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POLICY DEVELOPMENT
HISTORY OF THE CCTMP
In September 1990, the Portland City Council adopted Resolution 34771 (see Appendix) which established a process for developing a Central City Transportation Management Plan. The organizational structure for the plan includes a Policy Steering Committee, Management Team, a Technical Advisory Committee, and a Citizens Advisory Committee (see Management Structure Figure 1). Three subcommittees were formed to develop district strategies for the Lloyd District, Central Eastside District, and the Downtown District.
Phase I
The Policy Committee selected Shiels and Obletz, planning consultants, to manage the technical studies and preparation of the Plan. The Plan was developed in three phases. Phase I resulted in agreement on the general goals of the Plan and the approach that would be used in developing the Plan. Phase I included: assessing existing technical information; developing a scope of work; scheduling, phasing and budgeting for technical work; and developing a public participation process. Phase I of the Plan was completed in June 1991.
Phase II
Phase II of the Plan included a general assessment of transportation issues and the preparation of technical information necessary to develop the Plan. Phase II also included preparation of data needed for a detailed transportation model for the Central City. The Phase II analysis included case studies of development, district profiles, development of a "high growth" scenario for the Central City for the year 2010, and detailed analysis of traffic, transit, and circulation issues. A companion study was conducted by the Portland Development Commission to evaluate the parking and access needs for older and historic buildings.
Phase III
Detailed transportation and air quality emission models were developed in Phase III. Two growth scenarios for 2010 were compared to 1990 transportation conditions. The historical growth patterns included in the Regional Transportation Plan were projected into the future and are referred to as 2010 RTP. A "high-growth" scenario for 2010 was also tested and is referred to as 2010 HG.
Studies and reports were generated for specific topic areas and for some of the districts within the Central City. The results of the studies and the recommendations in the reports are the basis for the policies of the CCTMP. These subject areas include air quality, circulation and access, bicycling, pedestrians, and transit. Separate reports were also generated for the Downtown, Lloyd District, and the Central Eastside districts. Advisory committees participated in the development of the recommendations contained in these reports.
A Consensus Resolution was adopted by City Council on January 12, 1994. (See Appendix.) The resolution confirmed City Council's and other agency support for the results of these phases and authorized the development of policies and regulations to implement the outcome of these phases. The resolution was endorsed by the Portland Development Commission on September 15, 1993 with Resolution 4439 and the Tri-Met
FIGURE 1 MANAGEMENT STRUCTURE
Board of Directors in November, 1993. The resolution was reviewed by the Oregon Environmental Commission in December 1993.
A Citizen's Advisory Committee (CAC) reviewed technical and policy aspects of the CCTMP. The CAC reviewed various iterations of the draft documents, as well as the consensus resolution. The CAC recommended specific actions and strategies to be included as part of the plan.
Adding to the efforts of the CAC and the three working groups, citizen input was obtained through two sets of public workshops. The first workshops were held on September 9 and 11, 1991 with more than 60 members of the public attending. The second set of workshops were held on April 7 and April 20, 1994 in order to provide information on the Discussion Draft of the CCTMP and to receive comments on it. These written and verbal comments were used in making changes to the Discussion Draft.
SUMMARY OF POLICY FINDINGS
Changes in the Central City
The Central City's share of the region's office market has declined dramatically over the last two decades. In 1970, the Central City accounted for approximately 90 percent of the competitive multi-tenant office market. By 1990, the Central City's share had dropped to 50 percent.
Corresponding to this decreasing centralization of the office market has been the increasing trend of growth in vehicle miles traveled (VMT) per capita in the Portland region. There has been a 40 percent increase in VMT from 1980 to 1990, while population has increased 14 percent. As a result, ozone caused by hydrocarbon and nitrogen oxide emissions from automobiles has become a critical air quality issue.
General Principles
Based upon the policy analysis in Phase II of this study, the Policy Committee identified four general principles to guide the development of the CCTMP.
1. The Central City Transportation Management Plan should be directed toward facilitating the "build-out" of the Central City as called for in the Central City Plan. The potential benefits include:
• Dense central city development, resulting in lower per capita travel by the population;
• Availability of alternatives to automobile transportation ; and
• Mixed-use development supporting reduced travel objectives.
2. Transportation should be used as an incentive for achieving build-out of the Central City Plan.
3. Regional strategies should be used to address the goals of the Central City Plan.
4. District/Sector strategies should be employed to reflect each Central City district/sector’s level of build-out and transit service.
