Attachment 1 7.2
Date:May 31, 2016
Current Meeting:June 2, 2016
Board Meeting:June 2, 2016
BOARD MEMORANDUM
TO:Santa Clara Valley Transportation Authority
Board of Directors
THROUGH: General Manager, Nuria I. Fernandez
FROM: Director of Planning and Program Development, John Ristow
SUBJECT: Potential ½-cent 30-year Sales Tax Measure
3331 North First Street ∙ San Jose, CA 95134-1927 ∙ Administration 408.321.5555 ∙ Customer Service 408.321.2300
Policy-Related Action: Yes Government Code Section 84308 Applies: No
ACTION ITEM
RECOMMENDATION:
1) Adopt the framework and funding amounts for a ½-cent 30-year sales tax measure.
2) Adopt a resolution calling for a special election, to be consolidated with the statewide general
election to be held on November 8, 2016, for the purpose of submitting to the voters of Santa
Clara County a measure seeking authorization for VTA to enact a 30-year ½-cent retail
transactions and use tax for transportation purposes.
BACKGROUND:
In the fall of 2014, VTA launched Envision Silicon Valley - a dynamic visioning process to
discuss current and future transportation needs, identify solutions and craft funding priorities. As
part of this process, VTA is proposing placing a transportation retail transactions (i.e, sales) and
use tax measure on the November 8, 2016 ballot to help fund the transportation priorities. It is
anticipated that a 30-year ½-cent sales tax measure will generate between $6 billion to $6.5
billion in 2017-year dollars.
Based on the input received over the past 18 months, the analysis staff conducted by comparing
the board adopted goals to projects and the polling conducted by the Silicon Valley Leadership
Group, VTA presented a recommendation for a ½-cent, 30-year Sales Tax Measure at the April
22 Board Workshop. The Board requested staff to consider the following:
1. Increase the funding level for Transportation Operations from $450 million to $500 million.
2. Work with the Technical Advisory Committee (TAC) regarding match requirement(s) for
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projects in the measure.
Based on the Board's recommendations, staff (a) increased the Transportation Operations
category to $500 million; and (b) discussed the match requirements and other technical issues
with the TAC at their May meeting and developed a timeline and work plan.
Furthermore, the Caltrain corridor capacity category was increased by $14 million to provide
additional funding for South County Caltrain service. Additional definition and modifications
were made to several categories based on feedback from the public, cities and Board Members.
It should be noted that the Sales Tax Measure will help fund projects and programs but will not
be the sole funding source for a project. Transportation projects, especially larger projects, are
typically built using a variety of funding sources. One significant advantage of a countywide
sales tax is that it provides a local revenue source for obtaining additional funds through
regional, state and federal fund sources.
DISCUSSION:
VTA has statutory authority to enact sales and use taxes if so authorized by the voters. Because
the proposed tax is a special tax for transportation purposes, the voters must approve the tax by a
two-thirds majority. The revenues from the tax may only be used to administer and fund certain
designated transportation categories, as further discussed below. The measure also provides for
the creation of a public oversight committee to annually cause an audit to be performed, hold
public hearings, and issue a report annually to inform the Santa Clara County residents how the
tax revenues are being spent.
Attachment A is the draft resolution calling for a special election, to be consolidated with the
statewide general election to be held on November 8, 2016, for the purpose of submitting to the
voters of Santa Clara County a measure seeking authorization for VTA to enact a 30-year ½-cent
retail transactions and use tax for transportation purposes.
VTA will also need to adopt an ordinance enacting the sales and use tax. The ordinance will be
considered by the Board on June 2, 2016 agenda under a separate item. The ordinance, if adopted
by the Board, will only become operative if the measure is approved by two-thirds of the voters
voting on the measure at the November 8, 2016 election.
Below is a summary of the categories and funding amounts for the proposed measure.
BART Phase II - $1.5 Billion in 2017 Dollars (capped at a maximum of 25% of Program
Tax Revenues)
BART Phase II will create a new regional rail connection by extending BART from the
Berryessa Station in San Jose to Santa Clara with stations at Alum Rock/28th Street, downtown
San Jose, San Jose Diridon Station and Santa Clara. It will ring rail around the south bay by
connecting BART with Caltrain at Diridon and Santa Clara. The projected average weekday
ridership is for Phase II is approximately 55,000 in the year 2035.
