A Guide to Active Transportation in Orange County

A Guide to Active Transportation in Fall 2016 Prepared by California Walks Caro Jauregui, Southern California Policy Manager Tony Dang, Deputy Director

Table of Contents Executive Summary... 1 Introduction... 2 Active Transportation Planning, Project Development & Project Implementation... 4 Active Transportation Policy & Planning... 4 Complete Streets... 4 Pedestrian & Bicycle Master Plans... 5 Active Transportation Project Development & Implementation... 6 Active Transportation Decision-Making Bodies... 8 Federal Active Transportation Decision-Making Bodies... 8 State Active Transportation Decision-Making Bodies... 9 Active Transportation Funding 101... 15 Federal Transportation Revenue... 15 State Transportation Revenue... 15 OCTA Revenue Breakdown... 15 Local and Regional Funding... 17 Garden Grove Capital Improvement Project Process... 18 Santa Ana Captial Improvement Project Process... 19 Active Transportation Grant & Other Funding Opportunities... 20 Conclusion... 22 Active Transportation Policy & Encouragement Opportunities... 22 Resources... 22 Endnotes... 23 Appendices Appendix A: Public Participation Requirements in Transportation Planning

Key Terms & Abbreviations ATP Caltrans CIP COG CTC FHWA FTA GGRF LRTP LWCF MPO NHTSA OC OCCOG OCTA RTP RTPA RWJ SCAG SCS SHOPP STIP USDOT Active Transportation Program California Department of Transportation Capital Improvement Program Council of Governments County Transportation Commission Federal Highway Administration Federal Transit Administration Greenhouse Gas Reduction Fund Long Range Regional Transportation Plan Land and Water Conservation Fund Metropolitan Planning Organization National Highway Traffic Safety Administration Council of Governments Transit Authority Regional Transportation Plan Regional Transportation Planning Agency Robert Wood Johnson Southern California Association of Governments Sustainable Communities Strategy State Highway Operation and Protection Plan State Transportation Improvement Program United States Department of Transportation

Acknowledgments California Walks would like to thank Alan Thompson from the Southern California Association of Governments (SCAG) and Marnie O Brien Primmer, Executive Director of the Council of Governments (OCCOG) for their assistance in securing the most updated OC planning information. California Walks would also like to thank Paul Martin, Active Transportation Coordinator with the Orange County Transportation Authority (OCTA), for providing OCTA budget data and active transportation budget allocation information. We would also like to thank Erin Webb, Garden Grove Senior Planner, Ana Vergara-Neal, Garden Grove Public Works Analyst and William Galvez, Santa Ana Public Works Engineer, for their time and thoughtful explanation of the Capital Improvement Program process in Garden Grove and Santa Ana. Finally, California Walks would like to thank the Alliance for a Healthy (AHOC) and Michele Martinez for inviting California Walks to produce this toolkit. The Alliance for a Healthy (AHOC) is a county-wide collaborative of health care organizations, community-based organizations and universities whose mission is to champion policy strategies and leverage funding opportunities that result in enhanced health outcomes and reduced health disparities for residents. http://www.ochealthalliance.org This toolkit was developed with funding provided by The California Endowment.

Executive Summary Active transportation refers to people-powered forms of movement and includes walking, biking, skating, roller blading, scootering, and rolling. Active transportation has many proven physical, social, and mental health benefits through increased levels of physical activity. Investments in active transportation can also improve the environment by reducing vehicle miles traveled thus reducing the greenhouse gases and other pollutants released by vehicles and therefore improving air quality for everyone. Many OC cities have already outlined their active transportation investments and priorities through Pedestrian and Bicycle Master Plans, Active Streets Plans, and a countywide Complete Streets Initiative. Increased community engagement and participation will help the OC take active transportation to the next level and better position OC communities to take advantage of future state and federal funding opportunities. This toolkit is designed to increase knowledge of OC policymakers, residents, and other stakeholders on the active transportation planning process including: Active transportation planning, project development and project implementation; OC relevant transportation agencies and decision-making bodies; Active transportation funding; and Capital Improvement Program development in the OC. To increase walking and biking in the OC and to improve the safety of pedestrians and bicyclists, policymakers, community members, and other stakeholders must first understand the complexities surrounding transportation decision-making and transportation funding. There are many players involved in both funding and decision-making at a federal, state, regional and local level. At a regional level, OC residents can get involved with the Transportation Authority s Bicycle and Pedestrian Subcommittee and should also get involved with the Board of Supervisors to better understand their processes and which active transportation issues are at the forefront of that decisionmaking body. At a very local level, residents can attend their local City Council meetings, the City s Planning Commission, Public Works Commission, Parks and Recreation Commission, Pedestrian, Bicyclist and/or Transportation Committee meetings to learn and become more involved. Policymakers and agency staff can support resident involvement through these avenues as well. With resident involvement and agency and elected official champions, agencies, counties, and cities are more likely to create a policy framework prioritizing walking and biking by implementing executive directives, establishing a safety taskforce and initiating a pedestrian and/or bicyclist master plan. Community members and elected official champions can also push for the following encouragement activities: a Walk to Work Day and Bike to Work Day, work with school districts to encourage participation in International Walk to School Day in October and National Bike to School Day in May and Host an Open Streets event. California Walks is in the process of developing an Active Transportation Leadership Program Curriculum Module and accompanying Trainer s Guide for cities in the OC intended to assist in the continued development of active transportation leaders across. This curriculum and guide will be available by mid-november 2016. 1

