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1975
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F~egional TransportationN,.
rA.~,~
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Plan ~.
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overnments
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2QA5
Sumr~nary
1975
Regional Transportatior~Plan~o~ar~~~
~c~~a~~por~~a~oo~~~~~~~
Southern California Association of Governments
fable of Contents
Introduction to the Plan
About SCAG
Historical Perspective
135
Major Issues and Recommendations
7
Subregional Transportation Plans 13
Updating the Plan
Public Participation
22
23
Southern California's transportation
systemwas founded on old missionary trails connect-
ing astring of missions firom Sonoma to S
an
Diego. Later these trails gave way to w
agon
roads linking hundreds of small towns. But
soon, stagecoach lines and then the railroads
opened the land to m
ore growth
and faster
travel for people and goods.
Red Car
The next 5
0 years s
aw a real estate b
oom and,
along with it, spectacular population growth.
As the Southland grew, so did the d
emand for
even better transportation. More automobiles
meant more and better roads to be built. But,
about the same time, the region's first inter-
urban transit system —commonly called the
Red Car —went into service, a
nd connected
cities with a relatively fast, reliable and inex-pensive m
eans of travel.
Support waned for public transit in the Thir-
ties, but during World War II —
when gasoline
was almost a
s scarce as n
ew automobiles —
people switched back to public transit. How-
ever, when Detroit
began producing
carsagain, and the g
overnment stopped rationing
gasoline, public transit became generally less
attractive.
Freeways
The Forties brought a n
ew form of high -speed
highway to Southern California —the freeway.
It was designed
to carry a large v
olume of
vehicles swiftly and
safely to their destina-tions. Today, m
ore than 1
,300 miles of such
freeways span the Southland.
An estimated 8
5 per cent of all families o
wn
one or m
ore cars, and they drive t
hem just
about everywhere throughout the region. In
1970, Southland
drivers logged
a total
ofabout 1
44 million miles a day.
r-
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Car vs. B
us
Most people prefer to drive their cars rather
than ride
public transit, because their carstake t
hem where they w
ant to go, w
hen they
want to go, in comfort a
nd with relative speed.
It's been said that the Southland, especiallygreater Los Angeles, is the only place in thenation built to the exact specifications of theautomobile.
Although six times as much money is p
umped
into new highway construction a
s into public
transit in
Southern California,
governmentagencies have b
egun to d
o more, recently, to
assist local areas finance public transporta-tion systems.
Even so, bus service still provides less than
3 per cent of all
daily person trips (transit
serves mainly
downtown areas
and some
streets and freeways). M
ost people take buses
because they have no other choice. Surveysshow that a vast majority of people ride buses
because they can't drive, can't afford to, ordon't o
wn a car.
Transportation Lifeline
We know that transportation
is a lifeline of
Southern California. Nearly everyone depends
on it for e
mployment, education
and recre-
ation, and the exchange of goods a
nd ideas.
Because so m
uch in our lives d
epends on ac-
cess to jobs and other opportunities, it would
seem that there should be m
ore choice about
how to get around.
But in the opinion of many people there isn't.
Our transportation system has been described
by critics as inefficient, expensive, noisy, and
harmful tothe air and land.
Reappraise the System
Today, more than
10
Southern California
38,000 square miles.
million people
live in
spread across
over
How can
we increase the carrying capacity
of our
transportation network
and, at the
same time, have cleaner air,
better use
ofenergy a
nd resources, a
nd at a p
ace we can
afford?
Of ccurse, the answers are
not simple. Butone choice w
e have is to thoroughly reappraise
our entire
transportation system —
publictransit, highways, airports, g
oods movement,
bicycles, and harbors and
pipelines — so w
ecan
make better
use of it, now and in
thefuture.
10,000,000 people
the SCAG region
F~a
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The SCAG transportation plan spells out w
hat
is needed to improve our regional transporta-
tion system in the near and distant future. A
series of recommendations are contained
in
the plan, in response to these critical issues:
air quality and energy, mobility a
nd accessi-
bility, land use, financing, changing technol-
ogy, institutional responsibility, and
phaseddecision- making.