The funding raised by the proposed tax will be used for the capital construction costs of the
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BART Phase II extension and will serve as the local match, allowing VTA to compete for an
additional $1.5 billion from the Federal New Starts Program and $750 from the State’s Cap and
Trade Program.
Bicycle/Pedestrian Program - $250 Million in 2017 Dollars
This program will help fund bicycle and pedestrian projects of countywide significance
identified by the cities, county and VTA. The program will give priority to those projects that
connect to schools, transit and employment centers; fill gaps in the existing bike and pedestrian
network; safely cross barriers to mobility; and make walking or biking a safer and more
convenient means of transportation for all county residents and visitors.
Staff is recommending a competitive grant program to fund capital projects. Bicycle and
pedestrian educational programs, such as Safe Routes to School will also be eligible for funding.
It should also be noted that the Complete Streets Requirement staff is proposing on all roadway-
related categories will result in better pedestrian and bicycle facilities and safer access
throughout the county. The list of candidate bicycle projects is included in the resolution
(Attachment A).
Caltrain Corridor Capacity Improvements - $314 Million in 2017 Dollars
This program will fund Caltrain corridor capacity improvements and increased service in Santa
Clara County in order to ease highway congestion, including: increased service to Morgan Hill
and Gilroy, station improvements, level boarding, extended platforms, and service
enhancements.
Caltrain ridership continues to break records as more and more people are realizing the benefits
of the system. As a result, capacity is becoming an issue. The Caltrain Modernization Program,
which will electrify the system and add positive train control, is fully funded and moving
forward. The Caltrain Corridor Capacity Improvements program will take the next step by
helping expand commuter rail capacity and serve more riders through enhanced service and
improved operations.
Caltrain Grade Separations - $700 Million in 2017 Dollars
This program will fund grade separations along the Caltrain corridor in the cities of Sunnyvale,
Mountain View and Palo Alto. Separating the Caltrain tracks from roadways provides increased
safety benefits for drivers, bicyclists and pedestrians. These projects also reduce congestion at
the intersection.
The grade separation program will require close coordination and cooperation with the High
Speed Rail Authority, Caltrain, as well with local cities.
County Expressways - $750 Million in 2017 Dollars
This program will fund the Tier 1 improvement projects contained in the County’s Expressway
Plan. The County of Santa Clara conducted a very robust planning study and outreach process to
determine the highest priority projects for the expressway system. These improvements will
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increase the effectiveness of the expressway system throughout the county. While the two
Caltrain Grade Separations projects listed in Tier 1 are not included in staff’s proposed funding
level, these two projects will be eligible to apply for the Caltrain Grade Separation Program. The
list of Tier 1 projects staff is recommending is included in the resolution (Attachment A). A
Complete Streets requirement will be included to maximize opportunities for bicycle and
pedestrian access.
Highway Interchanges - $750 Million in 2017 Dollars
This program will fund highway projects throughout the valley. VTA will administer a
competitive grant program to ensure that the best projects are moved forward. It will also have a
Complete Streets requirement to maximize opportunities for bicycle and pedestrian access.
Contained in the resolution (Attachment A) is a list of candidate projects that staff has identified
as providing significant congestion relief. However other candidate projects may emerge over
the life of the 30-year measure and these projects will also be eligible candidates for this funding.
Additionally, staff modified the list to make noise abatement, overcrossings, and Intelligent
Transportation Systems (ITS) projects eligible.
Local Streets and Roads - $1.2 Billion in 2017 Dollars
These funds will be returned to the cities and the county on a formula basis. The recommended
distribution mirrors the existing formula VTA uses for the Vehicle Registration Fee, which is
based on the population of the cities and the County of Santa Clara's road and expressway line
mileage.
These funds will be used to repair streets and include a Complete Streets requirement to improve
bicycle and pedestrian elements of the street system. Cities and the county will be required to
demonstrate that these funds will be used to enhance and not replace their current investments
for road system maintenance and repair. Should a city or the County have a Pavement Condition
Index score of at least 70, they could use the funds for other congestion relief projects.
