHS . Total Attendance for July: 35 Monthly Report---July 1999 Recreation Jeannette Triscuit, Recreation Specialist 1. The Pacific Yo-Yo Championships was held on July 10~ at Silver Creek Community Center. Over 100 competitors and over 500 spectators were at the event. Worked with John Stangle and Bill de Boisblanc with media coverage on Friday, July 9th. Attendees came from as far away as Adzona, Tennessee, Oakland, Hollywood, and even Germany and England. Dale Oliver, the first Yo-Yo Grand Master, made a special appearance to participate in the event. 2. Participated in the Twilight Swim at the Martin Luther King Center Swimming Pool. Served over 80 teens with a entertaining free swim from 6:00-8:30 p.m. on July 27,' 1999. 3. Assisted with the Martin Luther King End of the Summer Talent Show. There were over 10 youth groups that performed. All groups received awards for their hard work. Over 250 people came for the event on July 29, 1999. 4. Supporting Tim in staff coverage of the Lowell center, specifically in the closing of the facility. 5. Supported the Camp King and Lowell Day Camp programs. Dealt with staff needs and scheduling problems. 6. Participating on the Department Newsletter committee. 7. Assisted staff by developing flyers for a variety of different activities and events. MONTHLY REPORT' July 1999 Holly Larson, Recreation Specialist · Developed seven new leisure classes including country two-step, ballroom two- step, ballet, jazz, acrobatics and tap dancing. Classes will begin in September. · Coordinated event logo and poster for River Front Jazz. · Began meeting with Halloween Haunted Trail committee on July 15. · Prepared sponsorship packets and submitted to Pepsi and Flashco. Flashco has agreed to sponsor the Halloween Haunted Trail event. ° Gearing up for the beginning of the first ever Rockin' By The River concert series starting on August 17 at Yokuts Park with Eddie and The Brush Fire. Leisure Class Attendance: Class Total Participants Monthly Attendance West Coast Swing 26 88 Yoga 14 48 DEPARTMENT OF RECREATION AND PARKS DATE: August 3, 1999 TO: Stan Ford, Director of Recreation and Parks FROM: Mike Doyle, Assistant Parks Superintendent SUBJECT: July Monthly Report GREEN WASTE SITES In a effort to minimize the dump fee cost while complying to the recycling initiative, selected sump sites have been chosen as green waste dump sites. Concrete pads, of appropriate size will have to be place at the entrance of each sump. This will be done to eliminate the scooping of dirt up while picking up the green waste. Originally, there were approximately 13 sump sites selected. However, the cost was too prohibitive, and the amount of sites was reduced to 6. The primary reason for selecting sump sites is that it affords fenced-in and isolated areas that are not easily contaminated by the public (i.e., litter) . Presently, the majority of · trimmings and debris from the day's labor duties are dumped in the parking lot of a park in close proximity of the work. Two negative circumstances arise from this present practice. The first is the contamination of the dump site from lifter. The second is that the dump site is a undesirable addition to an other pleasing park. This project does not come without challenges. As a result of eliminating dumping in parks, the travel time to designated sumps lessens productivity. Furthermore, the necessary criteria for acceptance of debris at the recycling site is very high (e.g., separation of grass from limbs, no litter, etc.). We continue to work with Solid Waste and well as with our department to mitigate this situation. PARK INSPECTIONS, July was the beginning of a formal and documented inspection schedule for all park and maintenance assignments throughout the city. Conducted by the parks assistant superintendent, the area supervisors, and the park maintainer III's, these inspections are designed to collaborate several perspectives on existing maintenance practices and to monitor our progress in meeting standards. A month after the Parks Standards & Operations Manual was distributed to the park employees, the area maintainer IIl's began a documented monthly evaluation of each assignment. In conjunction, the assistant superintendent, completes a thorough, item by item inspection sheet for each assignment. This inspection sheet is given to the area supervisors who, along with the maintainer IIl's evaluation determines steps to take if the particular assignments are not meeting standards. July has shown a marked improvement relating to meeting the standards. It seems as if this new process will be a positive contribution to the department and the city. BRINGING RIVER LAKES BACK TO STANDARDS Recreation and Parks employees have be working hard and overtime in response to Riverlakes Ranch Master Association concerns in the Riverlakes area. Specifically, along Riverlakes, Olive and Southshore Drive and along Coffee Road, extensive and detailed maintenance procedures have met With positive remarks from the Riverlakes Association. The restoration of the area included extensive trimming and removing of. shrubbery along Riverlakes.and Southshore Drive. Herbicide applications and replacing groundcover occurred on Olive, Riverlakes Drive and Coffee Road. Additional trees have been ordered to be placed along Southshore Drive. Monthly reports will be sent to the associate through Pacific Management Company to foster an agreed upon communication system. SOD AT THE PLAZA As a result of continuous problems with fungus, irrigation needs, and intolerance to pedestrian traffic, the fescue lawn at the Centennial Plaza was replaced with a hybrid bermuda turf. The hybrid turf is one that is not as plagued with fungus problems, does not require as much irrigation, and can tolerate pedestrian traffic. During the winter months, a perennial rye will be placed to maintain a green and aesthetically pleasing turf. ADDITIONAL AREAS TO MAINTAIN Additional acreage responsibilities were taken on in mid-July. Streetscapes along Noriega and Verdugo Road received final acceptance on July 15, 1999. *,RECREATION & PARKS MONTH OF: July 1999 ATTENDANCE REPORT SUMMER BROCHURE 1999 ACTUAL REGISTRATIONS ATTENDANCE A QUA TICS: Lap Swim 25 150 Jr. Lifeguard 0 53 Recreational Swim 0 20,965 Swim Team 219 437 Swim Lessons 237 1735 Private Lessons 12 12 Semi-Private Lessons 3 3 ACTUAL REGISTRATIONS ATTENDANCE AFTERSCHOOL PROGRAMS: Lowell N/A CLOSED MLK N/A CLOSED Silver Creek N/A CLOSED City Schools: Casa Loma N/A CLOSED Frank West N/A CLOSED Munsey N/A CLOSED Jefferson N/A CLOSED Sequoia Middle N/A CLOSED Stella Hills N/A CLOSED Washington Middle N/A CLOSED William Penn N/A CLOSED Greenfield: Fairview N/A CLOSED Kendricks N/A CLOSED McKee Primary N/A CLOSED 'Palla N/A CLOSED Planz N/A CLOSED Plantation N/A CLOSED ACTUAL REGISTRATIONS ATTENDANCE SPORTS: Adult Basketball Tournaments 0 Pending Adult Tennis Social 8 6 Higi'i School Summer League 0 3461 Sand Volleyball 0 Pending Softball 0 38 teams T-Ball 0 COMPLETE ACTUAL REGISTRATIONS ATTENDANCE SUMMER CAMPS: Lowell N/A 486 MLK - Camp King N/A 100 Silver Creek - Day Camp N/A 120 Summer Teen Center N/A 35 Summer Game Centers: Jastro Park N/A 401 Washington Middle N/A 1011 Greenfield Jr. High N/A 1384 Wayside Park N/A 1695 ACTUAL REGISTRATIONS ATTENDANCE MARTIN LUTHER KING CENTER: Aerobics N/A 0 Adult Sunday Basketball N/A 178 , Free Lunch Program N/A 6965 Fitness Center N/A 532 Gymnasium N/A 928 Game Room N/A 972 'NJTL Tennis N/A 663 Tennis Lessons N/A 16 ACTUAL REGISTRATIONS ATTENDANCE CONTRACT CLASSES: Aquamotion 60 178 Art Studio 2 15 Ballroom Dancing N/A 0 Calligraphy 1 Pending Cycling 1 4 Clogging 73 12 Dance Classes 38 85 Dog Obedience 10 Pending Drums I 5 Golf 3 15 Hawaiian Hula 3 7 Harmony Music I 1 In-Line Skating 0 Pending Jazzercise 6 6 Karate 4 3 Pressed Flowers 11 11 Rollerskate 2 Pending Scrapbook 1 Pending Spanish 0 5 Self Defense 0 0 Salsa 17 17 Swing Dance 35 88 Tahitian Dance 0 Pending Tennis - Adult 7 16 Tennis - Kids 13 30 Yoga 14 48 '~ _ ACTUAL REGISTRATIONS ATTENDANCE CITY-WIDE EVENTS: All Nations Celebrations: April 6 N/A 375 April 13 N/A 372 April 20 N/A 375 April 27 N/A 375 May 4 N/A 300 Bakersfield Regatta: June 19 N/A 1800 Beale Park Band Concerts: June 13 N/A 550 June 20 N/A 700 June 27 N/A 800 July 4 N/A 500 July 11 N/A 800 July 18 N/A 7O0 July 25 N/A 800 Camp Fair 99: April 7 NIA 50 Family Fun Days: June 26 N/A 25 July 24 N/A Cancelled Mozart for Mom: May 9 N/A 600 Musicfest 99: July 6 N/A 250 July 13 N/A 250 July 20 N/A 250 July 27 N/A 250 August 3 N/A Pending August 10 N/A Pending Pacific Yo-Yo: July 10 N/A 600 Rockin by the River: August 17 N/A Pending August 24 N/A Pending August 31 N/A Pending Summer Carnival: July 20 N/A 250 'Development Services Notes August 2, 1999 1. Building activity continues at a strong pace. We will likely surpass all previous record years by Fall. This applies not only to residential but also to commercial projects. Some examples are: Campus Center at 9100 Ming Ave. 60,000 sq ft of office space valued at $2,800,000 SC Anderson contractor Vans Skate Park at 3737 Rosedale Hwy. 50,000 sq ft of recreation space valued at $1,500,000 Brookstone of'Temecula contractor Mercedes-Benz Auto Dealership at 5600 Gasoline Alley Dr. 38,000 sq ft of retail space valued at $1,600,000 Valley Steel contractor Tahoe Joe Restaurant at 9000 Ming Ave. 6,000 sq ft of dining valued at $400,000 Pickett & Sons of Fresno contractor 2. We have made quite a bit of progress on strengthening unreinforced masonry buildings. Bakersfield had 199 original URM Buildings and through annexations added five more totaling 204. To this date we have 37 buildings that have not obtained permits for compliance to our Earthquake Hazard Reduction Ordinances. This list includes twenty two (22) buildings east of Union Avenue including thirteen (13) empty structures; fifteen (15) buildings west of Union Avenue including five (5) empty. The remaining nineteen (19) buildings are used as follows: E. of Union W. of Union Apartment .............................................................. 1 .............................. 0 Retail ..................................................................... 2 .............................. 6 Office ..................................................................... 3 .............................. 1 Church ................................................................... 0 .............................. 1 Light Manufacturing ............................................... 2 .............................. 0 Warehouse ............................................................ 1 .............................. 