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Resolution Number 91-9-17-33 8 7..� RESOLUTION NO. 91-9-17-3 ADOPTING AIR QUALITY IMPLEMENTATION PLAN A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF SAN JUAN CAPISTRANO, CALIFORNIA, ADOPTING THE AIR QUALITY IMPLEMENTATION PLAN WHEREAS, the South Coast Air Quality Management District (SCAQMD) has adopted an Air Quality Management Plan (1991) for the South Coast Air Basin which includes the City of San Juan Capistrano; and, WHEREAS, the 1991 Air Quality Management Plan for the South Coast Air Basin establishes policies and regulations for transportation, land use, and energy conservation which require implementation by the City of San Juan Capistrano; and, WHEREAS, the Environmental Review Board has issued a negative declaration pursuant to the provisions of the California Environmental Quality Act (1970) based on findings that the Environmental Impact Report prepared for the 1989 Air Quality Management Plan addresses potentially significant environmental impacts; and, WHEREAS, the South Coast Air Quality Management District (SCAQMD) has completed and certified an Environmental Impact Report and associated mitigation measures pursuant to the provisions of the California Environmental Quality Act (1970) in conjunction with adoption of the 1991 Air Quality Management Plan; and, WHEREAS, the Planning Commission held a duly noticed public hearing pursuant to the provisions of Section 9-2.313 of the Land Use Code to receive public comment and consider the draft Air Quality policies and has passed a resolution recommending that the City Council adopt the Air Quality policies. NOW, THEREFORE BE, IT RESOLVED, that the City Council of the City of San Juan Capistrano does hereby find that: 1. The Draft Air Quality Implementation Plan will assure City compliance with the provisions of the 1991 Air Quality Management Plan; and, 2. The Draft Air Quality Implementation Plan is consistent with the goals and policies of the General Plan of the City of San Juan Capistrano; and, 3. The Draft Air Quality Implementation Plan is consistent with the objectives and recommendations of the twelve (12) adopted General Plan Elements; and, 4. The Draft Air Quality Implementation Plan will provide the policy framework for the preparation of regulatory and programmatic implementation measures. -I- BE IT FURTHER RESOLVED, that the City Council of the City of San Juan Capistrano does hereby adopt the Air Quality Implementation Plan as provided by Exhibit "A" attached hereto and incorporated herein. PASSED, APPROVED, AND ADOPTED this 17th day of _ _September , 1991. — ��ti4rs KENNETH E. FRIESS, MAYOR ATTEST: STATE OF CALIFORNIA ) COUNTY OF ORANGE ) ss CITY OF SAN JUAN CAPISTRANO ) 1, CHERYL JOHNSON, City Clerk of the City of San Juan Capistrano, California, DO HEREBY CERTIFY that the foregoing is a true and correct copy of Resolution No. 91-9-17-3 adopted by the City Council of the City of San Juan Capistrano, California, at a regular meeting thereof held on the 17th day of September , 1991, by the following vote: AYES: Councilmen Jones, Hausdorfer, Buchheim, Vasquez and Mayor Friess NOES: None ABSTAIN: None ABSENT: None (SEAL) CHERYL J0HNS0rq,C1TPF CLERK -2- I EXHIBIT oAn AIR QUALITY IMPLEMENTATION PLAN CITY OF SAN JUAN CAPISTRANO, CALIFORNIA September 1991 Planning Department City of San Juan Capistrano 32400 Paseo Adelanto San Juan Capistrano, California 92675 Thomas Tomlinson, Planning Director William A. Ramsey, AICP, Senior PLanner Marylin Wood -Miller, Secretary 390 "The City recognizes that a commitment to maintaining high air quality standards can not be totally met at the local level. Coordination with regional air quality agencies and implementation of a plan and strategy for the South Coast Air Quality Basin is essential in maintaining the health of human, animal and plant life from the effects of air containments. The City shall be an active participant in the development and implementation of regulations to assist in the attainment of the air quality goals for the City and region". Air Quality Implementation Plan I. INTRODUCTION A. Air Ouality Issues 391' City of San Juan Capistrano According to the 1991 Air Quality Management Plan (AQMP), the worst air quality problem in the nation occurs in the South Coast Air Basin. The basin includes all of Orange County and the non -desert portions of Los Angeles, Riverside and San Bernardino Countries. The South Coast Air Basin exceeds federal air quality standards for four of the six criteria pollutants. It currently exceeds the standards for sulfur concentrations in areas of the basin which are triple the federal health standard, carbon monoxide (CO) and fine particulate matter (PM 10) reaches concentrations which are double the federal standards. Additionally, the basin, unlike any other area nationwide, still exceeds the nitrogen dioxide standard. San Juan Capistrano is somewhat fortunate in that our localized topographic and meteorological conditions generally discourage the formation and build-up of air pollutants. However, pollutants generated within the boundaries of the City are combined with pollutants from other jurisdictions to create the basin's sever air quality problems. When meteorological conditions related to the so-called "Santa Ana", winds occur, the ill effects of poor air quality is present at the local level, creating situations effecting the health of individuals, damage to property, landscaping, agriculture and animals; impaired visibility, and a reduction in the quality of life. In an effort to solve the basin's air quality problems, the South Coast Air Quality Management District (SCAQMD), adopted its first Air Quality Management Plan (AQMP) in 1979. That plan contained control measures which the Federal Environmental Protection Agency (EPA) and the California Air Resources Board (ARB) wanted given high priority. When the 1979 Plan failed to meet the carbon monoxide and ozone standards, the District obtained an extension until 1982 to revise the plan to meet these standards. Under the Federal Clean Air Act, the 1982 Plan was to demonstrate attainment of all National Ambient Air Quality Standards (NAAQS) by 1987. However, the District determined that the deadline was not obtainable because the 1982 Plan called for NAAQS attainment over the next twenty years. In 1987, the EPA, under Federal court order, disapproved the 1982 Plan because it could not demonstrate attainment of the Federal Clean Air Act's 1987 deadline. 