HomeMy WebLinkAbout08-24-2015 CHC Item 3 - Railroad District Boardwalk (PDEV-1445-2015)Meeting Date: August 24, 2015
Item Number: 3
CULTURAL HERITAGE COMMITTEE AGENDA REPORT
SUBJECT: Review proposed modifications to the boardwalk style design standard for the
Historic Railroad District to address accessibility, safety and maintenance issues.
PROJECT ADDRESS: Railroad Historic District BY: Phil Dunsmore, Senior Planner
Steven Orozco, Planning Intern
FILE NUMBER: PDEV-1445-2015 (AP) FROM: Brian Leveille, Senior Planner
SUMMARY RECOMMENDATION
Amend the Railroad District Plan to allow greater flexibility in the use of materials for the
boardwalk and recommend the Public Works Director revise the engineering standards for
boardwalks in the Railroad Historic District.
SITE DATA
Applicant Owner
City Of San Luis Obispo
Representative Jennifer Lawrence
Historic Status Railroad Historic District
Submittal Date May 29, 2015
Complete Date June 29, 2015
Zoning C-S, C-R
General Plan Services and Manufacturing,
General Retail
Site Area ~80.73 acres
Environmental
Status
Exempt from CEQA under
Section 15301, Existing
Facilities.
SUMMARY
The City of San Luis Obispo Public Works Division is seeking to establish a new Engineering
Standard for the sidewalk area in the Railroad District to replace the current wood boardwalk
design. The current wood boardwalks have proven difficult and time-consuming to maintain and
do not meet accessibility (ADA) requirements.
PJD
CHC 3-1
Railroad District Sidewalk
City of San Luis Obispo, Public Works. PDEV-1445-2015 (AP)
Page 2
PROJECT INFORMATION
Project Description
The Railroad District Plan Architectural Guidelines specify that public sidewalks in the district
should be a City approved wood boardwalk design1. A supplemental memo provided by City
Engineer, Jennifer Lawrence outlines challenges with the current standard and provides
recommendations to improve the current standard with the goal of improving accessibility,
safety, and maintainability (Attachment 2).
As shown below, the standard wood boardwalk does not stand up well over time. While the
boardwalk is aesthetically pleasing when newly installed (Figure 1), boardwalk maintenance has
proven to be a challenge and is labor intensive and expensive. Boardwalk maintenance
challenges include loose screws (Figure 2), warped and splintered boards (Figure 3), rotting
boards (Figure 4), and wide gaps between the boards caused by shrinkage, all of which result in
a rough walkway and trip hazards. In addition, the current standard does not comply with the
Americans with Disabilities Act (ADA) requirements because of the gap and trip hazard issues.
This poses a challenge for the City, since it is committed, as well as required, to provide
accessible sidewalks and walkways.
Figure 1 - Boardwalk installation at the Railroad
Transportation Center
Figure 2 – Loose Screws
1 Railroad District Plan (RRDP) Architectural Guidelines- Site and Public Improvements 6 (page 80): “Public
sidewalks along portions of Osos, Santa Barbara, Church, Emily, High, and Roundhouse streets within the Railroad
District should be a City approved wood boardwalk design.” Also refer to Figure 23: Boardwalk Detail (page 69
of the RRDP).
CHC 3-2
Railroad District Sidewalk
City of San Luis Obispo, Public Works. PDEV-1445-2015 (AP)
Page 3
Figure 5 – Stamped Concrete Installation
Figure 3 – Warped Board Figure 4 - Rotted Wood
EVALUATION
Railroad District Plan
The Railroad District Plan (RRDP) is a design plan that provides guidance for development and
investment for both private and public improvements. The RRDP identifies the historic theme
and context of the area as it relates to the era of development associated with arrival of the
Southern Pacific Railroad in San Luis Obispo. The General Plan identifies historic resource
preservation as an important goal2 and the RRDP was developed to describe the character of the
historic district and resources to be protected. As part of preserving the character of the area,
architectural guidelines were developed to describe public area improvements, such as lighting,
landscaping, fencing, seating areas, sidewalk design, trash containers, and other improvements
reminiscent of the railroad era character. The wood boardwalk design is part of this guidance.
Replacing the wood standard with another material should be reviewed in light of the
replacement material’s ability to convey the historic feeling of the district. City public works
staff has evaluated several material and design alternatives towards a solution to replace the
wood boardwalk design while maintaining consistency with the Railroad District Plan. The
following discussion highlights the various materials and
potential design solutions that were explored.