Introduction Active transportation refers to people-powered forms of movement and includes walking, biking, skating, roller blading, scootering, and rolling. Active transportation has many proven physical, social, and mental health benefits through increased levels of physical activity. For example, an American Journal of Preventative Medicine article found that walking just 0.62 miles per day is associated with a five percent decrease in the likelihood of obesity. i EveryBody Walk! Health Benefits of Walking Infographic ii Additionally, investments in active transportation can improve the environment by reducing vehicle miles traveled thus reducing the greenhouse gases and other pollutants released by vehicles (e.g. particulate matter, CO (carbon monoxide), NOx (nitrogen oxides), and VOC (volatile organic compounds)) and improving air quality for everyone. iii According to the 2016 City Profiles iv, obesity rates in (OC) range from 14.8% for Newport Beach to 31.1% for Santa Ana, while the state average is 24.2%. v The following nine OC cities have obesity rates that are equal to or higher than the state average (in alphabetical order): Anaheim: 27.8% Buena Park: 25.5% Garden Grove: 24.2% La Habra: 28.7% Orange: 24.8% San Juan Capistrano: 26.3% Santa Ana: 31.1% Stanton: 27.7% Tustin: 24.7% 2

Many people driving alone to work in the OC contribute to the increasing total amount of vehicle miles traveled in the County and likely impact the level of physical activity residents are engaged in on a daily basis. The California average for people driving to work alone is 73.2%. vi Only three OC cities have rates of people who drive to work alone that are lower than the state average (in alphabetical order): Laguna Woods 72.3%, San Clemente 72.5% and Santa Ana with 71.9%. Fourteen OC cities have rates of people driving alone to work that are over 80%. vii By focusing investments to provide more active transportation opportunities, many of the 34 (OC) cities can improve their obesity rates at the same time as reducing their vehicle miles traveled. Active Transportation Facts & Figures viii Approximately 10.9% of trips in the OC are completed by people walking and 1.21% by people bicycling. The average completed walking trips in other regions of Southern California is higher, 17%. ix Shifting toward investments that increase walking and biking, improve overall health, and reduce vehicle miles traveled, some OC cities have already outlined their active transportation investments and priorities through Pedestrian and Bicycle Master Plans, Active Streets Plans, and a countywide Complete Streets Initiative. According to the Southern California Region of Governments (SCAG), the OC is in the process of developing a countywide bikeway network, the health department has incorporated Safe Routes to School programming, and 15 cities have either completed or begun a Safe Routes to School plan. x Increased community engagement and participation will help the OC take active transportation to the next level and better position OC communities to take advantage of future state and federal funding opportunities. This toolkit is designed to increase knowledge of OC policymakers, residents, and other stakeholders on the active transportation planning process including: Active transportation planning, project development and project implementation; OC relevant transportation agencies and decision-making bodies; Active transportation funding; and Capital Improvement Program development in the OC. 3

Active Transportation Planning, Project Development & Project Implementation Active Transportation Policy & Planning Complete Streets In 2008, the California State Legislature passed Assembly Bill 1358, The California Complete Streets Act. The Complete Streets Act requires that all cities and counties plan for the development of multimodal transportation networks in the next update of their General Plan circulation element. xi Multimodal transportation refers to the various modes of travel people take, while complete streets are streets that are designed for multimodal transportation. In other words, complete streets are designed for all road users, including people driving, walking, and bicycling. Model Complete Streets, Infographic xii By law, every city and county must have a General Plan that outlines policies governing how a community develops, provides a vision for how a community wishes to grow, and reflects the community s priorities and values. In other words, a General Plan can be seen as a community s constitution. The General Plan and its elements are critical in shaping the future of a city and/or county. Each General Plan is required to include the seven elements listed below: xiii Land Use Circulation Housing Conservation Open Space Noise Safety 4

The Complete Streets Act requires cities to plan for multimodal transportation upon the next update of the circulation element. General Plans are updated periodically and only the housing element must be updated every five years. The different elements of a General Plan must be consistent with one another, and each element must have equal status. At a city level, a circulation element update and a General Plan update can only be initiated by the City Council based on the recommendation of the Planning Commission. The General Plan can only be updated up to four times a year, and the applicant and/or person requesting the changes must have a compelling reason in order for the changes to be approved by the Council. Due to the high costs of revising entire General Plans, many communities undertake revisions of one or more specific General Plan elements at a one time. Pedestrian & Bicycle Master Plans Cities, counties and agencies may choose to prioritize active transportation through a pedestrian master plan, a bicycle master plan and/or an active streets plan. These plans are often viewed as a guiding document for implementing the active transportation aspects within a community s General Plan. These plans do the following: Summarize policies, practices, and goals; Analyze existing conditions & travel patterns; Establish and prioritize walking and biking routes; and Develop and prioritize projects and programs Once approved by a City Council, these plans are critical in guiding active transportation investments. At a regional level, agencies can also complete master plans and support complete streets initiatives. In the OC, the Transportation Authority (OCTA) completed a Bikeways Master Plan in 2009, xiv and in 2015 the Council of Governments completed a Complete Streets Initiative. xv The following 11 cities have updated their General Plan to include a complete streets component as of September 2015: Aliso Viejo Buena Park Fullerton Irvine La Habra La Palma Laguna Beach Los Alamitos Rancho Santa Margarita San Clemente Santa Ana A detailed accounting of the type of adopted plans and policies in the OC related to complete streets can be found in the Council of Governments OC Complete Streets Initiative Comprehensive Needs Assessment Survey Report (September 2015). The California Department of Transportation (Caltrans) has also set a goal of tripling bicycling and doubling walking by 2020. xvi To help achieve this goal, Caltrans is currently in the process of developing California s first Bicycle & Pedestrian Plan. The plan will be completed in February 2017 and will be a policy document that will support active modes of transportation across the state. xvii 5