Air Quality and Energy
One of Southern
California's most pressing
problems is air pollution. It's been shown to
be potentially dangerous to health and harm-
ful to the environment and economy. A major
cause of air pollution in the South Coast AirBasin
is the automobile. There is a
strong
chance that w
e will
never reach federal air
quality standards by simply adding smog con-
tr~l devices to the engines of today's cars. Two
otherthings must be done.
First, we must develop non
- polluting auto en-
gines and vehicles that can travel m
ore miles
per gallon. Improved auto performance in thefuture could be achieved by sanctions o
n the
size of the engines, enforcement of auto effi-ciency standards, development of electric pow-
ered vehicles and cleaner burning fuels.
7
0
Second, we must take steps to limit auto use.
Reducing the number of
miles we drive our
cars is one important key to cleaning u
p our'
air and, for that matter, making better use of
our energy. The plan calls for reducing the
number of miles traveled
by 20 per cent by
1977. A number of potential strategies are
recommended to achieve this reduction. T
hey
include:• Preferential treatment of buses andcarpools on freeways a
nd arterials
~ Traffic control i
mprovements
• Transit i
mprovements and carpool
action programs
• Parking m
anagement
• Commuter rail service
• Bicycle i
mprovements
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In addition, so called "disincentives" to auto
use are n
eeded if w
e are to "
see" clean air.
These could
include increasing the
cost of
auto operation through tax measures, and re-
strictingauto use in specified areas and times
of day.
The long t
erm effect of reducing auto use will
probably result
in inducing
people to
livecloser to work, increasing ridership o
n public
transit and/or
carpooling, reducing
certain
trips, and eliminating the n
eed for a s
econd
car.
Energy is a
n issue that is tied to the use of
the automobile.
Both the
number of
daily
miles that people
drive and the
gallons of
gasoline consumed have tripled over the last
20 years. Fuel shortages have m
ade us realize
that our energy supplies m
ay be too limited
to meet future
demands, unless
concerted
action is taken now to conserve w
hat we have
available.
Mobility and Accessibility
For those who own or have access to a car,
the Southland's major transportation system— freeways,
highways, roads and streets —
offers great mobility. However, many people
are not able to drive for various reasons.
Nearly one million persons in the S
CAG region
are over 65 years of age. M
any others are
handicapped or
disabled to
some degree.
These people are denied full mobility b
ecause
of barriers in vehicle design. High bus steps,
narrow aisles, electric doors, turnstyles and
stairs are examples of transit barriers.
Physical barriers are not the only obstacles.
In the SCAG region, a half million persons be-
tween the a
ges of 1
6 and 65 have incomes
below the poverty line. The costs of o
wning
and operating a car are s
o much that auto u
se
is beyond the reach of m
any of these people.
The result is that they are isolated f
rom jobs,
medical services, shopping areas a
nd social
events because of inadequate public transit.
SCAG believes that s
ome degree of mobility
and accessibiEity to
all citizens
is a public
obligation. But the w
ay in which this should
be accomplished is subject to debate. E
ven
so, the SCAG plan r
ecommends a n
umber of
things be
done in
the years a
head. Among
these recommendations are:
• Develop a "starter-leg" of a m
edium
capacity transit guidewayto be fully
operational within the next five years• Add at least 1
,900 buses to the region's
existing fleet~
Expand subscription b
us service w
here
needed
• Eliminate transit barriers to the hanu~-cappedand elderly
• Use park-a
nd-ride lots w
here possible
as transfer points for b
us riders
• Use marketing p
rograms to i
mprove the
image of public transit a
nd encourage
greater ridership• Improve access to existing airports to
handle future increases in commercial
and general airtravel
• Complete the missing links of the high-
way system a
nd improve major roads
• Promote greater use of bicycles, a
nd
encourage use of bike racks a
nd safe
'storage facilities at all major parkingareas
0
Land l9seIf growth
happens without a plan, it can
bedisorderly and wasteful. Valuable open landmay be lost, and the ecology of the area m
ay
be harmed. Another effect is scattered hous-ing and jobs around the region. T
he land use
pattern, through a lack of planning, becomes
haphazard and inefficient.
