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HomeMy WebLinkAboutStaff Report 344-06TO: City of Palo Alto City Manager’s Report HONORABLE CITY COUNCIL FROM:CITY MANAGER DEPARTMENT: PLANNING AND COMMUNITY ENVIRONMENT DATE:SEPTEMBER 11, 2006 CMR: 344:06 SUBJECT:STATUS REPORT ON LANDSCAPING OF DOWNTOWN NORTH TRAFFIC CIRCLES RECOMMENDATION This is an information report. No Council action is requested at this time. BACKGROUND On November 14, 2005, the City Council conducted a public hearing on the permanent retention of the second Downtown North traffic calming trial project. The trial traffic calming project consisted of three traffic circles and two speed tables within the neighborhood, a street closure on Palo Alto Avenue, and morning and afternoon commute period turn restrictions from Alma and Middlefield onto Hawthorne and Everett Streets (see Attachment A). The Council voted to make the installations permanent and directed staff to return to Council with (1) options for the installation of landscaping in the traffic circles, and (2) a feasibility study for non-vertical measures to increase vehicular and pedestrian safety around Johnson Park. During the Council discussion of landscaping of the traffic circles, Council members requested that staff discuss the issue of landscaping, including potential participation by the neighborhood, with neighborhood representatives before returning to Council. (Refer to Attachment B, Council meeting minutes). This report responds to the Council assignment with regard to landscaping of the traffic circles; Transportation Division staff will return with a separate report on the safety measures around Johnson Park. DISCUSSION During the spring, Community Services staff held discussions with representatives of the Downtown North Neighborhood Association (DTNNA) regarding maintenance of the traffic circles. DTNNA agreed to take responsibility for maintenance of the any planted landscaping in the traffic circles once the landscaping and irrigation were installed by the City. Subsequent to these preliminary discussions with the neighborhood, Public Works Engineering staff prepared a cost estimate for the irrigation, landscaping and construction of the three permanent traffic circles. The 2007 cost estimate to complete the project is $250,000. This includes the following elements: CMR:344:06 Page 1 of 3 Item Construction (@ $65,000 per circle) Contingency @ 15% Testing/inspection @ 3% Misc. Expenses @ 1% Escalation to mid-2007 @ 7% Total Construction Cost Estimated Cost $195,000 $30,000 $6,0O0 $2,000 $14,000 $247,000 This estimate exceeds the remaining balance of $57,000 in the Downtown North project budget. There is no identified funding source for the $190,000 of additional funds that would be required to complete the landscaping of the permanent traffic circles. Staff believes that the available funding will be sufficient for the installation of river-rockihardscape infill of the traffic circles. Given the magnitude of the cost, staff did not consult further with the DTNNA about having the neighborhood fund the project. Staff intends to proceed with the hardscape installation unless directed otherwise by the City Council. POLICY IMPLICATION The Downtown North traffic calming plan is consistent with Comprehensive Plan policies and programs related to neighborhood streets, including Policy -33: Keep all neighborhood streets open unless there is a demonstrated safety or overwhelming through traffic problem and there are no acceptable alternatives, or unless a closure would increase the use of alternative transportation modes. ENVIRONMENTAL REVIEW On March 22, 2004, the City Council approved Resolution No. 8415 adopting a Mitigated Negative Declaration (MND) for the Modified Mixed Measure Plan, which included the three traffic circles components of the Second Trial Downtown North neighborhood traffic calming plan. The adopted MND covers the retention of the second trial project and the additional project elements including hardscape for the traffic circles. No further environmental review is needed at this time. PREPARED BY: Gayle Lil~ns, Transportation Manager APPROVED BY:kMi Assistaiat Director, Public Works CMR:344:06 Page 2 of 3 CITY MANAGER APPROVAL: City Manager ATTACHMENTS A. Map of Second Downtown North Traffic Calming Plan B. Minutes from the City Council meeting of November 14, 2005 COURTESY COPIES Dan Lorimer LaNell Mimmack Mike Liveright Joshua Mogal CMR:344:06 Page 3 of 3 ATTACHMENT A MIODLEFIELD I MIDDLEFIELD ROAD 7-10A~7-10 Bike Bridge . KEY I~1 Existing Stop Sign [] Speed Table ~ Bulbout Pair (~) Traffic Cimle [] Street Closure L~~Johnson Bike Bridge F.