2 Many of the empty structures are deteriorating to a dangerous status due to lack of maintenance and we may need to begin securing or demolishing them. 3. Our code enforcement program is receiving state wide recognition. Terry Buss, Code Enforcement Officer, was hosted by the State to be a speaker at the 21st Annual Enforcement Symposium on Cross Media Training. We have received a second year's grant of $28,510 from the State Solid Waste Management Board for waste tire enforcement. ', AUG - 5 1999 !, 2 B A K E R S F I E L D ® 1990 TO: Alan Tandy, City Manager FROM: Stan Ford, Director Of Rec. & Parks DATE: July 14, 1999 SUBJECT: Follow Up Of Riverlakes Ranch Compliant Of Maintenance Practices Staff members Lee Ochoa, Mike Doyle and Allen Abe met with the Riverlakes Ranch Association Board of Directors July 13, 1999 to discuss some of the concerns expressed at the Maintenance District Hearings on June 16, 1999. Lee Ochoa and his crews spent time removing ill placed plant material, trimming of shrubs, removal of hard to maintain ground cover and other enhancing items. The crews then graded those open areas, applied pre-emergent chemicals and re-planted ground cover and other landscape materials. We reviewed this with the Board and they were satisfied with the changes that were made at Olive and Riverlakes Blvd. They asked us to continue the renovation along Southshore since it was such a high visibility area and we agreed. Some of the other areas discussed were: -How the yearly maintenance period process works between the developer and the City. -When hOmeowners want a tree removed along the block wall at their back yard all requests will go through the Association and then to the Citv. -If homeowners see any landscape problems they need to ca, the Parks Department so those problems can be addressed immediately. -On a monthly basis this department will send a summary of maintenance activities, maintenance concerns and other items of interest. After our presentation and discussion of the various issues the Board appeared to be satisfied with the various items presented to them. In earlier telephone conversations Mr. Dave Stanton has told us his satisfaction with the progress of the maintenance that is being done in the Riverlakes area. jq~T,Y MANAGER'S OFFtC~:! RECREATION AND PARKS 4101 Truxtun Avenue · Bakersfield · California o 93309 (805) 326-3117 o Fax (805) 861-0864 American Planning Association Planning Advisory Service PAS Report Number 485 Lane Kendig is the president of Lane Kendig, Inc., in Mundelein, Illinois. Lane Kendig, Inc., provides consulting services to regional agencies, local governments, and developers. It is an interdisciplinary firm with experience in land-use planning, growth management, housing, environmental planning, zoning and land-use controls, design impact analyses, and feasibility analyses. Research in the areas of land use, community character, suburban design, and environmental protection is an important aspect of the firm's practice and enhances its ability to provide state-of-the- art land-use controls. The firm has received awards for public plans and projects, including The Fields of Long Grove, a 160-acre residential development, which won the Best in American Living Award from the National Homebuilders Association, Better Homes and Gardens, and Professional Builder magazines. Mr. Kendig was formerly director of planning, zoning, and environmental quality for Lake County, Illinois, and former director of community planning for Bucks County, Pennsylvania. He is also the author of Performance Zoning (APA Planners Press, 1980) and Planning Advisory Service Report No. 405, New Standards for Nonresidential Uses. Stephen Tocknell, AICP, was educated at the University of Pennsylvania and at Northwestern University, where he received an MS in transportation. As a principal of Tocknell and Associates since 1982, Mr. Tocknell was a member of the consultant team that developed a growth management plan for Williamson County, Tennessee, in the wake of General Motors' location of its Saturn auto assembly plant at Spring Hill. Tocknell and Associates also developed a transportation plan for Columbia Tennessee, the largest city in the county where the Saturn plant is actually located. Besides providing continuing transportation planning technical assistance to Williamson County and the City of Columbia, Tocknell and Associates assists six other local governments involved in the Nashville area and has been involved in transportation studies for other small cities in Tennessee and Kentucky. Mr. Tocknell is the former chairman of Transit Now-Nashville and is currently the vice president of the Tennessee chapter of the American Planning Association. Cover design by Toni Thanasouras Ellis. This report is printed on recycled paper. The Planning Advisory Service is a subscription service offered by the Research Department of the American Planning Association. Eight reports are produced each year. Subscribers also receive the PAS Memo each month and have use of the Inquiry Answering Service. Frank S. So, Executive Director; Sylvia Lewis, Publications Director; William Klein, Director of Research. Planning Advisory Service Reports are produced in the Research Department of APA. James Hecimovich, Editor; Marya Morris, Assistant Editor; Lisa Barton, Design Associate. © March 1999 by the American Planning Association. APA's publications office is at 122 S. Michigan Ave., Suite 1600, Chicago, IL 60603. E-mail: pasreports@planning.org. APA head- quarters office is at 1776 Massachusetts Ave., N.W., Washington, DC 20036. Contents The Traffic Shed Concept ........................................................... I Shortcomings in Growth Management Strategies for Rural Areas .......... 3 Using Traffic Sheds as an Alternative Growth Management Strategy in Rural Areas ..................................................................... 5 Traffic Shed Regulation ............................................................. 7 Seven Development Options under Traffic Shed Regulation ................. 9 A Case Study: Williamson County, Tennessee .................................. 17 Other Communities Using Traffic Sheds ......................................... 21 Summary .............................................................................. 23 Lane Kendig with Stephen Tocknell, AICP S h ontrary to conventional wisdom, many rural communities located on Traffic.,_,_ __ eds, (t!~ the fringes of metropolitan areas share a thorny traffic problem with their urban counterparts: the road network simply cannot support 8oral n~gnway additional development. Rural roads may be narrow, winding, or unpaved, sometimes featuring one-lane bridges or even fords--all charac- Cp ity teristics that merit a substandard rating. The problem is not limited to a a c , areas where the network has an irregular configuration; it also occurs d Growth where the road pattern is a grid or partial grid configuration. Thecharac- an teristics of the individual road and network pattern result in some rural communities having road networks that are simply inadequate. Mana§ement While planners may expect road network failure in rural counties that pay scant attention to planning or zoning matters, a regulatory system does not guarantee immunity from the problem. Many zoned communi- ties with such problems share a common large-lot zoning pattern that allows residential development across large areas of the community. The lot-size minimums range from one to five acres. Neither zoning nor sub- division controls can protect a community from network failure if such large lots result in densities that do not relate to network capacity. Exemp- tions to subdivision controls that promote strip development and a lack of curb-cut restrictions are other examples of unintended regulatory conse- quences that can lead to growth beyond the rural road network's capacity. While many rural communities use large-lot zoning to promote farm- land preservation, in reality it often results in low-density residential development. Where low-density residential zoning exists at the outer edges of a metropolitan area, the first stages of development are single lots carved off road frontages or development of small, 3- to 10-lot subdivi- sions. The result: a pattern of scattered development throughout the area, necessitating widespread public improvements. The cost of improving a large percentage of these rural roads, however, exceeds the fiscal resources of most rural counties. In some cases, fiscal conservatism is to blame for failing to make needed upgrades to roads. In other cases, however, the roads have not been upgraded because they were perfectly adequate for the rural farm community. In yet other cases, scenic or historic concerns mandate that the road pattern be maintained in the face of encroaching development. THE TRAFFIC SHED CONCEPT Using the concept of a traffic shed to do transportation network analysis may provide an answer to these problems. This concept will be new to most planners, although it is being used as a regulatory tool in Williamson 2 Traffic Sheds, Rural Highway Capacity, and Growth Management County, Tennessee. The traffic shed has been used in planning in Loudoun County, Virginia; Nantucket, Massachusetts; Fayette County, Kentucky; Woodford County, Kentucky; and Miami County, Kansas. Blue Grass Tomorrow, a nonprofit planning organization based in Lexington, Ken- tucky is recommending traffic sheds in their seven-county plan. The traffic shed concept can be Somewhat analogous to the familiar concept of a watershed, the traffic applied as both an analytical shed concept stems from the premise that rural residents use the township system and a regulatory approach, or county roadways to get to major arterials (typically state or federal high- Implementing the system requires ways) upon which they commute to their jobs. It is essential to the traffic only that planners calculate road shed concept that the commutation pattern on the arterials be largely uni- capacity using standard transportation methodology, directional. Thus, the flow of traffic down the rural road to a major arter- ial is similar to the flow of water downstream from a creek to a river--hence, the term "traffic shed." These major roads may be as much as 10 miles apart, requiring travelers to drive up to five miles on a rural road to reach the arterial. The traffic shed concept can be applied as both an analytical system and a regulatory approach. Implementing the system requires only that planners calculate road capacity using standard trans- portation methodology. If traffic flows in various directions (into the central city and circumfer- entially), as it does in many suburban communities, a trip distribution pro- gram and transportation model, rather than the traffic shed model, are needed. As shown in Figure 1, the rural road network has two components: rural highways functioning as major arterials and rural farm-to-market roads connecting to the main roads. Nearly all rush-hour trips entail commuters using a rural road to access the nearest arterial that leads to their jobs in the nearby city. Thus, the rural roads can be treated like a first-order stream draining to the larger stream. Like a watershed, the traffic shed is the land area that generates the traffic that flows to the road. If there are no physi- cal constraints, traffic shed boundaries would be halfway between two roads. Railroads, streams, Fioure 1. The Rural Road Network and ridge lines are physical features that can warp the boundary between two traffic sheds. As is for- mulated in the latest edition of the Transportation Research Board (TRB) Highway Capacity Manual, road capacity is based on width and number of lanes, percent of road where there is no passing, to City directionality of travel, and proximity of obstruc- ~ tions to the pavement. Two other factors that may need to be factored into the manual's methodology when considering rural road networks are one-lane roads and differentiations based on type of paving. Substandard widths and problems with the vertical and horizontal alignment of the roads, whether paved or unpaved, can limit the ability to pass slow-moving vehicles (particularly large farm vehi- cles) and decrease capacity, and must also