Transportation planning
is a basic tool for
achieving balanced development, since peoplelocate where jobs and services are accessibleand
industry locates where transport condi-tionsare favorable.
In view of this, SCAG has m
ade the following
specific land use recommendations:• Channel
transportation expansion
toareas of growth and redevelopment
• Emphasize metropolitan and shorter dis-tancetransportation improvements
• Support transit service at the c
ommunity
level• Encourage
transportation service
ap-propriate for rural areas
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FinancingImproving our regional transportation systemis very expensive. If the current proposals ofvarious focal, regional a
nd state agencies w
ere
carried out, the total price tag would run more
than $62 billion. O
nly about $36 billion
ofthat a
mcunt, however, is available for m
aking
transportation improvements over the next 2
0years.
Although these
funds are
available, many
have strings tied to them as to h
ow they c
an
be spent. T
he SCAG plan
says these con-
straints should be relaxed so that f
unds may
be used m
ore effectively.
In addition, it is recommended that the state
constitution be amended so that m
otor vehicle
tax revenues c
an be allocated
for any type
of highway or public transit improvement.
Changing Technology
Because transit h
as been a neglected part of
our transportation
system for
many years,
changes in both t
hetypeand operation of tran-
~ " x
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~sit s
ystems have
been very slow
in coming.
Q
~~~However, because our technology is expand-
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ing so rapidly in all aspects of life, dramatic
~k~~ ~
~~'improvements in transit c
an be expected
in ~ ~~
'~~/
the near future.
if we use existing transit technology, w
e run
the risk
of developing
an obsolete
system.
But, at the same time, using a
n emerging but
unproven technology
runs an equally
greatrisk of developing a
system which
may not
function properly.
Therefore, SCAG recommends that decisions
~/~' "`+' V"~' ;
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should be m
ade so that technological break-
throughs can be made part of future plans.
~'
l
Phased Decision- PJlaking
Not only is technology changing, but our totalenvironment can also c
hange rapidly. Air qual-
ity and energy problems are e
xamples of this.
Therefore, our
decisions must be
flexibleenough to be able to respond quickly to chang-
ingconditions.
We should not choose an irrevocable path of
action unless there is a
high degree of cer-tainty about the effects of that action. It isdesirable, then, to
make decisions in
a se-
quence, so that actions needed now are taken
now, but options are left o
pen for the future..
SCAG aims for the phasing of decisions o
nnew transit services over the
next year, in-ciuding the priorities of service, selection ofmode and funding.
Institutional ResponsibilityIn a time w
hen numerous transportation de-
cisions must be m
ade, the region is faced with
a fragmented
system of
responsibility for
making those
decisions. Unlike
past trans-portation
actions which
generally involved
only a few agencies or levels of government,
today's transportation
decision- making
re-
sponsibility is shared by many agencies a
nd
levels of government.
It is necessary to provide a framework within
which regional decisions can
be made, and
which can respond to local needs as well a
s
state and federal mandates. T
he institutional
arrangements which may improve the
situ-
ation may take o
ne of several forms, ranging
from relatively simple interagency agreements
to complete restructuring agencies a
nd re-
sponsibilities.
It is r
ecommended that the
regional trans-portation
plan be
updated, as required
by
state legislation, and that m
ore time for public
review and comment be
provided. This up-datingprocess i
snow underway.
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In addition to the regional-level recommenda-
tions, each subregion submitted
recommen-
dations to
be included
in the
plan. These
recommendations outline the transportation
improvements each subregion plans to imple-
ment over the next f
ew years. T
hey indicate
the directions subregions are taking in orderto solvetransportationproblems intheir areas.
To date, subregional plans a
nd/or other state-
ments of
policy have
been received
from
Orange County (including O
CTD), Riverside
County (including the Coachella Valley Asso-
ciation of Governments), San Bernardino As-
sociated Governments, Ventura C
ounty Asso-
ciation of
Governments, Imperial
ValleyAssociation
of Governments, Southern
Cali-fornia
Rapid Transit District, city of Los An-geles, a
nd county of L
os Angeles. Subregional
plans are being developed and will be part of
next year's update of the regional transporta-tion
plan.
