HomeMy WebLinkAbout09/21/1999, 3 - HIGUERA STREET AND OSOS STREET WIDENED SIDEWALKS council epi. 21,1999
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CITY OF SAN LUIS O B I S P O
FROM: Michael D. McCluskey,Director of Public Works IWvI
Prepared by: Barbara Lynch,Project Manger ti,
SUBJECT: HIGUERA STREET AND OSOS STREET WIDENED SIDEWALKS
CAO RECOMMENDATION
Direct staff to modify the plans and specifications for the Higuera Street Bridge Rehabilitation
Project, as show in Exhibit A, to include:
1. Removal of seven parking spaces at the intersection of Higuera and Osos Streets and
installation of widened sidewalk.
2. Modification of the striping in City parking Lot 6 between Court and Osos Streets and
construction of a partial widening on Osos Street at Higuera Street.
3. Removal of one loading zone along the northerly side of Higuera Street between Osos and
Court Streets and two parking spaces along the northerly side of Higuera Street west of Court
Street and installation of widened sidewalk.
REPORT-IN-BRIEF
The Council directed staff to pursue the possibility of widening certain sidewalks in conjunction
with the Higuera Street Bridge Project to allow outdoor dining. Staff is recommending that
sidewalks be widened on Higuera Street along the front of the Firestone Building, the Court
Street parking lot (Lot 6), Mo's Barbecue and Louisa's Place. Staff is also proposing smaller
"bulbouts" at the intersection of Osos and Higuera Streets in front of Woodstock's and First
Bank. In addition, staff is recommending restriping the Court Street parking lot and closing
several entrances, to improve internal circulation and allow for a widened right turn lane at the
Osos-Higuera intersection. A total of either 19 or 22 parking spaces would be lost in order to
accommodate staffs recommendation (depending upon which realignment of Parking Lot 6 is
selected). Staff believes that the long-term benefit to the community offsets this loss, especially
as additional parking will be created by the Marsh Street parking structure's expansion. It is
critical that the decision to widen sidewalks in this area be made now, as doing so affects the
design for the Higuera Street bridge project.
The Downtown Association's Parking Subcommittee supports some sidewalk widening, but not
to the degree suggested by the staff. The Subcommittee is also not supportive of the proposed
modifications to the Court Street parking lot. Both these objections relate to the loss of existing
parking. In addition, the Association believes that the financial cost of improvements should be
borne by property owners, not the City. Staff feels that there are many reasons to pursue the
project as proposed, despite the objections of the Subcommittee, and has outlined them for the
Council in the report.
3-1
Council Agenda Report- Sidewalk Widening
Page 2
DISCUSSION
At its April 6, 1999, meeting, the City Council directed staff to pursue the idea of widened
sidewalks along Higuera Street in the vicinity of Osos Street. The purpose of the sidewalks
would be primarily to allow for outdoor dining and the establishment of other desired amenities
such as public art and landscaping in planters. Much discussion took place regarding the number
of parking spaces to be lost in front of privately owned businesses and the number of parking
spaces to be' lost in a reconfigured Lot 6 (Court Street) parking lot. While the City Council
adopted the concept of widened sidewalks, it also directed staff to pursue, more definitively, the
desires of the various private property owners and the impacts, pros and cons of reconfiguring
Lot 6.
Recommendations
Staff has followed up on Council's direction and recommendations are discussed below.
1. Higuera Sidewalks.-.Santa Rosa to Osos-
Staff wrote to all property owners identified in the earlier staff report and twice asked for written
feedback as to their desires. Three of the four property owners responded in writing, and one
verbal response was received. In addition, staff also requested feedback from property owners
further along Higuera Street towards Morro Street, in case widening along the Lot 6 parking lot
frontage was approved. Based on verbal comments from the affected property owners, the April
6' staff report proposed widening for the length of the Higuera bridge on both sides of the street.