SR 85 Corridor - $350 Million in 2017 Dollars
This category will fund a managed lanes project that includes an express lane on SR 85, in each
direction, and a new transit lane in each direction on SR 85, from SR 87 in San Jose to U.S. 101
in Mountain View. Additionally this category will fund noise abatement along SR 85 and will
provide funding to study transportation alternatives that include, but are not limited to, Bus
Rapid Transit with infrastructure such as stations and access ramps, Light Rail Transit, and other
transportation technologies that may be applicable. This study will result in a capital
improvement project that will move through State and Federal environmental clearance.
The projects for this category are being recommended to the VTA Board by the SR 85 Policy
Advisory Board (PAB). The PAB was formed by the Board of Directors to: a) review proposals,
plans, and policy issues and provide recommendations to the VTA Board and administration
regarding the planning, design and construction of major transit and/or transportation capital
projects in the corridor; and b) make recommendations to the VTA Board of Directors regarding
major policy decisions for the corridor.
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The PAB has representation from San Jose, Los Gatos, Saratoga, Cupertino, Sunnyvale, Los
Altos, Mountain View, Campbell, Monte Sereno, and Caltrans as an ex-officio member. The
PAB began meeting in November, 2015 with an initial task to make a recommendation to the
VTA Board of Directors on transportation improvements to be included in a potential sales tax
measure.
The PAB worked with VTA staff and consultants in an abbreviated conceptual planning process
to evaluate express lane and various transit improvements including express bus, Bus Rapid
Transit, and Light Rail Transit for the corridor. At the PAB's May 23, 2016 meeting, members
voted to recommend the Board of Directors include the projects listed above in the SR 85 project
category.
Transit Operations - $500 Million in 2017 Dollars
The revenue from this program category will provide additional funds specifically for bus
operations to serve vulnerable, underserved, and transit dependent populations throughout the
county. The goals of the program category are to increase ridership, improve efficiency, enhance
mobility services for seniors and disabled, and improve affordability for the underserved and
vulnerable constituencies in the county. As VTA considers modifications to bus operations and
routes to improve ridership and efficiencies, these funds may also be utilized to maintain and
expand service to the most underserved and vulnerable populations. The funds may be used to
increase core bus route service frequencies, extending hours of operations to early morning,
evenings and weekends to improve mobility, safe access and affordability to residents that rely
on bus service for critical transportation mobility needs. The attached resolution (Attachment A)
describes the list of Candidate Projects and Programs.
If the Board elects to move forward with a tax measure, and the measure is approved by a two-
thirds majority of the voters, staff will prepare detailed Program Policy and Guidelines to define
the administrative process for the Board’s consideration.
The Program Policy and Guidelines to be developed and adopted by the VTA Board of Directors
may include the following:
• Implementation Policy/Guidelines
• Citizens Oversight Committee
• Taxpayer Accountability and Transparency Policy
• Bond/Finance Guidelines
• Complete Streets Policy
• Advanced Project Mitigation Guidelines
• Local Street and Roads Program Guidelines
• Program Match/Contribution Policy
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ALTERNATIVES:
The Board of Directors may elect not to place the Sales Tax Measure on the ballot. The Board
may also decide to change any or all of the project categories, funding amounts and program
policies.
FISCAL IMPACT:
If the Board of Directors decides to ask the voters to consider the sales tax in November, VTA
would be responsible for the cost of placing the measure on the ballot. Previous ballot measure
election costs in 2010 were approximately $867,000. Appropriation for this expenditure is
available in the FY17 VTA Transit Fund Operating Budget. If voters approve the measure, it
would generate an estimated $6.3 billion (2017 dollars). VTA administration costs of the
program would be recovered through direct charges to programs and projects and through VTA's
administrative overhead charges.
ADVISORY COMMITTEE DISCUSSION/RECOMMENDATION:
Citizens Advisory Committee (CAC)
Committee members discussed the following at their May 11, 2016, meeting: noted that the
capital projects are beneficial for the economy; noted that these funds may be leveraged with
other funding sources; discussed how the future citizens oversight committee might be
organized; and support that funding categories be listed as percentages rather than dollars.
The Committee adopted staff's recommendation that the VTA Board of Directors adopt the
framework for a 1/2 cent, 30-year sales tax measure. As part of the motion, the committee also
stated that it is supportive of complete streets requirements in the appropriate categories.