Boardwalk Design Options
1. Alternative Materials
A. Poured Concrete. A concrete sidewalk such as others
throughout the City would provide the most cost-effective
and low maintenance solution. Concrete requires less overall
maintenance than wood and large sections of concrete are
not required to be removed in order to replace small failures.
2 Conservation and Open Space Element Policies 3.2 and 3.3
CHC 3-3
Railroad District Sidewalk
City of San Luis Obispo, Public Works. PDEV-1445-2015 (AP)
Page 4
Figure 7 – Painted Wood
Figure 6 – Composite Decking Material
The concrete would be dyed and/or stamped to create a design to complement the historic nature
of the Railroad District.
Replacing the boardwalks with stamped concrete walkways (Figure 5) that mimics the color and
texture of wood will provide a long lasting surface without built-in gaps, screws, warping or
board failure issues. Color retention may potentially be an issue in the long term, with a dark
brown fading to a paler color. When the concrete is patched, as occurs in the downtown Mission
Sidewalk district, the new color will not match for a period of time until the newer portion fades.
B. Composite Materials.
Composite materials such as “Trex” or “DuraLife”
(Figure 6) can provide a durable surface. Composite deck
material would maintain the overall appearance of the existing
walkway, although for most of the composite materials it would
likely be apparent the material was not genuine wood.
Mold growth and warpage from heat are known issues for
composites. Also, materials are often difficult to obtain because
of long lead times and products may be discontinued.
C. Wood.
The current standard is aesthetically pleasing and creates a feel
of the bygone “Old West” era. A much more expensive
hardwood such as Ipe could be used; however it is anticipated that similar problems to the
existing wood could occur. Finding wood from responsibly managed and sustainable sources
may prove difficult, and maintenance issues similar to those experienced with wood materials
would still exist.
D. Painting or staining the existing boards
(Figure 7), or using a higher quality wood may reduce the weathering and increase longevity of
the boardwalk, but a high level of maintenance would still be required to keep the boardwalk
from failing. Board gaps and loose screws can be expected to continue to occur.
2. Alternative Designs
A complete change from the current adopted wood board
walk was explored as another potential alternative.
Public Works reached out to local designers and Cal Poly
to provide concept drawings of alternative sidewalk
options. Designers were asked to take into account
constructability and maintainability as well as
incorporate the historic, cultural and aesthetic values of
the Railroad District. Additionally, the designers were to
provide enough detailing to show compliance with
accessibility requirements, a six-foot walkway with room
for street trees, and a four-foot clear path of travel.
Image from www.Trex.com
CHC 3-4
Railroad District Sidewalk
City of San Luis Obispo, Public Works. PDEV-1445-2015 (AP)
Page 5
Concept materials included using pavers, stamped and/or stained concrete, exposed aggregate
and Corten steel. Interestingly, nearly all of the submissions included the common theme of train
tracks running the length of the walk; a very different approach than emulating the boardwalk-
style walkway currently in use. Each concept submitted provides an intriguing connection to the
historic nature of the Railroad District. Images of the concepts are provided in the memo from
Public Works, Attachment 2.
Replacing wood with stamped concrete that has a wood appearance and texture is solution
favored by public works staff in order to reduce maintenance and to maintain the appearance
developed with the Railroad District Plan. However, there are other options that could maintain
the appearance and intent of the “wood boardwalk” design. Staff will bring images of design
alternatives to the CHC hearing. The CHC should provide direction to staff on the appropriate
material.
Railroad District Plan Amendments and CHC Purview
Engineering standards are maintained to ensure public infrastructure is developed in a way that
meets state, federal and local standards. These standards may change over time in response to
changes in legislation, safety or access concerns, availability of materials, and to respond to
aesthetic and design concerns. Due to their evolving nature, engineering standards are typically
not a component of architectural guidelines such as the RRDP. The CHC is being asked to
provide input on materials that would appropriately convey the feeling of the Railroad District
so that the engineering standards may be updated to reflect material options that meet the
aesthetic concerns of the District along with federal and state standards for accessibility and
safety.
The CHC is also being asked to provide input on amendments to the RRDP to remove specific
references to “wood” so that other materials may be considered if they meet the multiple
objectives of aesthetics, safety, and accessibility (as well as changing requirements over time).