Active Transportation Project Development & Implementation Many steps are involved in developing and implementing an active transportation project. Some projects will involve construction, while others will be programmatic (e.g., Safe Routes to School education and encouragement programs). The following steps break down the process xviii : Step 1: Identifying Project Priorities Projects often originate from community members, advocates, and residents requesting a very specific need. The City will collect quantitative and qualitative data to evaluate the gravity of the problem/need, and City staff will use the data to weigh the potential options against the City s identified plans and priorities to determine the best way to address the community s identified need. In addition to residents testimony, the City can conduct existing conditions evaluations that include a walkability and bikeability assessment, pedestrian and bicyclist counts, and a collision data analysis. It is best practice to conduct these comprehensive analyses through a bicycle or pedestrian master planning process. Step 2: Developing Project Concept Based on the priorities identified from the initial community need and the quantitative and qualitative data collected, City staff and/or consultants design various project options. Community input is key in developing project designs. Best practices for community engagement include hosting meetings outside of regular working hours, providing snacks or meals, and having all materials and presentations available in the language(s) spoken by the residents. Step 3: Assessing Project Feasibility The final project design will be formulated once various factors are assessed for feasibility. The factors assessed include analyzing costs, effectiveness and legality of the preferred alternative(s). Costs: Most final projects selected are chosen based on their affordability in comparison to other alternatives. Additionally, the benefits of a project must outweigh its financial costs. The ability to line up funding for a project also plays a large role in selecting the final project. Effectiveness: The final project selected must be the alternative that best addresses the problem it is trying to solve. Legality: Assessing the legality of various project options is important. At this point, City staff and/or consultants will ensure that the alternatives do not violate City codes and rules. 6

Step 4: Introducing Project Proposal The final project proposal will be introduced and must be approved by the City Council. After project approval, per state law, most projects (especially those involving construction) will have to conduct an Environmental Impact Review. Before construction and/or project implementation takes place, funding must be secured. When funding is secured, the City, via a bidding process, will hire the construction company that will construct the project or an organization or agency to deliver a program. The City will also be responsible for all paper work including permits and filing Notices of Construction. Step 5: Completing Project Construction/Implementation For infrastructure projects, the project is constructed and/or implemented. It is best practice to ensure that bicycle and pedestrian access is preserved during construction through provision of an alternate route. For non-infrastructure programs, the education or encouragement program is implemented via a detailed work plan. Step 6: Project Construction/Implementation Follow-up Once a project is constructed and/or implemented, regular maintenance and monitoring of results is necessary. Increasingly, many state and federal funding sources require data collection of how many people are using a new walking/biking facility or have been engaged/educated through a non-infrastructure program. Best practices for monitoring and evaluation include conducting pedestrian and bicycle counts, installing and evaluating data from automated pedestrian and bicycle counters, and conducting qualitative surveys to measure changes in knowledge or behavior. 7

Active Transportation Decision-Making Bodies Active transportation investment and prioritization decisions are made at all levels of government city, county, regional, state and federal by a variety of decision-makers including agencies, elected officials, appointed officials, commissioners, board members, and special committees. Some of these entities are made up of and/or include concerned residents who usually have expertise in planning, transportation, and/or active transportation. Some of the roles at every level of the decision-making process, along with community engagement opportunities are described below. xix Federal Active Transportation Decision-Making Bodies The federal surface transportation act is what guides the federal government s transportation investments for every five or six years shaping the overall direction of our nation s transportation policies and goals, as well as funding for transportation projects. For states and localities who are the ones responsible for planning and implementing transportation projects the federal surface transportation act provides a degree of fiscal and policy certainty that enables officials to take on multi-year projects and to plan long-term projects for their communities. Since the 1950s, Congress has collected a tax on gasoline purchases that forms the bulk of what is known as the Highway Trust Fund our nation s dedicated funding stream for surface transportation projects. Among other things, the Trust Fund provides states and localities with funds for the capital construction costs for highways and since the 1980s, transit systems. The passage of a surface transportation act consists of two steps: authorization and appropriation. Authorization sets the maximum funding levels for specific programs or agencies, as well as overall funding ceilings for each year over the life of the bill. Appropriations, on the other hand, occur on an annual basis, and determine the actual amounts federal agencies and programs are allowed to spend. An authorization bill must pass both the House of Representatives and the Senate with any differences reconciled before the President is able to sign it into law. Our current surface transportation act was passed on December 4, 2015 and is known as the Fixing America's Surface Transportation Act or FAST Act. Every year, Congress finalizes budget appropriations for various departments, including the United States Department of Transportation (USDOT). The USDOT guides policy and administers federal funds for airports, highways, rail, transit and ports through the Federal Highway Administration (FHWA) and the Federal Transit Administration (FTA). In addition, the National Highway Traffic Safety Administration (NHTSA) works to reduce crashes and improve highway and motor vehicle safety. xx Projects or programs seeking to receive federal funds must be included in a state s federal Transportation Improvement Program (FTIP). The FTIP is essentially a list of projects that have been identified and prioritized by local, regional, and state decision-making bodies. Key Takeaway: The FAST Act guides all transportation investments across the U.S. All projects that will receive funds must be included in the state s FTIP. 8

U.S. Congress Approves the FAST Act and creates the Highway Trust Fund U.S. Secretary of Transportakon Directs the U.S. Department of Transportakon FHWA 1 of 13 Agencies within the U.S. Department of Transportakon FTA 1 of 13 Agencies within the U.S. Department of Transportakon NHTSA 1 of 13 Agencies within the US. Department of Transportakon State Active Transportation Decision-Making Bodies In California, the State Legislature sets policies and makes funding allocations during its annual budget process. Funding allocations include transportation appropriations. Once this amount of money is established, the California Transportation Commission (CTC) approves projects that the California Department of Transportation (Caltrans) nominates to be funded. The California Transportation Commission has 11 voting members and two non-voting members. Nine of the 11 voting members are appointed by the Governor, one by the Senate Rules Committee and one by the Speaker of the Assembly. xxi The CTC is also responsible for preparing the State Transportation Improvement Program (STIP), which forms the basis for California s FTIP. The STIP is essentially a list of projects that have been identified and prioritized by local, regional, and state decision-making bodies and that will be eligible for state and federal funding. 75% of the STIP is determined by regional Metropolitan Planning Organizations (MPOs), while the remaining 25% is determined by Caltrans in partnership with non-metropolitan areas for interregional transportation projects. 9

