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HomeMy WebLinkAbout04/28/1992, 2 - COUNCIL REVIEW OF THE FINAL ADMINISTRATIVE DRAFT OF THE CIRCULATION ELEMENT FOR PURPOSES OF INITIATING ENVIRONMENTAL REVIEW. I�������I���NIIIIIIIII II'I-ullllulll MEETING DATE: = cityo1" san . .a oBispo COUNCIL AGENDA REPORT ITEM NUMBER: FROM: Arnold Jonas, Community Development Director 9 PREPARED BY: Terry Sanville, Principal Planner!`-) SUBJECT: Council Review of the Final Administrative Draft of the Circulation Element for purposes of initiating environmental review. CAO RECOMMENDATIONS: Review the final administrative draft, make amendments as appropriate, and accept the draft Circulation Element for the purpose of initiating environmental review. BACKGROUND On March 9, 1992 the City Council concluded its discussion of 16 issues related to the Planning Commission's draft of the Circulation Element. Staff has amended the draft element to incorporate City Council consensus (see attached). Additions to the draft element are ;. . :.,:.<.,. ».»:,, >::", > ;;::,,;.>:::»:::;::;: �g [t (T.been tined vtrt. €L#l..a..bagx�txtd.;;tte while features that were deleted have 1 On Table #4 which lists the potential street projects (after page 18), staff has also indicated where the Council has requested additional study as part of the EIR process. Also included at the end of the document for the first time, is a summary listing of projects and programs for easy reference. A total of 42 actions are identified; 27 are new programs, 5 are expansions of existing programs, and 10 are existing programs. For Council information, staff has attached an outline of the additional transportation and environmental work that will be needed to address Council concerns raised during the February 24 and March 9 study sessions. The work is divided between city staff and consultants and may require adjustments to the consultant's contracts. REQUESTED ACTION The staff has distributed the draft Circulation Element in advance of the April 28th Council Study Session to allow sufficient time for Council review. The April 28th study session is an opportunity for the Council to include additional policies or programs or to delete unacceptable policies or programs. The staff is requesting the Council accept the content of the draft Circulation Element for purposes if initiating environmental review. Public Hearings will be scheduled after the EIR is complete to allow the public, the Planning Commission and the City Council further opportunities to refine the proposed policies and program statements. Attachment Final Administrative Draft of the Circulation Element (March 1992)-previously Scope of Work: Supplementary Circulation Analysis distributed Meeting Notes: March 9, 1992 (Daniel Iacofano) a -� SCOPE OF WORK SUPPLEMENTARY CIRCULATION ANALYSIS LAND USE AND CIRCULATION ELEMENT EIR CITY OF SAN LUIS OBISPO Background On February 24, 1992 and again on March 9, 1992 the City Council discussed 16 issues that were related to the draft Circulation Element. The Council's resolution of some of these issues will require that additional work to be done by staff and transportation consultants and by the consultant charged with preparing a draft and final. Environmental Impact Report. The following describes the work to be done and who is to do it. 1. SANTA ROSA STREET/ROUTE 1 TRAFFIC STUDIES A. Introduction The City Council was not willing to select either the Highway 1 reliever route or the Santa Rosa Street widening project as a method of addressing traffic growth and resultant congestion on the Highway 1 corridor. Council members requested that a systematic. evaluation of alternatives be done to determine their advantages and disadvantages. Five alternatives to be evaluated and factors to evaluate are shown in the table on the following page. In addition to these alternatives, the combination of alternative #2 (Alternative Modes) and alternative #3 (Operational Changes) should be evaluated. B. Definition of Alternatives DKS associates will be responsible for describing Alternatives two through five. Each alternative should be developed to sufficient detail to allow a "program level" evaluation of their benefits and deficits (impacts) and their inclusion in the Circulation Element if deemed appropriate by the City Council. City staff (engineering and planning) will be available to provide input into the description of alternatives. C. Analysis of Alternatives DKS Associates, in cooperation with the City, will be responsible for documenting the overall traffic impacts of Alternative #2 through Alternative #5 and a combination of Alternatives #2 and #3. The City will be responsible for conducting computer traffic model analysis where appropriate to document the circulation effects of Alternative #1 through #5. This work will include a comparative analysis of LOS changes on key segments of the street network for Alternatives #4 and #5. DKS will be responsible for estimating the total cost of each alternative package as well as the fiscal impact to the City of implementing Alternatives #2 through #5, based on the following assumptions: a -� Hiehway 1 Transportation and Environmental Analysis ALTERNATIVE PROJECTS 1.No Project: no changes are made to Santa.Rosa Street and the Highway l.reliever route is not constructed. 