Bicycle Pedestrian Advisory Committee (BPAC)
Committee members discussed the following at their May 11, 2016, meeting: support for the
complete streets requirement; noted that the capital needs for bicycle and pedestrian projects
exceeds the funding that is available; the funding amounts for each category should be shown as
a percentage; noted the term "bicycle superhighway" does not clearly represent the typology of
the recommended facilities and inquired if VTA will use a new term; suggested that bicycle
capacity expansion on Caltrain, bicycle parking at Caltrain Stations and first/last mile
connections to Caltrain Stations be included in the Caltrain Capacity category; and, via written
comments, one member requested that equity and underserved populations be considered when
scoring projects through the competitive grant program.
The Committee approved staff’s recommendation that the VTA Board of Directors adopt the
framework for a 1/2 cent, 30-year sales tax measure.
Technical Advisory Committee (TAC)
Committee members discussed the following at their May 12, 2016, meeting: noted that the
definition of complete streets should be flexible; suggested that funding for Safe Routes to
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School be returned by a formula basis to the cities and county; and suggested that the Transit
Operations category accommodate for municipalities to fund transit improvements, such as local
shuttles in their community. Additionally, staff noted that members should contact VTA staff if
they had any suggested changes to the project lists.
The Committee approved staff’s recommendation that the VTA Board of Directors adopt the
framework for a 1/2 cent, 30-year sales tax measure with the following additional
recommendations: a) the Transit Operations Category will also provide funding for municipally
operated shuttles that serve areas where VTA does not have fixed-route bus service; b) the
Bicycle and Pedestrian Category will allocate funding for Safe Routes to School projects and
programs to the cities and county on a formula basis; and c) the funds used to repair streets will
include Complete Streets consideration to improve bicycle and pedestrian elements of the street
system.
Policy Advisory Committee (PAC)
Committee members discussed the following at their May 12, 2016, meeting: considered how the
complete streets requirement would be administered; discussed the impacts for the region if the
measure is not approved by the voters; discussed how the Board would determine the project
priorities in the measure; discussed that cities have the opportunity to add additional projects to
the list in the future; and suggested that the Caltrain Capacity category be written more broadly
to allow for other transit operators in the corridor.
The Committee approved staff’s recommendation that the VTA Board of Directors adopt the
framework for a 1/2 cent, 30-year sales tax measure noting the recommended change to the
Caltrain Capacity category.
STANDING COMMITTEE DISCUSSION/RECOMMENDATION
Congestion Management Planning and Programming Committee (CMPP)
Committee Members discussed the following at their May 19, 2016 meeting: noted support of
the ballot measure categories; suggested that a “dashboard” be created to show how the funds are
being spent in order to provide transparency to voters; discussed that the SR 85 corridor projects
need to be determined in a timely manner for inclusion; and noted that High Speed Rail will have
a significant impact in the Caltrain Corridor.
The Committee approved staff’s recommendation that the VTA Board of Directors adopt the
framework for a ½ cent, 30-year sales tax measure and ballot language, noting that the VTA
should develop a transparent “dashboard” for the public to see how the funds are being spent.
Administration and Finance Committee (A&F)
Committee members discussed the following at their May 19, 2016, meeting: discussed showing
dollar amounts for project categories rather than percentages; suggested adding projects on the
highway list for the I-280 corridor; noted that the Technical Advisory Committee will be
working on issues such as local match and complete streets requirement in the coming months;
reviewed request from the Transit Justice Alliance on projects for the transit operations
category; and discussed service enhancements in South County, noting the pending arrival of
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High Speed Rail.
The Committee approved staff’s recommendation that the VTA Board of Directors adopt the
framework for a ½ cent, 30-year sales tax measure and ballot language with the following
additional recommendations: a) present the funding amounts for categories in 2017 dollars and
that the BART project be capped at a maximum of 25% of program tax revenues; b) include the
I-280/Lawrence Expwy project in the list of Highway Candidate Projects; and c) staff analyze
the request from the Transit Justice Alliance regarding the transit operations category for
inclusion in the resolution.
Prepared by: Scott Haywood
Memo No. 5577
ATTACHMENTS:
x RESOLUTION 5 27 16 (PDF)
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x BART Phase II—Estimated at $1.5 Billion of Program Tax Revenues in
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x Bicycle/Pedestrian – Estimated at $250 Million of Program Tax Revenues
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x Caltrain Grade Separation – Estimated at $700 Million of Program Tax
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