This resulted in the loss of 16 parking spaces. With the most recent information received from
the property owners in this stretch, that number has decreased to 7 parking spaces for this section
of Higuera Street. Five of the spaces.are in front of the Firestone building and one each along
Woodstock's and First Bank. (See Exhibit B)
2. Lot 6 (Court Street) & Osos Street Setback:
Two different layouts of Lot 6 have been developed as shown in Exhibits C-1 and C-2. The two
layouts provide internal circulation that currently does not exist. They also address a concern
about "congestion" at the Osos Street driveway expressed by Council Member Ewan. Currently,
drivers must use Higuera, Monterey and Osos streets to circulate into the next parking bay, as
each section is separate. During Farmer's Market, this is particularly awkward. Staff is
proposing closing the Osos Street driveway and two of the three driveways on Higuera and
providing connection between the parking bays inside the lot. Both options include bringing the
lot into conformance with requirements for numbers of disabled parking spaces.
These two layouts provide 107 or 110 parking spaces respectively. The existing parking lot
provides 119 parking spaces. This results in a net decrease in overall parking spaces of 12 or 9
respectively. Either layout will greatly improve the circulation for the lot, particularly during
Farmer's Market, and allows the opportunity to widen sidewalks on the Higuera frontage:
Although five more spaces are lost, staff is recommending C-1 over C-2 because of better flow
patterns.
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Council Agenda Report-Sidewalk Widening
Page 3
Either proposed layout for the parking lot allows the City three options to provide street setback
on the south westerly side of Osos Street. (See Exhibit D)
Option A -per the setback map, which is a tapered setback;
Option B -uniformly along the length of Osos equal to the largest dimension of the setback map;
Option C -partial widening near the intersection of Higuera and Osos.
All the options for setback allow the travel lanes to be adjusted to line up with those on the
southerly side of the intersection. Setback widening, Option A, would impact at least one street
tree north of the existing Osos Street Driveway. Option B would impact both trees to the north.
Option C provides the benefits to traffic at the Osos Street intersection with Higuera Street
without impacts to the existing trees and at the least cost. This partial street widening does not
preclude future widening.
3. Higuera Sidewalks-Osos to Morro:
Exhibit A also depicts some widened sidewalks along Higuera Street between Osos and Morro
Streets. Should the Council choose to endorse either reconfiguration of Lot 6, two of the three
existing driveways off the lot along Higuera Street will be closed. This provides the opportunity
to expand the sidewalks along this stretch of Higuera. There are no existing metered parking
spaces along the Higuera Street parking lot frontage. The area is currently marked red with one
commercial loading zone. We would lose this loading zone. The Parking Division believes this
will be acceptable because of the proximity of three other loading zones, one on Osos Street, one
in the Court Street lot and one on Morro Street. (See Exhibit E) With widened sidewalks along
this stretch of Higuera, staff would recommend that two parking spaces be removed to the
southwest in front of Mo's Smokehouse BBQ and Louisa's. This sidewalk widening was
requested by the property owners of Mo's Smokehouse BBQ and Louisa's restaurants in
response to staff's questionnaire and is recommended only in conjunction with widening along
the parking lot frontage.
Parking Space Summary
Spaces • •* Total Reductlioll
Recommendation 1 -Higuera-Osos to Santa Rosa 7 7
Recommendation 2 -Lot 6 reconfiguration& Setback 12 or 9 19 or 16
Recommendation 3 -Higuera- Osos to Monro 3 22 or 19
* includes loading zone
Relationship to the Hi2uera Street Bridge Project
The structural design of the Higuera Street bridge deck is on hold pending the determination of
where widened sidewalks will be going. If widened sidewalks are desired for this area, the new
deck needs to be designed to accommodate them. This means a decision needs to be made now
if the City is to complete design in time for the bridge to go to construction in the summer of
2000.