2.Alternative Modes.:Specific,programs.are established to reduce traffic on Highway 1 including trip reduction: programs for: (a) Cuesta College (staff/faculty/and students) (b) Cal Poly (north coast traffic segment) (c) California Men's colony(staff and visitors). (d) Hearst Castle (staff and visitors) (e) Commute traffic from the north coast (eg.APCD TRprogram). 3.Operational Changes:make changes within the existing ROW that have limited land use impacts:but improve traffic flow including: (a) Install right turn pocket on Foothill eastbound at Santa Rosa. (b) Install two lane free flow underpass for Foothill.Boulevard,thereby increasing green time for Santa Rosa Street. (c) Add second left turn pocket for southbound Highway 1 traffic turning`weft onto Foothill. (d) Prevent left hand turns off of Santa Rosa Street and except at intersections; eliminate driveway access where cross street access is available; install a continuous median. (e) Eliminate access onto Santa Rosa from Murray and increase green time for Santa Rosa Street traffic: (f) Install right-hand turn pocket at Olive Street for north-bound traffic sign it as primary access to Highway 101 rather than a left turn on Olive Street . (g) Sign that encourages southbound traffic on Santa Rosa to turn right on Olive Street rather than left to . access Highway 101. (h) Extend the right-hand turn pocket on Santa Rosa at Olive Street. 4.Widen Santa Rosa Street: widen the street to 6 lanes between Highland and 101 and with limited interchange improvements. 5. Highway 1 Reliever, two alignments: Cuesta College to Marsh Street; Cuesta College to Los Osos Valley Road. EVALUATION FACTORS, 1. Environmental Impacts, 2. Cost (total and Cost to City) 3. Downtown Business Impacts 4. Neighborhood Quality 5. Ease of Implementation 6. Overall Circulation Impacts' Alternative #2 (Alternative Modes): 100% of the administrative cost would be paid by the Air Pollution Control District and affected agencies. Alternative #3 (Operational Changes): The City would pay 100% of the cost of these changes. Alternative #4 (Santa Rosa Street Widening): The City would pay 25% of the capital cost of this project plus the cost of relocating any City facilities (eg. the Police Station). Alternative #5 (The Highway 1 Bypass Route): The City would pay 5% of the capital cost of this project, with the State paying for the rest as a route of regional significance). Fugro-McClelland would be responsible for determining the environmental impacts, neighborhood quality effects, and ease of implementation of Alternatives #1 through 5 and incorporating a synopsis of all analysis produced by staff, DKS and Fugro-McClelland in the draft EIR. D. Materials Available The following information is available to DKS Associates and Fugro-McClelland that can assist with the definition of alternative programs: Alternative #2 (Alternative Modes): Employer Trip Reduction Programs, Appendix D 1992 Clean Air Plan School Trip Reduction Programs, Appendix D, 1992 Clean Air Plan Distribution of Cal Poly student population by zip code Distribution of Cuesta College student population by zip code Alternative #3 (Operational Changes): Counter book pages (Scale 1" = 100') showing land use along Santa Rosa Street Traffic counts for segments of Santa Rosa Street, pertinent cross streets, and interchange ramps. Alternative #5 (Santa Rosa Street Widening): Route 1 Corridor Study (Available from Area Coordinating Council Office, contact Mike Harmon at 549-5729) Route 1 Concept Report (Caltrans, 1986) Counter Book Pages showing adjoining land use Alternative #6 (Highway 1 Reliever Route) SLO Regional Transportation Study, Phase III Technical Report, JHK/EDAW Inc., November, 1974 (contact Mike Harmon, Area Coordinating Council, at 549-5729) Aerial Photographs (1984, 1"=200' for area between Highway 101 and Foothill Blvd.) cw 2. PRADO ROAD STUDIES A. Introduction The City Council was concerned about the widening of Broad Street to six lanes between Tank Farm Road and the proposed intersection of Prado Road at Industrial Way. The widening would be needed to handle the volumes of traffic and turning movements caused by airport area development. As an alternative to a new intersection at Prado and Industrial Way, some council members felt that Prado Road might be linked to Tank Farm Road west of Broad Street which might alleviate the need to widen Broad Street. The staff indicated that an alternative alignment would be studied and be part of the EIR evaluation. B. Definition of Alternatives City staff (planning and engineering) will take the lead in identifying an alternative alignment for Prado Road. DKS Associates will review City staff work and provide feedback as appropriate. Three circulation options will be evaluated (see attached map): 1. Prado/Industrial Way Connection: the project described in the draft Circulation Element. 