392 - Air Quality City of San Juan Implementation Plan Capistrano In response to EPA denial of the 1982 Plan, the District prepared the 1989 Air Quality Management Plan which was subsequently adopted by the California Air Resources Board. That Plan has formed the framework for all subsequent air pollution control efforts in the South Coast Air Basin including the most recently adopted 1991 Plan. While preparing the State Implementation Plan (SIP), the Air Resources Board was to include programs established by the 1989 Plan in order to comply with Federal Clean Air Act provisions. The 1991 Air Quality Management Plan includes a three tiered strategy, established by the 1989 Plan, in order to achieve the air quality standards (NAAQS). These strategies are described as follows: Tier I- This tier calls for full implementation of known technological applications and effective management practices over the next five years. Tier II- Tier II calls for significant advancement of today's technological applications and vigorous regulatory intervention. Tier III- Tier III requires development of new technology. The 1991 AQMP identifies several Tier I control measures which local jurisdictions, including the City, must implement. These control measures are the basis for many of the policies included in this Implementation Plan. If successful, the 1991 AQMP would bring the South Coast Air Basin into compliance with all Federal and State air quality standards. The Plan anticipates compliance with these control measures will meet the standards for nitrogen dioxide by 2000; for carbon monoxide by 2010; ozone by post -2010; and particulate matter by post -2010. Development plans, permit activity, project approvals, program funding, budgetary considerations and other City actions must conform with the 1991 AQMP. Conformity will ensure that the actions of the City and other local governments will not jeopardize attainment of the National Ambient Air Quality Standards within the Basin. Under the 1991 AQMP, the City must take certain actions and meet certain deadlines for each transportation, land use, and energy conservation control measure to maintain compliance with the Plan. To assure compliance, the Air Resources Board requires an 393-' Air Quality City of San Juan Implementation Plan Capistrano annual Reasonable Further Progress (RFP) report. A joint Southern California Association of Governments (SCAG) and the South Coast Air Quality Management District (SCAQMD) monitoring group will be conducting these annual reviews and submitting a report to the State Air Resources Board. If these conformity reviews show that a local government is not implementing the 1991 AQMP, then additional regulations can be imposed upon the local jurisdiction. B. Extent of The Air Pollution Problem Both the Federal and State governments have set health -based ambient air quality standards for the following six pollutants: o sulfur dioxide o lead 0 ozone o nitrogen dioxide o carbon monoxide o particulate matter These standards are designed to protect the most sensitive persons from illness or discomfort with a margin of safety. The Basin complies with standards for sulfur dioxide and lead, but exceeds standards for the remaining four types of pollutants. In addition, California has set standards for ethylene, hydrogen sulfide, sulfates, visibility, and vinyl chloride. All but sulfates and visibility are primarily localized problems, and are handled through permit requirements. Standards for sulfates and visibility are addressed through specific control programs, for the four pollutants described below. 1. Carbon Monoxide (CO Formed by incomplete combustion of fossil fuels, carbon monoxide is caused almost entirely by automobiles. Carbon monoxide can cause dizziness and fatigue, and can impair central nervous system functions. Carbon monoxide concentrations in the Basin are among the highest in the nation, and are about two times higher than the federal and state standards. Federal Standards were exceeded in the Basin on more days than in any other area of the country in 1985 except New York City. 61 Air Quality Implementation Plan 2. Nitrogen Dioxide (NOx) 3 94 1 City of San Juan Capistrano Nitrogen oxides are contributors to other pollution problems, including high concentration of fine particulate matter, poor visibility, and acid deposition. Nitrogen dioxide decreases lung function and may reduce resistance to infection. Although the Federal nitrogen dioxide standard was exceeded by only 2 percent in 1987, the South Coast Air Basin is the only region in the United States that has not attained the standard. Nitrogen dioxide and nitric oxide are formed as a result of fuel combustion under high temperature or pressure; together these compounds are referred to as nitrogen oxides or NOx. 3. Ozone Ozone is formed by photochemical reactions between directly emitted NOx and reactive organic gases (ROG). ROG is formed from combustion of fuels and from evaporation of organic solvents. Elevated ozone concentrations result in reduced lung function, particularly during vigorous physical activity. This health problem is particularly acute in children. ozone levels in the South Coast Air Basin are approximately