3-3
Council Agenda Report- Sidewalk Widening
Page 4
The only frontages of a critical nature as related to bridge design are:
Thai Palace o property owner prefers no widening
m staff recommends no widening
Woodstock's Pizza ° property owner has given verbal approval to remove one parking
space
9 staff recommends one parking space removal and minimal
sidewalk widening
Lot 6/ o no metered parking space removal
Court Street lot ® staff recommends widening
Work along the Firestone building frontage and that of First Bank on the southerly side of
Higuera, and work in front of Mo's and Louisa's southwesterly of Court Street is not on the
bridge deck. Higuera Street from Santa Rosa to Morro Street will be reconstructed immediately
following the bridge construction. For that reason, it is desirable to include any sidewalk
widening projects with the bridge rather than to remove nearly new asphalt and construct
sidewalk in the future. Thus, though not absolutely necessary because of the bridge work, staff is
recommending construction of any widened sidewalks desired in this two block stretch be done
in conjunction with the bridge project. While this will cause a short-term overall reduction in
citywide parking spaces.available, the expansion of the Marsh Street structure and the eventual
construction of a third parking structure will provide a long=range solution to the short-term
problem of parking removal. Staff feels the sidewalk improvements will be of long terns benefit
to the City and future redevelopment of Lot 6 can be designed to take advantage of the widened
sidewalk.
Policy Issues Related to Use of Widened Sidewalk
All the three respondents wanting widened sidewalks for commercial use did so with the
understanding the sidewalks would be available for outdoor dining activities that they would
sponsor. It is apparent that if those uses were not permitted, support:for the widened sidewalks
would evaporate. Staff supports the use of these areas for outdoor dining. The Community
Development Department is currently working on guidelines for implementing this use.
Regardless of tonight's action, it is anticipated that staff will bring those guidelines for Council
action.prior to the end of the current calendar year.
CONCURRENCES
Community Development feels the changes to the parking lot are not significant enough to
warrant requiring the lot be brought to current design standards for landscaping. The proposed
changes within the lot have been designed around all the existing trees in order to retain them.
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Council Agenda Report- Sidewalk Widening
Page 5
Downtown Association Parking Subcommittee Recommendations and Staff's Response
The staff recommendations for parking removal were reviewed by the Downtown Association's
Parking Subcommittee at its meeting of September 10, 1999. Their recommendations will be
forwarded to the Downtown Association Board and a recommendation from the Board will be
available prior to the Council meeting. The subcommittee recommendations and the staff s
responses are detailed as follows:
Recommendation 1: Require private property owners to pay for construction cost of widening of
sidewalks along their frontage.
Staff does not agree with this recommendation. If implemented, those private property owners
would, in effect, feel ownership of that portion of sidewalk. The City of San Luis Obispo and
most other cities consider the public right-of-way to be for the benefit of the public. Likewise,
cities determine the best uses for that right-of-way to provide the maximum benefit for the
public. Staff has taken the position that a publicly funded improvement to the public's right-of-
way is appropriate and maintains the public's trust that its benefit is being served. Should
ownership change in the future and outdoor dining is no longer a feature desired by the new
property owner, the City remains control of the right-of-way to either approve or deny use of the
space for clothing,books, or miscellaneous sales.
It is standard practice to require new development to pay for public sidewalks and dedicate them
back to the City for public use. However, that requirement is applied equally to all developers,
and such sidewalks are built uniformly, i.e. certain widths for commercial, residential, etc. It has
never been the City's policy to require special widening above and beyond City standards
without some form compensation to the developer. Certainly, if a property owner wishes to
voluntarily contribute to the cost of sidewalk widening, we are not opposed.
In addition, the City did not require any property owner's financial participation when the
sidewalks were widened to create "bulbouts" with the Marsh Street reconstruction project.
Public funds paid for that public amenity — one that shortened the distance for pedestrian
crossing and made pedestrians more visible to the motoring public. Public funds paid for that
increased public benefit. Likewise, staff feels that public funds should pay for the increased
public benefit of the currently proposed widened sidewalks, which would provide larger areas to
walk,park bikes or enjoy food from local restaurants.
Finally, there is little likelihood that local property owners would pay for such widening if forced
to do so, especially at the corners where all that is being created is a "bulbout" for safety
purposes. A major investment in sidewalk construction may not "pencil out" for property
owners, given the profits on food services. However, a modest rental of the public space for such
purposes (as intended by staff) is less demanding and can most likely be financially
accommodated by the property owners.
Recommendation 2: Exclude Mo's BBQ and Louisa's by making only seven spaces in front of
Thai Classic and Firestone's a test block.
