BILL ANALYSIS Ó
SENATE COMMITTEE ON TRANSPORTATION AND HOUSING
Senator Jim Beall, Chair
2015 - 2016 Regular
Bill No: AB 40 Hearing Date: 6/23/2015
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|Author: |Ting |
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|Version: |4/15/2015 |
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|Urgency: |No |Fiscal: |Yes |
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|Consultant|Christine Hochmuth |
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SUBJECT: Toll bridges: pedestrians and bicycles
DIGEST: This bill prohibits the tolling of pedestrians and
bicycles on toll bridges in California that allow pedestrian and
bicycle access.
ANALYSIS:
Existing law:
1)Created the California Transportation Commission (CTC) and
assigned it all responsibility previously assigned to the
California Toll Bridge Authority, including directing and
authorizing the Department of Transportation (Caltrans) to
build toll bridges.
2)Created the Bay Area Toll Authority (BATA) to administer the
base $1 auto toll for the San Francisco Bay Area's seven
state-owned toll bridges. BATA operates under the
Metropolitan Transportation Commission. In 2005 BATA's
responsibilities were expanded to include administration of
all toll revenues and joint oversight of the toll bridge
construction program along with Caltrans and the CTC.
3)Requires Caltrans and CTC to consider the inclusion of bicycle
and pedestrian facilities on each new toll bridge designed and
constructed, including appropriate connections thereto. These
facilities are required to be included on each new bridge if
the commission finds that they are economically and physically
AB 40 (Ting) Page 2 of ?
feasible.
4)Established the Golden Gate Bridge, Highway, and
Transportation District (GGBHTD), which, among other
functions, owns and operates the Golden Gate Bridge and sets
tolls.
This bill:
1)Prohibits a toll from being imposed on the passage of a
pedestrian or bicycle, provided the travel of pedestrians and
bicycles is otherwise authorized, over:
a) Any bridge that is under the jurisdiction of the GGBHTD.
b) Any state-owned bridge on which tolls are imposed on the
passage of motor vehicles.
c) Any bridge that is part of the state highway system on
which tolls are imposed on the passage of motor vehicles,
including any bridge constructed pursuant to a franchise.
COMMENTS:
1)Purpose of the bill. According to the author, cyclists and
pedestrians put minimal wear and tear on bridges compared to
vehicles, so imposing a fee for their use of bridges would
disproportionately penalize these non-vehicular modes of
transportation. The author contends sidewalk access fees
would also discourage usage of public trails that are the
pride of the Bay Area. The author believes this bill would
promote non-vehicular forms of transportation across bridges
that improve air quality, combat climate change, and encourage
physical activity.
2)Toll bridges in California. California has eight toll
bridges, all located in the San Francisco Bay Area. Seven of
those bridges - The Antioch Bridge, the Benicia/Martinez
Bridge, the Carquinez Bridge, the Dumbarton Bridge, the
Richmond-San Rafael Bridge, the San Francisco-Oakland Bay
Bridge, and the San Mateo Hayward Bridge - are owned by the
state. The eighth bridge is owned and operated by GGBHTD. Of
these bridges, five currently have pedestrian and bicycle
access: the Golden Gate, the Antioch, the Benicia-Martinez,
AB 40 (Ting) Page 3 of ?
the Carquinez, and the Dumbarton bridges. There is currently
no toll for pedestrians or bicyclists on any of the
state-owned toll bridges.
3)GGBHTD. When the Golden Gate Bridge first opened in 1937,
pedestrians had to pay five cents to cross. The sidewalk toll
eventually rose to 10 cents before being abolished in 1970.
The district's board recently approved a study to determine
whether a pedestrian/bicyclist toll would be feasible and
helpful in light of the district's budget woes. According to
the district, about 6,000 cyclists and 10,000 pedestrians
cross the bridge on a good weather day. Sidewalk access fees
are just one consideration in a 45-point plan to help GGBHTD
remain solvent, as they face $209 million in unfunded capital
needs, in addition to a $32.9 million operating deficit over
the next five years.
4)To toll or not to toll? Is that even the question? Although
the author contends cyclists cause minimal wear and tear, the
costs for bicycle and pedestrian projects and their
maintenance are not negligible. According to the Assembly
Appropriations Committee, prohibiting tolling of pedestrians
and bicyclists could have a potentially significant effect in
terms of foregone revenue, perhaps in the millions of dollars.
Supporters of the bill claim that AB 40 will preserve an
incentive for residents and visitors alike to pursue
emission-free methods of active transportation that are
beneficial for our environment and for our health. Perhaps
the larger question is whether the state should be responsible
for determining tolling restrictions/allowances or whether it
should be left to local jurisdictions.
Related Legislation:
AB 157 (Levine) - if the commission and the department develop a
project to open the third lane on the Richmond-San Rafael Bridge
to automobile traffic on the eastbound level and to bicycle
traffic on the westbound level, would require the lead agency to
complete the design work for the project simultaneously with the
environmental review conducted pursuant to the California
Environmental Quality Act. This bill is currently pending in
this committee.
AB 748 (Wolk, Statutes of 2005) - prohibited a toll from being
imposed on the passage of a pedestrian or bicycle over toll
AB 40 (Ting) Page 4 of ?
bridges that are a part of the state highway system, under the
jurisdiction of Caltrans, or under the jurisdiction of the
GGBHTD. AB 748 was vetoed by Governor Schwarzenegger.
Assembly Votes:
Floor: 64-13
Appr: 13-4
Trans: 13-2
FISCAL EFFECT: Appropriation: No Fiscal Com.: Yes
Local: No
POSITIONS: (Communicated to the committee before noon on
Wednesday,
June 17, 2015.)
SUPPORT:
California Bicycle Coalition
California Travel Association
Mayor of San Francisco
San Francisco Bay Trail Project
San Francisco Bicycle Coalition
San Francisco Travel Association
Save Our Recreation
Walk San Francisco
OPPOSITION:
None received
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