California Transportakon Commission Prepares the State's Tranportakon Improvement Program, the basis of the Federal Transportakon Improvement Program. Approves funding for projects nominated by Caltrans through the California Tranpsortakon Plan. 75% of the State's Transportakon Improvement Program is determined by the Metropolitan Planning Organizakons. 25% of the State's Transportakon Improvement Program is determined by Caltrans. The OC is Caltrans District 12. California Department of Transportation (Caltrans) and Caltrans District 12 o Caltrans is in charge of more than 50,000 miles of California's highway and freeway lanes, providing inter-city rail services, permitting more than 400 public-use airports and special-use hospital heliports, and working with local agencies. xxii Caltrans management of these various modes of transportation includes setting policy at a state level regarding traffic treatments and street improvements affecting walking and biking. To guide their prioritization process, Caltrans sets its goal through the California Transportation Plan (CTP), and updates it at least every four years. Caltrans is divided into districts, and the OC is Caltrans District 12. Every district is led by a District Director who guides policy across the various departments. Caltrans recently set a goal of tripling bicycling and doubling walking by 2020. Working on achieving this goal, Caltrans is currently in the process of developing California s first Bicycle & Pedestrian Plan, which will be completed in February 2017. This state policy will influence the entire state, including Caltrans District 12. The community input window for the California Bicycle & Pedestrian Plan is still open, to provide your input visit: http://www.cabikepedplan.org/app_pages/view/13. xxiii Key Takeaway: All transportation projects requiring funding in California must be approved by the CTC via the state s FTIP. Caltrans is divided into multiple districts, the OC is Caltrans District 12. County and Regional Active Transportation Decision-Making Bodies Southern California Association of Governments (SCAG) and the Council of Governments (OCCOG) o Role: Under federal law, SCAG is a Metropolitan Planning Organization (MPO) and under state law, it is both a Regional Transportation Planning Agency (RTPA) and a Council of Governments (COG). SCAG is made up of 6 counties (includes the OC) and 191 cities (includes OC cities) and is the largest MPO in the United States. SCAG develops a long-range regional transportation plan (LRTP) and the Regional Transportation Plan (RTP), which encompasses the Sustainable Communities Strategy (SCS) and growth forecast components, regional transportation improvement programs, regional housing needs 10

allocations and a portion of the South Coast Air Quality management plans. xxiv The RTP also contains the region s Transportation Improvement Program (TIP), which feeds into the STIP and subsequently the FTIP. Southern California Associakon of Governments 1) Metropolitan Planning Organizakon 2) Regional Transportakon Planning Agency 3) Council of Governments Develop 1)LongRange Transportakon Plan 2) Sustainable Communikes Strategy 3) Regional Transportakon Plan = Transportakon Improvement Program, which feeds into the State's Transportakon Improvement Program o Since the SCAG region is very large, there are various COG s across the region including the OCCOG. The OCCOG, in alignment with SCAG bylaws, develops the OC s transportation priorities. The OCCOG is comprised of Board Members who are current OC elected officials. SCAG also manages 6 county transportation commissions (CTC s) including, the Transportation Authority (OCTA). Community Engagement Opportunity: SCAG and the OCCOG both have Board Meetings and various committee meetings that are open to the public. Community members can attend these meetings and learn more about the specific issues discussed. Southern California Associakon of Governments 1) Council of Governments 2) County Transportakon Commissions 1) Council of Governments 2) Transportakon Authority 11

Boundaries of the Southern California Association of Governments (SCAG) region xxv Key Takeaway: At a regional level, SCAG is responsible for the transportation planning and the transportation funding allocated within the region. Transportation Authority (OCTA) o Roles: OCTA is responsible for all forms of transportation in the OC, including: bus and paratransit service, Metrolink commuter rail service, planned future rail, freeways, street and road improvement projects, motorist services and regulating taxi operations. This includes planning for these various modes of transportation and allocating funds for them as well. xxvi All major decisions are made by the OCTA Board, comprised of 18 total members: 15 are current elected officials such as County Supervisors and City Councilmembers, 2 are members of the public and the final seat is an ex-officio seat held by the current Caltrans District 12 Director. OCTA also serves as the County Transportation Commission for and interfaces regularly with SCAG to determine the County s transportation priorities, particularly for inclusion in the regional TIP. In 2009, OCTA released their Commuter Bikeways Strategic Plan and they are currently in the process of completing a sidewalk gap inventory. o Community Engagement Opportunity: OCTA Board meetings are open to the public. The public can provide public comment on various issues and can also contact staff and Board members directly regarding their concerns. In addition, OCTA hosts a permanent Bicycle and Pedestrian Subcommittee where residents can also express their concerns and participate. xxvii Key Takeaway: OCTA is responsible for all forms of transportation in the OC. All major decisions are made by the OCTA Board. Board of Supervisors o Roles: County Supervisors determine the local land-use and transportation priorities of the Supervisorial District they are representing and the County as a whole through guiding policy documents like plans. They can also allocate local funds towards active transportation projects. County Supervisors are especially important for unincorporated communities because a supervisor is their most local representation. 12