be con- sidered. Determining road capacity is the first critical ele- ment of conducting a traffic shed analysis. The sec- ond critical element is determining the traffic shed area for each rural road. Knowing the area of the traffic shed and the capacity of the receiving rural road makes it possible to determine the amount of Traffic Sheds, Rural Highway Capacity, and Growth Management 3 development that can be supported overall. The amount of supportable development is expressed in term of traditional density measures (i.e., dwelling units per acre). Readily available, per-unit, peak-hour trip gen- eration factors from the Institute of Transportation Engineer's Trip Genera- tion manual can be used to convert trips on a one-trip-per- one-dwelling-unit basis. (Note: Nearly all development within the traffic shed will be residential.) Thus, dividing the traffic shed area by the num- ber of dwelling units yields the number of acres required per dwelling unit. Inverting this ratio (i.e., dividing the number of dwelling units by the traffic shed area) yields dwelling units per acre. As noted above, the critical elements affecting the results of the analysis are road capacity and traffic shed area. Inadequate roads minimize capac- ity, while improvements increase capacity. For any road, a large traffic shed will result in lower densities than will a smaller traffic shed. Because of this fact, a viable strategy for large landowners with arterial frontage is to build a new road, thus shrinking the size of the applicable traf- fic shed. (See Figure 2.) A new traffic shed must be mapped, its Figure 2. Road Construction area deducted from the parent traffic shed, and both sheds' capac- Shrinks a Traffic Shed ities recalculated accordingly. Note that this approach increases the capacity for the developer and the landowners in the rest of the traffic shed. The traffic shed analysis is also a planning tool that can educate officials about the relationship between planning, zoning, and road capacity. Where road capacity is limited, the two major options for avoiding congestion or dangerous conditions are to build new infrastructure or to limit density. This information can inform capital improvement or planning debates as to the nature of the problem and possible solutions. If nothing else, the traffic shed is a useful analytic tool that can be applied to growth man- agement issues where transportation is a critical element. SHORTCOMINGS liq GROWTH MAFIAGEMEFIT STRATEGIES FOR RURAL AREAS What can be done to get control of situations in which growth is stressing the road system and the community is falling behind in providing new or improved roads? While some very obvious solutions to the problem of inadequate infrastructure and growth exist, they are often difficult to implement. A rural county plan- ner's logical approach is to recommend a growth management plan that contains development within an urban growth area. Concentrating growth in a small fraction of the rural area greatly reduces the miles of needed road improvements and, thus, the public cost of devel- opment. Even though the growth in rural counties may appear immense when expressed in terms of percentage increase over time, in absolute terms, the total amount of rural development is probably modest enough to fit in a fairly compact area. Under typical growth management plans, the remainder of the county not designated for infrastructure improve- ments and future growth is zoned for agriculture or low-density residen- tial (e.g., one unit per 30 to 40 acres). In this scenario, the road network's capacity to accommodate growth can be sustained in part because little or no residential development actually occurs at such low densities. The urban growth boundary concept is so simple, obvious, and rational that it should be a standard tool used by rural fringe counties everywhere. Reality shows us that strong growth management systems are the excep- 4 Traffic Sheds, Rural Highway Capacity, and Growth Management The urban growth boundary concept tion rather than the rule. In fact, most rural counties with zoning have a is so simple, obvious, and rational rural district that permits residential uses on one- to five-acre lots. This that it should be a standard tool density is spread liberally throughout the county and becomes the default used by rural fringe counties plan. Even counties with plans touting their strong growth management everywhere. Reality shows us that orientation often have zoning that permits one-half-acre to five-acre lots strong growth management systems are the exception rather than the outside the urban areas. For example, one county with such a plan not rule. only permits one- to three-acre lots everywhere, but also exempts lots with three or more acres from subdivision if the lot frontage is greater than 150 feet. The result is that most development is stripped off on three-acre lots to avoid subdivision review. The idea of downzoning much of a county to steer development into an urban growth boundary has not fared well, except where this type of planning is mandated. Faced with difficulty implementing urban growth limits and land-use solutions, planners throughout the country have tested other strategies. Most suburban planners have turned to impact fee systems. Impact fees work best in cities or high- growth or heavily populated counties. These communities experience enough growth that the revenues generated from impact fees actually pay for major transportation improvements. Heavily developed suburban counties (i.e., counties that are more than half built out) may also find that impact fees meet objectives. Road impact fees are least likely to fulfill expectations in suburban and exurban counties with substantial remaining development potential. In the absence of urban growth boundary controls, sprawl results in the need for more improved lane miles than the impact fee system revenue stream can finance. A quick reality check confirms the A quick reality check confirms the futility of relying on impact fees in a futility of relying on impact fees in a growing rural county. First, calculate how many miles of road might be growing rural county. First, improved over a 20-year period and then allocate the cost to the projected calculate how many miles of road residential growth. The resulting road impact fees will be so high that they might be improved over a 20-year will have a severe impact on landowners and the market. In Miami Coun- period and then allocate the cost to the projected residential growth, ty, Kansas, where 80 percent of the roads were gravel, the road impact fee The resulting road impact fees will required to make needed improvements over 20 years equaled about be so high that they will have a $30,000 per lot. This figure, while defensible in terms of planners' abilities severe impact on landowners and to document the costs beyond a reasonable doubt, is so high that it stretch- the market, es credibility and becomes legally suspect. Experience indicates that, for road impact fees to succeed in rural counties, they must be used in concert with an urban growth boundary. Impact fees alone are inadequate to address rural road problems. Adequate facilities ordinances, another growth management tool, are intended to maintain development at a level consistent with an area's infrastructure. In this system, development stops when the capacity of the road is exceeded. Adequate facilities ordinances are based on a first-come, first-served philosophy. As long as capacity remains, the landowner can obtain permits as allowed under current zoning. Once capacity is reached, no more permits are issued. Since the possibility of being refused permis- sion to build strikes many landowners as draconian, adequate facilities ordinances are rare. Moreover, as the developers exhaust available capac- ity, the adequate facilities approach forces them to search for land in the urban fringe where capacity remains. In Florida, the concurrency man- agement system resulted in development of more remote areas, forcing premature sprawl. This was contrary to public policy goals and actually worked against compact development and infill in urban areas. ,. To develop alternative approaches to the growth management tech- niques described above, the factors impelling rural areas to resist such Traffic Sheds, Rural Highway Ca?acity, and Growth Mana~,ement 5 techniques must be understood. First, residents and local elected officials The market solution to solving a in rural counties are often very leery of zoning--even if it permits large-lot road capacity shortage is to develop development. When zoning for agricultural use or growth management is land in outlying areas where proposed, the resistance to zoning increases. Agricultural zoning that lim- capacity remains. And because new its density to, for example, one house per 30 to 50 acres portends signifi- development begets even more development, eventually capacity candy lower land values than anticipated under a one- to five-acre lot, shortages arise in outlying areas, low-density, residential zone. Altering property values provokes a very and the cycle continues. So, from a strong emotional response from property owners. County commissioners planning standpoint, there is not an' are often very reluctant to impose severe restrictions on fellow farmers and acceptable, cost-efficient market landowners they have known all their lives. Second, land-use control solu- solution to solving the problem of tions tread on the belief widely cherished by landowners and property inadequate road capacity. rights activists that the market will solve the problem. But the market solu- tion to solving a road capacity shortage is to develop land in outlying areas where capacity remains. And because new development begets even more development, eventually capacity shortages arise in outlying areas, and the cycle continues. So, from a planning standpoint, there is not an accept- able, cost-efficient market solution to solving the problem of inadequate road capacity. USING TRAFFIC SHEDS AS AN ALTERNATIVE GROWTH MANAGEMENT STRATEGY IN RURAL AREAS Traffic shed analysis is worthy of consideration in counties where standard Traffic shed analysis is worthy of growth management techniques have been met with resistance and where consideration in counties where standard growth management congestion problems are starting to emerge. The traffic shed concept is, techniques have been met with first, a means of analysis. If the analysis tells the planner that traffic on resistance and where congestion existing roads is nearing or has exceeded available capacity, then measures problems are starting to emerge. to minimize or redirect development may be considered. The results of the The traffic shed concept is, first, a analysis are useful in persuading local officials about the need to address means of analysis. If the analysis growth issues, tells the planner that traffic on Unlike urban growth boundaries, the traffic shed does not require that existing roads is nearing or has the land be downzoned. The local zoning, however poorly it addresses the exceeded available capacity, then growth management issue, can be left in place. Instead, traffic sheds work measures to minimize or redirect as a performance standard overlay on the zoning classification, just as soils development may be considered. The results of the analysis are useful may limit the ability to maintain