As the Board of Supervisors formulates a position on this proposal, staff is providing information intended to support a later decision. Included in this report:
1) Supporting/background information from CCTA regarding the current 2020 TEP/sales tax effort,
2) Update from the May 15th CCTA Board Meeting,
3) Background on the 2016 Measure X* effort including input provided by the County,
4) County - Regional Transportation Sales Tax: Statewide Context, and
5) Conclusion and request for guidance.
*Regarding #3 above, CCTA intends to use the 2016 Measure X TEP as a starting place for the current effort. Because of this, the 2016 materials are relevant for the current discussion.
1) Supporting/background information from CCTA regarding the current 2020 TEP/sales tax effort
Rationale: CCTA initiated work on this effort at their January 2019 Board workshop, with more specific direction given to staff at their February and April 2019 Board meetings. CCTA provided the following summary rationale for pursuing a new TEP:
The Contra Costa Transportation Authority (Authority) held a workshop on January 31, 2019 to discuss the status of Measure J, issues and challenges facing transportation, future needs and commitments of transportation in Contra Costa County, and potential future funding from Federal, State, regional, and local sales tax. Because of the Authority’s prudent management, nearly all of the Measure J capital projects are completed or under construction, and the remainder of the measure will continue to fund programmatic initiatives such as local streets and roads maintenance, support bus service and Safe Transportation for Children, Transportation for Livable Communities (TLC) and others to the end of Measure J through 2034.
Although Contra Costa will receive future revenue from Regional Measure 3 (RM3) (bridge toll increase) and Senate Bill 1 (SB1) (gas tax revenue), many sources of Federal, State, and regional funding – including SB1 funding – often require a local match in order to access funding. In order to address the future transportation needs of our communities and growing population, the Authority will need to explore opportunities for securing a stable source of local funding that can be used for future transportation improvements, and as a match to access competitive forms of funding in the future.
2020 Transportation Expenditure Plan: Work Plan (Approved at May 16, 2019 CCTA Board Meeting)
CCTA received a report on the 2020 TEP process at their April Board meeting. The complete work plan, “Guiding Principles for Development of a Transportation Expenditure Plan", is attached. Critical points from the plan are provided below.
Mission
To advance transportation, ease congestion, and prepare Contra Costa County for future safe mobility.
Vision
Strive to preserve and enhance the quality of life of local communities with integrated, reliable, and accessible transportation that optimizes the existing transportation system, leverages emerging technologies and provides seamless multimodal choices.
Goals
• Ease traffic congestion, improve freeway traffic flow, and reduce bottlenecks.
• Make public transportation more accessible, convenient, and affordable for seniors, students, and the disabled; and provide better mobility options.
• Optimize the transportation system, enhance local, regional, and express bus service; improve connections between modes; and leverage technology.
• Improve air quality, create jobs, and generate economic benefits; increase personal quality time and overall quality of life.
• Repave local streets, repair potholes, and synchronize signals; improve neighborhood streets and intersections, and enhance bike and pedestrian connections.
Principles
• Defined Benefits. Use transportation sales tax to achieve defined outcomes and benefits.
• Public Participation. Conduct a public outreach program to collect input from stakeholders, residents and the communities throughout Contra Costa County.
• Accountability and Transparency. Protect and monitor the public’s investment.
• Balanced Approach. Balance the needs and benefits for all people and areas of Contra Costa County to provide an equitable and sustainable transportation system.
• Maximize Available Funding. Use transportation sales tax to leverage regional, state, and federal funding opportunities and private investments to maximize the amount of overall funds available for transportation projects in Contra Costa County.
• Commitment to Technology and Innovation. Continue to incorporate advanced technologies and emerging innovations into the transportation system.
• Commitment to Growth Management. Manage growth to sustain Contra Costa’s economy, preserve its environment, and support its communities.
Benefits
• Improve Pavement Condition. Smoother roads in Contra Costa.
