BILL ANALYSIS Ó SENATE COMMITTEE ON APPROPRIATIONS Senator Ricardo Lara, Chair 2015 - 2016 Regular Session AB 1500 (Atkins) - State highways: relinquishment: Route 75 ----------------------------------------------------------------- | | | | | | ----------------------------------------------------------------- |--------------------------------+--------------------------------| | | | |Version: August 1, 2016 |Policy Vote: T. & H. 10 - 0 | | | | |--------------------------------+--------------------------------| | | | |Urgency: No |Mandate: No | | | | |--------------------------------+--------------------------------| | | | |Hearing Date: August 1, 2016 |Consultant: Mark McKenzie | | | | ----------------------------------------------------------------- This bill meets the criteria for referral to the Suspense File. Bill Summary: AB 1500 would authorize the California Transportation Commission (CTC) to relinquish specified portions of State Highway Route (SR) 75 to the Cities of Imperial Beach and San Diego. Fiscal Impact: Unknown one-time costs ranging from minor up to several million to the Department of Transportation (Caltrans) prior to the relinquishment of the designated segments of SR 75 to the Cities of San Diego and Imperial Beach (State Highway Account). These costs would be offset in future years due to avoided maintenance costs on the relinquished segments. Background: Existing law identifies the California state highway system (SHS) through a description of segments of the state's regional AB 1500 (Atkins) Page 1 of ? and interregional roads that are owned and operated by Caltrans. Existing law requires the CTC to relinquish to cities and counties segments of state highways that have been deleted from the SHS by legislative enactment. The CTC is prohibited from relinquishing a segment of state highway to a city or county that has been superseded by relocation until Caltrans has placed the highway into a "state of good repair," which includes litter removal, weed control, and tree and shrub trimming, but does not obligate Caltrans for widening, new construction, or major reconstruction, unless directed by the CTC. The Legislature has provided statutory authorization to CTC to relinquish a number of state highway segments to local jurisdictions under specified conditions. Relinquishment provides the recipient agency with greater control over local transportation projects and relieves Caltrans of any further responsibility to improve, maintain, or repair infrastructure related to the relinquished segment of state highway. Generally, relinquishments are subject to negotiated agreements between Caltrans and a local jurisdiction seeking control of a local highway segment. CTC must determine that the agreement for relinquishment, which has typically involved a one-time payment of State Highway Account funds to the local entity, is in the best interests of the state. Historically, Caltrans has annually set aside $12 million of State Highway Operations and Protection Plan (SHOPP) funding for rehabilitation necessary for highway relinquishments. In recent years, however, Caltrans has not set aside funding to rehabilitate relinquished highways. Proposed Law: AB 1500 would authorize CTC to relinquish the portions of SR 75 located in the Cities of Imperial Beach and San Diego within their respective city limits, upon a determination that the relinquishment is in the state's best interest. The relinquished segments would cease to be a part of the state highway system, and would be ineligible for future adoption as a state highway. The bill would require the Cities of Imperial Beach and San Diego to ensure the continuity of traffic flow AB 1500 (Atkins) Page 2 of ? along the relinquished portions and maintain signs directing motorists to the continuation of SR 75, to the extent deemed necessary by Caltrans. Related Legislation: SB 254 (Allen), as heard by this Committee in 2015, would have established procedures for the administrative relinquishment of state highway segments that do not serve an interregional purpose. That bill was amended in the Assembly to address an unrelated subject. Staff Comments: Existing law describes SR 75 as a highway from Route 5 to Route 5 via the Silver Strand and upon the San Diego-Coronado Toll Bridge. Going from north to south, SR 75 crosses the bridge and passes through the Cities of Coronado and Imperial Beach before re-entering San Diego city limits and connecting to Route 5. The U.S. Navy has initiated a series of improvements on its property at the Naval Amphibious Base located along the Silver Strand Boulevard section of SR 75, just north of Imperial Beach. The improvements are expected to generate a significant amount of traffic when fully constructed and occupied. The Imperial Beach City Council would like to have more direct control over SR 75 within its boundaries (approximately 1.2 miles of roadway locally identified as Palm Avenue) so that it can work with the Navy in managing traffic. According to a recent Caltrans analysis, this segment of SR 75 functions as a city street rather than a state highway or interregional route, with on-street parking, numerous driveways, and other access points. Caltrans may provide State Highway Account funding to a local entity that is assuming control over state highway segments in order to bring the roadway up to a "state of good repair," although there is no statutory obligation to do so. The actual amounts vary for each relinquished highway segment and are determined by a negotiation of terms and conditions between Caltrans and the local jurisdiction, but those costs are based upon a cost-benefit analysis covering a ten-year period, which is included in a Project Scope Summary Report prepared for legislative relinquishments. Caltrans has not identified a specific cost estimate for the AB 1500 (Atkins) Page 3 of ? relinquishment of this highway segment, but based on other relinquishments, one-time costs may range from minimal up to $1 million per centerline mile of roadway depending on numerous factors such as roadway condition, projected maintenance costs, and any planned capital projects. The combined segments of SR 75 within the Cities of San Diego and Imperial Beach are approximately 2.2 miles long, so initial costs could be minimal but may be as high as $2 million. The relinquishment of these segments would relieve Caltrans of any future maintenance and repair costs, resulting in unknown long-term annual savings. Actual costs and savings would be more certain if legislation to authorize relinquishment followed, rather than preceded, the completion of the cost-benefit analysis and an agreement between Caltrans and the specified cities. However, Caltrans does not typically conduct the analysis and enter into negotiations until legislative authority for relinquishment has been provided. Staff notes that Caltrans District 11 staff is currently working on a Transportation Concept Report for SR 75, which is scheduled for completion in late 2016. This planning document will identify existing and future route conditions as well as any future needs for the highway, and it may be useful to inform relinquishment negotiations. Caltrans is also in the process of completing a Relinquishment Assessment Report for the portions of SR 75 within the City of Coronado. -- END --