Loading...
HomeMy WebLinkAbout1996-09-16 City Council (30)TO: City of Palo Alto City Manager’s Report HONORABLE CITY COUNCIL 12 FROM:CITY MANAGER DEPARTMENT: PLANNING AGENDA DATE: September 16, 1996 CMR:391:96 SUBJECT:Recommendation Regarding Proposed Improvements to Los Trancos Road REQUEST There is a short section of Los Trancos Road that falls within the jurisdictional limits of Palo Alto. The City of Palo Alto has an approved Capital Improvement Project to design and construct major improvements to this section of roadway. An initial study indicates that a major improvement project would involve substantial environmental impacts, mitigations and financial costs. Therefore, staff is recommending that the City proceed with a minor operational improvement project instead of a major improvement project. RECOMMENDATION Staff recommends that Council direct staff to: (1)Pursue the development andimplementation of a minor operational improvement project (described later as Reasonable Maintenance Project) including the following: a. secure the necessary construction and fight-of-way from all affected property owners, b. separate funding for the Los Trancos Road minor operational improvement project from the Street Resurfacing project and create a stand-alone project, c. proceed with the design and construction of the project, and d. provide regular ongoing maintenance of the roadway, after the project is implemented; CMR:391:96 Page 1 of 10 (2)Ascertain the willingness of property owners to provide the additional permanent right-of-way that would be necessary for the major improvement project and report back to Council; (3)Consider imposition of conditions during private property development review and approval, to include an irrevocable offer of dedication of permanent right-of-way necessary for the major improvement project (City would not accept, but would retain the option for possible future consideration); and (4)Continue to provide minimal maintenance for emergency equipment access until such time that the minor operational improvement project is implemented. The proposed minor operational improvement project would make the full existing width of the roadway more readily useable, but would not widen the roadway. The project would include such items as brush removal and tree trimming along roadway edges, repair of roadway base failures, surface overlay, centerline striping, reflective delineators placed at selective locations, probable guardrail installation, and some drainage pipe repair work. It would not include utility pole relocation, changes to the horizontal or vertical curvature, cut and fill earthwork, or rethining walls. The cost to complete the proposed project is estimated to be $125,000 to $175,000. POLICY IMPLICATIONS The section of Los Trances Road in Pale Alto is an essential link for the provision of emergency equipment access to portions of Foothills Park, as well as access to a number of residences in Pale Alto with driveway access from the roadway. The section in Pale Alto also serves as an essential link for access to a substantial number of residences in the Los Trances Woods subdivision in the Town of Portola Valley. This section of roadway is also included as an existing arterial on the Transportation Network for the Pale Alto Land Use Plan Map included in the Comprehensive Plan. Therefore, the City has an interest in clarifying and resolving (one way or another) the status of the roadway. The alternatives described in this report include (a) minimizing, (b) maintaining the current level, or (c) increasing the level of responsibility. If the City proceeds with a minor operational improvement project, including securing the permanent right-of-way, the City would accept long-term responsibility and potential liability for the roadway (in terms of financial resources to maintain the roadway and legal liability for events that occur along the roadway), beyond the somewhat ambiguous nature of the current situation. At the present time, the City does not have recorded title to the CMR:391:96 Page 2 of 10 right-of-way and has never accepted any dedication of right-of-way (other than one short stretch of roadway). If the City proceeds with a minor operational improvement project, the initial cost would be approximately $125,000 to $175,000. Funding for a Los Trancos Road project was included in the FY 92-93/93-94 CIP, with the source being the Street Improvement Fund. In addition to the initial project cost, the City would also take on responsibility for continuing ongoing maintenance, which is estimated to be about $15,000 per year. If a project is not implemented, such funds would be available for street maintenance elsewhere in Palo Alto. EXECUTIVE SUMMARY Backm’ound There is a short section (0.7 miles) of Los Trancos Road that falls within the jurisdictional limits of the City of Palo Alto, as illustrated in Attachments 1 and 2. At either end of this short section, Los Trancos Road passes into the jurisdictional limits of the Town of Portola Valley. The roadway section within Palo Alto is approximately 18 to 20 feet wide, with relatively poor surface/base conditions, and is in questionable condition. By contrast, the adjacent portions within Portola Valley have been improved to a better condition. The average daily