~;;~ ALM~STRE~ SOUTHERN PACIFIC RAILRO BRYANT 8TRF.E’r SECOND TRIAL PlAN DOWNTOWN NORTH TRAFFIC ~" ~~OUTHERN PACIFIC RAJLROAD Existing 7-10 ’AM 7-10 AM3-6 PM 3-6 PM ATTACHMENT B Minutes of City Council Meeting, November 14, 2005 PlOTION PASSED 8-1 for Item No. 5, Freeman no. Director of Community Services Richard James spoke regarding the community garden. He said all garden fees would be frozen with everyone paying .the same amount as in the previous year. Staff had begun discussions with the gardeners. The item would come before the Parks and Recreation Commission (PARC) in December for review and recommendations. Staff’s goal was to keep the community garden a quality and sustainable program while reducing fees for the gardeners. Council Member Morton said he understood the PARC meeting for December had been cancelled. Mr. James said the PARC’s regular meeting had been cancelled and rescheduled for December 27, 2005. ’ Council Member Freeman spoke regarding her "no" vote on Item No. 5. She said staff did not initiate a Request for Proposal (RFP), but used information from the City of San Bernardino. She recommended future assurance of open-bidding after the current contract was let. PUBLIC HEARINGS o Public Hearing: Consideration of Recommendations of Staff and the Planning and Transportation Commission to Approve the Permanent Implementation of the Second Downtown North Trial Traffic-Calming Plan. The Recommended Plan Includes Traffic Circles on Everett at Emerson, Everett at Webster, and Hawthorne at Cowper; Speed Tables on Hawthorne Near High and on Palo Alto Avenue Between Alma and Emerson; Right Turn Restrictions Between 7 a.m. and 10 a.m. from Middlefield onto Hawthorne and Everett; and Left Turn Restrictions Between 7 a.m. and 10 a.m. and 3 p.m. and 6 p.m. from Alma onto Hawthorne and Everett Council Member Beecham stated he .would not participate in the item due to a conflict of interest because his residence was within 500 feet of the property. Acting Chief Transportation Official Gayle Likens said in May 2004, the Council directed staff to remove most of the elements of the first Downtown North Trial Plan, which included a number of street closures. The second Trial Plan began in September 2004, and incorporated less restrictive measures in an "open streets" plan composed of traffic circles, speed tables and turn restrictions from the major arterial streets. Staff completed the evaluation of the second trial, conducted a postcard survey of the residences in the Downtown 11/14/o5 6 North neighborhood, and held a public meeting with residents of the study area. The Planning and Transportation Commission (P&TC) and staff recommended the Council hold a public hearing regarding the results of the second Downtown North Traffic Calming Trial, and approve the permanent retention of the second Trial Plan with the exception of landscaping the traffic circles with plant materials, as it would add to the unfunded maintenance backlog of the Public Works and Parks staff. The P&TC included other recommendations, as outlined in Attachment B of the staff report (CMR:427:05). The second Trial Plan reduced cut-through traffic by 75 percent, maintained an acceptable Level of Service D (LOS-D) at signalized intersections, vehicular speeds fell by 1.7 miles per hour to below 25 miles per hour on residential streets, emergency services response times were not exceeded due to the new traffic calming measures, and no other service providers reported any impacts. The overall response from neighbors in Downtown North showed a 77 percent support for retention of the second Trial Plan for traffic calming measures. Planning and Transportation Commission Chair Pat Burt said the P&TC expressed strong support for the overall impact of the Trial Plan. There was significant outcome from measures that reduced the speed and improved the safety of the neighborhood without having a complete closure of streets in the neighborhood. The only recommendation the P&TC and staff differed on was the addition of landscaping the traffic circles. The P&TC believed modest landscaping that did not interfere with visual sight lines was an important addition. The P&TC did not have an opportunity to comment on the cost impacts cited in the staff report (CMR:427:05). Mayor Burch declared the Public Hearing open at 7:50 p.m. Ed Glazier, 255 Everett Avenue, expressed his belief that too much time and money had been spent on the project. Janice Hough, 189 Bryant Street, said although she would be happy to see the traffic circles removed, it was a compromise solution and it worked. Joe Durand, 275 Hawthorne Avenue, applauded the success of the second Downtown Trial, and asked the Council to make it permanent. Tricia Dolkas, 412 Everett Avenue, asked the Council to evaluate the possibility of native landscaping in the traffic circles. Sara Benson, 245 Emerson Street, expressed support for the second Downtown Trial. 