2. New Prado Road Alignment: extend Prado Road eastward, then south through the Union Oil property west of Acacia Creek to link with Tank Farm Road. 3. Tank Farm/Prado Connector: extend Prado Road eastward as described in Alternative #1; establish a arterial street west of Acacia Creek that would connect Tank Farm Road and Prado Road. C. Analysis of Alternatives City staff will be responsible for completing computer model evaluation of the alternatives and for evaluating the overall circulation effects of the alternative configurations. DKS associates will be available to review results of the computer modeling and staff analysis and provide feedback. The analysis must address whether alternative alignments for Prado Road will alleviate the need for widening Broad Street to six lanes from Tank Farm Road to Industrial Way. Fugro-McClelland will be responsible for including a synopsis of the circulation analysis in the draft EIR and for evaluating the environmental effects of the alternatives described above. a -s 3. SOUTH STREET EXTENSION CIRCULATION ANALYSIS A. Definition of Alternatives The City Council has included a project to extend South Street eastward to connect with Bishop Street and Johnson Avenue. A railroad crossing (an overpass or an underpass) is needed to make the connection. To better document the circulation effects of this project, the City staff will evaluate including and excluding this project as part of the City's street network. B. Analysis of Alternatives The staff will evaluate the effects of the South Street extension project on area wide circulation by using the computer model to determine the effects of including or excluding the project. The extension of South Street will be modeled as both a two lane and a four lane residential arterial street. Fugro McClelland will include a synopsis of the circulation analysis in the draft EIR. 4. BROAD AND OSOS STREET FREEWAY RAMP CLOSURES A. Introduction The Planning Commission had recommended that Osos and Broad Street freeway ramps be closed if improvements were made to the Santa Rosa Street interchange. The City Council did support the ramp closures. However, the Council suggested that further analysis is needed. B. Analysis of Alternatives The City staff will evaluate the following alternatives using the computer model: 1. Maintaining the existing freeway ramps at Osos and Broad (both sides of freeway). 2. Closing all freeway ramps at Osos and Broad Streets. 3. Closing only the Broad Street ramps (both side of the freeway) City staff will be responsible for describing the overall circulation impacts of these alternatives. DKS will review staff work and provide feedback and support. Fugro- McClelland will provide a synopsis of this evaluation in the draft EIR and evaluate the relative neighborhood impacts of the alternatives. C SENT BYM I. 0. ;: 5-82 ; 8:45AM '805 781 7173;# 2 MEETING AGENDA Memorandum RECEIVED DATE..3�REM#= MAR 5 1992 March 41 1992 C CLERK COFMSTO: srw Luis oslsPo,ca ❑.DQwLas nim ❑ Ffl TO: Arnold Jonas,Planning Director �ao o I N.DCDD M City of San Luis Obispo CAO ❑ FMCH F ��1nuln El( iPW DIR hQ C3.! woric.. ❑ POLICEQi ❑ MCMT.TEAM ❑ ?.EC DUL FROM: Daniel Iacofano,NEC e'c52, FILE SUBJECT: Summary of February 24,1992,City Council General Plan Workshop The following is a brief summary of.the main points of discussion and agreement identified during the City Council General Plan workshop of February 24, 1992. The workshop discussion centered on two areas: (i)overall circulation element policy; and(ii)specific policy and program issues(previously identified by City Council and outlined in the workshop briefing materials). Overall Circulation Element Policy The City Council workshop discussion began with each City Councilmember providing ideas and directions to staff regarding overall policy for the Circulation Element. All Councilmembers supported the policy of shifting the emphasis away from automobile-oriented (single occupant vehicle)to alternative transportation programs and projects. Other policy directions for which there was not unanimous support included the following) • Adopt a more aggressive approach to the implementation of alternative transpor- tation programs (alternative transportation signifies programs other than single occupant vehicles). Place more emphasis on the use of positive incentives to encourage people to utilize alternative transportation. • Do not use the circulation element as a tool for growth management; other elements and policies should be developed to address the idea of growth manage- ment directly. SENT BY:K L 0. 5-92 8:46AN 510845 i 805 781 71734 3 Spend the largest amount of money on transit-oriented as opposed to highway- oriented programs. Specific Policy and Program Issues City Council continued their discussion on each of the sixteen areas of concern listed in the City Council briefing materials. The following is a summation of the policy direction which emerged in each of these topic areas. ft Promoting Alternative Transportation Provide incentives and infrastructure for alternative transportation(non single oc- cupant automobile) and be selective about implementing projects that accommodate vehicles(single occupant vehicles);retain an emphasis on alternative transportation. ft, Transit-Oriented Development Design the transit network to serve existing development; orient new development along transit routes according to the standard which is identified in the workshop briefin materials (item 2B); design new development to accommodate transit(e.g., through site planning and layout,bus pull-outs,pedestrian and bicycle ways,etc.). 