o Community Engagement Opportunity: People who are eligible to vote should vote. County Supervisors are elected to represent their constituents. The public can become involved by attending supervisorial meetings, writing letters, emailing and calling their representative advocating for active transportation. Key Takeaway: County Supervisors determine local land-use and transportation priorities and can fund some transportation projects. City Level Active Transportation Decision-Making Bodies (In order of direct influence over active transportation policy and projects.) City Council o Roles: Councilmembers determine the local land-use and transportation priorities of the City they represent through guiding policy documents like plans and updating their General Plan to include Complete Streets policies. The Council also approves the final City budget and the allocation of local funds towards active transportation projects, like the Capital Improvement Program (CIP). o Community Engagement Opportunity: People who are eligible to vote should vote. City Councilmembers are elected to represent their constituents. The public can become involved by attending bi-monthly Council meetings, writing letters, e-mails, and calling their representative to advocate for active transportation. Agenda s for Council meetings and further information regarding Council meetings is available online or at the City s City Hall. Planning Commission, Public Works Commission, Parks and Recreation Commission, Pedestrian, Bicyclist and Transportation Committees o Roles: City commissions and committees are made up of appointed City residents, commissioners and committee members. Commissioners and committee members are appointed by City Councilmembers and they help shape policy at a city level. The Planning Commission, the Public Works Commission, the Parks and Recreation Commission, the Pedestrian, Bicyclist and Transportation Committees can at some point make decisions regarding active transportation planning and projects. The Planning Commission in particular makes important recommendations to the City Council regarding policies, plans and projects affecting the future of active transportation at a city level. o Community Engagement Opportunity: City residents who are especially interested in promoting walking, biking and other forms of active transportation should consider becoming a commissioner or committee member. Interested residents should contact their City Councilmember for more information. City 13

residents and other community members can also attend commission and committee meetings to remain informed and discuss important issues with the commissioners. Agenda s for these meeting and further information about these meetings is available online or at the City s City Hall. Planning Departments, Public Works Departments and Parks and Recreation Departments o Roles: City staff who work for the Planning Department, the Public Works Department and the Parks and Recreation Department carry out City policies outlined in the General Plan and tasks as directed by the City Council, City Manager and the Mayor. o Community Engagement Opportunity: City residents can remain informed about job openings and contact Councilmembers to ensure that department heads promote and prioritize active transportation. School Boards o Roles: School Board members have the power to create policies that determine how students arrive to school, including whether or not they can walk, bike or skate to school. o Community Engagement Opportunity: People who are eligible to vote should vote. School Board members are elected to represent their constituents. The public can attend School Board meetings, write letters, emails and call their representative to advocate for active transportation. Key Takeaway: The City Council, Department heads and staff determine the land use transportation priorities of a City. There are various ways to get involved with your City including attending Council meetings and commission meetings. Community Engagement Community engagement at every level of the decision making process is not only important but legally required. The federal requirements for community engagement, which apply to all agencies at every level who receive federal funds, are available in Appendix A. Examples of meaningful public participation are available in the diagram below: xxviii 14

Active Transportation Funding 101 Federal Transportation Revenue Federal funds are collected from the Federal Fuel Excise Tax and approximately 85% of these funds are administered by the Federal Highway Administration (FHWA) and passed through to states to fund a variety of surface transportation projects on highways and local streets and roads. The other 15% of funds are administered by the Federal Transit Administration to support state regional agencies and local transit providers. Caltrans acts as the primary administering agency for FHWA and FTA funds in California. In the OC, federal funds are sub allocated to SCAG and OCTA. xxix Key Takeaway: Funds collected at a federal level are administered by Caltrans, SCAG and OCTA. State Transportation Revenue State funds are collected from the State Fuel Excise Tax, the Truck Weight Fees, the Fuel Tax Swap and the Greenhouse Gas Reduction Fund. The State Fuel Excise Tax funds are divided between the State Highway Account (Caltrans), counties and cities based on a formula. Truck Weight Fees are directed to California s General Fund to cover the costs of specific voter approved transportation bonds. The Fuel Tax Swap revenues are used for new construction under the State Transportation Improvement Program (STIP), highway maintenance and operations under the State Highway Operation and Protection Plan (SHOPP), and 1.75% of the funds are earmarked for local transit agencies. xxx As vehicles have become more fuel efficient, revenue collected from the federal and state fuel taxes has decreased. The state has also created the Active Transportation Program (ATP), which is funded at roughly $120 million annually. The ATP is the state s primary source of dedicated funding for walking, biking, Safe Routes to School, and trail projects. The ATP is a competitive program and is divided into three major components: 50% of the ATP is reserved for a statewide competition for all communities; 10% of the ATP is reserved for a competition available only to small cities and rural regions; and 40% of the ATP is sub allocated to Metropolitan Planning Organizations (MPOs) in large urban regions to administer regional competitions. 25% of funding in each of the three components of the program are statutorily required to benefit disadvantaged communities as defined by the program. As part of California s climate change strategy, the California Air Resources Board manages a cap-and-trade program, through which revenues are generated by quarterly auctions held by the Air Resources Board. These revenues are deposited into the Greenhouse Gas Reduction Fund (GGRF) with the goal of reducing California s greenhouse gas emissions to 1990 levels by the year 2020. The GGRF provides funding to a variety of climate change programs, and recently, $10 million in GGRF funds have been appropriated to the Active Transportation Program. In addition to the GGRF funds in the ATP, active transportation projects are eligible in a variety of GGRF programs, including the: Affordable Housing and Sustainable Communities (AHSC) program (administered by the Strategic Growth Council); Transit and Intercity Rail Capital Program (TIRCP) (administered by the California State Transportation Agency); and the Low-Carbon Transit Operations Program (LCTOP) (sub allocated by formula to transit operators across the state). Key Takeaway: There are various state revenue sources. The two newest opportunities that prioritize active transportation are the ATP and the GGRF. OCTA Revenue Breakdown At a very local level, OCTA manages funds collected from Measure M2, xxxi along with other revenues collected from toll roads/express lanes and transit fares. OCTA s total revenue sources for the 2016-2017 budget year are the following xxxii : 15