11/14/05 7 Pat Markevitch, 231 Emerson Street, said she would like to see the traffic circle at the intersection of Everett Avenue and Emerson Street removed in the interest of pedestrian and vehicle safety. Beth Guislin, 225 Middlefield Road, asked the Council to first analyze the traffic issues on Middlefield Road between Lytton and Palo Alto Avenues, and then recommend a solution. Stephanie Munoz, 101 Alma Street, urged the Council to put speed tables on Palo Alto Avenue. John Guislin, 225 Middlefield Road, said the City put in place a plan that initially included multiple street closures while ignoring Policy T-33 of the Comprehensive (Comp) Plan. He urged the Council to take a look at the heavy traffic burden on Middlefield Road and Lytton Avenue because of the diversion from Plan Two. Steven Fram, 614 Everett Avenue, expressed support for the second Downtown Trial because of the reduction in cut through traffic and the safety of the neighborhood for children. Ken Hake, 575 Everett Avenue, urged the Council to adopt the permanent implementation of the second Downtown Trial, with a wider traffic circle at Everett Avenue and Webster Street. Dan Lorimer, 465 Hawthorne Avenue, expressed support for the retention of the second Downtown Trial. He asked the Council to consider putting traffic circles at intersections, surrounding Johnson Park. Steve Kutner, 275 Hawthorne Avenue, urged the Council to approve the current Trial Plan, consider reducing some restrictions and to not add any new measures. Erika Enos, 2110 Columbia Street, urged the Council to adopt the permanent implementation of the Trial Plan, and allow for landscaping in the traffic circles either by the City or the neighbors. Ann Gilas, 459 Hawthorne Avenue, urged the Council to accept the Trial Plan even though more stringent measures where not in place. James Markevitch, 231 Emerson Street, expressed support for the second Downtown Trial Plan. Richard C. Brand, 281 Addison Avenue, recommended the Council look at moving the stop line four or five feet back from the point of the intersection. 11/14/05 8 Mayor Burch declared the Public Hearing closed at 8:12 p.m. Council Member Morton expressed concern about the traffic circle at Emerson Street and Everett Avenue, and asked whether its removal would have a major impact. Director of Planning and Community Environment Steve Emslie said staff had a plan in place that worked, and any major changes to add or delete devices was strongly opposed. Council Member Morton asked whether staff had any objection to having the traffic circles landscaped by the neighbors. Mr. Emslie said no. Council Member Morton asked whether the addition of an advisory committee that allowed staff to explore the possibility of landscaping by the neighbors was acceptable. Assistant City Manager Emily Harrison said staff would prefer to come back to Council with a plan after having talked to the neighbors. Council Member Morton said he understood there was still a concern about Johnson Park. He asked whether staff would come back and recommend a speed table on either side of the park if they believed it was better than a stop sign. Mr. Emslie said yes. I~OT:IOl~l: Council Member Morton moved, seconded by Kishimoto to approve the following action: Conduct a public hearing regarding the results of the second Downtown North traffic calming trial project; and Approve the permanent retention of the second Downtown North Traffic Calming trial project, with additional work .outlined in this report under the recommendation of Board/Commission Review and Recommendations except for letter~"a". Furthermore, to have staff return after a discussion with neighbors about landscaping the traffic circles. Vice Mayor Kleinberg asked whether all of staff’s recommendations were being included in the motion. Council Member Morton said he was recommending everything included in Attachment A of the staff report (CMR:427:05). 