three times the federal standard. They are significantly higher than anywhere else in the nation, and in 1985, the standards were exceeded nearly four times as often as in the next highest area. 4. Particulate Matter (PM10) Particulate matter (PM10) refers to small suspended particulate matter, 10 microns or less in diameter, which can enter the lungs. Nitrates and sulfates, as well as dust particles, are major components of PM10. These small particles can be directly emitted into the atmosphere as a by- product of fuel combustion; through abrasion, such as wear on tires or brake linings; or through wind erosion of soil. They can also be formed in the atmosphere through chemical reactions. The particles may carry carcinogens and other toxic compounds, which adhere to the particle surfaces and can enter the lung. The annual average PM10 concentration in the South Coast Air Basin was about 80 percent above the Federal standard in 1987. M Air Quality Implementation Plan C. Summary City of San Juan Capistrano 395 In general the Air Quality Implementation Plan is intended to achieve compliance with the AQMP and the following overall goals: 1. The City should participate in the development and update of the regional Air Quality Management Plans. 2. The City should fully comply with air quality policies of the South Coast Air Quality Management Plan (AQMP). 3. The City should continue to demonstrate its commitment to implementing policies of the 1991 AQMP by participating fully in the conformity review process. 4. The City should continue to identify both effective and feasible tactics to improve air quality in order to achieve the goals for a healthy air basin. The remainder of the Air Quality Implementation Plan is organized into three sections including Land Use, Transportation Demand Management, and Energy Conservation. Each section identifies control measures, air quality goals, and methods for achieving those goals. Wj Air Quality Implementation Plan II. LAND USE A. Issues and Needs City of San Juan Capistrano 396' Although the City does not regularly suffer from poor air quality, it must provide a comprehensive program to insure that local decisions will not diminish the existing air quality. In addition, policies and objectives of the City's air quality program should be designed to assist the South Coast Air Basin in achieving compliance with National and State Ambient Air Quality Standards. Regarding Land Use, the 1991 Air Quality Management Plan proposes several strategies which can be addressed at the local level. These strategies are focused on the philosophy of a job/housing balance and mitigation of development related impacts associated with generating additional levels of air pollutants. The theory of "job/housing balance" is that air quality and transportation problems largely result from the relative imbalance of jobs and/or housing opportunities in local jurisdictions or sub - regional areas. In addition, the theory recognizes that individual employment decisions and housing location decisions tend to be independent of one another. The theory concludes that local governments should devise strategies to provide a balance of job/employment opportunities in the same community or within a short commute distance of residential areas. An effective jobs/housing balance strategy could result in a significant reduction in the amount of vehicle trip miles (VMT) on a daily basis thus reducing the volume of air containments as well as congestion. Since 1974, the General Plan (as amended) has continued to focus on achieving a balance of land uses in the community. The distribution and intensity of land uses as depicted on the City's Land Use Map provides clear evidence of the City's relative success at implementing this objective. The City presently has a "jobs - housing ratio" of 0.76 meaning that for every 76 jobs in the City, there exists 100 homes. The City is characterized as being relatively housing "rich". Under the ultimate build -out envisioned by the 1974 General Plan, the "jobs/housing ratio" will approach 1.05. This is very close to the 1.22 ratio established by the Southern California Associa- tion of Governments (SLAG) as a balanced land use pattern. 397 1% Air Quality City of San Juan Implementation Plan Capistrano In addition, the General Plan through its various land use designations and other policies and objectives also provides for a wide range of housing opportunities that will create a diversified labor base. The Housing Element for example, has identified specific needs and programs which will assist the community in maintaining its diversity. In recognizing that the General Plan will meet these regional goals by maintaining the present land use patterns of that Plan. Even though the City will be slightly below the ratio of a balanced community, we recognize that the sub -regional area in which San Juan Capistrano is located will remain relatively job rich requiring the importation (daily commuting) of labor from other regional and sub -regional areas. In considering the identification of specific land uses within the designations of the General Plan, the City should continue to evaluate development regulations, design standards, and similar factors which will result in a high quality environment that not only addresses the needs of the users but also reduces the amount of air pollutants. For example, arrangements of land use patterns should recognize the needs of "sensitive receptors" in terms of air quality; specifically schools, hospitals, convalescent homes and agricultural areas. "Sensitive receptors" should be located in areas which would not expose people to unhealthful air emissions based on prevailing wind patterns. At each stage in the cycle of a development project, the City may impose some rule to improve air quality. These measures may, differ depending