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Council Agenda Report- Sidewalk Widening
Page 6
Staff opposes this recommendation. The City Council, at its meeting, endorsed the concept of
widened sidewalks for outdoor dining. In fairness to all restaurants near the bridge project, staff
sought feedback from Mo's and Louisa's. To pull back now and only allow outdoor dining at
this time for a select few certainly does not appear fair to the others that are also affected by this
construction project. As mentioned earlier in this report, the roadway will be reconstructed just
after the bridge project is completed. One often heard complaint is that cities look very
disorganized'when they return to tear up a street soon after resurfacing is completed. That is why
staff is recommending that we either do all the sidewalk widening in the project area as part of
the project, or not do it at all.
Recommendation 3: Parking In-Lieu fees should be paid to the Parking Enterprise Fund to
offset the cost incurred by lost parking revenues.
Parking in-lieu fees are paid to the City by developers of property zoned C-C in the downtown.
Their purpose is to offset the off-street parking requirements of the new development. In the
past, the City has never required a parking in-lieu fee be paid when "loading zones" or "motor
cycle parking" or new."no parking zones" have eliminated on-street parking spaces. As part of
basic parking management, street parking spaces are sometimes created and sometimes
eliminated. Some have been eliminated to create special right turn lanes and some have been put
back again when a loading zone was no longer needed. New bicycle lanes sometimes eliminate
on-street parking. The public right-of-way belongs to the public .for its use and. enjoyment as
defined by the City Council. While businesses sometimes feel that the parking in front of their
location belongs to them, that parking (as a part of the public right-of-way) actually belongs to
the public. In=lieu fees are designed to pay for and provide off-street parking spaces. Requiring
their use to offset lost parking meter revenues would not only set a bad precedence for ongoing
parking management,but would require a significant change in Council adopted policy.
Recommendation 4. Use of the area would be subject to guidelines developed and implemented
by the Downtown Association Parking Subcommittee.
To give up this is power, which is currently vested in the City Council, to an advisory
subcommittee would set a new paradigm of governance for the use of public space. As
mentioned earlier, the City's designated "use implementation" arm, the Community
Development Department, has contacted other cities that have widened sidewalks; obtained
copies of their guidelines; and is formulating a set of our own guidelines for City Council review
and adoption prior to the end of this calendar year. As is our policy, the Downtown Association
will be contacted for input prior to the final recommendation being brought to the Council.
Recommendation S: Future requests for sidewalk widening will be subject to the "success" of
the test project as determined by the Downtown Association Parking Subcommittee.
Staff believes that the widening project, assuming it is approved in one form or another, is a
project that will be successful. Many other cities have implemented widened sidewalk programs
without failure. However, it is staffs responsibility to monitor the success or failure of a City
program. Again, it would be setting anew precedent to assign the evaluation process to an
3-6
Council Agenda Report- Sidewalk Widening
Page 7
advisory subcommittee. It is staffs intention to report back to the Council on the effectiveness of
the program in a year from the completion of the project
Finally, although not a formal recommendation, the subcommittee does not support the proposed
circulation changes to Lot 6 as presented above. While staff acknowledges that parking spaces
are lost if internal circulation is improved, leaving the lot "as is" maintains the existing
circulation problems Councilman Ewan asked be addressed. It also basically precludes
meaningful widening of the sidewalk along the Lot 6 frontage: If the sidewalk along the Lot 6
frontage is not widened, staff is not.recommending the widening along Mo's or Louisa's, as the
result would be unconnected blips in the existing sidewalk line.
Sidewalk Widening--Summary Of All Input And.Recommendations
_jTl7oeis o.
'%vhto�Nint Assoc.