11/14/05 9 Vice Mayor Kleinberg said it was unclear what the motion entailed. Council Member Morton asked whether Attachment A highlighted the presentation made by staff. Ms. Harrison said staff only disagreed with the P&TC on the additional cost for landscaping the traffic circles. Council Member Morton said the motion would include the recommendations from the P&TC and staff. Council Member Mossar said staff’s recommendation was not to landscape the traffic circles. Council Member Morton said there would be an attached condition for staff to discuss the issue of landscaping with the neighbors. Council Member Mossar said the motion did not include the condition the traffic circles would be landscaped. If after discussions with the neighbor’s, staff felt there was there was no way to do it, the traffic circles would remain untouched. Council Member Morton said the basic measures that appeared on Attachment A, included the Board/Commission recommendations plus the direction to staff to discuss with the neighbors landscaping of the traffic circles. Council Member Kishimoto clarified her understanding of the motion was to adopt the P&TC recommendations with the exception of "letter a", with staff returning to Council after a discussion with neighbors about landscaping the traffic circles. Council Member Morton said that was correct. He expressed his thanks to the community for their patience in working out a solution. Council Member Kishimoto congratulated the neighborhood and staff for coming together with a viable traffic calming plan. SUBST:ITt~TE ~IOT:IOI~I; Vice Mayor Kleinberg moved, seconded by Mossar, to make permanent the installations for the second Downtown North Traffic Calming trial project with no other modifications except the following: 1.Staff is to return with options for installation of landscaping in traffic circles; and 2.Staff is to return with feasibility study for non-vertical measures for increased vehicular and pedestrian safety in Johnson Park. 11/14/05 10 Vice Mayor Kleinberg said given the overwhelming success of the second Trial, she believed the neighborhood was safer. Some of the recommendations from the P&TC were intuitive things, such as crossing the street at right angles, and the exemption of emergency vehicles from the turn prohibition signs. She suggested applying the additional $60,000 towards enhancing the traffic circles. Council Member Mossar said the Council set as its priority for traffic calming safer school routes, and perhaps the additional $60,000 could be spent on other such projects. She was opposed to continuing the study and evaluation process. ORIGINAL MOTION WITHDRAWN BY MAKER Council Member Ojakian asked what would happen to the replacement of a single handicapped ramp with two perpendicular handicapped ramps, if the motion passed as amended. Mr. Emslie said the single handicapped ramp would become permanent. Council Member Ojakian asked what the impact would be. Mr. Emslie said the concern for having additional handicapped ramps in the direction of the crosswalk rather than in the center of the intersection was for safety; however, the identified reduction in speeds and positive benefits of the measures would offset the need to move forward immediately. Staff would continue to monitor the situation and bring it back to Council if needed. Council Member Ojakian clarified in staff’s opinion changing the trajectory of how the handicapped ramps worked would not cause ~a safety issue. Mr. Emslie said that was correct. Council Member Ojakian said pedestrian and vehicular safety in the vicinity of Johnson Park was a continual issue. He asked if in staff’s opinion the area was safe for children to use. Mr. Emslie said staff did not believe additional vertical devices were necessary in the area to maintain the degree of safety. Council Member Ojakian expressed support for the motion, and believed it was important to do something about landscaping the traffic circles. He also had a concern about safety around Johnson Park and felt it should be addressed. 11/14/05 Ii AMENDMENT: Council Member Kishimoto moved, seconded by Ojakian, to evaluate the desirability and feasibility of additional non- vertical measures for pedestrian and vehicular safety in the vicinity of Johnson Park. Vice Mayor Kleinberg asked whether there was any data to suggest a problem of excessive speeding around Johnson Park, which made it particularly unsafe. Council Member Mossar believed the issue of safety around Johnson Park had been looked at carefully during the first and second Downtown Trial. Ms. Likens said staff looked at accidents in the vicinity of Hawthorne Avenue and Waverley Street and found only one reported accident in the past six years. It was a two vehicle accident and no pedestrians were involved. Staff had not prepared a focused study of the Johnson Park area. Vice Mayor Kleinberg clarified there was no specific data to confirm the need for anything special at Johnson Park at the present time. Mr. Emslie said that was correct. Vice Mayor