Staff recommends that Figure 23, provided on page 69 of the RRDP be eliminated (Attachment
3) and that the word “wood” be removed from the Site and Public Area improvements section of
the guidelines on page 80 as shown below:
6. Public sidewalks along portions of Osos, Santa Barbara, Church, Emily, High, and
Roundhouse streets within the Railroad District should be a City approved wood boardwalk
design.
These amendments would allow the Public Works engineering division to move forward with
revised material standards while still maintaining the spirit of the RRDP.
ENVIRONMENTAL REVIEW
The project is exempt from environmental review under Section 15301 (Existing Facilities)
because the project would simply replace the surface of an existing public sidewalk.
CHC 3-5
Railroad District Sidewalk
City of San Luis Obispo, Public Works. PDEV-1445-2015 (AP)
Page 6
ALTERNATIVES
1. Continue the item with direction to the staff to return with alternative boardwalk designs.
2. Recommend that the wood boardwalk design be maintained and that changes be denied
based on inconsistency with the intent of the Railroad District Plan.
ATTACHMENTS
1. Resolution
2. Memo from City Public Works
3. Railroad District Plan, figure 23, page 69
CHC 3-6
RESOLUTION NO. XXXX-15
A RESOLUTION OF THE SAN LUIS OBISPO CULTURAL HERITAGE COMMITTEE,
RECOMMENDING AMENDMENTS TO THE RAILROAD DISTRICT PLAN AND
OPTIONS FOR THE PUBLIC WORKS DIRECTOR TO APPROVE MODIFICATIONS
TO THE ENGINEERING STANDARD FOR WOOD BOARDWALKS, PDEV-1445-2015
WHEREAS, the Cultural Heritage Committee of the City of San Luis Obispo conducted
a public hearing in the Council Hearing Room of City Hall, 990 Palm Street, San Luis Obispo,
California, on August 24, 2015, pursuant to a proceeding instituted under PDEV-1445-2015,
City Public Works Division, applicant; and
WHEREAS, notices of said public hearing were made at the time and in the manner
required by law; and
WHEREAS, the Cultural Heritage Committee has duly considered all evidence, including
the testimony of the applicant, interested parties, and the evaluation and recommendations by
staff, presented at said hearing.
BE IT RESOLVED, by the Cultural Heritage Committee of the City of San Luis Obispo
as follows:
Section 1. Findings.
1. The proposed amendments to the Railroad District Plan to allow a substitute material
other than wood for the boardwalks will not be detrimental to the health, safety, and
welfare of persons living or working at the site or in the vicinity because, the project
conforms to all zoning regulation requirements, building codes, and other applicable City
development standards and will improve accessibility and public safety.
2. The project is consistent with the City’s Historic Preservation Guidelines since the wood
boardwalk character in the historic district would be retained, and the proposed new
material would simulate a wood boardwalk.
3. The project is consistent with the intent of the Railroad District Plan Architectural
Guidelines because the new standard will preserve the character of the “wood” boardwalk
design as stipulated in the required site and public area improvements of the guidelines.
4. The amendments to the boardwalk design will reduce maintenance costs of the public
infrastructure while improving accessibility and safety.
Section 2. Environmental Review. The project is exempt under Class 1, Existing
Facilities, Section 15301 of the CEQA Guidelines. The project consists of the future replacement
of existing sidewalk material.
Section 3. Action. The Committee hereby recommends approval of the proposed
amendment to the Railroad District Plan to remove specific references to “wood” thereby
allowing a substitute boardwalk material with the appearance of wood subject to the following
conditions (PDEV-1445-2015).
CHC 3-7
Attachment 1
Resolution No.XXXX-15
Railroad Historic District (PDEV-1445-2015)
Page 2
1. The engineering standard amendment shall be implemented with final sidewalk design
that shall be approved in conjunction with the Community Development Director and
shall maintain the character, spirit and feel of the intended boardwalk design.
2. The Railroad District Plan shall be amended to remove the engineering standard for wood
boardwalks, Figure 23 on page 69.
3. The Railroad District Plan Architectural Guidelines shall be amended on page 80, item 6
to remove the word “wood” as follows:
Public sidewalks along portions of Osos, Santa Barbara, Church, Emily, High, and
Roundhouse streets within the Railroad District should be a City approved wood boardwalk
design.