traffic volume on this section of roadway is 2,000 Vehicles. Based upon a review of property records, the section of Los Trancos Road in Palo Alto may traverse up to nine separate parcels. In 1980, Palo Alto accepted ownership of a 0.1 mile section (40 foot wide) of Los Trancos Road through two of the parcels, when the owner subdivided a parcel and dedicated the road to the City. The remaining portion of the roadway (0.6 miles), which passes through the other parcels, was never dedicated to, nor accepted by, the City of Palo Alto. It also appears that the roadway was never dedicated to, nor accepted by, Santa Clara County, prior to annexation. Under the Streets and Highways Code section 1806, the City is not legally responsible to maintain, nor liable for failure to maintain, any street that has not been accepted as part of the City street system by resolution of the City Council. However, the City has historically provided, and continues to provide on a periodic basis, a minimal level of maintenance services (patching pavement, signing and striping, and trimming brush) for the entire 0.7 mile section of Los Trancos Road, as a means to ensure, emergency fire equipment access to Foothills Park and to Palo Alto residences with driveway access from Los Trancos Road. CMR:391:96 Page 3 of 10 As part of the FY 92-93/93-94 Capital Improvement Program, Council approved a project to improve the section of Los Trancos Road that lies within the jurisdiction of Palo Alto. C~ No. 18670 (Attachment 3), which provides for annual resurfacing and reconstruction of various City streets, includes a provision for the design and construction of improvements to Los Trancos Road. The design was identified for FY 1992-93 at $140,000 and the construction for FY 1993-94 at $360,000. Current Status As a first step in implementing the CIP project, the firm of Nolte and Associates was hired to prepare a conceptual plan report (feasibility study) for making major improvements to Los Trancos Road, based upon two options: (a) a desired 28 foot roadway and (b) a reduced 24 foot roadway. The plan was also to incorporate improvements to the sharp horizontal and vertical curvature, in selective areas, as well as relocate utility poles and remove trees that were in proximity to the edge of.the pavement. Their work indicates that the project would pass through a mature oak woodland that is possibly supporting important biological habitat; is adjacent to Los Trancos Creek, as well as a marsh area; would require the use of retaining walls or substantial cut slopes; would remove up to 19 trees; and would cost approximately $350,000 to construct the 28 foot roadway section (option A) and $220,000 to construct the reduced 24 foot roadway section (option B). Additional costs for final design, preparation of an Environmental Impact Report, and probable mitigation costs were not detennined, but would likely result in total project costs of $700,000 to $800,000, or more. Alternative8 The following alternatives have been identified: Minimal Maintenance - This option would be to provide a minimal level of maintenance on a periodic basis. The minimal level of maintenance would include patching pavement, signing and striping, and trimming brush. This would be similar to what the City has done in the past in order to ensure emergency fire equipment access to portions of Foothills Park and to Palo Alto residences with driveway access fxom Los Trancos Road. o Min__~iagx~perational Improvement/Reasonable Maintenance - This option would initially involve a minor operational improvement project, as well as a commitment to regular ongoing maintenance in subsequent years. The objective of such a project is to provide an improved roadway for the traveling public. CMR:391:96 Page 4 of 10 Such a project would make the full existing width of the roadway more readily useable, but would not widen the roadway. The project would include brush removal and tree trimming along roadway edges, repair of roadway base failures, surface overlay, centedine striping, reflective delineators placed at selective locations, probable guardrail installation, and some drainage pipe repair work. It would not include utility pole relocation, changes to the horizontal and vertical curvature, cut and fill, and retaining walls. The cost to complete such a project is estimated to be $125,000 to $175,000, This type of project would require acquisition of permanent right-of-way to the existing roadway, and it would ensure improved traffic safety for the traveling public, as well as ensure emergency fire equipment access to portions of Foothills Park and residences in Palo Alto with driveway access from the roadway. o Major Improvement - This option would construct a major improvement project that would include roadway widening, improvements to the sharp horizontal and vertical curvature in selective areas, as well as relocation of utility poles and removal of trees that are in proximity to the edge of pavement. Information prepared by the project design consultant, in their conceptual plan report, indicates that the project would pass through a mature oak woodland, that is possibly supporting important biological habitat; is adjacent to Los Trancos Creek, as well as a marsh area; would require the use of retaining walls or substantial