on the stage in the cycle of the project including: 1. planning stage 2. site preparation stage 3. construction stage 4. operation of the project 5. site reclamation stage At the planning stage, project design may have to incorporate measures involving transportation, energy conservation, and development patterns. When considering traffic impacts, project designs may include some of the following: convenient access to transit facilities; bus benches, and bus pockets in street right of ways; streetlight, walk lights, curbs and sidewalks for pedestrians; bikeways and convenient bicycle storage; and parking FV7 Air Quality Implementation Plan City of San Juan Capistrano 398A" facilities which improve traffic flows and ease periodic congestion. Additional measures for improving traffic flow may include: providing more off-street parking; restricting on -street parking during peak hours; and improving intersection turning movements. Design features which conserve energy and reduce impacts to air quality include: o those which meet or exceed energy conservation standards already required by state or City regulations. o solar water and pool heaters. o energy efficient street lights. o landscaping practices which reduce the heating and cooling costs of buildings. Measures which may be required during the site preparation stage fall into two categories. The first category includes measures used during clearing, grading, earth moving, and excavation. These measures include: o controlling fugitive dust by regular watering, paving construction roads, as well as other dust control measures (SCAQMD Rule 403). o proper maintenance of equipment engines. o growing ground cover. o spreading soil binders or water to prevent wind erosion. o sweeping nearby streets clean of any silt deposited there during site preparation. The next stage of development is the construction stage. Measures which may be considered during this stage may involve: o wetting areas where vehicles operate to prevent rising dust when vehicles leave the site. o wetting construction areas in the late morning and at the end of the work day to reduce dust borne emissions. o using low sulfur fuel (0.05% by weight) in construction equipment. 10 39g - Air Quality City of San Juan Implementation Plan Capistrano In conjunction with these mitigation measures, construction activities should be reduced on days with high ozone concentrations and discontinued during second and third stage smog alerts or days with winds exceeding twenty (20 MPH) miles per hours (dust and particulate matter). The fourth stage of development encompasses the project's useful life. Transportation measures which could occur during the project's useful life may include: o providing a full time, on-site rideshare coordinator. o giving financial incentives for ridesharing. o providing subsidies for carpooling, vanpooling, and using public transit. o allowing flexible or modified work schedules for rideshare employees. o providing for telecommuting and work at home programs. o making fleet vehicles available for purposes of ridesharing. o giving those people who share rides preferential or free parking. o polling employees annually about their participation, attitudes, and needs regarding ridesharing. Energy conservation measures should be maintained and updated as needed. Video and audio tele -conferencing in the work place should also be encouraged. These techniques are more fully discussed in subsequent sections of this Plan. The final stage in the life of a project is the site restoration -sae. This last stage is broken down into two parts: during the _:nolition of a building and after its demolition. Regulations related to the first part may include controlling dust and stopping demolition activities when high winds would carry dust off the site. In addition, demolition equipment should use low sulfur fuels (0.05% by weight) and equipment engines should be kept properly tuned. After the building's demolition, the following measures are appropriate: 11 Air Quality City of San Juan Implementation Plan Capistrano o spreading soil binders on exposed soil. o spreading water on exposed soil to prevent wind erosion. o sweeping streets adjacent to the site when demolition deposits settle. Based on the above, land use designations and project approvals start a chain of events which if not properly monitored can significantly impact the quality of both the local and regional air basins. Therefore, it is important for the City to emphasize some of the basic planning goals which will assist in achieving compliance with the air quality objectives established by the 1991 AQMP. Some of these goals and objectives are listed below: 1. Support the control of various industrial and commercial land uses, though regulations that will mitigate stationary pollution sources. 2. Support control of various industrial and commercial land use through issuance of permits and review procedures including identification of mitigation measures using new technology for stationary sources of pollution. 3. Support the enforcement efforts of the South Coast Air Quality Management District (SCAQMD) in the monitoring for compliance with all applicable permit holders within the City. 4. Encourage the development and use of emission reduction equipment for stationary sources. 5. Maintain a balanced allocation of residential, commercial and industrial land use in order to achieve a relative balance between housing and job opportunities. 6. In conjunction with the goals of the Housing Element prepare a Housing Opportunities Program to provide affordable housing for all income groups. 7. In designating mixed land uses, provide for easy access to alternative transportation modes particularly for areas of higher intensity residential and commercial and industrial activities. 