Thai Cl_as_sic/DeLucia No widening Same as owner 2 spaces are ok-if
Parking fund is
compensated
Firestone/Billingsley Widen=Remove 5 spaces Same as owner Same as owner-if
Parking fund is
compensated
Woodstocks/Rossi No written-response. Widen — Remove No widening
Verbal response-Remove l.space
1 space
First Bank/Wilson Widen—Remove 1 space Same as owner -No -widening
Mo's.BB /Quaglino Widen—Remove 1 space Same as owner. No:widenin
Louisa's /Bucket of Blood Widen—Remove 1 space Same as owner No widening
LLC -
Lot 6(Court.Street) Widen-remove No widening
loading zone(only
with circulation
changes in the
parking lot as
recommended
FISCAL IMPACT
As discussed in the April 6 h agenda report, the bridge construction is funded through the Federal
Highway Administration Bridge Rehabilitation program. The program reimburses the City for
80% of costs. (See Exhibit F) The program will not reimburse costs for improvements to the
site. Improvements would include:
• extra cost of Mission Style Sidewalk over standard gray;
• differential cost, if any, between 8 feet of sidewalk and 12 feetof paving versus 14 feet of
sidewalk and 6 feet of paving in areas over the bridge; and
• bulbouts and widened sidewalk on the southeasterly side of the street along the Firestone
building and on the northwesterly side of the street along the Mo's BBQ and Louisa's
buildings.
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Council Agenda Report-Sidewalk Widening
Page 8
The cost of additional design for this work will be the City's. The Council, at its April 6"
meeting, approved the funding for the additional design cost of these structural changes. Any
additional costs of widened sidewalks not covered by the bridge project would be borneby the
General Fund via the annual streets reconstruction capital improvement project account.
ALTERNATIVES
A. Reduce sidewalk widening to the minimum necessary to provide comer bulbouts at the
intersection only.
B. Do not provide for any changes to sidewalk widths. If the Council chooses not to construct
the sidewalk widening at this time, staff still recommends Mission Style Sidewalk be
installed in lieu of the standard gray.
C. Leave the parking lot circulation and driveway configuration as is.
D. Select the alternate circulation pattern for Parking Lot 6.
ATTACHMENTS
Exhibit A - Summary of All Staff Proposals
Exhibit B -Proposed Widened Sidewalk Areas -
Exhibit C1 & C2 - Lot 6 Reconfiguration Plans
Exhibit D - Osos Street Setback Options
Exhibit E - Area Loading Zones
Exhibit F-Excerpts from April 6 h Agenda Report
Exhibit G - Draft minutes of-the Downtown Association Parking Subcommittee
Exhibit H - Downtown Association Subcommittee Recommendations
3-8
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Excerpt from Council Agenda Report—April 6, 1999
Higuera Street Bridge Project With Pedestrian Enhancement Features
CAO RECOMMENDATION-from April 6' City Council Meeting
1. Approve the concept of widened sidewalks along Higuera Street in the vicinity of Osos Street
as a part of the Higuera Street Bridge Rehabilitation Project.
2. Appropriate$ 43,000 from the unappropriated balance of the General Fund for Higuera Street
Bridge environmental and design services.
3. Authorize the CAO to execute the amendment to the agreement for environmental and design
services with Martin and Kane,Inc.
FISCAL IMPACT-from April 6' City Council Meeting
Cost table only
Current Proposal Revised
City Funds Grant Funds City Funds City Funds Grant Funds
Design Contract 124,600 498,414 43,000 167,600 498,414
Construction(est.) 640,000 2,560,000 134,000 774,000 2,560,000
The proposal identified and estimated for cost in the April 6''agenda was for widened sidewalk:
• the length of the Firestone Building and to the front door of the Thai Classic Restaurant
• along Woodstock's Higuera frontage
• along Lot 6.
It also included the partial street widening along the Osos Street Frontage of Lot 6. It did not
include the sidewalk widening along Mo's BBQ and Louisa's.
Since there will be less sidewalk widening with the current proposal than that presented on April
6', costs should be less than previously estimated even with the additional work at Mo's BBQ
and Louisa's.
3-15
EXHIBIT F
SLO DOWNTOWN ASSOC . TEL :805-781-2647 Sep 10 99 13 : 10 No .007 P .01
SI.O Downtown Association
Parking and Access Committee
10 September 1999
Parking Conference Room
Minutes
Present
Tom Swem Keith Opalewski
Mark Shaffer —'
Mike Spangler
Pierre Rademaker Postdt`FMNote ' J I Joe DeLueia ToFromDeborah Holley, staff comept. Co.
P""yPhoneCall to order by Swem 8:10 AM. Fa=0Fax e
No public comment at this time.
Motion to approve minutes by.Spangler, 2nd by Shaffer, PAIF.