An effective transit system is a key element in implementing the Central City Plan. Transit does more than provide critical access to the Central City. It also promotes higher density and diversity of both housing and commercial buildings, which in turn leads to pedestrian and bicycle travel for short distance commutes, as well as access to buses and trains. Higher density makes transit more cost-effective. All of these factors lead to minimizing auto use, improving air quality, and managing traffic congestion–key factors in improving livability for the entire Portland region.
Analysis of the High Growth Scenario
The High Growth Scenario was developed for the CCTMP to evaluate the impacts of concentrated growth in the Central City on the regional and local transportation system. The High Growth Scenario, with its projected 75,000 new jobs and 15,000 new housing units by 2010, is based on a significant change from the historic patterns anticipated by the Regional Transportation Plan (RTP). It is important to the vitality of the Central City to focus a larger percentage of the region's growth in the Central City than would otherwise occur if current trends continued.
The High Growth Scenario projected a 26-percent increase in peak hour traffic from today, but only a four percent increase over the growth in traffic forecast by the Regional Transportation Plan. The projected increase in traffic is relatively small due to the expected benefits from the development of close-in housing, parking management over a larger area, and increased transit service.
With growth in the Central City, freeways will become more congested. Strategies are needed which will balance peak hour automobile use with an expansion in transit service and carpooling, ridesharing and flexible work hours. Some districts of the Central City already have effective transit service that can result in a positive impact on total congestion. Districts that are not well served by transit and other transportation alternatives need to have transportation and parking management strategies that will lessen their contribution to congestion.
The expansion and promotion of the transit system are critical to the success of the Central City Transportation Management Plan. Significant changes in service and marketing are needed to support the High Growth Scenario and meet Central City goals.
With new federal standards limiting tailpipe emissions, compliance with future carbon monoxide standards can be assumed to occur. Even with the 22 to 26 percent increase in peak hour auto use forecast in the Historic Trend and High Growth Scenarios, carbon monoxide measurements should be reduced 38 to 76 percent from today's level.
Regional air quality policies that encourage reductions in the number and length of trips per capita and higher density development patterns are critical to the success of the Central City Plan. Implementation of the policies of the Central City Transportation Policy without parallel efforts throughout the region will result in dispersion of regional growth, an increase in vehicle miles traveled, and a reduction in the vitality of the Central City.
Policy Conclusions
A set of conclusions was reached by members of the advisory committees based on the technical analysis of the High Growth Scenario:
1. The projected increase in automobile use and resultant congestion will be a significant constraint in the build-out of the Central City.
2. Increased housing in the Central City has a positive influence on the transportation system.
3. Carbon monoxide is expected to be less of a problem in the future for the Central City.
4. Transit expansion above historic levels will be needed to support Central City development.
5. Parking demand in the Downtown should be accommodated with the ratios currently allowed for new development.
6. Emerging Central City districts are projected to create significant auto trips that will add to the congestion during the peak hour.
7. Older buildings will continue to contribute the vitality of the Central City and parking is an identified need, especially as surface lots are removed.
Framework Themes and Planning Guidelines
Based upon the above conclusions, a set of Framework Themes and Planning Guidelines evolved to direct the development of the CCTMP policies. These themes and guidelines reflect the results of the first phases of the CCTMP, but they are not adopted as part of the Comprehensive Plan. The themes were used as guidance in the development of CCTMP policies and potential actions.
1. It is important to the vitality of the Central City to focus a larger percentage of the region's growth in the Central City than would otherwise occur if existing trends continued.
2. Transportation and parking management strategies need to be developed for each district of the Central City.
3. Transit capacity and service need to be expanded and the use of other alternative modes needs to increase to meet the needs of each district of the Central City.
4. The aggressive development of housing in the Central City will contribute to an increase in pedestrian and other alternative modes.
5. Regional air quality policies should be implemented to encourage trip reductions and a concentrated land use pattern served by transit rather than focusing on restrictive air quality measures within the Central City districts.
Framework Policies
The Framework Policies were developed to guide the development of the CCTMP. The major thrust of the Framework Policies is to work toward achieving build-out of the Central City for jobs and housing. Modal split (percentage of trips taken by each mode of transportation) goals and the goals for housing and jobs are interrelated; the success of one depends on the success of the other.
Framework Policies originally were developed as stand alone statements. Since originally conceived, the concepts embodied in them have been balanced with other policies in the CCTMP and with other City policies. For instance, the word "minimize" is used frequently in the Framework Policies and in the CCTMP. Although it is usually defined to mean reduce to the least possible amount, the word is used in the Framework Policies and in other places in the document to mean manage or control taking into consideration other concerns.
The Framework Policies are:
1. Minimize commuter travel by automobile in each of the Central City districts in order to ensure growth (in employment).