The following is a s
ummary of the major sub-
regional recommendations and policies:
13
14
For highways in the county, it is recommended
that the current master plan of highways be
retained —subject to s
ome changes that are
based on more study.
These arterials
areplanned to handle present a
nd future traffic
loads, in line with adopted county goals and
policies. Dial-a -ride service is called for in anumber of
cities. These include:
Orange,
Huntington Beach, Buena Park, Brea, West-
minster, Tustin and nearby foothills, Cypress,
La Palma and Fullerton.
Long range planning for a rapid transit guide-
way, based o
n adopted corridors, is also rec-
ommended.
And, for air travel, further
airport study is
called for by the county. This study will lead
to solving key environmental problems, such
as aircraft noise.
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A five-year program to develop transit service
is proposed
for each
of four areas
in the
county.
Under this
program, the city
of Riverside
would have
seven regular
bus routes, five
small buses for subscription service, and dial-
a-ride for three areas. In Corona a
nd Norco,
dial-a-ride buses would
run on the
hour as
would fixed-route buses. Proposed for
Ban-ningand Beaumont is an intercity bus system
of three routes, with
future connections toRiverside a
nd Palm Springs. Dial-a-ride a
nd
regular bus service are proposed for H
emet-
San Jacinto, Perris -Sun City, a
nd Lake Elsi-
nore. New buses a
nd expanded service are
proposed for the Coachella Valley as well asthe Blythe-Palo Verde Valley.
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15
San Bernardino
Associated Governments
16
Several transit systems are r
ecommended f~
detailed testing to determine their costs and
impact on the county. Included are: b
uses on
freeways and streets, separate
right -of-wayrapid
transit, automated small
vehicle sys-
tems, commuter railroads,
and
dial-a-ridesystems.
Also called for is a five-year short range tran-sit i
mprovement program to e
xpand existing
bus service
and inaugurate
new service
tovarious c
ommunities. This p
rogram also in-
cludes the start of dial-a-ride service in thewest valley
and the
mountain
-desert areas,commuter railroad service, a
nd pool-type tran-
sit services.
A federally-aided
five-year capital
improve-ment program and aone-year county f
unded
program for h
ighways have been r
ecommend-
ed for the county.
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A fixed-route
bus system, to
be developed
over the next five years, is recommended to
serve communities in the county, as well asthose in Los Angeles a
nd Santa Barbara coun-
ties. Carpooling should be encouraged by lo-cal agencies a
nd businesses, using various
incentives. Intercity rail service should
alsobe considered as a potential system over thenext five years.
The existing
streets and highway
systemshould
continue to be
properly maintained
and expanded to
serve projected
needs. Itis
recommended that three
county airportsshould continue to operate, except for futuremodifications
which may be
needed. These
are: Santa Paula Airport, Ventura County Air-port in Oxnard, a
nd the Point M
ugu Naval Air
Station.
17
.; ::
~8
IVAG calls for a transportation s
ystem based
on citizen
desires for travel to employment
and other activities at a reasonable cost. This
system should have a network of streets a
nd
highways that provide
rapid, efficient, com-
fortableand safe travel for people and goods.
In addition, it should guide and promote effi-
cient growth and land use patterns, a
s well a
sserve agricultural
needs. For airports, there
_should be a system capable of handling futuregrowth a
nd compatible with other m
odes of
^"`:,"travel
r
a
SCRTD recommends a program of short-range
bus service
improvements, with
a goal
of1,000 additional
buses within
a three
yearperiod. T
hese and other b
uses will b
e used for
three general types of service. First, there will
be freeway or line-haul
runs, having limitedstops in order to s
peed travel for riders, a
nd
in many cases use of park
-and-ride lots. Sec-
ond, there
will be bus improvements for
shorter trips. Third, there will be better b
us
service in local areas.
The ultimate goal for rapid transit is a
240-
mile master plan of corridors. Within this plan,
SCRTD has adopted a 145-mile
initial pro-
gram for g
uideway construction, along with
an extension of the EI
Monte Busway to the
Ontario Airport. A system of this size c
annot
be constructed all at once, so priorities will
have to be set for proper phasing of the sys-tem.