0: Level of Program Description City Council members favored either policy options 3B or 3C. #Q Policies and Programs City Council members agreed to return to this discussion issue at the next workshop. City Council members also want to discuss table#4 of the circulation ele- ment at a future workshop. OT BY:M; I', G, 9-82 8:47AM i 51084E "y 805 781 7173;# 4 #Ss Narrowing Streets City Coundl members agreed to re-label this issue area as"re-designing streets; to draw attention to the possibility of more options for innovative street design and im- provement. The overall policy direction is to: mace more livable streetsl Seek opportunities to improye the ii.yibiIity of existing arterial streets through redesign of co.r•r•'idors, #tu widening Streets City Council members agreed to re-label this issue area as"preserving right-of-way;' to maintain flexibility for potential circulation improvements(which might include not just street widening,but also alternative transportation systems)..The policy direction is to: (i) use the plan line process to preserve right-of-ways in areas of ex- isting development;and(ii)use,the plan line process as well as other legal mechanisms to preserve right-f-ways in new development areas. I i V.- Aesthetic Impacts of wide Streets City Council members agreed with policy option 7A. #S: Santa Rosa Street Alternatives City Council members agreed that a systematic alternatives analysis should be con- ducted to determine the advantages and disadvantages of ppootential traffic conges- tion reduction alternatives. Alternatives for eonsideratioriinclude: (i)no project(as re under CEQA);(ii)widening of Santa Rosa Street(with design options being from,four to six lanes);(iii)constructing a reliever route(with design options -showing different connections to the existing City street grid);(iv ) providing alterna- tive lternative transportation(with detailed proggrrams for Cuesta College,Hearst Castle, the beaches,commuters,and.CMQe and(v)utilizing transportation system manage- went tediniques such as signalization,etc. Impact evaluation categories include: en- vironment;cost;downtown business;neighborhoods;feasibilittyy for implementation;and potential overall circulation system benefits. Memorandum March 26,1992 TO: Arnold Jonas,Planning Director - City of San Luis Obispo FROM: Daniel Iacofano,MIG SUBJECT: Summary of March 9, 1992,City Council General Plan Workshop The following is a brief summary of the main points of discussion and agreement identified during the City Council General Plan workshop of March 9, 1992. The workshop continued the discussion from the meeting on February 24 on specific cir- culation policy and program issues. Specific Policy and Program Issues The following is a summation of the policy direction which emerged for topic areas 09 through#16. Topic Area#4 and Circulation Element Table#4,held over from the workshop of February 24,was also discussed and is summarized here. #9: Prado Road City Coundl members favored policy option 9A, and stated the following additional considerations: Ensure that the sequence of improvements are made in accordance with transporta- tion demand; study the environmental impacts thoroughly by use of the Caltrans Project Study Report(PSR); ensure that the City's overall circulation system is in place (e.g.,access roads,shuttles,etc.);watch out for shifting traffic bottlenecks from one location to another! #10: 101-Not City Streets Overall policy direction stated by City Council members included the following: a-io • Pursue the ultimate vision of actually reducing traffic congestion, rather than accepting what appears to be the inevitable "worsening"of conditions. • Study [model] the patterns and distribution of traffic with all the designated transportation improvement projects in place, including highway and transit projects. • Make the first consideration of circulation system planning the question of how to get people from point A to point S,opening up the possibilities for more creative, non-highway oriented trasnportation improvement projects(in other words,place the emphasis on the concept of"access" as opposed to"roadways'). City Council members presented their opinions on each of the potential projects listed in the following table. The shading indicates a majority of 4 or more or con- sensus (all agree). Yes No Comments Prado Utilize the Caltrans PSR(see topic area#3) Santa Rosa The projected traffic levels must be addressed; a viable alternative to the Santa Rosa reliever route must be found (e.g.,transit or TSM). Con- sider implementation of better signage to re- direct traffic. Los Osos Provide more detail on how this will be ac- complished. 