This chapter discusses the financial and regulatory needs associated with the implementation of this Transportation System Plan. Projected Funding for Transportation Improvements Projecting the revenue assumed to be available for future capital projects helps to provide an understanding of the City s capacity for constructing the transportation improvement projects identified to be needed to support future growth. The revenue forecast conducted for the City of Sandy TSP accounted for the four regular income sources currently used to fund and maintain public transportation infrastructure. The State Gas Tax, Local Option Fuel Tax, and ODOT FAU STP Fund revenue streams were forecast by calculating the average income from these sources over the last 10 years and projecting it through the year 2029. The projected revenue stream from transportation system development charges was calculated using the forecasted net new trips from development within the City over the next 20 years. The current SDC rates were applied to these new trips based on trip type, with a 45% reduction for pass by trips applied to the retail and service type land uses. The split between maintenance expenses and capital projects was determined by City staff and was based on the City s history of transportation expenditures. Table 13 summarizes the funding collected for transportation related costs in the year 2008, and the projected total available revenue for the period between 2009 and 2029. As shown, the City is assumed to have approximately $10.2 million available for capital transportation improvements through 2029. Table 13: Transportation Revenue Projection from Current Sources 2008 2009 to 2029* Funding Source Total Collected Total Forecast 2009 to 2029* Maintenance and Other Expenses 2009 to 2029* Capital Projects Only State Shared - Gas Tax $294,987 $ 5,900,000 $ 4,425,000 $ 1,475,000 Local Option Fuel Tax $131,410 $ 2,482,000 $ 2,482,000 - ODOT FAU-STP Funds $79,500 $ 1,934,000 - $ 1,934,000 Systems Development Charges $338,765 $ 6,762,000 - $ 6,762,000 Total $765,162 $ 17,078,000 $ 6,907,000 $ 10,171,000 Notes: A portion of the projected revenue will be required for the maintenance of existing facilities, street lighting, staff salaries, as well as other miscellaneous transportation expenses, and thus not available for capital projects. * Forecast revenue is displayed in 2009 dollars. December 2011 Page 44
Project Programming The TSP Preferred Plan consists of all transportation improvements identified to meet future needs through the year 2029. Because the cost to fund all Preferred Plan projects is far greater than the City s projected revenue for such improvements, the Preferred Plan has been separated into near term and long term lists (Tables 14 through 16), where the near term projects include those that could be funded through a combination of the City s projected revenue for capital transportation projects and other reasonable funding strategies. The identification of near term project lists informs future budgeting decisions and does not preclude any project in the Preferred Plan from being eligible for inclusion on the City s Capital Improvement Program at any time. Lead agencies have been identified for Preferred Plan projects according to jurisdiction of the roadway affected; the designation of a lead agency does not create an obligation or commitment for funding, but is intended to refine the projection of transportation funding needs for the City. Table 14: Pedestrian System Projects Preferred Plan Project ID* Project Segment Description Local System Improvements (Lead Agency City of Sandy) Project Costs (2009 Dollars) Near-Term Projects P2 Bluff Rd. Hood St. to Green Mountain St. Infill sidewalk gaps $520,000 P10 Langensand Rd. Dubarko Rd. to US 26 Infill sidewalk gaps $82,000 P11 Pleasant St. Beers Ave. to Revenue Ave. Infill sidewalk gaps $173,000 P13 Sandy Heights St. Dubarko Rd to Tupper Rd Infill sidewalk gaps $176,000 P14 Downtown Core Pedestrian Side streets perpendicular to US 26 Infill sidewalk gaps $287,000 P15 Vista Loop US 26 to US 26 Construct Sidewalk $600,000 P1 362 nd Dr. Chinook St. to Industrial Way Infill sidewalk gaps $1,230,000 P3 Bluff Rd. Green Mountain St. to Northern UGB Infill sidewalk gaps $716,000 P4 Bornstedt Rd. Cascadia Village Dr. to UGB Infill sidewalk gaps $1,420,000 P5 Dubarko Rd. East of Melissa Ave. to East of OR 211 Infill sidewalk gaps $3,240,000 P6 Dubarko Rd. Langensand Rd. to Antler Ave. Infill sidewalk gaps $39,000 P7 Industrial Way 362 nd Dr. to US 26 Infill sidewalk gaps $1,790,000 P8 Jacoby Rd. Dubarko Rd. to Cascadia Village Dr. Infill sidewalk gaps $40,000 P9 Jewelberry Ave. Penny Ave. to Kelso Rd. Infill sidewalk gaps $194,000 P13 Ruben Ln. US 26 to Dubarko Rd. Infill sidewalk gaps $51,000 P16 New Accessway / Infill of Tickle Creek Trail south of Dubarko Rd and Ruben Ln Accessway / Trail $75,000 December 2011 Page 45