cut slopes; would remove up to 19 trees; and would cost approximately $220,000 to $350,000 to construct depending upon roadway width options. Additional costs for final design, preparation of an Environmental Impact Report, and probable mitigation costs were not determined, but would likely result in total project costs of $700,000 to $800,000 or more. This option would provide a wider roadway surface for vehicles and bicycles, improvement to the areas of sharp horizontal and vertical curvature, and removal of obstructions (trees and utility poles) in proximity to the pavement edge. Alternative 1 (Minimal Maintenance) would prevent degradation of the road, but would not improve emergency fire equipment access to portions of Foothills Park, nor adequately serve the needs of Palo Alto residents who live along the roadway or the traveling public at large. Furthermore, due to (a) the environmentally sensitive features that exist within the area through which Los Trancos Road passes; (b) the need to prepare an Environmental Impact Report; and (c) the substantial cost of the basic roadway project and probable related costs; City staff has concluded that Alternative 3 (Major Improvement) is not feasible. CMR:391:96 Page 5 of 10 City staff has concluded that the best alternative is to proceed with Alternative 2 (Reasonable Maintenance Project), which includes the development and implementation of a minor operational improvement project and the provision of regular ongoing maintenance of the roadway, after the project is implemented. This will provide an improved level of safety for the traveling public, as well as ensure emergency fire equipment access to Foothills Park and residences in Palo Alto with driveway access from the roadway. It will be necessary to obtain permanent right-of-way to the roadway from affected property owners for project implementation and subsequent ongoing maintenance of the roadway. Current Development Projects Staffis aware of three development projects, in various stages of the review process, that have some relationship to Los Trancos Road. ~ -This is a project that will subdivide a 264 acre parcel into 30 single family home sites. The site is located in Portola Valley, along Los Trancos Road, south of the point where Los Trancos Road passes back into the jurisdiction of Portola Valley, at the southern end of the section of the roadway which passes through Palo Alto. The project has been reviewed and approved by the Town of Portola Valley. Arrillaga Property_ - This is a proposed project to subdivide a 150 acre site into 8 single family home sites. The site is located in Palo Alto, at the southern end of the portion of Los Trancos Road that passes through Palo Alto. The project is currently under review and includes the preparation of an EIR. The project may appropriately be required to provide an easement for the portion of Los Trancos Road that traverses the project property (approximately 0.3 miles), as well as the potential for some financial contribution toward the cost of the project. Romano Property_ - This is a 12 acre site located in Palo Alto at the northern end of the portion of Los Trancos Road that passes through Palo Alto. Recently, a proposal for the subdivision of this parcel into 9 single family home sites was submitted for preliminary review and was, subsequently, withdrawn. More recent discussions have been regarding use of the site for a private school. If and when a project is reviewed and approved for this site, the possibility exists for dedication of an easement for the portion of Los Trancos Road that traverses the project property (approximately 0.1 miles), as well as the potential for some financial contribution toward the cost of the project. CMR:391:96 Page 6 of 10 Staffwill continue to explore opporttmities to receive some financial contribution toward the proposed roadway project through the development project review and approval process, but does not believe that a decision regarding the roadway project should be contingent upon such funding. Summary_ The portion of Los Trancos Road that falls within the jurisdictional limits of the City of Palo Alto is in need of some improvement and ongoing maintenance. The issues of responsibility and liability for the roadway are not clear, given the historical ownership, use, and various actions that have transpired over time. Information regarding a major roadway improvement project indicates such a project is effectively infeasible due to environmental and financial considerations. The alternative of providing only minor maintenance does not serve the interests of Palo Alto residents or the public at large who use the roadway. The alternative of acquiring permanent right-of-way to the existing road and implementing a minor operational improvement project, coupled with a commitment to provide ongoing maintenance, would effectively establish the City’s responsibility for the roadway; and it offers a viable solution to addressing emergency equipment access to portions of Foothill Park, as well as the needs of Palo Alto residents who live along the roadway and the general public who use the roadway. Therefore, the staff recommendation is to: (1)Pursue the development and implementation of a minor operational improvement project (described later