On motion by Committee member, , seconded by Committee member, , and on the
following roll call vote:
AYES:
NOES:
REFRAIN:
ABSENT:
The foregoing resolution was passed and adopted this 24th day of August 2015.
_____________________________
Phil Dunsmore, Secretary
Cultural Heritage Committee
CHC 3-8
Attachment 1
City of San Luis Obispo, Public Works, 919 Palm Street, San Luis Obispo, CA, 93401‐3218, 805.781.7200, slocity.org
May 29, 2015
TO: Phil Dunsmore, Planner
FROM: Jennifer Lawrence
SUBJECT: Supplement to the Planning Application to establish additional Railroad District
sidewalk options.
Discussion:
The current standard walkway required in the historic area, in accordance with the Railroad District
Plan adopted in 1998, is a deck‐style boardwalk (Attachment 1). The Railroad District (Attachment
2) is readily identifiable by these boardwalks which are used as a way to honor the historic and
cultural roots that San Luis Obispo has with the railway. This supplemental memo outlines
challenges with the current standard and provides recommendations to improve the current
standard with the goal of improving accessibility, safety, and maintainability.
As shown below, the standard boardwalk does not stand up well over time. While the boardwalk is
aesthetically pleasing when newly installed (Figure 1), boardwalk maintenance has proven to be a
challenge since it is labor intensive and expensive. Boardwalk maintenance challenges include loose
screws (Figure 2) warped and splintered boards (Figure 3), rotting boards (Figure 4), and wide gaps
between the boards caused by shrinkage, all of which result in a rough walkway and trip hazards. In
addition, the current standard does not comply with the Americans with Disabilities Act (ADA)
requirements because of the gap and trip hazard issues. This poses a challenge for the City, since it
is committed, as well as required, to provide accessible sidewalks and walkways.
Figure 1 ‐ Boardwalk installation at the Railroad
Transportation Center
Figure 2 – Loose Screws
Memorandum
CHC 3-9
Attachment 2
Railroad District Sidewalk Problems
Figure 5 – Stamped Concrete Installation
Figure 3 – Warped Board Figure 4 ‐ Rotted Wood
Goal:
Improve or replace the current standard for the Historic
Railroad District to improve accessibility, safety, and
maintainability.
Alternatives
1. Alternative Materials
1.A. Poured concrete walks such as those throughout
the City would provide the most cost‐effective and low
maintenance solution. Concrete requires less overall
maintenance than wood and large sections of concrete
are not required to be removed in order to replace small
failures. However, it would need to be dyed and /or
stamped to create a design to complement the historic
nature of the Railroad District.
Replacing the boardwalks with stamped concrete
walkways (Figure 5) that mimics the color and texture of
wood will provide a long lasting surface without built‐in
gaps, screws, warping or board failure issues. Color
retention will be an issue in the long term, with a dark
brown fading to a paler color. When the concrete is
patched, as occurs in the downtown Mission Sidewalk
district, the new color will not match for a period of time
until it fades. Morro Bay is installing some colored
concrete as part of a walkway project, but does not as
yet have much experience with it (Figure 5).
1.B. Composite materials are being substituted for many
applications where wood has historically been used.
Materials such as “Trex” or “DuraLife” (Figure 6) can
provide a durable surface. Composite deck material Figure 6 –Composite Decking Material
Image from www.Trex.com
CHC 3-10
Attachment 2
Railroad District Sidewalk Problems
Figure 7 – Painted Wood
would maintain the overall appearance of the existing walkway, although it would be apparent the
material was not genuine wood.
Morro Bay has experimented with this material and has areas where it has worked well, and areas
where the material has warped. Mold growth and heat are known issues for composites. Also,
materials are often difficult to obtain because of long lead times and products discontinued.
Using boards made of a composite material such as “Trex” or plastic such as “Azek” offer a solution
requiring less maintenance than wood. An alternate to real wood, patterns and colors available can
serve to simulate the look of the boardwalks currently installed in the district. However, it is
primarily plastic and some users may object to the artificial look of the boards compared to the
restored and historic facilities in the area. Depending on the quality of the product, it may be cost‐
prohibitive and although less maintenance is required on this material, it is still subject to molding,
can be slippery when wet, can get overly hot in warm climates and is not as strong as real wood.