12 Air Quality Implementation Plan City of San Juan Capistrano 401N 8. Locate sensitive receptor land uses such as schools, day care centers, parks, medical facilities, rest homes, and convalescent care facilities and provide sufficient distance from existing or planned stationary air pollution sources. 9. Develop regulations to mitigate air quality impacts related to construction and demolition activities. The above goals and specific AQMP control measures form the basis for the following Land Use Action Program: B. Land Use Action Program 1. Goal: Manage growth and maintain a supply of affordable housing and the location and designated intensity of various land uses that efficiently utilizes infrastructure, support services and encourages alternate means of transportation to implement a balanced City. a. AOMP Measure: Growth Management (17). b. Obiective: Monitor the City's Growth Management Program to maintain compliance with adopted Regional Plans. C. Land Use Policies i. Maintain the supply of affordable housing as identified in the adopted Housing Element (revised 1990). ii. Monitor the pace of residential and non- residential development for consistency with the General Plan policy to maintain a balanced City as it relates to job and housing opportunities. iii. Limit development on land which has a low suitability for development (e.g. areas with steep slopes, high fire, flood and seismic hazards). iv. Continue land use patterns that reduce the costs of infrastructure construction, make better use of existing facilities, and achieve a good match between future growth and phasing 13 402 :,, Air Quality City of San Juan Implementation Plan Capistrano of new facilities or expansion of existing improvements. V. Identify a range of uses that will reduce vehicular trips in and around activity centers. d. Implementation Actions i. The City's Planning Division shall monitor the number of new jobs and housing units developed and describe how growth is meeting performance goals for a job/housing balance. ii. Continue to satisfy the affordability goals of the adopted Housing Element. iii. Evaluate zoning regulations which would limit or preclude development in high risk areas (e.g. floodplain, geologically/seismic unstable area). consistent with the goals and objectives of the Open Space and Conservation Element. iv. Continue housing rehabilitation and neighborhood preservation programs. C. Particulate and Building Emissions Action Program SCAG estimates that building and road construction sites in the South Coast Air Basin emitted approximately 195 tons per day of particulate in 1985. An effective watering/dust control program and limits on construction during windy days could substantially reduce these emissions. In addition, unpaved streets associated with development after grading has been completed can continue the fugitive dust emissions if not paved within a reasonable period after grading activity has been completed. These development impacts can be considered both a health and nuisance to adjacent residents of the community. Particulate emissions from agricultural tilling operations or over grazing of property can also impact local and regional air quality. A number of methods are available to reduce these emissions. 1,Goal: Reduction in Particulate Emissions. a. AOMP Measures: Paved Roads (12.a), Fugitive Emissions from Construction of Roads and Buildings (F-4), Unpaved Roads and Parking Lots (12.b). 14 Air Quality Implementation Plan 403 City of San Juan Capistrano b. Objective: Reduce the amount particulate emissions generated by unpaved roads, parking facilities and related activities by the year 2000. C. Particulate Emission Policies of fugitive the use of construction i. Consider performance goals that reduce construction related particulate emissions. ii. Encourage all development proposals to minimize the amount of landform alteration and extent of clearing activities. d. Implementation Measures i. Continue compliance with City regulations for the paving of all public/private streets, and required parking facilities. ii. Continue enforcement of regulations regarding dust control measures at construction sites, covering of all loads hauling dirt, sand or other emissive materials. iii. Require all commercial vehicles hauling dirt, sand or similar materials to cover loads. iv. Consider standards to require the installation of truck wheel washers at construction site entrances, paving of access roads, paving of construction site roads upon completion of rough grading, and road clean-up from construction -related soil deposits. v. Consider standards to install vegetative landscaping or soil binders on all unpaved road shoulders immediately after grading operations. vi. Include an erosion control plan to limit soil erosion. vii. Consider provisions which provide for a enforcement officer to monitor and insure compliance with all requirements of the City. 15 4 04"W1 Air Quality City of San Juan Implementation Plan Capistrano D. Agriculture Action Program SCAG has identified agricultural operations as another significant source of particulate matter emissions within the South Coast Air Basin which, if managed properly, could be reduced. 1. Goal: Reduction in Fugitive Dust from Agriculture. a. AOMP Measure: Fugitive Dust from Agriculture (E- 3) . b. Obiective: Identify methods and strategies for reducing fugitive dust from Agricultural operations. C. Agriculture Policies i. Identify methods and strategies for reducing fugitive dust as part of a City Agricultural Management Program. ii. Consider preparation of an educational program to inform agriculture operators of methods for reducing particulate dust created by agricultural operations. d. Implementation Measure Identify methods which will minimize and control fugitive dust without jeopardizing public health and safety in the raising of food crops. 