101 Widening 2 2 The "yes-es"were contingent on the availability of additional right-of-way. Several requests were made for additional information on im- pacts and alternatives. SR Reliever Route 1 2 The projected traffic levels must be addressed;a viable alternative to the Santa Rosa reliever route must be found (e.g.,transit or TSM). The single "yes" was in consideration of no widening of Santa Rosa. Several requests were made for additional information on impacts and alterna- tives. Frontage More detail on how this project would be imple- mented is needed. Consider this project in light of future planning for the entire area. South Higuera 1 More detail on how this project would be imple- mented is needed Consider implementation of better signage to re-direct traffic. [Ramp Closings Z 13 Other Councilmember comments and considerations included: • The downtown inner loop system does not seem feasible or desirable. Given the configuration of the City's existing street system, it would just shift traffic from one neighborhood area to another. • Work with Caltrans to determine if the weaving lanes on I-lighway 101 can be used more effectively. OIL 102 Merging Improving or closing the Osos and Broad Street interchanges with Highway 101 may or may not produce a net benefit to the surrounding neighborhoods. A thorough study of the impacts is needed,including an origin-destination study, modeling and testing of improvement options,etc Marsh (c1) and Los Osos Valley W) are potential problem areas. #12: Traffic In/Out Identify key access routes as in the draft Circulation Element(e.g.,see Pismo Street); recognize the link between traffic and the quality of residential areas (i.e.,the "Liv- able Streets" concept). #13: Refinements City Council members agreed that further discussion and consideration of the Calle Joaquin and Margarita extension projects should be taken up at the specific plan level, addressing the need for the frontage road in the specific plan or project study report as well. #14: Alternative bels City Council members agreed with policy option 14A- They also thought that the issue of alternative fuels utilization should also be addressed on the regional level, and that perhaps the City could take a leadership position on this issue with other public agencies and jurisdictions. JCIYI Di •IPI. 1. V. I V LV QL 1I6-L.IrI.I I 1JIVV411V 1.1 V_ VVd IVI ' IMA J #15: Suggestions By Rowntree City Council members recognized that the"shortcut"problem exists throughout the City,not just in Mr. Rowntree's neighborhood;it is a generic problem. Using the 1989 DKS traffic study as a foundation,identify a package of"fixes" that would im- prove the overall quality of residential neighborhoods by improved traffic manage- ment methods and techniques. A combination of physical and behavioral changes will be necessary. Neighborhood Traffic Management Areas (NTMA's) could be identified throughout the City where such fixes might be applied. Some further con- siderations suggested by Councilmembers included the following: • Make more use of"choke points'' or "bulb-outs". • Improve stop sign and signalization to control traffic. Implementimproved signage programs,and maybe even use special signs to mark the occurrance of residential traffic management areas to alert drivers and solicit their voluntary cooperation to slow down and/or use an alternative route. Designate more alternative routes (using signs) to re-direct traffic away from neighborhoods. • Reduce speeds. • Avoid the use of one-way streets in residential areas; experience has shown that these may accelerate traffic. • Develop an educational program informing citizens about the benefits of reducing neighborhood traffic solicit everyone's support and cooperation. #16: Protecting Scenic Approaches City Council members agreed with policy option 16A. City Council members also offered the following additional considerations: Modify the language of the Circulation Element to reflect the desire of the City to adopt a more cooperative stance with the County and other public agencies in order to protect the scenic value of entryways to the City. • Recognize that visual quality concerns apply to everywhere in the City,especially in neighborhoods, and the City should look for opportunities to improve upon visual quality where possible. Consider greater use of lighting to improve bicycle safety. A: Programs/Policies Eliminated City Council members agreed that the following items should be re-instated in the Circulation Element draft: 2.12: State that the program should continue. 2.5: Keep this in the transit section. 3.5: Cross-reference this item to the bicycle plan. 3.7: Cross-reference this item to the bicycle plan. 7.5: Retain the first sentence only. Circulation Element Table#4 City Council members discussed and agreed to the following changes to the table: AA Extend Sacramento Drive into the vacant land area and direct access onto Sacramento,prevent access from Orcutt Road. A.9: Evaluate the impacts more carefully,especially the Santa Barbara Road connec- tion and the connection south to Bishop Road. B.2: Preserve the right-of-way to maintain flexibility for potential circulation im- provements in the future,which might include not just street widening,but also al- ternative transportation systems (Council decision:3 in favor/1 opposed). B.5: Study more options since Prado project is not yet defined. Connect Prado to Broad,provide improved turn lane. D.1: Council decision:3 in favor/1.opposed. D.2 Council decision:3 in favor/I opposed(yea-es apply if the project is adopted as part of the Downtown Plan). D.3: Council decision:3 in favor/1 opposed (yes-es apply if the project is adopted as part of the Downtown Plan).