as Reasonable Maintenance Project) including the following: a. secure the necessary construction and right-of-way from all affected property owners, b. separate funding for the Los Trancos Road minor operational improvement project from the Street Resurfacing project and create a stand-alone project, c. proceed with the design and construction of the project, and d. provide regular ongoing maintenance of the roadway, after the project is implemented; CMR:391:96 Page 7 of 10 (2)Ascertain the willingness of property owners to provide the additional permanent right-of-way that would be necessary for the major improvement project and report back to Council; (3) (4) Consider imposition of conditions during private property development review and approval, to include an irrevocable offer of dedication of permanent right-of-way necessary for the major improvement project (City would not accept, but would retain the option for possible future consideration); and Continue to provide minimal maintenance for emergency equipment access until such time that the minor operational improvement project is implemented. FISCAL IMPACT The fiscal impact of the proposal to pursue a Reasonable Maintenance Project (No. 2) is a construction cost of $125,000 to $175,000 fi’om the Street Improvement Fund. This is somewhat less than the $360,000 included for construction of Los Trancos Road in the FY 1993-94 C[P. In addition to the initial project cost, the City would take on responsibility for continuing ongoing maintenance, which is estimated to be about $15,000 per year. ENVIRONMENTAL ASSESSMENT An environmental assessment would be completed prior to Council approval of any project. STEPS FOLLOWING APPROVAL If Council approves the staff recommendation to pursue the further development and implementation of a minor operational improvement project for Los Trancos Road, staff would proceed with the following steps: Return to Council with a negotiated change of scope of work (to prepare a preliminary design and easement description for the minor improvement project and an environmental assessment) for the existing contract with Nolte and Associates, and a Budget Amendment Ordinance to establish a separate Capital Improvement Program project for the Los Trancos Road minor operational improvement project; Approach the owners of the properties through which Los Trancos Road traverses, to explain the project and secure their commitment for the necessary construction and fight-of-way easements; CMR:391:96 Page 8 of 10 Return to Council for formal acceptance of the easements necessary for the minor improvement project and report on the responses from property owners regarding their willingness to provide the additional easement that would be necessary for the major improvement project; o Complete the final design plans and specifications for the minor operational improvement project; 6.Solicit bids for the proposed project; 7.Return to Council for award of the contract; and 8.Proceed with implementation of the minor operational improvement project. It appears possible that the minor improvement project could be made in the fall of 1997, dependent upon the timing for securing commitments from the property owners for the necessary easements. ATTACHMENTS Attachment 1: Attachment 2: Attachment 3: Attachment 4: Location Map Project Limits Map FY 92-93/93-94 C~ (No. 18670) May 11, 1990 and June 11, 1996 letter from Los Trancos Road residents CMR:391:96 Page 9 of I0 Prepared By: George Bagdon, Assistant Director of Public Works Marvin L. Overvcay, Chief Transportation Official Department Head Review: GLENN S. ROBERTS Director of Public Works KENNETH R. SCHREIBER Director of Planning and Community Environment City Manager Approval: CO:Mayor Ted Driscoll, Town of Portola Valley Vista Verde Homeowners Association (Gary Conway, Bob Zimmerman) John Arfillaga David Gregory Scott & Susan McNealy Michael Pinneo & Amy Lee Hewlett & Betty Lee Richard & Louise Lee David & Karen Gregory Tom & Carolyn Killefer Bill & Rosemary Hewlett Mark Conroe Frederick N. Woods, III Peery Companies John & Gloria Romano Michael Jaeobs & Jane Morton Vinod & Neem Khosla Virginia Lee Adi A1 & Katie Alcom Irv & Sukey Grousbeck Craig Duachy & Sue Crawford John & Margaret Law Phillip R. Lee Erie and Nancy E. Strauss CMR:391:96 Page 10 of 10 ATTACHMENT 1 O 0t- O ATTACHMENT STREET IMPRO’VEMENT FUND STREET MAINTENANCE,,(18670) ATTACHMENT 3 Proiect Descriplion: Provides for annual resurfacing and reconstruction of various City streets. The list of streets will be prioritized to.coordinate with the Storm Drainage and Utilities Funds undergrounding program to the extent feasible. Included in FY 1992-93 and FY 1993-94 is the design and construction of improvements to Los Trancos Road and included in FY 1994-95 is the design and construction of bike lane improvements on Los Robles Road from E1 Camino Real to La Donna Street. Project Justification: The Pavement Maintenance Management System (PMMS) has identified those streets whose condition poses a potential liability to the City with respect to reliability and safety. This program lessens this liability by systematically scheduling the highest priority repairs. By providing a systemized method of hi-annually rating and a yearly maintenance program, the City address’ the need to provide a functioning street system and reduces the maintenance backlog. Impact and Support Analysis: Environmental Categorically exempt. Operating -Public Works/Operations Division - No additional resources will be required. Street repair will be reduce. Telecommunications None Comprehensive Plan: Implements Transportation Element Program 17: ease traffic flow on major streets. Make operational and intersection improvements tG Financial Analysis: Source of Funding:Street Improvement Fund. Additional project also included in the General Fund (Utility Users Tax).’ 