Federal Grants: $272.2 million M2 Sales Tax: $314.3 million Local Transportation Fund Sales Tax: $161 million Passenger Fees: $49.9 million State Grants: $63.6 million 91 Express Lanes Revenue: $43.5 million State Transit Assistance: $17.2 million Interest: $21.9 million Property Tax: $13.4 million Other: $10.5 million Advertising: $4.7 million Use of Prior Year Designations: $189.3 million Total in Revenue Sources: approximately $1.16 billion Major funding allocations include: $345.1 million for countywide bus service $183.2 million for streets and roads improvements $230.4 million for freeway projects $10.5 million for environmental cleanup Some of these projects are active transportation projects improving walking and biking across the OC. Approximately $73.3 million has been secured by OCTA specifically for improving walking and biking environments and another $950 thousand for active transportation planning and educational programs. xxxiii 16

xxxiv Key Takeaway: OCTA has secured over $74 million for active transportation infrastructure, planning and education. Local and Regional Funding The transportation funding available to cities and regional agencies like OCTA, as described in the above sections are the following: Federal Fuel Excise Tax State Fuel Excise Tax State Truck Weight Fees State Fuel Tax Swap California's Greenhouse Gas Reduckon Fund State Aid: Ackve Transportakon Program Federal Aid 's Measure M2 including Compekkve Measure M2 Grants OCTA Other Revenue Cikes General Fund Every city funds its active transportation projects differently. However, across the board, one of the most important funding sources for cities is their Capital Improvement Program (CIP). The CIP consists of large and costly infrastructure improvements that are eligible for state and federal funding. xxxv Often, the CIP process may lack community input. As a 17

result, the types of projects funded may not be supportive of walking and biking. OC cities could consider participatory budgeting, a democratic process where residents vote on their preferred projects. xxxvi California Walks conducted two key informant interviews to provide insight into how two cities in the OC develop and implement their CIP active transportation projects. Garden Grove On Tuesday, September 27, 2016, California Walks interviewed Ana Vergara-Neal, Garden Grove Public Works Analyst to better understand Garden Grove s CIP process. Below is a summary of that conversation: 1) What type of projects does Garden Grove invest in via the CIP? There are three departments in Garden Grove that submit projects to the City s CIP. The three departments are: the Public Works Department, the Community Development Department and the Community Services Department. The Public Works Department projects are often the most costly since they include infrastructure improvements to be made on residential streets, arterial streets and that affect traffic. 2) What is the decision-making process for CIP projects and how is the community involved in this process? The Public Works Department has Master Plans that guide the prioritization of the projects. It is ultimately the estimated cost of a project that determines if and when it will become a CIP project because the CIP is based on the annual city budget. Before a project is determined to be a CIP project it goes through the following: a) The City s Civil and Traffic Engineers develop a draft plan for the project and include project estimates. b) The City s Public Works Analyst (Ana Vergara-Neal), assesses whether or not there is currently enough funding for the project and/or which federal and state grants must be pursued to cover the costs of the project. Projects that are pursued are examined for their cost to benefit ratio and their likelihood to be funded by the competitive federal and state grants. c) After the three departments that propose CIP projects have all compiled their final lists, projects are presented to the City s Economic Development and Improvement Committee for informational purposes. d) All CIP projects are presented to the Central Management Committee, a committee consisting of all of the Garden Grove s department managers and the City Manager. e) The projects are folded into the City s budget and the City Council votes on the final budget annually in June. 3) What are the funding sources used for the CIP in Garden Grove? The Public Works Department receives revenue from user fees for water and sewer services. However, transportation projects are funded through Measure M2, the gas tax, developer fees, and traffic impact fees. These are matched and combined with grants the City pursues. Some of these grants include the OCTA Call for Projects via the Measure M2 Competitive Grant, Caltrans local assistance funding and California s Active Transportation Program (ATP) grant. On September 23, 2016, California Walks consulted with Erin Webb, Garden Grove s Senior Planner via e-mail to determine where and how do the plans and programs identified in the Garden Grove Active Streets Plan fit within the City s CIP process. Ms. Webb clarified that the Active Streets Plan s goals, policies, and implementation strategies will be adopted into the city s General Plan, including a specific objective for the City to "[c]onsider pedestrian and bicycle projects into the City's Capital Improvement Program (CIP) that will create a more walkable and bikeable environment in Garden Grove." 18

CIP Process in Garden Grove City Engineers & Analysts Propose Projects for CIP based on exiskng Master Plans Departments (Public Works; Community Development; Community Services) Finalize Proposed Project Lists Economic Development and Improvement Commiuee Reviews Proposed Project Lists (No Ackon Taken) Central Management Commiuee Reviews & Approves Proposed Project Lists for Inclusion in CIP & City Budget City Council Reviews & Approves CIP in Annual Budget Process Santa Ana On Thursday, September 29, 2016, California Walks interviewed William Galvez, Santa Ana Public Works Engineer. Below is a summary of that conversation: 1) What type of projects does Santa Ana invest in via the CIP and how is the community involved? In Santa Ana, CIP work must be financially self-sufficient, self-supporting and self-sustaining. The projects pursued are based on the community need. Community needs have been identified through the Strategic Plan process, which will be updated in about two years. The types of projects the community has been asking for, and have therefore been prioritized, include complete streets to improve active transportation. City of Santa Ana first catalogues all needs, and then seeks out grant and outside dollars to fulfill those needs. Secured funding dictates what CIP work we will do. 2) What is the decision making process for CIP projects? a) Once a need has been identified by the community and the Public Works Department, Public Works staff provides a report to the City Council outlining the conditions of a street and/or roadway and the funds necessary for their improvement. b) During the design phase of a project, feedback is requested from city staff committees such as the Environmental and Transportation Advisory Committee, responsible for the planting of trees. Feedback may be requested by Council Committees such as the Development and Transportation Council Committee, responsible for decisions regarding landscaping and new pavement material. c) After the design phase, state and federal grants are identified and pursued to fund projects. Measure M2 and gas tax funds are generally reserved for matching grant opportunities. 3) What are the funding sources used for CIP's in Santa Ana? The funding sources used through the CIP process include Measure M2, gas tax revenue and multiple federal and state grants. City staff attempt to tie in active transportation and complete streets at every opportunity possible. For example, the City received funds to improve a bridge across the Santa Ana River and City staff worked for three years to ensure that bike lanes would be approved as part of the final project. 19