density where septic tanks are used. in persuading local officials about Consider a traffic shed of 920 vacant acres. A capacity analysis of the the need to address growth issues. road network, based on the principles in the Highway Capacity Manual determines that, if the desired LOS (level of service) is B, the road in the traffic shed can support 419 trips. Figure 3A illustrates the calculation. The conditions of the road indicated are: · percent of road where no passing is allowed: 20 percent; · lane width: 10 feet; obstructions: within two feet of the pavement; and · the road is paved. The example assumes a partially developed traffic shed with 38 trips so that the remaining capacity is 381 trips. The directional split was indicat- ed at 60/40 with 2 percent truck traffic. If this 920-acre traffic shed is zoned for one-acre lots with a density of 0.78 dwelling units per acre, the capaci- ty would be 717 dwelling units. (The density of 0.78, assumes full one-acre lots with 150 feet of frontage, a 66-foot right-of-way, detention or open space consuming 5 percent of the site, and an average inefficiency of 5 per- cent. Inefficiency occurs on cul-de-sac and corner lots that are typically 6 Traffic Sheds, Rural Hishway Capacity, and Growth Management Using traffic sheds as opposed to larger than the minimum. There may also be other factors leading to inef- urban growth boundary or adequate ficiency in the developer's ability to get lots that are exactly 43,560 square public facilities provisions allows feet in area.) each landowner to receive a fair Given these numbers, the traffic shed would support about 717 dwelling share of the traffic shed's capacity. units (920 acres x .78 dwelling units). As already noted, the roads have a capacity for only 381 remaining trips in their current state, or approxi- mately 0.41 dwelling units per acre. Unless or until the roads are improved, the overlay reduces the density from .78 dwelling units per acre to .415 dwelling units per acre, a reduction of 52 percent. Figure 3B con- tains a second run of the traffic shed model which indicates that, if the developer widened the road to provide a lane width of 12 feet, the remain- ing capacity would be increased to 462 vehicles per hour, and a density of .502 dwelling units per acre. Figure 3A. Traffic Shed Highway Capacity Figure 3B. Traffic Shed Hi0hway Capacity Analysis, 920 Acres, 10-foot Roadway Analysis, 920 Acres, 12-foot Roadway Enter Highway Service and Alignment Data Enter Highway Service and Alignment Data Level of Service 21 Enter: I=A; 2=8; 3=C; 4=9; 5=E; Level of Service 21Enter: I=A; 2=BE 3=C; 4=D; 5=E; Percent No Passing 21Enter: 1=0%; 2=20%; 3:40%; 4=60%; 5=80%; 6:100% Percent No Passing 21Enter: 1=0%; 2:20%; 3--40%; 4=60%; 5=80%; 6=100% Lane Width 31 Enter: 1=12ff; 2=1 lft; 3=lOft; 4=9ft; 5=8fl; 6=Tft; 7=1 lane Lane Width 11 Enter: 1=12ft; 2=11ft; 3=lOft; 4=9ft; 5=Sft; 6=7ft; 7=1 lane Obstructions 3] Enter: 1---6it; 2=41t; 3=2it: 4=Oft Obslructions 31 Enter: 1 ---6it; 2--411; 3=2ft; 4=Oit paved? 1 [t=Yec; 2=No paved? 111 =Yes; 2=No Enter Enter Existing Volume 38~ Enter No. vehicles per hour Existing Volume 38[ Enter No. vehicles per hour Directional Split 21Enter: 1=50/60; 2=60/40; 3=70130; 4:80/20 Directional Split 21Enter: 1=50/50; 2=60/40; 3=70/30; 4=80/20 Percent Trucks 0.02~ Enter % as decimal Percent Trucks 0.02] Enter % as decimal Percent RV's 0.00~ Enter % as decimal Percent RV's 0.00~ Enter % es decimal Percent Buses 0.00[ Enter % as decimal Percent Buses 0,00~ Enter % as decimal Traffic Shed Area 920 Enter in Acres Traffic Shed Area 920 Enter in Acres Select Land Use 1 Enter Land Use Number Select Land Use 1 Enter Land Use Number Residential I=SF; 2=Town/Condo; 3=Apts; 4=Apts 4st+ I Residential I=SF; 2=Town/Condo; 3=Apts; 4=Apts 4st+ Commercial 5=Retall;6=Foodstore;7=Restuarant ~Gornmercial 5=Retail;6=Foodalore;7=Res~arant Shopping Center 8=neighborhood, 9=community; lO=Regional ~ Shopping Center 8=nal§hborhood, 9=community; lO=Regional Service 11=Office; 12=Medical; 13=Bank I Service 11=Office; 12=Medical; 13=Bank Employment 14=Industry; 15=office/industry; 16=Warehouse ~ Employment 14=Industry; 15=office/industry; 16=Warehouse Highway 17=Fat Food; 18=Vehicle Sales; 19=Convenience Mart [Highway 17=Fat Food; 18=Vehicle Sales; 19=Convenience Mart Road Capacity 419 vehicles per hour Road Capacity 500 vehicles per hour RemalningCapacity 381 vehicles per hour Remaining Capacity 462 vehicles per hour Selected Use: single family Selected Use: single family MaxJmumlntensity: 0.415 DU's/acre Maximumlntensity: 0.502 DU's/acie 2.411691 acres per unit 1.992771 acres per unit Using traffic sheds as opposed to urban growth boundary or adequate public facilities provisions allows each landowner to receive a fair share of the traffic shed's capacity. Capacity is allocated on a pro rata basis, so that the owner of 2 percent of the land (i.e., 18 acres) receives 2 percent of the shed capacity. The owner of 24 percent receives 24 percent of the capacity. Every landowner is treated equally. None is prohibited from developing, and no property is downzoned in comparison to other sites. The performance basis of the traffic shed is also designed to provide Every landowner is treated equally, additional options to the landowner. In areas governed by an urban None is prohibited from developing, growth boundary, some land would be zoned for one-acre lots, while other and no property is downzoned in areas might be downzoned to 30-acre lots to match the carrying capacity of comparison to other sites, the road network and to meet other objectives. With adequate public facil- Tra(fic Sheds, Rural Highway Capacity, and Growth Management 7 ities provisions, the first developers who could secure allocated capacity The traffic shed approach also would get to build while others would be prohibited until the road system derives appeal from its congruity was improved and could support more trips. In either of these scenarios, with the market's invisible hand. which allocate allowable development on a first-come, first-served basis, Property rights activists and 42 percent of the landowners would see their development opportunities landowners often praise the free market system as a means of limited in some manner, achieving society's desired goals. A regulatory system that is based on TRAFFIC SHED REGULATION market forces is more difficult to Presenting the traffic shed approach to planning commissioners and elect- assail than a typical command-and- ed officials in rural areas is made easier through the use of comparisons, control system. Many understand and are comfortable with other resource and capacity- based regulations (e.g., soil-based regulations prohibiting building permit issuance or subdivision approval when a landowner cannot get an approved septic system). Similarly, farmers and rural landowners under- stand capacity-based pricing systems. Farmers buy land based on its crop production potential and regularly pay less for land with lower productiv- ity. The traffic shed analysis provides an accurate measure of the capacity of the road network within a traffic shed. Thus, these comparisons are use- ful for elected officials who want to solve the problem but fear adopting restrictive zoning regulations. The traffic shed approach also derives appeal from its congruity with the market's invisible hand. Property rights activists and landowners often praise the free market system as a means of achieving society's desired goals. A regulatory system that is based on market forces is more difficult to assail than a typical command-and-control system. While the traffic shed approach uses an analysis that may result in limited capacity for future development, it has advantages over impact fees and adequate facil- ities ordinances. For example, the traffic shed and the implementing regu- lations never have to say No to a developer. The traffic shed approach is based on small-area capacity restrictions, so not all areas are equally restricted. Furthermore, impact fees, which can be exorbitant in a sparse- ly developed area, need not be considered. In the traffic shed approach, landowners and developers are simply forced to incorporate into their eco- nomic decision making the adequacy and costs of the road serving the property. Market systems are very good at promoting informed economic deci- There is one major problem with sions. Nearly everybody understands the concept of getting more for less. the market as it applies to assigning Rational people attempt to get more for their scarce resources and avoid value to land: it fails to account paying more for less. Taxpayers are no exception. They are motivated to for the costs associated with prevent government from squandering scarce public resources. There is numerous planning problems, such as inadequate roads. For the one major problem with the market as it applies to assigning value to land: market to work from the standpoint it fails to account for the costs associated with numerous planning prob- of public service provision, it must lems, such as inadequate roads. For the market to work from the stand- be able to incorporate into the price point of public service provision, it must be able to incorporate into the the value of the public infrastructure price the value of the public infrastructure and the costs of expanding it. and the costs of expanding it. While the real estate market attributes value to proximity to major roads and destinations, the cost of improving roads is a governmental market decision. To use the analogy we have employed throughout this argu- ment, when government stringently enforces septic tank rules for lots with unsuitable soils, the real estate market prices the land accordingly. More- over, the knowledgeable buyer will not purchase land that cannot get development approval. Because rural officials are comfortable with this notion, it is not difficult to get them to understand that, if land was acces- sible only by crossing a ford, there should also be development limits. 