1992-93 ’$795,000 1993-94 $800,000 Los Trancos Road design ($140,000) Los Trancos Road construction ($360,000) 1994-95 $870,000 Los Robles Road 1995-96 $880,000 1996-97 $880,000 8O G;u’3. K, Ctm~ay President May 11, 1990 William Zaner City Manager 250 Hamilton Ave. Palo Alto, CA 94301 Re: Lower Los Trancos Road Dear Mr. Zaner: The purpose o1~ this letter is to advise you. of a hazardous condition which exists on a roadway maintained by the City of Palo Alto and to seek a solution to the problem. Because of a twist in Los Trancos Creek, a six-tenths of a mile portion of Los Trancos Road leaves Portola Valley, passes through Palo Altoi and returns to Portola Valley again. To say the road is dangerous would be an understatement. It is a clear safety hazard to motorists ¯ and suicidal to cyclists. The road width measures approximately eight and a halt~ feet at its narrower points, from the yellow line to the edge of the pavement. This would be hazard enough, .but precisely at the edge of the pavement large trees, telephone poles, and somewhat more forgiving vegetation rise abruptly. Within the past three weeks, a car collided with one of the telephone poles. Fortunately, in this case, the car is reparable, but the telephone pole is beyond hope. When we moved to Portola Valley eighteen years ago, this portion of Los Trancos Road was a series of potholes held together by a yellow line. One small section was repaved three or four years ago; however this section was not widened, and this, plus the unimproved "remainder, is as narrow as ever. The point is this: some three hundred families dwell in the Vista Verde and Los Trancos Woods areas of Portola Valley. They work and shop in Palo Alto, and yet, to get there or anywhere else, they must traverse a road that is a clear safety hazard, could not be built under current codes, and represents a significant liability to the City of Palo Alto. PALO ALTO May .I0, 1990 Page 2 I invite you to station an engineer or other observer on Los Trancos Road for just two hours.. He will note the dump trucks, cement trucks, and SAMTRANS buses (carrying schoolchildren thrice daily) driving on or over the double line. These drivers have no choice: a SAMTRANS bus is 102 inches wide, not counting side mirrors, on a 104 inch lane. If your observer does not reach the conclusion that we have, that. the road must be smoothed and widened, then please have your City Attorney join the observation. He will look at it through the eyes of liability, and, I am sure, agree with us. Please contact me with your thoughts on this so that I may report to my organization. Conway Homeowners ~ociation c: Mike Cobb, Mayor, City of Palo Alto c: John Tanzi, President, Vista Verde Homeowners Association c: Annaloy Nickum, President, Los Trancos Woods Homeowners Association ATTACHMENT 4 Mr. Glenn Roberts Director of Public Works City of Palo Alto PO Box 10250 Palo Alto, CA 94303 David Gregory 701 Los Trancos Rd. Portola Valley, CA 94028 (415) 941-7677 June 11, 1996 Dear Mr. Roberts, My neighbors and I live in Palo Alto off of the short section of Los Trancos Road that is within our city. We ~vould like to voice our support for plans currently being developed by your department to improve the condition bf this road. Over the last few years we have ~vatched the condition of Los Trancos detedora(e markedly to the point where we feel that it is now a significant safety hazard to us and all others who drive, walk, jog, or cycle it. I have spoken with several people in your department and learned of the ambiguous legal status of the road and the associated hurdles you and your department must overcome to have the road repaired and maintained properly. Please let me kno~v when and how you expect to move forward on this project and what we can do to help. Sincerely, ¯ David Gregory on behalf of the following Palo Alto Los Trancos Road residents: Scott & Susan McNealy Michael Jacobs & Jane Morton Michael Pinneo & AmyLee Vinod & Neeru Khosla Hewlett & Betty Lee Virginia Lee Adi Richard & Louise Lee Al & Katie Alcom David & Karen Gregory Irv & Sukey Grousbeck Tom & Carolyn Killefer Craig Dauchy & Sue Crawford Bill & Rosemary Hewlett John & Margaret Law John & Gloria Romano 610 Los Trancos Road 614 Los Trancos Road 620 Los Trancos Road 630 Los Trancos Road 640 Los Trancos Road 64(~A Los Trancos Road 650 Los Trancos Road 660 Los Trancos Road 701 Los Trancos Road 706 Los Trancos Road 708 Los Trancos Road 714 Los Trancos Road 720 Los Trancos Road 830 Los Trancos Road 850 Los Trancos Road cc:June Fleming, Palo Alto City Manager Mike Miller, Deputy Director of Public Works John Carlson, Senior Engineer, Public Works Engineering Marvin Overway, Department Head, Transportation Dept Residents