16 405 14 Air Quality City of San Juan Implementation Plan Capistrano III. TRANSPORTATION DEMAND MANAGEMENT A. Transportation Demand Management Issue San Juan Capistrano, although attempting to maintain a small town image, supports major regional movements of people, vehicles and commerce on its road network. Regularly, cars and trucks crowd onto the City's road system at the beginning and end of each workday. With the resulting congestion, pollutants are discharged into the air, while long sunny days change these pollutants into yet other, noxious compounds. Most of these cars carry a single occupant, adding to the congestion and reduction in air quality. Transportation Demand Management (TDM) can help change this situation and thereby improve our air quality. However, it means planning strategies to reduce the number of trucks and autos using the roads at any one time. This is the essence of TDM. TDM reduces the number of vehicles on our roadways using two sets of strategies. One set focuses on reducing trips related to work and the other, non -work related trips. TDM strategies for reducing trips related to work encourage individuals who now drive alone to form carpools, vanpools, or take the bus. Alternatively, workers may work longer hours and so eliminate a trip to the office once or twice a week. Two other demand management strategies that eliminate work trips are telecommuting and work -at-home programs. When individuals must drive, TDM calls for changes in their work schedules to avoid peak traffic periods. An additional demand management strategy involves reducing the number of miles traveled by working parents with preschool children. By locating day care centers close to work, the employer would help these parents eliminate unnecessary trips. TDM strategies for reducing trips that are not associated with work are also important. Among these are merchant transportation incentives, such as discounts to customers who use public transit. The preparation of thoughtful trip reduction plans by government and business can increase the effectiveness of a Transportation Demand Management Program. ' Transit improvements and facility development must accompany these changes. Encouraging a shift to transit will probably not be successful unless the City, through cooperation with the Orange County Transit District, provides convenient, safe, and reliable transit service. Similarly a lack of work centers with telecommuting opportunities is a constraint to the program. Changing transportation demand will require other facility 17 Air Quality Implementation Plan City of San Juan Capistrano 406 M development such as park-and-ride lots, bus turnouts, convenient parking for rail transit commuters, facilities for bicycles and pedestrians, and day care siting near public transit facilities and employment centers. Transportation Demand Management goals and objectives in this Implementation Plan are designed to address the following: o Because vehicle trips contribute to degraded air quality, the City should improve air quality by using transportation demand management (TDM), an effective strategy for reducing all categories of trips. o The City should develop trip reduction plans for its employees and encourage sponsors of special events centers and temporary outdoor events to prepare and implement such plans. o The City should assist and encourage all new commercial/industrial developments to establish Transportation Management Associations. o Merchants/employers should encourage their customers and employees to shift from single occupancy vehicles to transit, carpools, bicycles, or foot. o Because TDM measures depend on good transit service and the development of facilities which encourages walking, biking, ridesharing, telecommuting, and the use of mass transit, needed transit improvements and facility development should accompany the City's TDM measures. o Recognizing that transportation systems, to be effective, must be coordinated at the local and regional level with other jurisdictions, the City should continue its active participation in inter -jurisdictional TDM groups. Trip Reduction Person work trips are projected to increase by 43 percent from 1985 to 2010 without implementation of the AQMP and Regional Mobility Plan (RMP) within the South Coast Air Basin. Within the City due to the limited amount of future growth the projected increase is approximately 28 percent. 18 Air Quality Implementation Plan 407 City of San Juan Capistrano These additional trips are broken down into the following categories: o non -work trips 74 percent o work trips 18 percent 0 other -to -work trips 8 percent Peak -Period Truck Travel Although truck traffic is limited to certain arterial within the City, they do add to traffic congestion during peak periods of travel. The potential for the reduction in air emissions and travel delay through the restriction of truck traffic from these major arterial during peak periods maybe an effective method to increase the capacity of these roadways to handle present and future volumes. Traffic Flow Improvements The efficiency of the existing and proposed City circulation system can be better utilized through the continued synchronization of traffic signals, improved accident response, and other measures to increase traffic flow. Clean Fuels in Fleet Vehicles City fleet vehicle emissions can be reduced either through the use of alternate fuels (including electricity) or improvements in new technology (such as frequent tune-up and improved emission systems). B. Transportation Demand Management Action Program Trip Reduction (Transportation Demand Management) 1. Goal: Person Work Trip Reduction for Private Employees a. AOMP Measures: Alternate Work Weeks and Flextime (l.a) and Telecommunications (l.b). b. Obiective: A 30 percent reduction by 2010 and reduce work trips for existing and new developments. C. Trip Reduction Policies i. Encourage businesses to implement telecommuting and alternate work week schedules. 