8 Traffic Sheds, Rural H~hway Capacity, and Growth Management In a free market, a landowner and a developer enter into a willing buyer/seller relationship, and land is sold at a price both consider fair given expectations about profit potential associated with the development opportunity. The developer's sale of the finished unit to a home buyer is similarly dictated by price and value considerations for the home and lot. None of the parties in either sale usually consider the lack of adequate roads. Developers who can buy cheap, rural land lacking good roads can often make more money than their counterparts who purchase land in a more valuable area where services are adequate. In other words, conven- tional zoning may, in fact, encourage the market forces that result in the building of houses in inadequately served locations. Home buyers, enchanted with the rural location and seduced by evidence that they are getting a much bigger home and lot than they could get for the same price in a suburban development with adequate roads, will often look past the issue of adequate roads. Too often, these buyers do not think of the disad- vantages associated with the inadequate road, let alone demand an appro- priate discount that would compensate for the shortcomings of the infrastructure and, therefore, reduce the profits associated with exurban residential development. Once they move in, these home buyers identify themselves as voters and taxpayers rather than as housing consumers. Thus, instead of pursuing the developer or the farmer from whom they purchased, they turn to the county commissioners and demand adequate roads. If the real estate market fails to consider a factor such as inadequate roads, no price is attached and market forces cannot solve the problem. The solution lies in using the zoning system to ensure that the real estate market accounts for roads. Since the traffic shed system apportions the road capacity equally to all landowners in a traffic shed and the road capacity itself is determined using standard, defensible methodologies, the Another advantage of the traffic system imposes a development constraint derived in a rational and scien- shed is that it permits the landowner tific manner that is expressed in a manner the real estate market is or developer to consider a wide equipped to incorporate into price: allowable density. range of alternatives. A landowner In a traffic shed system, the basic zoning standards (e.g., lot size) are not or developer can price improve- changed. Instead, the zoning ordinance is modified to include a perfor- ments and determine if the mance overlay that indicates the amount of development permitted given investment in new facilities will pay the roadway carrying capacity of each traffic shed. The overlay requires for themselves in terms of a more that the results of the traffic shed analysis modify the density. The traffic profitable development. If the road investment can be economically shed analysis is generally conducted on a communitywide basis at the time justified, it behooves the developer of zoning ordinance adoption; landowners need not complete their own to make the improvement to gain analyses. The community should periodically update the traffic shed data additional capacity and density, as new traffic counts become available or as road improvements boost capacity, leading to an increase in the permitted density. If the county improves a road, the landowners reap the benefit; however, the communi- ty as a whole also benefits because the system induces development with- in the improved traffic shed where the county believes it can best accommodate growth. Another advantage of the traffic shed is that it permits the landowner or developer to consider a wide range of alternatives. A landowner.or devel- oper can price improvements and determine if the investment in new facil- ities will pay for themselves in terms of a more profitable development. If the road investment can be economically justified, it behooves the devel- oper to make the improvement to gain additional capacity and density. Moreover, other landowners in the improved traffic shed are compensated for the impacts of the project; they, too, will reap additional capacity and Traffic Sheds, Rural Highway Capacity, and Growth Management 9 density. On the other hand, if the economics are unworkable, the landown- er and developer must rethink the deal. Thus, the traffic shed makes roads part of the real estate market equation, facilitating a decision on whether to build in a given location. That decision will not be too different from a sim- ilar determination imposed by planners in defining an urban growth boundary plan. SEVEN DEVELOPI~IENT OPTIONS UNDER TRAFFIC SHED REGULATION How does the traffic shed work? First, equality is essential; the landown- ers must receive their fair share of the available capacity. If, for example, the road will support 300 additional peak-hour trips, then the traffic shed will permit construction of 300 additional homes, assuming one trip per household during peak travel times. The capacity and area of the traffic shed determine the permitted density. In a traffic shed containing 600 acres, the density is one house per two acres or 0.5 dwelling units per acre (300 trips divided by 600 acres = .5 dwelling units per acre). In a much larger traffic shed with 6,000 acres, the density is 0.05 dwelling units per acre (300 trips divided by 6,000 acres = .05 dwelling units per acre). In a Kansas community where this analysis was applied in the development of a comprehensive plan, the traffic sheds served by mostly unpaved section line roads had densities ranging from one home per six acres to one home per 160 acres. Faced with such inadequate roads, communities typically install a floor so that density does not fall below a certain level. Usually an agricultural zoning density of one home per 20 to 40 acres is appropriate. Williamson County, Tennessee, used a five-acre lot as the threshold density. The analysis applied to each traffic shed (or the minimum density floor) represents a performance overlay. The market element is achieved by the traffic shed capacity calculation and the development options given the landowner. If all the system did was limit development to a lower densi- ty, it would be difficult to distinguish it from zoning techniques used to implement an urban growth limit. However, the traffic shed provides a range of options for the landowner and market to evaluate. 1. Make road improvements. If a landowner improves the rural road by widening it, the capacity of the road increases. As a result of the enhanced capacity, the total number of dwelling units permitted in the traffic shed will grow. Whether the cost of the improvement will be paid back by the sale of more homes is determined via a conventional market analysis. The developer, banker, or landowner can each weigh the value of increasing Figure 4. density against the cost of the road improvement. The result of the market analysis will reflect com- parative sales potential, just as it would with a gov- ernment-imposed downzoning in an urban growth boundary. A developer with land located far from an improved road would have very large capital costs and would not get a loan (Figure 4, SiteA). f The landowner with property nearly contiguous to an arterial could afford to improve the road, and thus gain increased density (Figure 4, Site B). Simi- larly, the developer who must provide a bridge to increase capacity will have to overcome a much higher cost than would apply to a parcel without this constraint. 10 Traf~'c Sheds, Rural Highway Capacity, and Growth Management 2. Build out at overlay density. If the owner wants to develop, but road improvement costs cannot be justified by the return on sales, the landowner can build out at the overlay density. Under this option, the landowner uses the entire site for development. For example, with underlying five-acre zoning with a traffic shed density of one house per 20 acres, the developer would market five 20-acre lots (Figure 5A), instead of the 20 five-acre lots permitted by the underlying zoning (Fig- ure 5B). The landowner and developer reach the market decision that this is a viable economic transaction agreeing to a price that both can accept. In this option, they forgo any future development potential and accept the limited overlay density. Figure 5A Fiaure 5B Parcel A: Parcel B: 100 Acres 100 Acres 5 Dwelling Units 20 Dwelling Units 20-Acre Lots 5-Acre Lots 0.05 Dwelling Units per Acre 0.20 Dwelling Units per Acre Improved Road Not Needed Improved Road Needed 3. Use the overlay density and reserve for,future development. This option is similar to Option 2, except that, in selecting a development pattern, land is reserved for future development. The developer builds as allowed under the base zoning district but limits the project to the den- sity allowed under the overlay district. For example, with underlying five-acre zoning with a traffic shed density of one house per 20 acres, the developer would build five of the 20 lots the underlying zoning would permit (Figure 6A), reserving the remainder of the site for future development should the capacity of the traffic shed be increased (Fig- ure 6B). The advantage of this option is that the developer/landown- er gets initial short-term profits from the sale. The initial deve. lopment gives the developer money to pay off acquisition costs. The developer also has the option to use this money to fund improvements to allow further development of the traffic shed. Or she or he can wait for the Traffic Sheds, Rural Highway Capacity, and Growth Management 11 county to improve the roads. This option also allows for cluster devel- opment or other site planning techniques that include open space preservation. The developer is engaging in initial development to pay for long-term speculation. Clearly, this strategy works best if the initial development provides the needed funds to make the improvement, or when government improvement is likely. 4. No sale. The developer always has the option of not buying the land. Landowners do not have to sell. The market analysis that includes the cost of road improvements cuts down on speculative rural develop- Figure 6A Figure 6B ...,~, .. v '." m :. · -.-'""1 . s, ..,! lj~'~ ~hase 1: Phase 2: 100 Acres 100 Acres 5 Dwelling Units 20 Dwelling Units 5-Acre Lots 5-Acre Lots 0.05 Dwelling Units per Acre 0.20 Dwelling Units per Acre Improved Road Not Needed Improved Road Needed ment. In normal large-lot zoning, there is a big financial reward for some developer/speculator who buys cheaper rural land and leaves the road or infrastructure improvements to the county. Under the traf- fic shed, this form of speculation is no longer available. Where the cost of improvements is far more than the savings in land acquisition, the developer will be unwilling to buy. This outcome resembles what hap- pens when a landowner asks too much for a piece of land--it goes unsold. 5. Adjust the deal. Another option entails bargaining. If the developer can- not afford to buy and make a profit, the developer may decide to offer a much lower price for all the land or seek to buy only a portion of the land. The landowner can accept the revised price (Options 2 or 3), or the landowner can reject the offer (Option 4). (See Figure 7.) This illus- 12 Traffic Sheds, Rural Highway Capacity, and Growth Management trates the workings of a market to adjust for the impact of road improvement costs. 