4/23/2014 Item #10D Page 1

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1 MEETING DATE: April 23, 2014 PREPARED BY: Masih Maher DEPT. DIRECTOR: Glenn Pruim DEPARTMENT: Engineering/PW CITY MANAGER: Gus Vina SUBJECT: STREET IMPROVEMENT STANDARDS RECOMMENDATION: Direct staff to return to the City Council with a resolution codifying function based street design. STRATEGIC PLAN: This item is related to the Transportation Goal of the Strategic Plan. FISCAL CONSIDERATIONS: There is no direct fiscal impact associated with the staff recommendation (option 3). Options 1, 2 and 4 would have little to no cost impacts. If the Council were to select Option 5 then staff would need to develop cost and resource estimates to conduct the required work. BACKGROUND: At the December 4, 2013 City Council Strategic Planning Meeting, Transportation Focus Area Part 2, Council requested that staff identify options for street improvements in connection with new developments in Encinitas. The City Council directed staff to consider community character in selecting street improvement options. In Encinitas, as in virtually all urbanized areas, developers of property are required to satisfy certain conditions in order to offset impacts to infrastructure caused by development. Typical conditions require the dedication of public road rights of way and improvements to the public roads abutting the property being developed. The current adopted City of Encinitas street improvement standards were borrowed from the County of San Diego in the early 1990 s. The standards generally require 50 to 56 feet of right of way which includes 32 to 40 feet of pavement, concrete curb, gutter, and sidewalk. As development has occurred, it has become apparent these improvements are not always compatible with the existing look and character of the established neighborhoods in Encinitas. Construction of curb, gutter and sidewalk in the existing neighborhoods, especially if they were done in isolated increments (islands), has been at times controversial and perceived to degrade the existing neighborhood character. The Encinitas Municipal Code includes provisions for the public to appeal conditions that have been placed upon a development. The City Council is the final appeal authority. 4/23/2014 Item #10D Page 1

2 In 1991 and 1993 Encinitas City Council adopted Special Case Streets located mainly in Cardiff, Old Encinitas, and Leucadia (City Council Resolutions & 93-26). Special Case Streets designation reduced the required right of way width to between 40 and 50 feet from 50 to 56 feet, but did not address street improvement standards. The standard street improvements are intended to provide accommodation for essential functions such as: conveyance for vehicles, pedestrians and bicycles; utilities; parking; storm water quality and drainage. In order to provide these essential functions and make the street improvements more compatible with the existing neighborhood, in 2001 the Engineering Department developed a functioned based street design approach. The function based approach typically requires pavement widening to 24 feet, installation of water quality swale/off street parking and a decomposed granite (DG) pedestrian path (see examples on pages 5, 7, 8, and 14 of Attachment 1). A function based street design approach is generally used for local streets and certain circulation element roads that, due to the existing community character, do not warrant construction of curb, gutter, and sidewalk. The overall purpose of the function based approach is to provide essential public improvements with minimal impacts to the character of the surrounding community. ANALYSIS: Street improvements normally include pavement, parking, sidewalk, drainage, stormwater pollution control, sewer, water and other utilities. Per Municipal Code Chapter 23.36, street improvements are required for new homes or additions of 2,000 square feet or greater. Because Encinitas is more than 90% developed, most developments are reconstruction of existing homes or infill developments. Based on City Council direction, staff has provided the following options for street improvements relative to private developments. These options are presented in more detail in the staff presentation (Attachment 1). 1. Do not require street improvements; 2. Establish an in-lieu fee and assess a fee in lieu of street improvements; 3. Continue the current practice and require function based design for street improvements; 4. Use the existing codes for Public Road Standards and require concrete curb, gutter and sidewalk at all project locations; 5. Direct staff to develop street by street design standards based on the specific community/neighborhood location and the right of way width; The function based street improvement approach has statistically been very successful. Only one function based street design project has been successfully appealed in the last 13 years. On August 15, 2012, City Council overturned Engineering conditions for improvements along the property frontage of 1794 Crest Drive, Case # CDP. The City Council determined that the function based street design approach was out of character with the Crest Drive community. It is staff s recommendation that the City continue the function based approach to street improvements in conjunction with land development projects. If this approach is selected, staff would return with any required code changes and suggested changes to the engineering design standards. ENVIRONMENTAL CONSIDERATIONS: This project, as proposed, complies with the California Environmental Quality Act since it is exempt from environmental review pursuant to Section (B) (3) of the CEQA Guidelines. 4/23/2014 Item #10D Page 2

3 ATTACHMENTS: 1. PowerPoint presentation 4/23/2014 Item #10D Page 3

4 STREET IMPROVEMENT STANDARDS Options for Public Street Improvements 4/23/2014 Item #10D Page 4

5 2 History Strategic Planning Meeting Crest Drive Existing ordinance 4/23/2014 Item #10D Page 5

6 3 Background What is a Street Improvement? Street Improvement Requirements Incremental Developments & Street Improvements Current In-lieu fee 4/23/2014 Item #10D Page 6

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13 10 Options 1. No Street Improvements 2. In-lieu Fees 3. Continue Current Practice: Function Based Design 4. Current Public Road Standards 5. Establish Street Design by Community and ROW Width 4/23/2014 Item #10D Page 13

14 11 Option1 No Improvements Street improvements within public ROW would not be required on any local streets. Highlights Addresses community character Avoids incremental street improvements Opportunity for dedication of right of way Factors to Consider Implementation of complete streets Implementation of safety standards Increase maintenance and improvement costs Fairness Storm water quality 4/23/2014 Item #10D Page 14

15 12 Option 2 - In Lieu Fee This option requires a fee payment in lieu of constructing street improvements. Highlights Addresses Incremental street improvements Can Be Coordinated with CIP City Council Review Factors to Consider Higher Cost Fairness Private encroachments in the right of way Legal Issues 4/23/2014 Item #10D Page 15

16 13 Option 3, Function Based Improvements Improvements based on needed functions Highlights Complete Street Flexibility, community character Provide ROW Edge support Maintenance Factors to Consider Island of Improvements No prescribed/rigid standards Cost of improvements Controversial projects and required CC action Staff discretion 4/23/2014 Item #10D Page 16

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19 16 Option 4 Full Standards Existing Public Road Standard, Muni Code, Curb, Gutter & Sidewalk Highlights Provides necessary functions Easy to maintain Factors to Consider Community Character Islands of Incremental Improvements 4/23/2014 Item #10D Page 19

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21 18 Option 5 Street Design by Location, Community, and ROW Street improvements within the public ROW would be determined by a street by street design assessment. Highlights: Most of highlights outlined under Option 3 City Council approves design, limited need for staff judgment Factors to Consider Timing and expense Flexibility 4/23/2014 Item #10D Page 21

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24 21 Recommendation Select Option 3 Direct staff to codify the current street improvements practice and schedule for future Council adoption 4/23/2014 Item #10D Page 24