19 Air Quality Implementation Plan City of San Juan Capistrano 408 ii. Consider accessary or support land uses for high employment centers. d. Implementation Measures i. Consider modifying regulations for non- residential districts to encourage the provision of on-site day care and tele- commuting facilities for new developments. ii. Prepare trip reduction information for use by private employers. 2. Goal: Local Government Work Trip Reduction. a. AOMP Measure: Alternate Work Weeks and Flextime (l.a) and Telecommunications (l.b). b. Obiective: By 2010, reduce work trips for City Employees by 30 percent. C. Policy: Encourage management participation in telecommuting and alternate work programs in such a manner that service to the public and factors involving health and safety issues are not compromised. d. Implementation Measures i. Consider administrative policies and procedures for flextime or alternate work schedules. ii. Consider administrative procedures for developing a telecommuting program for employees. 3. Goal: Non -Work Trip Reduction. a. AOMP Measures: Parking Management (2.b) and Terminal Improvements (2.g). b. Objective: To use parking management programs coordinated with transit facility improvements to reduce non -work trips. 20 409 Air Quality City of San Juan Implementation Plan Capistrano C. Policies i. Consider parking management programs that encourages employer rideshare while discouraging the use of single -occupant vehicles. ii. Prepare strategies to improve existing transit facilities and locate new facilities to increase transit use for non -work trips. iii. Include provisions for parking management plans as a component of trip reduction requirements. d. Implementation Measure: Coordinate proposed transit facility improvements with applicable agency's to enhance use of alternate transportation modes such as train, bus, park -n -ride, etc. 4. Goal: Vehicle Non -work Trip Reduction. a. AOMP Measures: Merchant Transportation Incentives (2.d). Auto Use Restrictions (2.e). b. Obiective: Increase the regional proportion of non -work trips made by transit or alternative transportation methods. C. Policies• i. Provide for convenient non -motorized transportation facilities in all new non- residential developments. ii. Encourage existing non-residential developments to incorporate new non - motorized transportation facilities to increase mode shifts in non -work trips. iii. Encourage transit system improvements to increase passenger use and movement within the major circulation corridors of the City. 21 Air Quality Implementation Plan Traffic Flow Imvrovements 1.Goal: Traffic Flow Improvements. 4111 City of San Juan Capistrano a. AOMP Measures: Traffic flow Improvement (4) No Recurrent Congestion (5). b. Obiective: Use of interconnected traffic signal control systems, automated traffic surveillance and control systems (ATSAC) or appropriate non - interconnected synchronization methods on all local streets where traffic volumes and delay times exceed a level of service (Los) D. C. Policies: i. Improve traffic flow through coordinated signalization of intersections as the most cost-effective means of reducing congestion, conserving energy, and improving air quality. ii. Limit the number of access drives on major arterial to reduce potential friction with through traffic movements. iii. In commercial/business areas provide for internal circulation between properties in order to reduce movements between centers using public streets. iv. Provide separate turning lanes (left and right turns) for major project entrances. d. Implementation Measures: i. Continue implementation of ATSAC or similar interconnected intersection signalization programs. ii. Consider land use regulations or administrative policies to encourage joint project entries with internal circulation between adjacent commercial/business sites and provide for separate turning lanes for all major entrances located on primary and secondary arterial. 23 Air Quality Implementation Plan 412q' City of San Juan Capistrano iii. Consider an administrative policy to encourage inter -jurisdictional coordination of mitigation measures related to new development applications. Clean Fuels in Fleet Vehicles 1. Goal: Reduction in Emissions from Local Government Vehicle Fleets. a. AOMP Measures: Electric Vehicles (15) Clean Fuel in New Fleet Vehicles (G-4). b. Obiective: Phase-in the use of clean fuel vehicles in local government fleets. C. Policy: Support research, development, and demonstration of clean fuel vehicles for fleet service. d. Implementation Measure: Consider possible administrative practices that will convert the City's vehicle fleet to clean -fuel conversion prior to 1999. 24 413' Air Quality City of San Juan Implementation Plan Capistrano IV. ENERGY CONSERVATION - ISSUES AND NEEDS If the South Coast Air Basin is to increasingly rely upon electricity as a less -polluting source of energy, there will be a need for major additional energy conservation efforts. The City can play a vital role in adopting administrative practices and design standards to reduce energy demand and thus lower air pollutants due to decreased energy consumption. Under the General Plan Policy Plan, the City has identified the following energy conservation policies which can be achieved through this Implementation Plan: o Minimize the consumption of existing energy resources and encourage the reclamation and use of various resource recovery products. o Take an active and leading role in eliminating waste and in minimizing the consumption of electricity and natural gas in residential, commercial and industrial facilities within the City. o Encourage architectural standards which take advantage of natural heat and light sources. o Limit the use of site lighting to a minimal level and still provide for safety to the public. o Discourage or prohibit the use of purely decorative lighting. o Actively encourage development of new energy sources as well as new technology which will conserve existing resources. o Strive to maximize the reclamation and recycling of solid wastes. o Develop an educational program regarding solid waste problems. 