6. Choice in develop~nent patterns. The first five options all work without any change to the underlying zoning of one- to five-acre conventional, single-family lots and a generally conventional pattern of develop- Adjust Price/Accept Offer i-~--..r---T-, -- ,-T---i Reject Offer ~f . ment. The traffic shed is recommended for use with performance zon- ing in which the landowner would have several permitted development patterns--conventional single-family, cluster single-fam- ily, or planned (a cluster pattern permitting all types of dwelling units). Options 2 and 3 can be enhanced by selecting one of the several forms of clustering. Very low-density clusters with high open-space ratios offer a great advantage in that they can permit farming of the remain- ing acreage. Cluster development is more profitable for the landown- er, because the farm use remains after the development potential is used. If the traffic shed calculation would permit only one house per 20 acres, clustering houses on one-acre lots would preserve between 90 and 95 percent of a site for agricultural use, and three-acre lots would preserve between 80 and 85 percent of the site. (Figures SA, B~ and C.) This scenario results in higher total value of the property because the landowner receives the development value in cash and continues to receive the income from the farm operation. If the landowner does the development and cuts out the developer, the profits from this option are increased. The developer may also achieve an advantage from using the cluster options. People who move to rural areas are essentially "borrowin'g" views of nearby farmland. The rural life style is attractive, bdt typical- ly impermanent--as the adjoining field is subdivided .and road frontage stripped off, the rural character is lost. Clustering permits the developer to market the site as having the desired rural character. In Traffic Sheds, Rural Highway Capacity, and Growth Management 13 some cases, this will enhance the value of the lots, and this means high- er returns under any restricted option. Because of the benefits clustering provides, it is recommended that a small:density bonus (perhaps 10 to 40 percent) be given to such devel- Figure 8A Figure 8B Figure 8C Option 1: Option 2: Option 3: 100 Acres 100 Acres 100 Acres 5 Dwelling Units 5 Dwelling Units 5 Dwelling Units 20-Acre Lots 1-Acre Lots 3-Acre Lots 0.05 Dwelling Units per Acre 0.05 Dwelling Units per Acre 0.05 Dwelling Units per Acre No Agricultural Use Preserved 94% of Agricultural use Preserved 84% of Agricultural Use Preserved opments as an incentive. Note that the bonus only applies to Options 1 or 3 where the developer expects to achieve the maximum density. Transfer of Development Rights (TDR). The traffic shed approach is com- plemented well by a voluntary transferable development rights (TDR) program. While the TDR program might be a traditional program in which land within a traffic shed (or across a jurisdiction encompassing more than one traffic shed) would be divided into sending areas and receiving areas. Sending areas are those that merit permanent protec- tion from development because of their natural, historical, or agricul- tural Value. Receiving areas are those that are deemed more suitable for develoPment because they have few or no environmental constraints or because they are close to existing infrastructure and other developed areas'.' TDRs take development pressure off sites that are remote other from development, providing them an opportunity to share in the develop- men~ process while not creating a burden for the local government. They also permit dedicated farmers to sell their rights for development potential and keep farming a win/win situation for farmer, developer, and community. The author does not recommend this traditional pro- gram. unless the county has a very strong capital program. TDR is a zoning strategy that generally increases complexity and is misunder- stood. With the traffic shed, an intradistrict transfer or noncontiguous development is the desired recommended form of TDR. Thus, two 14 Traffic Sheds, Rural Highway Capacity, and Growth Management The traffic shed system should not landowners in the same traffic shed and same zoning can concentrate be adopted without other planning development on a single property. For a family that wants to continue support. A capital improvements farming, TDR offers an option that provides income but does not force program, in conjunction with the the family to sell the land. (See Figures 9A through 9D.) Used in con- traffic shed regulations, will steer junction with Option 6 (to cluster) and Option 3 (to reserve land), the investments and speculation to areas landowner can sell development rights and reserve future develop- that have, or are planned to have, ment potential if road improvements are made that increase the adequate facilitiesl While some areas may be suitable for density. development based on the present From the developer's point of view, the option to purchase develop- road system, others will need to be ment rights means they can market a larger project that combines the improved over time. In the long development potential of several properties. The increased density run, coordinating capital investment allows receiving sites to be used to their maximum potential. with planned growth areas will be as effective as an urban growth These seven development options provide economic choices that boundary system, account for land price, infrastructure costs, construction costs, and expect- ed sales values. Because road costs are included in the equation, the traf- fic shed analysis harnesses market forces to reach nearly the same result as a growth management plan. The traffic shed approach is also geographi- cally and topographically sensitive. Areas that are restricted by streams or topography have reduced densities. Streams can mean narrow bridges or even fords that reduce road capacity, and rugged topography can mean more curves and steep and narrow roads--again all reducing road capacity. Areas that are far away from improvements also reflect the reduced development potential. The market will support development of new infrastructure by the developer only in areas where the costs jUstify the return. The community gets the new infrastructure and, thus, saves tax dollars. The traffic shed system should not be adopted without other planning support. A capital improvements program, in conjunction with the traffic shed regulations, will steer investments and speculation to areas that have, or are planned to have, adequate facilities. While some areas may be suit- able for development based on the present road system, others will need to be improved over time. In the long run, coordinating capital investment with planned growth areas will be as effective as an urban growth bound- ary system. Further, instituting a long-term investment strategy that is understood in the real estate community will steer development to the ser- viced areas. On the other hand, if capital improvements are unpredictable, real estate interests will be more speculative, and speculators will seek to promote capital investments that are beneficial to their interests rather than implementing the community plan. The traffic shed has the advantage of not requiring a massive downzon- ing. In fact, the base zoning can be left unchanged, although greater flexi- bility will be achieved by modifying zoning to allow for clustering and development rights transfers. A capacity analysis results in a traffic-shed- specific overlay zone. And, while the use of a traffic shed system can have results as draconian as those offered by other growth management sys- tems, the solutions it can provide respond to a number of commonly expressed concerns about other growth management and funding options. 1. Taxes. Use of a traffic shed regulation makes it less likely that higher taxes will be needed to pay for road improvements. Traffic Sheds, Rural Highway Capacity, and Growth Management 15 Figure 9A. Figure gB. I -:-.;, "~,..,.",..,,... ' .:,... ~". ".': ' '", .... ~arcel 1 Bofore Iransfor of Dovolopmont Bights ~arcol 1 A~or Iransfor of ~ovelopment Bights 100 Acres 100 Acres 20 Dwelling Units 1 Dwelling Units 5-Acre Lots 100-Acre Lots 0.20 Dwelling Units per Acre 0.01 Dwelling Units per Acre Figure gC. Figure ~D. ~arcol 2 Bofore Iransfor of Dovolopmont Bights ~arcol 2 A~or lransfor of Dovolopmont ~i~hts 100 Acros 100 Acres 20 Dwollin~ Units 40 Dwollin~ Units 5-Acro kots <2.5-Aero kots 0.20 D~ollin~ Units pot ~cro 0.40 Dwollin~ Units pot 16 Traffic Sheds, Rural Highway Capacity, and Growth Management Traffic sheds are not an agricultural 2. Capacity. Most people can understand that, if government cannot preservation strategy. However, the afford to build new facilities, there needs to be a development limit that incentive to cluster development maintains the viability of existing infrastructure. and discourage sprawl can prolong agricultural uses. There is, of 3. Ability to Develop. The traffic shed system always .allows development, course, no assurance that land that is unlike the adequate facility ordinance in which local capacity problems most restricted by the traffic shed can prohibit development. will be good farmland, but, if the community uses the performance 4. Equity. The fair-share aspect of the system is more equitable that a first- zoning approach, there can be come, first-served system that exists with a adequate public facilities incentives to protect resources and program. farmland. 5. Market Sensitivity. The ability of a landowner to make improvements and thus increase density is a logical, market-oriented approach. If the developer can spend money to market a better product, the developer does so. On the other hand, if the improvement is too costly for the market place to support, there is no reason for government to subsidize a poor market decision to the detriment of those who are working with- in the market constraints. The public also benefits from the application of tlie traffic shed system. The subsidy for landowners and developers who benefit from sprawl is eliminated. The community can rationally plan for expansion of services. Any improvements paid for by de;celopers will reduce the need for local government to allocate scarce resources to the roads. The traffic shed system described here addresses roads, but is, in fact, a performance standard that can address constraints on water supply, sewer, or soil limitations for sewer disposal equally well. In many parts of the nation, rural water districts or special districts that are not controlled by the zoning authority can be brought under control by such performance standards. Traffic sheds are not an agricultural preservation strategy. However, the incentive to cluster development and discourage sprawl can prolong agri- cultural uses. There is, of course, no assurance that land that is most restricted by the traffic shed will be good farmland, but, if the community uses the performance zoning approach, there can be incentives to protect resources and farmland. Overall, the technique has held up in both irregular transportation net- works shaped by topography and in the grid systems found in agricultur- al areas. The system clearly works best in relatively rural areas. In urban areas, the linear nature of travel is absent. Trips move in multiple direc- tions in a network, and, except in unusual conditions, the traffic shed is not applicable. A transportation model would have to be substituted for the traffic shed calculation. It should also be noted that the traffic shed concept applibs best to local roads. In many fringe areas, the capacity of the arterial system is also a problem. Since these arterials are typically state roads, either the state or county should require impact fees, or the county can just leave the improvement of these areas to the state. A question the reader might have is If the concept is so good, why has it not been used more frequently? The traffic shed concept has not seen wide usage because almost nobody knows of its existence. The author devel- oped it and used it where applicable on a few consulting assignments. In Woodford County, Kentucky, a joint project involving the author, Charles Siemon, and Bluegrass Tomorrow first got the traffic shed concept a wider Traffic Sheds, Rural Hi~;hzoay Capacity, and Growth Management 17 exposure. Other than a little paragraph in Planning, there was no publici- ty for the traffic shed. The purpose of this volume is to provide the pro- fession with the information so that in may more widely be used. A CASE STUDY: WILLIAMSON COUNTY, TENNESSEE The traffic shed technique was first used in Williamson County, Tennessee, in 1988. Major modifications have been made to the system since it was first implemented, but