• Improve Air Quality. Reduce the number of vehicles on the road and encourage the use of zero emission vehicles.
• Mode Share and Increased Transit Trips. Expand safe, convenient and affordable alternatives to the single occupant vehicle.
• Improve Transit Efficiency and Accessibility. Provide more frequent, reliable and on demand transit services.
• Improve People Throughput. Maximize efficiency of the transportation system by increasing movement of more people and goods through vital congested corridors.
• Reduce Travel Times and Improve Travel Time Reliability on Congested Corridors.
• Improve Economic Activity and Create Jobs. Transportation sales tax investments could result in direct and indirect economic benefits, including jobs, business expansion and attract new businesses.
March 2020 Ballot Election Schedule/Milestones
CCTA Actions
• April 17, 2019 Provide input on Guiding Principles and Work Plan.
• May 15, 2019 Approve Guiding Principles, development of a TEP, Work Plan and funding.
• June 19, 2019 Approve circulation of initial and subsequent draft TEP for review and comment.
• Aug. 21, 2019 Adoption of Proposed TEP, approve circulation to Cities and County for approval - SPECIAL MEETING August 21, 2019 (for March 2020 ballot).
• Oct. 30, 2019 Approve TEP, authorization to put Measure on ballot - SPECIAL MEETING on October 30, 2019.
Other Agency Actions
• Sep. – Oct. 2019 Cities and County Consider Proposed TEP | Cities with majority population and the County Board of Supervisors must approve the TEP.
• November 19, 2019 County Board of Supervisors Considers County Ordinance to Place a TEP on Ballot | County Board of Supervisors would consider and adopt potential County Ordinance to consolidate special election on Authority Tax measure for the March 2020 election.
• December 6, 2019 Registrar of Voters | If approved by Cities and Counties, consolidate Election, place Measure on Ballot.
2) Update From the May 15th CCTA Board Meeting
The CCTA Board met at 6:00 pm on Wednesday May 15th just prior to the submission of this report. The following are the outcomes from that meeting:
Board Action: The following recommendations were approved:
1. Staff seeks direction from the Authority Board to proceed with the development of a new TEP and placement on the March 2020 ballot.
2. Staff seeks authorization for the Chair to execute Amendment No. 3 to Agreement No. 468 with Convey, Inc. (Convey) in the amount of $700,000 for public and stakeholder outreach, as well as preparation of informational material for a new TEP.
3. Staff seeks authorization for the Chair to execute Amendment No. 4 to Agreement No. 278 with Kittelson and Associates, Inc. (Kittelson) in the amount of $200,000 to perform traffic analysis and understand the benefits of a new TEP.
Polling
- Relative to likelihood of passage, the results were similar to 2016. Support hovers around the threshold necessary for approval (two-thirds/66.67%) with a reported margin of error of 3.2 percentage points.
- Support is highest in West County and lowest in San Ramon Valley.
- Other needs (health, police/fire, housing) were not tested relative to transportation needs.
- Themes: "accountability" requiring demonstration of "real benefits" is an attractive component, and "an outcomes-focused measure fares better than a traditional project/program oriented format" was also attractive to the respondents.
- Contra Costa County: "Most Important Problem", "Concerns about housing affordability and homelessness are growing, but traffic and roads are still top of mind". The table below compares 2015 and 2019 responses to the "Most Important Problem" question:
2019
- Affordable housing
- Traffic/congestion
- Homeless people
- Crime/drugs
- Road condition/ infrastructure
- Education/School budgets
- Overcrowding/Growth/ development
- Public Services (i.e. police/fire)
- Cost of living
- Public Transportation/BART
- High taxes
- Environmental Issues/Climate Change
- Leadership/Government
- Local economy/jobs
|
2015
- Traffic/transportation
- Water
- Crime/safety
- Education/schools
- Road conditions
- Overpopulation/development
- Housing availability/affordability
- Government spending
- Homelessness
|
3) Background on the 2016 Measure X effort including input provided by the County
2016 Ballot Results (A two-thirds [66.67] supermajority vote was required for approval)
No: 36.55%
Yes: 63.45%
---------------------------
Contra Costa County
---------------------------
Summary of Input from Board of Supervisors to CCTA
The County sent two letters to CCTA related to the 2016 Measure X effort. One specifically on the TEP (4-29-2016) and another on the earlier Countywide Transportation Plan (10-21-14) which was the precursor to the TEP effort. Both are attached, the 2014 letter is summarized below as it contained the BOS priorities which remained consistent throughout the TEP development process.