4.1 414" Air Quality City of San Juan Implementation Plan Capistrano Local Government Energy Conservation 1. Goal: Reduce Local Government Energy Consumption. a. AOMP Measure: Local Government Energy Conservation (18 a.). b. Obiective: Reduce overall energy use in local government facilities. C. Policies: i. Encourage the most energy-efficient design consistent with a reasonable rate of return and recognition of the environmental benefits from energy conservation. ii. Continue conversion of all street lights to high-pressure sodium. iii. Encourage other governmental agencies to use energy efficient designs. d. Implementation Measures: i. Continue funding a street -light conversion program to high-pressure sodium lights. ii. Consider, administrative policies which will encourage energy-efficient designs for all new City facilities, including passive concepts which will make use of the natural climate. iii. Encourage other governmental agency projects to use energy-efficient building designs. iv. Conduct energy audits of City facilities, to help identify potential conservation measures. Residential and Commercial Energy Conservation 1. Goal: Reduce Residential and Commercial Energy Consumption. a. AOMP Measures: Energy conservation - Pricing Tax and Subsidy Incentives (18.c), Emissions form Swimming Pool Water Heating (D-4), Emissions from 26 Air Quality Implementation Plan City of San Juan Capistrano 415' Residential and Commercial Water Heating (D-5). b. Objective: Encourage the use of new energy efficient design and technology to reduce the consumption of energy by new development. C. Policies: i. Encourage the incorporation of energy conservation features in the design of all new residential and non-residential projects. ii. Promote the use of passive design concepts which makes use of the natural climate to increase energy efficiency. iii. Encourage new developments to include provisions for the use of solar energy systems or alternate technologies. iv. Encourage the installation of energy conservation devices in existing developments. V. Encourage feasible and cost-effective energy conservation methods based on appropriate evaluation criteria. d. Implementation Measures: i. Consider design standards which promotes the use of passive design concepts for natural climate control for both residential and non- residential developments. ii. Consider solar access in the analysis of new development applications. iii. Consider regulations requiring either solar equipment or other control technologies capable of achieving reductions in energy consumption in all new development. Waste Recycling 1. Goal: Increased Recycling of Solid Waste. a. AOMP Measure: Waste Recycling (18.b). 27 Air Quality Implementation Plan City of San Juan Capistrano 4Ys- b. Obiective: Divert locally generated solid waste from landfill disposal. C. Policy: Develop comprehensive solid waste management program that will reduce waste at the source, all possible waste materials, recycle and compost material. d. Implementation Measures i. Continue pilot recycling program with full implementation for all residential and non- residential pick-up. ii. As a member of the Southeast Regional Reclamation Authority (SERRA), support the efforts of the Agency to compost solid waste produced by treatment process. CONSISTENCY WITH THE GENERAL PLAN In adopting an Air Quality Implementation Plan, the City should assure consistency with the General Plan. On December 18, 1974, the City Council adopted the General Plan which consists of twelve (12) elements: 1. Land Use 2. Open Space and Conservation 3. Circulation 4. Housing 5. Parks and Recreation 6. Historic/Archaeological 7. Systemic Safety S. Noise 9. Public Safety 10. Public Facilities and Utilities 11. Community Design 12. Scenic Highway Since adoption of the General Plan in 1974, the City has approved various amendments. The two most recently updated elements include the Parks and Recreation Element and the Housing Element. The Air Quality Implementation Plan has been prepared so that it will complement the City's General Plan goals and policies. This Plan 28 Air Quality Implementation Plan has been reviewed for consistency Implementation Plan will not result provisions of the General Plan. 417 City of San Juan Capistrano and adoption of the Air Quality in any inconsistencies with the Intergovernmental Coordination and South Coast Air Ouality Management District Referrals Given the importance of meeting the objectives set forth in the 1991 Air Quality Management Plan, and applicable provisions of the General Plan, the Implementation Plan has incorporated various objectives, goals and policy/ implementation programs to comply with related regional plans to insure coordination and achievement of regional goals including those established by the "Regional Housing Needs Assessment", "Regional Growth Management Plan", and the "Regional Mobility Plan". Recognizing the need to maintain coordination with regional agencies, the City has designated the Planning Department to be responsible for addressing regional issues. The Department will be responsible for preparing responses to the annual "Reasonable Further Progress Report". It shall also be responsible for establishing review procedures for referring specific types of new stationary air pollution sources to the South Coast Air Quality Management District to assure that the all necessary air pollution permits are obtained. (wp50\tt\AIRQUAL9.91) 29