experience demonstrates that it works well as both a planning and a regulatory system. Specifically, over the past 10 years, the traffic shed methodology has been shown to be an effective means of con- trolling developments that would otherwise aggravate design and capaci- ty problems on existing state and county roadways within the county. Initially developed by Lane Kendig, Inc., and first adopted as a part of its zoning ordinance in 1988, Williamson County's traffic shed require- ments have been updated, administered, and maintained since 1989 by Tocknell and Associates, acting as a consultant to the Williamson County Planning Commission. Under Tennessee law, developments of five or more acres per single-family lot are Figure 10. Highway Capacity Adjustment Flowchart, excluded from the legal definition of a sub- Williams0n County, Tennessee, Zoning Ordinance, Section 5230 division, and thus are exempt from local planning regulation. So, if the traffic shed B. Determination of C. Traffic Study methodology determines that suburban or Maximum Development Required if urban development is not desirable, the Potential _>400 peak trips default density is one single-family Step 1. / D. Modification dwelling unit per five acres. To date, sig- Determine requirement for of highway capacity, nificant new development in Williamson h ghway capac ty adjustment '-- if needed County has not been considered to be eco- I nomically feasible on five-acre lots. Step 2. In Williamson County, the density of res- Determine requirement .... E. Map amend- from proposed density merit, if needed idential development is either the basic (0nly f>_O.2trps/acre zoning district density (e.g., 0.8 dwelling units per acre in the Suburban Estate dis- step 3. trict) or the density as determined from the Determine density from .... E Optional highway capacity adjustment section (i.e., arterial LOS (0.2 trips/acre traffic study f LOS=B or be ow) the traffic shed density). (See Figure 10 for a flowchart describing the process used to adjust highway capacity.) In turn, the traf- IA. Determine Step 4. Arterial Shed Determine collector fic shed density is the more restrictive of Capacity shed capacty either the arterial shed capacity or the col- lector shed capacity, expressed in trips per I Step 5. acre. The trips-per-acre calculation is easi- Determine limiting ly converted to a corresponding land-use capacity density (e.g., dwelling units per acre) I through a table from the Institute of Trans- Step ~. portation Engineers Trip Generation report. Convert capacity from (See Table 1 for an example.) trips/acre to t0ta tr ps If the traffic shed methodology applies only to collectors, all a developer has to do Step 7. Conved capacity from is to build a new collector to link up with total trips to total ........ the nearest arterial. This isn't very hard. J dwellino units, floor larea, etc. But the arterials may not have the design or the capacity to handle the traffic that may 18 Traffic Sheds, Rural Highway Capacity, and Growth Management Table 1. Sample Trip Generation Rates result from suburban development. So, Number of Peak- Williamson County's traffic shed Land Use Hour Trips Per (Type of Unit) methodology requires an analysis of both the arterial and the collector sys- Agriculture N/A N/A Residential Figure 11 shows a portion of the Offi- Single-family detached 1.00 dwelling unit cial Traffic Shed Map maintained by the Single-family attached .85 dwelling unit Williamson County Planning Commis- Multi-family, apartment .70 dwelling unit Mobile home .60 dwelling unit sion. On the map, each arterial shed is numbered and each collector shed is Institutional given a letter. Arterial sheds are aggre- Outdoor institutional N/A N/A gations of individual collector sheds. So Elementary school .25 student "25C" would be the third collector shed High school .30 student College/university .40 student within arterial shed 25. The letters are Day care/nursery school N/A student generally assigned to collector sheds in Hospital 1.30 bed clockwise order around the center of the Nursing home .30 bed arterial shed. Commercial The collector shed capacity is essen- Office 0 to 100,000 gross square feet 2.85 1,000 gross square feet tially the capacity of the designated Office >100,000 gross square feet 2.00 1,000 gross square feet roadway divided by the number of Medical office 5.00 1,000 gross square feet acres it serves. This is because the traf- Research center 2.50 1,000 gross square feet ftc shed divisions were initially set up so Specialty retail 2.25 1,000 leasable square feet Discount store 7.00 1,000 leasable square feet that no other traffic shed is likely to con- Hardware store 5.20 1,000 leasable square feet tribute significant traffic to the collector Shopping center road in another traffic shed. 0-49,000 square feet 15.50 1,000 leasable square feet Shopping center In contrast, many other traffic sheds 50,000-100,000 square feet 9.30 1,000 leasable square feet may contribute traffic to a shed's arteri- al road, making the determination of the arterial shed capacity a little more tricky. The arterial shed capacity is Figure 11. Portion of the Traffic Shed Map, derived through the weekday peak- Wiliiamson County, Tennessee hour traffic counts for the portion of the arterial road that will be affected by the proposed development. Data collected within the 12 months immediately pre- ceding the analysis are acceptable (with the permission of the planning director) as are data from the state, county, or a ~ county-recognized traffic consultant. (See Table 2 for an example of how Williamson County classifies its two- lane arterials and the correlating LOS; for arterials wider than two lanes, pro- cedures from The Highway Capacity Manual may be used to determine LOS.) Using data provided by the county, the developer then determines the maxi- mum number of trips permitted per acre at each level of service. (See Table 3.) If the arterial is wider than two lanes, the values from Table 2 ® are multiplied by 1.67 to determine the maximum number of permitted trips per acre. Traffic Sheds, Rural Highway Capacity, and Growth Management 19 Table 2. Highway Traffic Capacities Roadway Classifications, Williamson County, Tennessee Green Orange Blue Purple Red LOS A 250 200 150 1 O0 75 LOS B 500 300 250 200 150 LOS C 850 550 500 375 250 LOS D 1,400 850 700 550 350 Of course, if a roadway serves a very large area (as most arterials do), the roadway cannot be shown to support any reasonable amount of new development even if it is overdesigned and overbuilt. For the number of acres, there will not be enough highway capacity to go around. Williamson County's arterial shed methodology addresses this problem in two ways. First, development "upstream" from an arterial shed is rep- resented by the volume of existing traffic that enters the arterial shed. As the volume approaches the capacity of the arterial roadway, permitted development densities within the arterial shed are reduced. If the arterial roadway is at full capacity before it enters the arterial shed, new develop- ment within that shed is practically prohibited. Within arterial sheds, the permitted arterial shed densities were devel- oped through a reverse application of the charts documented in a 1980 report of the Federal Highway Administration, Land Use and Arterial Spac- ing in Suburban Areas. The purpose of that report was to determine the number of arterial lanes per mile that would be needed in a given corridor, as a function of the permitted development density. For the Williamson Table 3. Arterial Traffic Shed Capacities, Williamson County, Tennessee Arterial Trips per Acre Shed Road Name Acres Class LOS A LOS B LOS C LOS D 1. Hillsboro Rd. 4,403 Green 2.02 1.62 0.92 0.20 2. Vaughn Rd. 1,981 Blue 1.86 1.50 0.96 0.20 3. Temple Rd. 6,489 Orange 1.38 1.10 0.64 0.20 4. Old Hillsboro Rd. 5,359 Blue 1.34 1.08 0.62 0.20 5. Hillsboro Rd. 5,627 Green 1.82 1.46 0.84 0.20 6. Murray Ln. 969 Blue 2.42 1.92 1.10 0.20 7. Franklin Rd. 2,599 Green 2.32 1.86 1.06 0.20 8. Del Rio Pike 2,075 Blue 1.86 1.50 0.92 0.20 9. Mack Hatcher 1,697 Green 2.82 2.26 1.30 0.20 10. Concord Rd. 3,784 Blue 1.60 1.28 0.74 0.20 11. Nolensville Rd. 3,648 Green 2.16 1.72 1.00 0.20 12. Split Log/S Donald 3,501 Purple 1.26 1.00 0.58 0.20 13. Clovercrft/Nlnsvl Rd. 2,853 Blue 1.72 1.38 0.78 0.20 14. Nolensville Rd. 1,588 Green 2.82 2.26 1.30 0.20 15. Rocky Fork Rd. 2,244 Blue 1.86 1.50 0.92 0.20 20 Traffic Sheds, Rural Highway Capacity, and Growth Management _ County arterial traffic sheds, the same charts were used to determine the density of development that could be permitted (expressed in trips per acre) as a function of the size of the area served by each lane-mile of arter- ial. (See Table 4.) Once the capacities were determined-based on the sizes of the arterial sheds, further adjustments were made to account for design factors that restricted or enhanced the capacity of each arterial roadway, as well as for the existing LOS on the roadway as it enters the arterial shed. Taken as a whole, Williamson County's traffic shed requirements have effectively precluded development in the less accessible parts of the coun- ty. In most cases, new development simply has not occurred in these areas. Because the traffic shed densities are incorporated directly into the zoning ordinance, most developers can tell in advance whether it makes sense to proceed with a new development in a given area. With the traffic shed methodology in place, there is little or no market incentive to develop in areas of Williamson County that have sparse or poorly designed roadways. At the southern end of the county, closest to the Saturn General Motors auto assembly plant and farthest from suburban Nashville, developers have avoided cotmty planning restrictions by requesting annexation into the Town of Spring Hill, which is centered to the south of the county line in Maury County. A better way to deal with the traffic shed restrictions has involved the use of the traffic study option. Because the traffic shed methodology applies mainly to small-scale residential development, the traffic shed chapter requires that a traffic impact study must be prepared for develop- Table 4. Maximum Number of Peak-Hour Trips in Collector Sheds, Williamson City, Tennessee Zoning Highway Trips per Shed No. Road Name District Acres Capacity Acre 1-A H'boro Valley Rd. SE 982 1,100 1.12 B Murray Lane SE 1,043 1,400 1.34 C Sunnyside Dr. SE 663 1,400 2.11 D Manly Lane SE 393 700 1.78 E Moran Rd. E 323 1,400 0.20 SE 318 1,400 4.20 F Sneed Rd. E 6 1,400 0.20 SE 675 1,400 2.07 1-TOTAL Hillsboro Rd. 4,403 2-A Steeplechase Ln. SE 947 1,100 1.16 B (NO COLLECTOR) SE 487 *** 0.20 C Vaughn Rd. E 92 1,400 0.20 SE 455 1,400 3.04 2-TOTAL Vaughn Rd. 1,981 3-A Pasquo Rd. E 491 1,100 0.20 SE 1,560 1,100 0.64 B Sneed Rd. E 199 1,400 0.20 SE 1,133 1,400 1.20 C Sneed Rd. E 282 1,400 0.20 SE 1,946 1,400 0.69 D Temple Rd. E 2,075 1,700 0.20 SE 44 1,700 29.20 3-TOTAL Temple Rd. 6,489 Traffic Sheds, Rural Highway Capacity, and Growth Management 21 ments expected to generate 400 or more peak-hour trips. For develop- ments that generate fewer trips, a traffic study can still be prepared in order to suggest reasons for modifying the traffic shed requirements, based on the particular aspects of a given development and the design and capac- ity improvements that are being proposed. Once the issues raised by the traffic shed analysis have been