Additionally, although most brands are considered “green” and use a very high percentage of
recycled materials, boards will need to be replaced
rather than restored when damaged and its
sustainability is questionable as the discarded
material is not bio‐degradable or recyclable.
1.C. Wood, the current standard, is aesthetically
pleasing and creates a feel of the bygone “Old West”
era. A much more expensive hardwood such as Ipe
could be used; however it is anticipated similar
problems would occur. Finding wood from
responsibly managed and sustainable sources may
prove difficult and maintenance will still be needed
more frequently than resources allow.
1.D. Painting or staining the existing boards (Figure 7), or using a higher quality wood may reduce
the weathering and increase longevity of the boardwalk, but a high level of maintenance would still
be required to keep the boardwalk from failing. Board gaps and loose screws can expect to
continue to occur.
2. Alternative Designs
A complete change from the current adopted board style walk was explored to provide other
alternatives for consideration. Public Works reached out to local designers and Cal Poly to provide
concept drawings of alternative sidewalk options. Designers were asked to take into account
constructability and maintainability as well as incorporate the historic, cultural and aesthetic values
of the Railroad District. Additionally, the designers were to provide enough detailing to show
compliance with accessibility requirements, a six‐foot walkway with room for street trees, and a
four‐foot clear path of travel.
A decision to make a more dramatic change to the adopted standard for the District will take
additional steps and public involvement, but is worth considering if the change is going to be for an
improved appearance and accessibility for the area.
CHC 3-11
Attachment 2
Railroad District Sidewalk Problems
Figure 8 – Track Theme with Concrete and Brick Pavers
Design Concepts:
Public Works received submissions from three design firms. Concept materials included using
pavers, stamped and/or stained concrete, exposed aggregate and Corten steel. Interestingly, nearly
all of the submissions included the common theme of train tracks running the length of the walk; a
very different approach than emulating the boardwalk‐style walkway currently in use. Each concept
submitted provides an intriguing connection to the historic nature of the Railroad District. The
various suggested materials complement the architectural style of the neighborhood as well as
imply a longevity befitting of the district. Figures 8 through 13 illustrate the concepts submitted.
The designs propose use of a concrete or brick pavers, both of which are relatively easy to install,
are strong and durable and weather resistant. They are available in a large variety of colors, shapes,
size and patterns which allows for a great deal of flexibility in walkway design reflective of the
Railroad District. However, if not properly installed or maintained, pavers are subject to shifting
making for a rough wheelchair ride or tripping hazard. Weeds can grow in joints unless properly
sealed creating an unsightly walkway. One of the strong points of pavers is that most pavers can be
salvaged where an area of walkway needs to be removed, and reused after the work is complete.
This reduces waste and increases color compatibility at the repair.
CHC 3-12
Attachment 2
Railroad District Sidewalk Problems
Figure 9 ‐ Brick Track Theme
New walkway with brick
pavers in a 90 degree
Herringbone pattern and a
dark running bond pattern
“railroad track”. Tree wells
are galvanized pan lids that
accept the brick pavers.
Typical concrete paving with saw‐
cut and stained “railroad track”.
Figure 10 ‐Concrete Track Theme
Figure 7 ‐ Brick Track Theme
CHC 3-13
Attachment 2
Railroad District Sidewalk Problems
Concrete surface stained and stamped to emulate the appeal of the existing deck‐style walkway.
Figure 11 ‐ Stamped Concrete Boardwalk Theme
Smooth concrete with exposed aggregate areas provides the illusion of the sidewalk being
ripped away to expose a faux railroad track (Corten steel) beneath the surface.
Figure 12 ‐ Track Theme in Stamped Concrete
CHC 3-14
Attachment 2
Railroad District Sidewalk Problems
A more elegant approach to a similar theme using acid‐etched concrete and black paver insets.
Figure 13 – Concrete and Pavers Track Theme
Recommendation:
The alternative materials as well as the ideas of the concept submittals each have their own set of
advantages and disadvantages (Attachment 3). Considering the costs, maintenance issues, the
flexibility in design options and ADA compliance, replacing wood with stamped concrete is the
recommended solution to maintain the appearance developed with the Railroad District Plan.
If an alternative appearance is preferred, any of the concrete and paver options provided can be
pursued as alternatives. Staff will proceed with review of a change to the District plan, and return
to the Commission with recommendations.
CHC 3-15
Attachment 2
To Be Deleted
CHC 3-16
Attachment 3