10-21-14: Letter: BOS to CCTA: Subject: 2014 Countywide Transportation Plan (intended to inform the Measure X TEP) Update
The letter communicated BOS priorities which included:
• Increased Local Funding Needs: Maintenance, Complete Streets, Storm Water Requirements
• Transit Service Improvements
• Paratransit – “Paratransit service for the elderly and people with disabilities, in addition to requiring additional funding, will also require fundamental administrative changes…” (Staff Note: This comment ultimately resulted in the “Accessible Transportation Strategic Plan” being included in the Measure X TEP. The ATS Plan has been initiated as a collaborative CCTA/County effort using a Caltrans grant.)
• Mass Transit/Fixed Route - General Population Needs: "New SB 743 (2013) vehicle miles traveled reduction requirements suggest a need for increased transit service". (Staff Note: At a May 2019 meeting with the Contra Costa County Planning Directors, MTC staff indicated they are going to be requiring increased transit service for designated Priority Development Areas. Martin Engelmann, CCTA Planning Director, pointed out that transit agencies are going the other direction and reducing service.)
• Safe Routes to School (SR2S) Program
• Major Projects & Emerging Planning Initiatives:
“A comprehensive response on project priorities can be seen in the attached list. This list includes the Board of Supervisors high priority projects including, but not limited to, TriLink (SR239), North Richmond Truck Route, I-680 HOV Gap Closure, Iron Horse/Lafayette-Moraga Trail Connector, Kirker Pass Road Truck Climbing Lane, Vasco Road Safety Improvements, and Northern Waterfront Goods Movement Infrastructure Projects.
In addition to these projects, the Board of Supervisors requests continued Authority advocacy and funding for activities supportive of economic development in areas of the County where such investment is needed and desired by local communities. For instance, this support could fund activities within Priority Development Area (PDAs) and as part of the Northern Waterfront Economic Development Initiative. We are supportive of CTP actions that include planning and implementation funding for transportation projects and programs, infrastructure improvements and other expenditures that facilitate needed economic development. Such investment will help balance jobs and housing and make more efficient use of our transportation infrastructure. The Board of Supervisors considers these efforts as integral to the continued growth of our region and economy.” (Staff Note: This concept was ultimately reflected in the Measure X TEP as the “Community Development Transportation Program”.)
---------------------------
Contra Costa Transportation Authority
---------------------------
The Final Measure X Transportation Expenditure Plan submitted to the voters is attached to this report. The expenditure table and graphics below summarize the funding program.
4) County - Regional Transportation Sales Tax: Statewide Context: This information was requested by the Board of Supervisors during the Measure X effort. The attached spreadsheet lists the details of countywide transportation/transit taxes in place throughout the state. It has been updated since 2016, new entries are shaded.
Below is a summary of counties that have more than one countywide transportation/transit sales tax. The BART** sales taxes from the original three BART counties (Alameda, Contra Costa, San Francisco) are included below. However, these taxes differ from the other taxes in the table in that they were put in place by a district wide vote (1969) and made permanent by the state legislature in 1977 (AB 1107).