CIP Process in Santa Ana, Transportation Projects Project Needs Idenkfied based on Public Works Strategic Plan Public Works Presents Exiskng Condikons & Needs to City Council Projects Designed with Input from Advisory Commiuees & City Council Commiuees Local CIP Funds Reserved for Matching Funds for State/ Federal Funding to Implement Projects Active Transportation Grant & Other Funding Opportunities There are many grant opportunities available for the implementation and construction of active transportation programs and infrastructure. Money is available from federal, state, regional and local agencies by way of grants or other funding programs. Unlike loans, grants and other funding programs do not need to be paid back, though different grant and other funding programs have varying criteria and objectives. xxxvii In June 2016, the OCCOG released a detailed and extensive Complete Streets Initiative Funding Toolkit. xxxviii This toolkit identifies various grant opportunities, including grants that provide funding for plans and guides, the first step necessary to begin prioritizing active transportation needs. Some of these funding opportunities include: Private Foundation Grants o Robert Wood Johnson (RWJ) Foundation Grantees must focus on health leadership, health systems, healthy communities and healthy weight. https://www.rwjf.org/en/how-we-work/grants-and-grant-programs.html Federal Funding Programs o US Environmental Protection Agency Brownfields Area-Wide Planning Program Provides assistance to conduct necessary research and planning for brownfield cleanup and reuse. https://www.epa.gov/brownfields/types-brownfields-grant-funding#tab-5 State Funding Grants o California Department of Parks and Recreation Land and Water Conservation Fund (LWCF) Assists states with planning, acquiring and developing recreational lands. http://www.parks.ca.gov/?page_id=21360 20

o o o California Department of Transportation Sustainable Transportation Planning Grant Program Funds a wide range transportation planning purposes, which address local and regional transportation needs and issues. Two focus areas: Sustainable Communities; and Strategic Partnerships http://www.dot.ca.gov/hq/tpp/grants.html California Department of Transportation Active Transportation Program Funds various active transportation projects and plans. http://www.dot.ca.gov/hq/localprograms/atp/cycle-3.html California Department of Transportation Highway Safety Improvement Program Funds various transportation safety projects on any publicly-owned roadway Projects are evaluated and scored based on a cost/benefit analysis and require a history of collisions to be eligible for funding. Pedestrian and bicyclist safety projects are very competitive for this program due to the generally low-cost, high-impact nature of the projects. http://dot.ca.gov/hq/localprograms/hsip.html Regional Planning Grant o Southern California Association of Governments Sustainability Planning Grants Provide needed planning resources to jurisdictions for sustainable planning including active transportation planning. http://sustain.scag.ca.gov/pages/demoprojapplication.aspx 21

Conclusion Active Transportation Policy & Encouragement Opportunities There are a number of actions the OC cities, municipalities, and agencies can take to further promote active transportation. For example, cities can create a framework prioritizing walking and biking by implementing the following policies: xxxix Establish an Executive Directive o An executive directive adopted by a Mayor s Office, City Council, or Board of Supervisors can provide clear direction to agency staff to prioritize walking and biking in planning and investment decisions. o An example of an executive directive is a Vision Zero xl Policy, which specifies a timeline for achieving zero traffic deaths in a community. Initiative an Advisory Council or Safety Taskforce o A Pedestrian and Bicyclist Advisory Council or Safety Taskforce can provide the City and City staff with valuable resident input regarding safety concerns and can begin the prioritization process of high need corridors. Adopt a Complete Streets Policy, a Pedestrian Master Plan and a Bike Master Plan o A Complete Streets Policy, a Pedestrian Master Plan and a Bike Master Plan will all create clear goals and procedures for a street network that works for all road users. Cities can also continue to host the following encouragement activities, or host them for the first time in their neighborhoods: xli Host a Walk to Work Day and Bike to Work Day; Work with school districts to encourage participation in International Walk to School Day in October and National Bike to School Day in May; and Host an Open Streets event. Resources As of September 2015, twenty-three cities in the OC do not have a Complete Streets Policy. The OCCOG s Complete Streets Design Handbook xlii offers a detailed sample complete streets policy that can easily be adapted to suit a community s needs. Additionally, the Design Handbook also offers samples of successful grant applications, including Garden Grove s 2013-2014 application to SCAG s Sustainability Program for $120,000 in support for technical expertise in pedestrian and bicyclist transportation planning and $80,000 for a community event. California Walks is also in the process of developing an Active Transportation Leadership Program Curriculum Module for cities in the OC intended to assist in the continued development of active transportation leaders across the county. This curriculum will be available by mid-november 2016. 22