Table 14 (continued): Pedestrian System Projects Preferred Plan Project ID* Project Segment Description P17 New Accessway / Extension of Tickle Creek Trail to OR 211 Accessway / Trail $100,000 Project Costs (2009 Dollars) P18 New Accessway / P21/362 nd Ave North to Orient Dr Accessway / Trail $540,000 P19 New Accessway / North of Kate Schmitz Ave. to P21/362 nd Ave North Accessway / Trail $980,000 P20 New Accessway / P21 New Accessway / Industrial Way to Eastern UGB Accessway / Trail $1,310,000 362 nd Ave north to new trail P19 Accessway / Trail $300,000 P22 New Accessway / Extension of Tickle Creek Trail from OR 211 to Jacoby Rd Highway Improvements (Lead Agency Oregon Department of Transportation) Accessway / Trail $320,000 P23 OR 211 OR 211 Parkway Path Construct Bike/Ped Accessway $325,000 P24 OR 211 South UGB to US 26 Construct sidewalk (see B11)** P25 US 26 Royal Ln. to 362 nd Dr. Infill sidewalk gaps and add landscaping P26 US 26 362 nd Dr. to West UGB Infill sidewalk gaps and add landscaping $440,000 $990,000 P27 US 26 Ruben Ln. to University Ave. Infill sidewalk gaps $510,000 P28 US 26 Ten Eyck Rd. to eastern UGB Infill sidewalk gaps (see B12)** Near-Term Projects Total Cost $1,823,000 Total Cost $14,610,000 Notes: * Projects illustrated in Figure 2. **Cost is covered in the Bicycle System Project Costs. ***Park project with potential transportation benefit. Transportation funding will be determined during project development. December 2011 Page 46
Table 15: Bicycle System Projects Preferred Plan Project ID* Project Segment Description Local System Improvements (Lead Agency City of Sandy) Project Costs (2009 Dollars) Near-Term Projects B4 Dubarko Rd.** 362 nd Dr. to Eldridge Dr. Re-stripe/widen Rd. $36,000 B5 Dubarko Rd.** Sandy Heights St. to Melissa Ave. Re-stripe/widen Rd. $36,000 B6 Langensand Rd.** US 26 to UGB Re-stripe/widen Rd. $61,200 B7 Meinig Ave.** Scenic St. to US 26 Re-stripe/widen Rd. $61,000 B9 Sandy Heights St.** Bluff To End Re-stripe/widen Rd. $40,000 B10 Tupper Rd.** Long Circle to OR 211 Re-stripe/widen Rd. $59,000 B1 362 nd Dr. Dubarko Rd. to UGB Widen shoulder to 6 $1,230,000 B2 Bluff Rd.** US 26 to Miller Rd. Re-stripe/widen Rd. $40,000 B3 Bornstedt Rd.** OR 211 to UGB Re-stripe/widen Rd. $32,000 B8 Meinig Ave.** Barker Ct. to Dubarko Rd. Re-stripe/widen Rd. $17,000 Highway Improvements (Lead Agency Oregon Department of Transportation) B11 OR 211 UGB to US 26 Widen shoulder to 6 $28,200,000*** B12 US 26 Ten Eyck Rd. to UGB Widen shoulder to 6 $3,260,000 Near-Term Projects Total Cost $293,200 Total Cost $32,799,000 Notes: * Projects illustrated in Figure 3. **May require the elimination of on street parking (cost estimate for restripe only). ***Includes drainage, lighting, bicycle and pedestrian elements. December 2011 Page 47
Table 16: Motor Vehicle System Projects Preferred Plan Project ID Improvement(s) Description Local System Improvements (Lead Agency City of Sandy) Near-Term Projects Project Cost (2009 Dollars) Improvement Type M2 M13 M16 M12 362nd Dr./Dubarko Road Construct a single-lane roundabout Dubarko Road Connect to Champion Way Kate Schmidt Avenue Extend. from US 26 to the proposed Bell Street extension Industrial Way Extend to Jarl Road/ US 26 $1,165,000 Intersection $6,105,000 Roadway $7,345,000 Roadway $10,800,000 Roadway M14* Bell Street Extend. to Orient Drive M15* 362nd Drive Extend to Kelso Road M18* Olson Road Extend from 362 nd Drive to Jewelberry Avenue $50,905,000 Roadway $26,620,000 Roadway $12,890,000 Roadway M17 M19 M20 M21 M22 M1 Industrial Way North Extend to Bell Street extension Agnes Street Extend to Jewelberry Avenue Dubarko Road Extend to US 26 opposite Vista Loop Drive (West) Various Roads Gunderson Rd., 370 th Avenue, Cascade Village Drive, Cascade Village Boulevard, New Collector New Road New road extension from Dubarko Road to US 26 opposite Vista Loop Drive (East) Industrial Way/362 nd Drive Realign Industrial Way East to connect into the intersection of Industrial Way west Construct a single lane roundabout $3,820,000 Roadway $4,870,000 Roadway $3,200,000 Roadway $20,000,000 Roadway $16,390,000 Roadway $3,390,000 Intersection December 2011 Page 48