| Alameda County |
|
| 2 Transportation Sales Taxes |
1.00% |
| BART** |
0.50% |
| Total |
1.50% |
| |
|
| Contra Costa County |
|
| 1 Transportation Sales Tax |
0.50% |
| BART** |
0.50% |
| Total |
1.00% |
| |
|
| Los Angeles County |
|
| 4 Transportation Sales Taxes |
2.00% |
| |
|
| Marin |
|
| 1 Transportation Sales Tax |
0.50% |
| 1 Transit Tax (SMART Rail) |
0.25% |
| Total |
0.75% |
| |
|
| Monterey |
|
| 1 Transportation Sales Tax |
0.375% |
| 1 Transit Tax |
0.13 |
| Total |
0.50% |
| |
|
| San Francisco City/County |
|
| 1 Transportation Tax |
0.50% |
| BART** |
0.50% |
| Total |
1.00% |
| |
|
| San Mateo County |
|
| 1 Transportation Tax |
0.50% |
| 1 Transit Tax |
0.50% |
| Total |
1.00% |
| |
|
| Santa Clara County |
|
| 2 Transportation Taxes |
1.00% |
| 1 Transit Tax |
0.50% |
| 1 BART Tax |
0.125% |
| Total |
1.625% |
| |
|
| Santa Cruz County |
|
| 1 Transportation Tax |
0.50% |
| 1 Transit Tax |
0.50% |
| Total |
1.00% |
| |
|
| Sonoma County |
|
| 1 Transportation Tax |
0.25% |
| 1 Transit Tax (SMART Rail) |
0.25% |
| Total |
0.50% |
| |
|
| |
|
Updated Transportation Context: Revenues/Needs
Needs: While additional revenue has been secured as described below, the need for local funding still exists: 1) local funding is more flexible and can reliably be used as match funding for state and federal grants, 2) first/last mile improvements (inherently local projects) were prioritized in the first round of CCTA sales tax polling, 3) interest and requirements for transportation projects to be multimodal are increasing, 4) MTC is planning on increasing transit requirements for Priority Development Areas in a time when transit agencies are being forced to cut service, and 5) increasing labor/material costs combined with ever more sophisticated environmental/water quality design standards increase project costs (both capital and maintenance).
Revenue: The primary changes are the passage of Senate Bill 1 (2017 – statewide gas tax increase) and Regional Measure 3 (2018 – Bay Area bridge toll increase), both summarized below.
Senate Bill 1 (SB 1) - Road Repair and Accountability Act: SB 1 was passed by the legislature/signed by the Governor in 2017 and increased several taxes and fees (phased in over time) to raise over $5 billion (statewide) annually in new transportation revenues. SB 1 also provides for inflationary adjustments so that the purchasing power of the revenues does not diminish as it has in the past. SB 1 prioritizes maintenance and rehabilitation and safety improvements on state highways, local streets and roads, and bridges and to improve the state’s trade corridors, transit, and active transportation facilities.
Regional Measure 3 (RM3): RM3 was passed by Bay Area voters in 2018 and increases the tolls on all Bay Area toll bridges except the Golden Gate Bridge. The tolls increase by $1 in 2019, an additional $1 in 2022, and an additional $1 in 2025, for a total increase of $3. After 2025, tolls could be increased for inflation.
The RM3 project list is included in the attached authorizing legislation (SB 595 - 2017) below. Contra Costa specific projects are listed below although other projects on the list have Contra Costa components or provide an indirect benefit.
(19) Contra Costa Interstate 680/State Route 4 Interchange Improvements. ($210,000,000).
(25) Richmond-San Rafael Bridge Access Improvements. ($210,000,000).
(31) Interstate 80 Transit Improvements. ($25,000,000).c
(32) Byron Highway-Vasco Road Airport Connector. ($10,000,000). (33) Vasco Road Safety Improvements.($15,000,000).
(34) East Contra Costa County Transit Intermodal Center. ($15,000,000). (35) Interstate 680 Transit Improvements. ($10,000,000).
5) Conclusion and request for guidance.
Staff is requesting 1) guidance regarding priorities and principles to pursue when engaging CCTA and the regional transportation planning committees during the formulation of the expenditure plan, and 2) direction on how to engage the Board during this process.