identified, they cannot be avoided in the traffic impact study. Nearly all of the traffic impact studies prepared for the Williamson County Planning Commission have included a section that addresses the traffic shed provisions of the county zonh~g ordinance. If there are deficiencies in either the design or the capacity of the roadway(s) that serves a given development, the study must address these deficiencies and show how the traffic shed require- ments will be applied. Finally, the county planning commission has the option, in most cases, to require some kind of mitigation or exaction in lieu of a complete restric- tion of development pursuant to the traffic shed requirements. On county roads, the developer may be required to assume responsibil- ity for the full cost of whatever improvements to the roadway system may be needed in order to support the development at its proposed intensity. Under a cost-recovery provision of the traffic shed chapter, the developer who paid the full cost of a given county highway improvement is entitled to recover a portion of the expense from subsequent developers whose properties benefit from the same improvement. But the county also recognizes that a developer contribution would have little or no effect on the timing or design of a state highway. So, if the affected arterial is on the state highway system, the cost recovery provision is not enacted. Only an initial pro rata contribution is required toward the estimated cost of the necessary improvement(s) in order for a development to proceed. In many cases, this requirement has been used as a starting point either for exactions or for in-kind improvements to the county highway system in lieu of a required cash contribution to the county on behalf of the state. OTHER COMMUNITIES USING TRAFFIC SHEDS Other communities where the traffic shed system has been used or seri- ously discussed include: Loudoun County, Virginia; New Castle County, Delaware; Miami County, Kansas; Woodford County, Kentucky; Fayette County, Kentucky; Nantucket, Massachusetts; and those in the area of interest for Blue Grass Tomorrow. In Loudoun County, the rural areas of the Piedmont featured numerous unpaved, winding, and narrow state roads with very limited capacity. Landowners did not want the roads widened for fear that such widening would destroy the area's rural and historic ambiance. The traffic shed analysis, when applied to a number of study areas, showed that the exist- ing three-acre lot size allowed by the zoning would exceed the capacity of the rural road network. The planning staff and planning commission were attracted to the traffic shed idea as a means of controlling development. Unfortunately, the county attorney was unwilling to risk an innovative approach. Some feared that the Virginia Supreme Court would reject the concept, which is what happened to a number of innovative land-use reg- ulation efforts by nearby Fairfax County. It needs to be noted, however, 22 Traffic Sheds, Rural Highway Capacity, and Growth Management that the court had upheld a similar performance-based approach with regard to governing development on the basis of soils for septic systems. New Castle County first discussed the idea in the late 1980s, but a prode- velopment county board watered the plan down and did not implement major elements of the plan. In 1997, the county undertook a six-month comprehensive rezoning. The traffic shed, modified to use the transporta- tion model as a base was considered. This is a rapidly growing county, and few roads had any significant capacity. It was determined that a traffic shed approach would have been generally impossible because none of the desirable in fill areas would have had capacity to promote infill. In fact, even the current road impact standards made it impossible in that short time frame to map areas for desirable infill development. In Miami and Woodford Counties, the concept has been used as an analysis tool in developing zoning proposals that would limit the total development capacity of the rural area through agricultural zoning. Woodford County was similar to Loudoun and Williamson Counties in the nature of the road system. The roads in Woodford are paved, but narrow, with poor horizontal and vertical alignment. In many cases there are stone walls close to the pavement edge. Traffic shed analysis was used as a ratio- nale for revising the comprehensive plan to protect the rural character of the community. Miami County was a demonstration of the application to the section line grids of the Midwest and West. Where the grid is on the fringe of a met- ropolitan area so that trips are highly directional, the traffic shed will work. In both these cases, the communities will rely on a downzoning to true agriculture densities to limit the growth to a level the existing roads can handle. Nantucket is the only application in a generally urban area. The town center is very urban while the remainder of the island that is developed is suburban or estate in character. The system works in Nantucket because most of the roads radiate from Nantucket Center to the rest of the island. In most instances, major roads dead-end at the ocean. The LOS on the var- ious roads is being evaluated for each of several plan alternatives; the exist- ing zoning on the island will result in the failure of most main roads. The initial work involves a minimum of four development scenarios, each of which will be subjected to a traffic shed analysis of the impact of the land- use plan on traffic congestion. The plan is employing a computerized pro- gram, Strategic Analysis: Vision Evaluation System (SAVES), to evaluate the effects of development. The evaluation includes a traffic shed analysis of 12 planning areas. Because the vast majority of development potential on the island is attributable to the zoning bylaw that permits two principal structures per lot, it is unlikely that the traffic shed will be used as a zon- ing strategy since there is a much more obvious method of controlling development. Nearly 65 percent of the island's potential growth is con- tained in the allowance of a second dwelling on a lot. The most direct and effective growth management strategy for the island has to include the cur- tailment of the second dwelling. Complex rezoning or traffic shed zoning are more complex and do not focus on the majority of the potential growth. The Bluegrass Regional Plan that was trader preparation as this report went to press is proposed to be implemented by a "Rural Landscape Plan- ning Tool." The tool is described as a simplified Geographic Information System (GIS) based on a mathematical model that allows for the analysis of development impacts. (See Bluegrass Regional Plan, Bluegrass by Design, Traffic Sheds, Rural Highway Capacity, and Growth Mana~,ement 23 a Framework for a Regional Plan, draft dated December 29, 1998.) A compo- Planning development in a rural nent of the tool is the rural road network capacity, based on a traffic shed area so that it does not exceed the analysis. There are two other components--a fiscal impact model and a capacity of roads or other public development capacity model using GIS data. Charles Siemon of Siemon, facilities enhances the ability of Larsen, and Marsh is providing consulting services on the plan and tool for government to provide services in an era where public expenditures are Bluegrass Tomorrow. often opposed. Fayette County, one of the Bluegrass Counties is also using the traffic shed. In recent years, Fayette County has been involved in a major update of its growth management plan. That work began with a major reassess- ment of the capacity of the urban growth area and a controversial expan- sion of that area. More recently, the effort has focused on the rural area. The urban growth management plan always showed the rural area as a green color, with a zoning of 10-acre lots. For a long time that was a suffi- cient barrier to rural development. In recent years there has been signifi- cant subdivision into these 10-acre parcels. The county began to assess the rural component of the plan with Siemon, Larsen, and Marsh. Initially, the plan proposed to use a combination of cluster zoning, transferable devel- opment rights, and the traffic shed to control growth in the area. As the plan evolved, the major horse farm owners decided they would rather have no development in their area. The traffic shed was used to evaluate development limits in a critical area of the county as a guide to setting den- sities. That analysis is now being completed for the entire county. The final plan will involve agricultural zoning and the purchase of develop- ment rights, negating the need for traffic-based controls. SUMMARY In summary, the traffic shed is a very useful planning and zoning concept with relevance for both rural and exurban areas. The traffic shed analysis can be applied as a planning tool to determine if there are carrying capac- ity constraints. It can also illustrate that there are real traffic problems even at low densities, an important planning consideration and capital improve- ment stumbling block. In zoning, the traffic shed may be used in conjunc- tion with other strategies as part of a comprehensive growth management plan. The carrying capacity nature of the system can be applied to rural water districts or even rural sewer lines. All of these public facilities can be orga- nized into sheds served by a line, tank, or plant with finite capacities. Plan- ning development in a rural area so that it does not exceed the capacity of In an era when the courts are taking roads or other public facilities enhances the ability of government to pro- a harder look at local government vide services in an era where public expenditures are often opposed. All regulations, the traffic shed too often, land-use plans or zoning for rural areas exceed the capacity of approach, with its inherent the community to provide infrastructure. The traffic shed and related zon- flexibility, is a means of addressing lng strategies are effective at controlling development, difficult problems. It does not stop development. It simply requires The traffic shed analysis requires only readily available data and simple private decisions to account for the calculations. Obtaining the data and completing the calculations is far less costs they uniquely impose on local expensive than attempting to develop a transportation model for the com- government. munity. In rural areas, such analysis effectively evaluates the transporta- tion impact of development and can identify the carrying capacity of both existing and improved roads. Lastly, the traffic shed approach to regulations makes a great deal of sense. In an era when the courts are taking a harder look at local govern- ment regulations, the traffic shed approach, with its inherent flexibility, is a means of addressing difficult problems. It does not stop development. It 24 Traffic Sheds, Rural Highway Capacity, and Growth Management simply requires private decisions to account for the costs they uniquely impose on local government. No landowner is rewarded at the expense of others since all share equally. The use of development rights transfers does not pay for development that the community limits; it is a tool to allow landowners additional choices. Thus, it avoids the legal and political prob- lems of downzoning. 431 Preparing a Landscape Ordinance. 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