Table 16 (continued): Motor Vehicle System Projects Preferred Plan Project ID Improvement(s) Description Highway Improvements (Lead Agency Oregon Department of Transportation) Project Cost (2009 Dollars) Improvement Type M3 M4 M5 US 26 at 362 nd Drive Construct a second westbound left turn lane Construct an acceptance lane for second westbound left turn lane to drop at southern access to Fred Meyer property Construct a northbound through lane Construct southbound through, right turn and left turn lanes US 26 at Industrial Way Change southbound approach to dual left turn lanes and a shared through/right lane Construct a northbound left turn lane US 26 at Ruben Lane Change southbound approach to dual left turn lanes and a shared through/right lane Change northbound approach to left turn lane, and shared through/right lane $5,350,000 Intersection $780,000 Intersection $770,000 Intersection M6 Proctor Boulevard (US 26)/OR 211 Construct a northbound left turn lane (restriping only) $5,000 Intersection M7 M8 M9 M10 Orient Drive to Ten Eyck Road) US 26 Adaptive Signal Timing US 26 at Ten Eyck Road Construct a northbound left turn lane Construct a southbound left turn lane OR 211 at Dubarko Road Construct a northbound right turn lane Construct a southbound left turn lane Construct a northbound left turn lane Construct a traffic signal Bornstedt Road** Prohibit left turns out $400,000 Intersection $1,220,000 Intersection $10,150,000 Intersection $16,000 Intersection M11 Arletha Court/OR 211 Realign approach from the south $2,570,000 Intersection Near-Term Projects Total Cost $14,615,000 December 2011 Page 49
Total Cost $174,146,000 Notes: *Sections of these projects are outside the City s UGB. **Project would be necessary only if mobility standard is not met. Potential alternative projects are available. Understanding the magnitude of the difference between what projects are desired (Preferred Plan) and the capacity to fund them informs future decisions regarding the need for local tax and fee rate changes, alternate financing strategies, or approaches to allocating limited resources to where they are needed most. For example, the total cost of the near term projects identified ($16.7 million) is approximately 65% greater than the amount of revenue that was projected to be available for transportation improvements ($10.2 million). This is an indication that reliance on the revenue streams identified in Table 13 will not be sufficient over the long term. Therefore, the City will need to explore a range of complimentary funding strategies, such as those described below. Potential New Funding Sources Consideration of new funding sources to increase revenue for transportation projects is recommended to implement needed improvements in a timely manner to that supports the demands of growth and community livability. Any potential funding source is constrained based on a variety of factors, including the willingness of local leadership and the electorate to burden citizens and businesses, the availability of local funds to be dedicated or diverted to transportation from other competing City programs, and the availability and competitiveness of state and federal funds. Nonetheless, it is important for the City to consider all of its options and understand where it may be possible to provide and enhance funding for its transportation programs. This section describes several potential transportation funding sources, including State and County contributions, City sources (i.e., residents, businesses, and/or developers), grants, and debt financing. Many of these sources have been used in the past by other agencies in Oregon, and in most cases, when used collectively, are sufficient to fund transportation improvements for a local community. State and County Contributions Within Sandy there are multiple roadways that are not under City jurisdiction but instead are the responsibility of either ODOT or Clackamas County. The City should seek contributions (i.e., funding partnerships) from ODOT and Clackamas for projects located on their respective roadways. City advocacy for direct appropriations from the state or federal legislatures could be another funding strategy. ODOT Contributions The Oregon Department of Transportation (ODOT) funds projects on state highways under three primary programs: modernization, preservation and maintenance, and grants (see Grant Programs below). Programmed projects are included in the four year Statewide Transportation Improvement Program (STIP), which is updated every two years. ODOT maintenance districts (District 2C for Sandy) also have available funds that may be used for small scale projects such as in fill sidewalks or culvert repair on a state highway. December 2011 Page 50
When considering proposed land use actions such as subdivisions or site development, the City should not assume that TSP projects on US 26 or OR 211 will be in place to support the proposed development unless the project is programmed in the current STIP. For proposed comprehensive plan amendments, which must consider the long term adequacy of the transportation system for TPR 660 10 060 compliance, ODOT must be consulted to make a determination whether a highway project is reasonably likely to be funded based on funding projections at that time. Clackamas County Contributions Potentially, Clackamas County may contribute funds to projects located on County roadways. Clackamas County TSP 20 year Capital Improvement Plan (CIP) includes the following three projects that affect intersections identified in the Motor