Endnotes i America Walks & Sam Schwartz Engineering, Health Benefits of Walking Factsheet, Steps to a Walkable Community: A Guide for Citizens, Planners, and Engineers. Available at http://americawalks.org/learning-center/benefits-of-walking- 2/health/ ii EveryBody Walk!, Health Benefits of Walking, Available at http://visual.ly/health-benefits-walking iii Federal Highway Administration, "Health and Environmental Benefits of Walking and Bicycling," Available at www.fhwa.dot.gov/environment/bicycle_pedestrian/resources/benefits_research.cfm iv s Healthier Together, City Profiles 2016, Available at http://www.ochealthiertogether.org/content/sites/ochca/hospital_logos/orange_county_city_profiles_2016_4.pdf. v Better Policies for a Healthier America, California State of Obesity, Available at http://stateofobesity.org/states/ca/. vi American Fact Finder, Selected Economic Characteristics 2010-2014, Available at http://factfinder.census.gov/faces/tableservices/jsf/pages/productview.xhtml?src=bkmk. vii Id. iv. viii SCAG Go Human Campaign, Active Transportation Facts & Figures, Available at http://gohumansocal.org/documents/tools/toolbox_ocfacts.pdf. ix Id. viii. x Id. viii. xi Governor s Office of Planning and Research, State of California, Update to the General Plan Guidelines- Complete Streets and the Circulation Element, Available at https://www.opr.ca.gov/docs/update_gp_guidelines_complete_streets.pdf. xii CONNECT, Merritt C. Becker Jr. University of New Orleans Transportation Institute, & AARP, "Complete Streets Policy Manual," 2012. Available at https://static1.squarespace.com/static/53c97389e4b06d1cfa9bbd08/t/54186ba8e4b048e0909c65fa/1410886568528/c Smanual_FINAL.pdf xiii Id. xi. xiv Transportation Authority (OCTA), Bikeways Master Plan, Available at http://octa.net/share-the- Ride/Bike/Bikeways-Planning/Bikeways-Master-Plan/. xv Council of Governments (OCCOG), OC Complete Streets Initiative, Available at http://www.occog.com/complete-streets/. xvi California Department of Transportation, "Strategic Management Plan, 2015-2020," Available at www.dot.ca.gov/perf/library/pdf/caltrans_strategic_mgmt_plan_033015.pdf. xvii California Department of Transportation, California State Bicycle & Pedestrian Plan Factsheet, http://www.cabikepedplan.org/files/managed/document/57/caltransbikeped_factsheet_102315.pdf. xviii Active Transportation Project Development and Implementation Steps. Adapted from: Planning Process 101, http://www.greatcommunities.org/wp-content/uploads/pdf/2007%2011%20planning%20process%20101.pdf and L.A. Metro s Steps to Implementation, https://media.metro.net/projects_studies/active_transportation/images/atsp_board_steps_to_implementation.pdf. xix Information provided in this section has been adapted from Institute for Local Government resources, available at http://www.ca-ilg.org/local-government-roles and http://www.ca-ilg.org/sites/main/files/fileattachments/trans_decision_map3.pdf. xx Institute for Local Government, State and Federal Active Transportation Funding, Available at http://www.cailg.org/srts-toolkit/state-and-federal. xxi State of California, California Transportation Commission, http://www.catc.ca.gov/ctcstaff/members.htm. xxii California Department of Transportation, About Caltrans, http://www.dot.ca.gov/aboutct.html. xxiii California State Bicycle & Pedestrian Plan, Get Involved, http://www.cabikepedplan.org/app_pages/view/13. xxiv Southern California Association of Governments, About SCAG, https://www.scag.ca.gov/about/pages/home.aspx. 23

xxv Southern California Association of Governments Map, Available at http://maps.scag.ca.gov/web/ex_1.1_scag_region.jpg xxvi Transportation Authority, About OCTA, Available at http://www.octa.net/default.aspx. xxvii OCTA, Bicycle and Pedestrian Subcommittee, Available at http://www.octa.net/about-octa/who-we-are/public- Committees/Citizens-Advisory-Committee/Bicycle-Pedestrian-Subcommittee/. xxviii Alexis Biddle, A Guide to Advocacy in Transportation Projects, https://scholarsbank.uoregon.edu/xmlui/bitstream/handle/1794/19946/biddle_thesis_final.pdf. xxix California Department of Transportation, Transportation Funding in California, http://www.cailg.org/sites/main/files/file-attachments/transportation_funding_in_california_2011.pdf. xxx Id. xxxiv. xxxi OCTA, M2020 Plan, http://www.octa.net/projects-and-programs/measure-m/measure-m2-(2011-2041)/m2020- Plan/. xxxii OCTA, Budget Information, http://www.octa.net/news-and-resources/publications/financials/budget- Information/. xxxiii OCTA, Regional Planning and Highways Committee Agenda, October 3, 2016, http://atb.octa.net/agendapdf/oct%2003,%202016%20- %20Regional%20Planning%20and%20Highways%20Agenda.pdf. xxxiv Id. xxxviii. xxxv The City of San Diego, A Citizen s Guide to the Capital Improvement Program, https://www.sandiego.gov/sites/default/files/legacy/planning/community/pdf/cpc/cipguidequickversion.pdf. xxxvi City of Greensboro, North Carolina, Participatory Budgeting, http://www.greensboronc.gov/index.aspx?page=4796. xxxvii OCCOG, Complete Streets Initiative Funding Toolkit, http://www.occog.com/pdfdownloads/oc_complete%20streets_funding%20toolkit.pdf. xxxviii For a thorough explanation of grants, the grant cycle and how to apply for a grant, please review the Complete Streets Initiative Funding Toolkit: http://www.occog.com/pdfdownloads/oc_complete%20streets_funding%20toolkit.pdf. xxxix Policies adapted from http://walksteps.org/tactic_category/policy/. xl For more information about Vision Zero, please visit: http://visionzeronetwork.org/about/vision-zero-network/. xli Encouragement activities adapted from California Walks & Silicon Valley Bicycle Coalition, "Vision Zero Toolkit," Available at http://californiawalks.org/wp-content/uploads/2015/09/151019-vz_toolkit_finalv2d_cropped.pdf. xlii Council of Governments, OC Complete Streets Design Handbook: A Policy Framework, Available at http://www.occog.com/pdf-downloads/oc_complete_streets_design_handbook_a2%20policy%20framework.pdf 24

Appendix A Public Participation Requirements in Transportation Planning Residents