BILL ANALYSIS                                                                                                                                                                                                    Ó



                                                                            



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                                    THIRD READING


          Bill No:  AB 141
          Author:   Ammiano (D)
          Amended:  8/6/14 in Senate
          Vote:     27 - Urgency

           
          PRIOR VOTES NOT RELEVANT

           SENATE TRANSPORTATION & HOUSING COMMITTEE  :  10-0, 8/5/14
          AYES:  DeSaulnier, Beall, Cannella, Galgiani, Hueso, Lara, Liu,  
            Pavley, Roth, Wyland
          NO VOTE RECORDED:  Gaines


           SUBJECT  :    Treasure Island Transportation Management Act

           SOURCE  :     San Francisco County Transportation Authority


           DIGEST  :    This bill separates legally the Treasure Island  
          Mobility Management Agency from the San Francisco County  
          Transportation Authority for the purposes of implementing the  
          Treasure Island transportation program.

           ANALYSIS  :    Treasure Island is located in San Francisco Bay,  
          midway between San Francisco and Oakland, and is within the city  
          and county of San Francisco.  It was built between 1937 and 1939  
          as an addition to the existing, natural Yerba Buena Island and  
          as the site of the 1939 and 1940 Golden Gate International  
          Exposition.  In 1941, the Navy began leasing Treasure Island.  

          In 1993, the federal Base Realignment and Closure Commission  
          listed Treasure Island for shutdown.  The naval base on the  
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          island officially closed on September 30, 1997.

          In April 1997, the Board of Supervisors of the city and county  
          of San Francisco created the Treasure Island Development  
          Authority (TIDA) to develop and implement a reuse plan for  
          Treasure Island.  AB 699 (Migden, Chapter 898, Statutes of 1997)  
          permitted the San Francisco Board of Supervisors to designate  
          TIDA as a redevelopment agency and invest it with the powers in  
          California's Community Redevelopment Law.  AB 699 removed  
          Treasure Island from the jurisdiction of the San Francisco  
          Redevelopment Agency and the San Francisco Port Commission and  
          turned those powers over to a single-purpose entity (TIDA).

          AB 981 (Leno, Chapter 317, Statutes of 2008) provides for a  
          transportation program for Treasure Island and Yerba Buena  
          Island (together called Treasure Island in state law), including  
          authorizing tolls to vary with traffic conditions and to be paid  
          by drivers of motor vehicles entering and exiting Treasure  
          Island from the San Francisco-Oakland Bay Bridge.  

          AB 981 authorizes the San Francisco Board of Supervisors, based  
          on TIDA's recommendation, to designate a board or agency,  
          including possibly itself, to adopt and implement a  
          comprehensive transportation program for Treasure Island that  
          will encourage public transit and bicycle, pedestrian, and  
          waterborne modes of transportation and minimize the impact of  
          Treasure Island development on traffic on and around the Bay  
          Bridge.  

          On April 1, 2014, the San Francisco Board of Supervisors  
          designated the San Francisco County Transportation Authority  
          (SFCTA) as the transportation management agency for Treasure  
          Island.  The SFCTA is the long-range transportation planning for  
          the city and county, and it analyzes, designs, and funds  
          improvements for San Francisco's roadways and public  
          transportation networks.  Its 11-member board consists of the 11  
          members of the San Francisco County Board of Supervisors.

          AB 981 grants the transportation management agency extensive  
          powers to implement the transportation program for Treasure  
          Island, including the power to:

           Administer and collect the congestion pricing fees.


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           Regulate on- and off-street parking, including adopting and  
            collecting parking fees, fines, and penalties.

           Adopt and collect transit pass fees from residents and other  
            users of Treasure Island.

           Undertake studies, evaluations, and other mechanisms to adopt  
            and amend the transportation program and to recommend fees  
            with the purpose of relieving transportation-related impacts.

           Use fee revenues for operation, maintenance, construction,  
            collection and enforcement, and administration of the  
            transportation program.

           Enter into contracts and agreements with governmental agencies  
            and private parties as necessary and proper to implement its  
            transportation program, including construction and maintenance  
            of transportation facilities, transit operations, and traffic  
            impact mitigation measures.

          This bill:

          1.Allows the San Francisco Board of Supervisors to revise or  
            revoke its designation of an entity to serve as the  
            transportation management agency at any time.

          2.Renames the transportation management agency for Treasure  
            Island as the "Treasure Island Mobility Management Agency."

          3.Provides that the transportation management agency is an  
            independent and autonomous public agency governed by the board  
            of the SFCTA, as designated by the board of supervisors on  
            April 1, 2014, or by a body the board of supervisors  
            designates in the future. 

          4.Affirms that the transportation management agency is a  
            separate and distinct legal entity that is responsible for its  
            own obligations, debts, and liabilities.  

          5.Authorizes the transportation management agency under its own  
            name to do all acts necessary or convenient to exercise its  
            designated powers and financing of projects, including to:

                 Employ agents or employees.

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                 Acquire, construct, manage, maintain, lease, or operate  
               any public facility or improvements.
                 Sue and be sued.
                 Invest any money not required for the immediate  
               necessity of the agency.

          1.Requires the transportation management agency to adopt an  
            annual budget and to compensate its board members, including  
            reimbursing them for costs they incur while performing their  
            duties.

          2.Authorizes the SFCTA to make direct contributions or  
            contributions on a reimbursement-for-costs basis to the  
            transportation management agency for costs the agency incurs  
            in implementing the transportation program for Treasure  
            Island.

           Comments
           
          The San Francisco Board of Supervisors endorsed a development  
          plan for Treasure Island in December 2006, after an exhaustive  
          planning process involving the Treasure Island Citizen's  
          Advisory Board, TIDA, and other public forums. The plan calls  
          for 8,000 homes, 500 hotel rooms, and 550,000 square feet of  
          office and retail uses.  One of the major constraints to the  
          development plan, however, is limited access to Treasure Island,  
          because a single auto route, the San Francisco-Oakland Bay  
          Bridge, connects it to the rest of San Francisco.  To address  
          this constraint, AB 981 established a scheme to provide a  
          comprehensive transportation program for Treasure Island,  
          including roadway and transit capital improvements and operating  
          subsidies, that could be put in place and managed over time.  

          On April 1 of this year, the San Francisco Board of Supervisors  
          designated the SFCTA to manage the transportation program on  
          Treasure Island.  Proponents of this bill anticipate that the  
          Treasure Island transportation management agency will initiate  
          major financial commitments for long-term contracts beginning  
          early next year.  They are endorsing this legislation in order  
          to shield the local transportation sales tax and other revenues  
          from any liabilities of the Treasure Island Mobility Management  
          Agency.  This bill establishes what they describe as a highly  
          desirable firewall to provide the necessary protection for the  
          SFCTA and its revenue.

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          Other examples exist where state law establishes legally  
          distinct entities that have the same board of directors to  
          manage separate transportation programs.  For example, in 2003,  
          SB 916 (Perata, Chapter 715) made the Bay Area Toll Authority  
          legally distinct from the Metropolitan Transportation  
          Commission, despite having the same board, for purposes of  
          managing the Bay Area toll bridges. 

           FISCAL EFFECT  :    Appropriation:  No   Fiscal Com.:  No   Local:  
           No

           SUPPORT  :   (Verified  8/6/14)

          San Francisco County Transportation Authority (source) 
          Edwin Lee, Mayor of San Francisco
          Treasure Island Development Authority


          JA:nl  8/6/14   Senate Floor Analyses 

                           SUPPORT/OPPOSITION:  SEE ABOVE

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