Vehicle Preferred Plan: Project #217: Remove or decrease horizontal and vertical curves on 362 nd Drive between Colorado Road and Dubarko Road. Project #218: Remove or decrease horizontal and vertical curves on 362 nd Drive and relocated intersection of 362 nd Drive/Deming Road. Project #220: Reconstruct and widen Ten Eyck Road between Lusted Road and US 26. The above listed projects are complementary to the projects identified in the City s TSP. For proposed land use actions, projects on County roads should not be considered available to serve development unless they are programmed in the County s Five Year Transportation CIP. When considering comprehensive plan amendments, the City should consult with the County regarding the likelihood of County funding for projects contained in the TSP 20 year CIP list. City should also participate in the next update of the County TSP. Direct Appropriations The City may also seek direct appropriations from the State Legislature and/or the United States Congress for transportation capital improvements. There may be projects identified in the plan for which the City may want to pursue these special, one time appropriations. In particular, projects that support economic development may gain support for direct appropriations. City Sources The City can also look to local residents, business owners, and developers to raise additional funds that can be designated for transportation related uses. Some optional sources include developer exactions, Urban Renewal District (URD) fund increases, transportation systems development charge (SDC) increases, local improvement district (LID) funds, General Fund revenue transfers, special assessments, and employment taxes. Developer Exactions Exactions are roadway and/or intersection improvements that are partially or fully funded by developers as conditions of development approval. Typically, all developers are required to improve the roadways along their frontage upon site redevelopment. In addition, when a site develops or redevelops, the developer may be required to provide off site improvements depending upon the expected level of December 2011 Page 51
traffic generation and the resulting impacts to the transportation system. City may utilize the Zone of Benefit process to address proportionate contribution by development. Urban Renewal District (URD) A URD is a tax funded district within the City. The URD is funded with the incremental increases in property taxes that result from the construction of applicable improvements. As desired, the funds raised by a URD can be used for, but are not limited to, transportation projects. These projects must be located within the URD boundaries. In 1998, the City created a URD for its downtown core, which has been a funding source for several successful projects including utility undergrounding, streetscapes, and the construction of a civic plaza. Transportation System Development Charges (SDCs) SDCs are a funding source collected from new development that can be used to fund projects that increase the transportation system s capacity (not for projects that target maintenance or operations). While the methodologies for determining the SDC rate vary, a commonly used method is to base the rate on the estimated p.m. peak hour vehicle trips generated by a proposed development. A singlefamily home generates approximately one p.m. peak hour vehicle trip, so it is often considered the base unit. The City of Sandy has a current SDC rate of approximately $1,943 per single family residence and $203 per daily trip for all other uses, which is lower than most Metro area cities, but comparable to many similarly sized cities outside of the Metro area. For every increase in SDC rates of $100 for single family households and $10 per daily trip for all other trip types, there would be an additional $362,000 available for transportation improvements over a 20 year period. Local Improvement District (LID) The City may set up Local Improvement Districts (LIDs) to fund specific capital improvement projects within defined geographic areas, or zones, of benefit. LIDs impose assessments on properties within its boundaries and may only be spent on capital projects within the geographic area. Because LIDs may not fund ongoing maintenance costs, they require separate accounting. Furthermore, because citizens representing 33% of the assessment can terminate a LID and overturn the planned projects, LID projects and budgets must obtain broad approval of those within the LID boundaries. General Fund Revenues At the discretion of the City Council, the City can allocate General Fund revenues to pay for its transportation program. General Fund revenues primarily include property taxes, use taxes, and any other miscellaneous taxes and fees imposed by the City. This allocation is completed as a part of the City s annual budget process, but the funding potential of this approach is constrained by competing community priorities set by the City Council. General Fund resources can fund any aspect of the program, from capital improvements to operations, maintenance, and administration. Additional revenues available from this source to fund new aspects of the transportation program are only available to the extent that either General Fund revenues are increased or City Council directs and diverts funding from other City programs. December 2011 Page 52