Holley inquired about the correct spelling of Tim Bochen's name to correct previous month's minutes.
Marsh St. FApansion update
Opalewski stated that in light of the upcoming Copeland presentation, the ARC meeting to address MS
Expansion design has been postponed until October 18;doesn't predict any major structural changes will
result, bid should go out around early January with March groundbreaking.
Sidewalk Widening Bulbouts
Holley distributed copies of a draft report issued by the City to be addressed at the September 21 Council
meeting: DeLucia said he has already responded in writing that he and his partners do not support the
concept as described in lire staff report;there is no parity, it's too premature,Marsh St. is not a 100%
certainty,Court St. parking will be removed. He said he has been in touch with Rob Rossi who doesn't
plan to use outdoor seating at Woodstocks and now Mo's has been included. Thinks Downtown
Association should have a position.
Shaffer suggested recommending that staff return to the original proposal of three spaces along Firestone
as a test project. Spangler concurred saying that the new proposal does nothing to.help the enterprise
parking fund which was also part of the original proposal; someone needs to pay for the loss of the
spaces,can't just keep taking parking away.
Rademaker said the committee needs to develop a position statement for the current proposal. The
comnuttee offered the following ideas:
d The concept of sidewalk widening and bulbouts remains desirable though not as proposed in the current
staff report., rather
The concept of a test project as originally proposed to include up to seven spaces along the south side of
• the 1000 block of Higuera St. between Firestone and Thai Classic, and
3-16
EXNtatr G `
SLO DOWNTOWN ASSOC . Tr'- '805-781-2647 Sep ' 0 99 13 : 11 No .007 P .02
In-lieu fees would be deposited with the Parking Enterprise Fund to offset the cost incurred by lost
parking, and
Improvements would be the sole financial responsibility of the property owner (except for the allocated
• design funds provided in the bridge design), and
Use of the area would be subject to approval by the Parking and Access Committee which will develop
0 guidelines for using parking replacement sidewalk widening, and
• Future requests for sidewalk widening will be subject to the success of the test project as determined by
the Parking and Access Comunittee.
Motion to approve this position statement: Spangler,2nd by Rademaker, PAiF. This recommendation
will be submitted to the Board of Directors for its approval at its next regular meeting, 14 September.
Holley will fax copies of the draft statement to committee members.
Parking and Downtown Access Plan
Opalcski said no definite date has been set for this item due to other large projects currently in the
forefront.; parking,can still function in the meantime. Spangler said the plan should be on a faster track.
Court St/Palm-Morro Area
Rademaker said he had met with Toni Copeland and there will be a presentation of the proposed project on
September 20; Copeland is meeting with people from different areas of the community to build consensus,
wants to promote compact urban form of"up not out," Marketplace is luring tenants away from
Downtown, this would hurt Downtown,project needs supporters,wants more players involved.
Ride On
Shaffer distributed copies of"The Transportation Choices Program" whereby employers can receive free
consultation on packaging trip programs for their employees; Shaffer said the community needs to support
a balanced transportation prognun. Holley indicated that the information could be disseminated to
members,however the recommendation to telecommute has been opposed in the past due to eliminating
trips from Downtown which is not what businesses want. Motion to adopt the program and promote to
members less item#9 (telecommuting) by Rademaker,2nd by Spangler, PAIR
Shaffer said that another idea for Downtown would be to have a virtual page on the Net where people can
shop Downtown in the evening; have actual walkthrough where people can go up and down the streets and
go into businesses; the businesses would pay a fee to participate.
Spangler indicated that.on Oct. S,there will be a meeting about the City to Sea bike trail, need to include
Downtown in the loop; wheelmen support removing bike lanes and having bike riders take the lane; also
need to get the big buses out of Downtown.
Buchon St.
Shaffer asked if there are any plans in place for a parking district in the neighborhood,Opalewski said the
original concept was for a full district., shared use may be considered in the future but a full district just
pushes the cars into the next block.
Meeting adjourned 9:25 AM.
Prepared by D. Holley
10 Soptember 1999
3-17
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.... .......................
CL
Lo
Ln
0)
EXHIBIT H