2. Allocate sufficient parking to land uses which are economically essential to the Central City.
3. Manage the availability of parking in each Central City district, taking into consideration density, land use, congestion, and the level of transit service.
4. Establish mode split goals for transit and alternative modes by district and develop strategies to achieve the goals. Develop incentives to help achieve the mode split goals.
5. Assure compliance with air quality standards by emphasizing regional solutions to air quality problems.
6. Support the development of regional strategies to implement trip reduction goals and support adoption of a regional land use pattern which will support the expansion of the use of alternative modes.
7. Expand the use of transit in the Central City by supporting regional funding strategies needed for the expansion of transit service. These strategies should be adequate to meet the high-growth scenario and be consistent with the Tri-Met Strategic Plan.
8. Adopt policies for the Central City which will encourage transit-supportive development and bike and pedestrian mobility.
CCTMP Policy Development
In the course of developing the CCTMP, the various issues impacting growth and livability in the Central City were examined by technical and citizen committees . Policies were developed to address these issues taking into consideration the Framework Themes and Framework Policies.
Based upon the technical analysis and Framework Themes, three central policy concepts have emerged for the CCTMP–Assuring Livability with Growth, Assuring Mobility with Growth, and Assuring Livable Streets with Growth. Based on these concepts, the CCTMP contains the following policies:
• Growth with Livability,
• Circulation and Access,
• Mode Split,
• Parking,
• Transit,
• Demand Management,
• Street Classifications,
• Pedestrian Network,
• Bicycle Movement, and
• Air Quality.
The Goal for the CCTMP focuses on the key elements of the Framework Policies and sets the stage for the policies which are more specific than the goal. The policies sometimes are followed by objectives which are more specific yet.
Conformance with Transportation Planning Rule and DEQ ECO and Parking Ratio Rules
The Transportation Planning Rule (TPR) was adopted by the Land Conservation and Development Commission in 1991. It requires a reduction of 10 percent in vehicle miles traveled per capita in 20 years and a reduction in parking spaces per capita of 10 percent in 20 years. An additional 10 percent reduction in vehicle miles traveled per capita is required in 30 years. In addition, the Rule requires specific changes to zoning and subdivision regulations to facilitate the use of alternative modes of travel.
Although not specifically addressing the TPR requirements, the proposed regulations of the CCTMP will meet the overall goal of the TPR. It is projected, for example, that there will be a reduction of 13 percent in vehicle miles traveled per employee in the Central City under the modeled High Growth Scenario by 2010. In the two districts with the highest concentration of employment, Downtown and Lloyd District, the reductions in VMT per employee for the same period are projected to be 20.9 and 17.4 percent respectively.
Many of the specific requirements of the TPR are being addressed by a separate planning effort. Most of these requirements are not applicable to the Central City since they are issues related to residential subdivision development. Other requirements, such as bicycle parking, will apply to the Central City when adopted.
The TPR requires a parking plan to be adopted as part of the City's Transportation System Plan (TSP). That plan is due to be completed one year following completion of Metro's TSP which is due in May 1995. The parking plan must show that it achieves the required reduction in the number of parking spaces per capita through measures such as restriction on the amounts of new parking allowed or that existing parking spaces be redeveloped to other uses.
The Department of Environmental Quality was directed by the Legislature (HB 2214, enacted in 1993) to develop programs to reduce single-occupant vehicle employee commutes (ECO program) and new parking spaces associated with nonresidential development (Parking Ratio program). These programs are to be part of a 10-year plan to assure continued compliance with federal ozone air quality standards in the Portland area.
The ECO program may require a reduction in trips by 1998 for specified employers in the range of 10-20 percent. The CCTMP includes the promotion of employee motor vehicle trip reductions through encouraging transportation demand management (TDM) plans and transportation management associations.
The CCTMP contributes considerably to the goals of trip reduction contained within the ECO and Parking Ratio programs. The participants in the CCTMP are agreeing to considerable regulations and restrictions on parking and vehicle travel in the belief that those employers who have or will implement vehicle trip reduction programs in any portions of the region, including the Central City, will be given credit toward meeting ECO program requirements.
The DEQ regional parking ratio program will have a target of reducing new parking sufficiently to reduce new motor vehicle trips by about 10 percent over what they would have been with no TDM programs. It is anticipated that regional ratios for given land uses will vary somewhat over the region but they should not be more stringent in the Central City than those being proposed for adoption in the CCTMP. Parking ratios in the CCTMP do not cover all the land uses anticipated to be regulated by the DEQ regional parking ratio program. Therefore, some additional new land uses in the Central City will become subject to maximum parking ratios.
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