The exact location of the rapid transit lines
and stations, which portions should b
e in sub-
way, at grade or elevated, a
nd what technol-
ogy should
be used a
nd operated, have
notyet been decided. T
hese decisions await pre-
liminary engineering, environmental impact
reports and public hearings for e
ach route.
~ ~n~`. ilk
City of Los Angeles
20
For freeways, the city calls for priorities in
construction and improvement to reduce ve-
hicle miles traveled and relieve traffic conges-
tion. Streets
and highways
should be im-
proved in accordance with the city's five-yearplan.
The city
is recommending the d
evelopment
of a rapid transit system, including auxiliarynetworks
in major
centers and feeder
bus
service where needed.
Improved bus service also is called for by in-
creasing routes, efficiency and comfort. Other
proposals include an exclusive b
usway within
freeways, new routes to reduce transfers a
nd
! ~I
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encourage ridership, separate loading areas
in heavy traffic a
nd bus stops in
more con-
venient locations, and preferential use of se-
lected streets during peak travel times.
Adequate ground access to airports should be
provided, and remote passenger ticketing a
nd
baggage handling are needed. A
nd air cargo
facilities should be e
xpanded in s
ome cases.
It is recommended there be continued devel-
opment of the Port of L
os Angeles to increase
its capacity. In addition, rail service through-out the city should
be consolidated and im-
proved to meet industrial d
emand.
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Transportation and Utilities C
ommittee
Ralph B. Clark (Chairman)
Don Fox
Dorothy Le Conte
Hazel N. ScottoSupervisor,
Mayor Pro T
em,
Councilwoman,
Councilwoman,Orange County
City of BreaCity of Rolling Hills
City of Downey
Eric A. Haley (Vice Chairman)
Mary R. Gayle
Luis M. Legaspi
Wil SimendingerCouncilman,
Councilwoman,
Supervisor,Mayor Pro T
em,
City of RiversideCity of Camarillo
Imperial CountyCity of La Mirada
Archie E. BeasorCharles E. Gilb
Jay E. LewisRenee Simon
Councilman,Mayor,
Councilman,Councilwoman,
City of Santa Fe SpringsCity of Arcadia
City of PalmdaleCity of L
ong Beach
David BrandtKenneth H
ahn
William J. LoehrWalter R. Tucker
Councilman,Supervisor,
Vice Mayor,Councilman,
City of Santa Ana
Los Angeles CountyCity of Pico Rivera
City of Compton
Forrest W. Carter
Jo Heckman
Donald D. LorenzenHoward C. Ullrich
Councilman,Councilwoman,
Councilman,Director,
City of Desert Hot Springs
City of Pasadena
City of Los AngelesCaltrans
Kent Cozad
Andrew Isaacs
Daniel D. Mikesell
Robin Young
Councilman,Councilman,
Supervisor,Mayor Pro T
em,
City of Hemet
City of InglewoodSan Bernardino County
City of La Habra
Jesse M. Davis
Edwin A. Jones
Stephen A. NordeckJohn Z
immerman
Councilman,Supervisor,
Mayor,Councilman,
City of Buena Park
Ventura County
City of Manhattan BeachCity of Norwalk
Anthony B. Decou
Miriam Kaywood
Peter F. Schabarum
Councilman,Councilwoman,
Supervisor,City of R
edondo Beach
City of Anaheim
Los Angeles County
Elerth EricksonBernard W
. Keller
Donald L. SchroederCouncilman,
Councilman,Supervisor,
City of Garden GroveCity of Barstow
Riverside County
SLAG Officers
PresidentFirst Vice President
James Hayes
Rosanna Scott
Supervisor,Councilwoman,
County of Los AngelesCity of Riverside
Second Vice President
Past PresidentDennis Hansberger
Jarvey GilbertSupervisor,
Councilman,County of S
an Bernardino
City of Burbank
Professional StaffExecutive Director —
Raymond Remy
Deputy Executive Director —Bart Meays
Director of Planning —Edward A. Holden
Director of Transportation Planning — W. 0. Ackermann, Jr.
The preparation of this report w
as financed in
part through a grant from the U.S. Departmentof Transportation; U
rban Mass Transportation
Administration, the Federal Highway Adminis-
tration, and the State of California.
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