Kleinberg said she would prefer the motion to remain unchanged, but for Council to provide direction for staff to study safety around all the City parks. Council Member Kishimoto said she would envision striping the corners around Johnson Park to create a safer environment. AMENDMENT PASSED 4-3, Cordell, Kleinberg, Mossar no, Morton absent, Beecham not participating. AMENDMENT: Council Member Kishimoto moved to consider replacement, as feasible, of the single handicapped ramp at each corner of intersections containing traffic circles with two perpendicular (to the street being crossed) handicapped ramps. AMENDMENT DYED FOR LACK OF SECOND Council Member Freeman stated for the record the traffic circle at Everett Avenue and Webster Street was smaller than the other traffic circles because of the smaller intersection and to meet the requirement for emergency vehicle access. She asked for the City’s cost to maintain the picket fences at Middlefield Road and Palo Alto Avenue and if they could be removed. 11/14/05 12 Mr. Emslie said the incremental cost of maintaining the fences was much less than landscaping and they could be removed. Council Member Freeman asked for the cost and whether money could be moved from picket fence painting to landscaping the traffic circles. Mr. Emslie said he believed the cost was negligible. Council Member Freeman asked whether there were safety issues related to them being removed. Mr. Emslie said no. Council Member Freeman asked whether the street closure at Palo Alto Avenue and Middlefield Road was included in the landscaping idea. Mr. Emslie said it only included the traffic circles. Council Member Freeman asked whether the picket fences aided in motorists’ understanding of the road closure. Mr. Emslie said yes. On Palo Alto Avenue, it increased the visibility of the street closure. Council Member Freeman asked whether other picket fences existed in Downtown North. Mr. Emslie said yes. There was one on Waverley Street near Johnson Park. ’ Council Member Freeman asked whether they were proven to be effective safety measures. Mr. Emslie said they did not provide closure or other diversion, but were an adjunct to the street. AMENDMENT-" Council Member Freeman moved to remove picket fences except for the ones located at Palo Alto Avenue and Middlefield Road. Council Member Mossar clarified there had not been any discussion of whether the picket fences would remain or be removed. Mr. Emslie said the motion included a proposal to landscape the traffic circles, but did not include the picket fences. 11/14/05 13 Vice Mayor Kleinberg said she would not support the amendment. The motion was a balanced mutually-agreeable compromise. Council Member Freeman said the removal of the picket fences was a cost savings measure to reduce maintenance and provide more funds for landscaping the traffic circles. AMENDMENT FAILED FOR LACK OF A SECOND Council Member Cordell expressed appreciation to the Council in voting to take down the street closures after the First Trial. She and her colleagues believed the community, although divided, would come together. She asked her colleagues to end the Second Trial by making the traffic calming measures permanent. She expressed support for the motion. MOTION PASSED AS AMENDED 8-0, Beecham not participating. ORDINANCES AND RESOLUTIONS Ordinance Ist Reading entitled "Ordinance of the Council of the City of Palo Alto Adding Section 22.08.331 of Chapter 22.08 [Park Dedications] of Title 2 of the Palo Alto Municipal Code to Dedicate a 13.27 Acre Parcel of Land [Parcel 3] Formerly Known as the Arastradero Gateway Preserve" Herb Borock, P.O. Box 632, said it was inappropriate to include Arastradero Road in the park dedication because along Page Mill Road stood Montebello Preserve on one side and Los Trancos Road on the other. He believed the item was not properly agendized since the wording requesting to initiate a zone change was omitted from the agenda title, although it was mentioned in the staff report (CMR:419:05). MOTION: Council Member Mossar moved, seconded by Kleinberg, to: 1) introduce an ordinance (Attachment A of CMR:419:05) for Ist reading reserving 13.27 acres of land formerly owned by the Peninsula Open Space Trust and purchased by the City of Palo Alto on September 31, 2005, for park, recreation and/or conservation lands and uses; and 2) direct Planning staff to initiate a zone change from Open Space to Public Facilities. Council Member Mossar said approval of the motion was the next step in ensuring the lands were protected. She expressed support for the motion. Council Member Morton expressed support for the motion. 11/14/05 14