Special Assessments A variety of special assessments are available in Oregon to defray costs of sidewalks, curbs, gutters, street lighting, parking, and central business district (CBD) or commercial zone transportation improvements. These assessments would likely fall within the Measure 50 limitations. One example is the 50/50 program. This is a match program for sidewalk infill projects where property owners pay half the cost of a sidewalk improvement and the City matches the investment to complete the project. Employment Taxes Employment taxes may be levied to raise additional funds. For example, in the Portland region, payroll and self employment taxes are used to generate approximately $145 million annually for TriMet operations. It should be noted that Sandy currently collects a 0.6% payroll tax to fund SAM transit operations Grants The City of Sandy should actively pursue State and Federal grants, in particular to complete desired pedestrian and bicycle projects. Current grant opportunities include funding for pedestrian, bicycle, Intelligent Transportation System (ITS), and Safe Routes to School (SRTS) and Scenic Byway improvements. Current grant programs include: Federal Funding Sources Highway Safety Improvement Program Transportation Enhancements Recreational Trails Program Safe Routes to School (SRTS) New Freedom Initiative Community Development Block Grants Land and Water Conservation Fund National Scenic Byways Program Transportation, Community and System Preservation Program State of Oregon Funding Sources Immediate Opportunity Fund Transportation Infrastructure Bank Special Transportation Fund Bicycle and Pedestrian Program Grants Pedestrian Safety Mini Grant Program Business Energy Tax Credits (BETC) Safe Routes to School (OSRTS) Other Funding Sources American Greenways Program Bikes Belong Grant Program December 2011 Page 53
Debt Financing While not a direct funding source, debt financing is another funding method. Through debt financing, available funds can be leveraged and project costs can be spread over the projects useful lives. Though interest costs are incurred, the use of debt financing can serve not only as a practical means of funding major improvements, but it is also viewed as an equitable funding source for larger projects because it spreads the burden of repayment over existing and future customers who will benefit from the projects. One caution in relying on debt service is that a funding source must still be identified to fulfill annual repayment obligations. Two methods of debt financing are voter approved general obligation bonds and revenue bonds. Voter Approved General Obligation Bonds Subject to voter approval, the City can issue General Obligation (GO) bonds to debt finance capital improvement projects. GO bonds are backed by the increased taxing authority of the City, and the annual principal and interest repayment is funded through a new, voter approved assessment on property throughout the City (i.e., a property tax increase). Depending on the critical nature of projects identified in the Transportation Plan and the willingness of the electorate to accept increased taxation for transportation improvements, voter approved GO bonds may be a feasible funding option for specific projects. Proceeds may not be used for ongoing maintenance. Revenue Bonds Revenue bonds are debt instruments secured by rate revenue. For the City to issue revenue bonds for transportation projects, it would need to identify a stable source of ongoing rate funding. Interest costs for revenue bonds are slightly higher than for general obligation bonds due to the perceived stability offered by the full faith and credit of a jurisdiction. Implementation As part of the process to update the City of Sandy TSP, the City s Development Code (Title 17 of the City of Sandy Municipal Code) was audited to provide recommended regulatory language that will implement the TSP, as well as ensure consistency with the Transportation Planning Rule (OAR 660 12). Through this audit, several recommendations were made that would amend the City s Development Code. The complete code analysis and recommended amendments have been included in the appendix (Implementation Element Memorandum) for reference. The recommended code amendments can be adopted through a separate public hearing process or concurrently with the TSP. December 2011 Page 54