10A DATE: October 5, 2016 TO: PREPARED BY: SUBJECT: Pedestrian and Bicycle Advisory Committee Kevin Colin, Deputy Planning Manager Curt Bates, City Engineer Discussion and Provide Comments, Associated with Bicycle and Pedestrian Facilities, for Consideration to the Planning Commission for the North River Apartments Project ( Project No. PLSR-15-0015) RECOMMENDATION It is recommended that the Pedestrian and Bicycle Advisory Committee (PBAC) review the project and provide comments associated with bicycle and pedestrian facilities. BACKGROUND Location The project site is an approximate 3.92-acre property located at the intersection of Petaluma Blvd North and Oak Street. The site extends easterly from Petaluma Blvd North to the Petaluma River along the Hunt & Behrens property and in proximity to the recently constructed Lynch Creek Trail Bridge. The site is bifurcated by an existing railroad right-of-way with land on either side undeveloped and consisting of ruderal vegetation. See Figure 1 below and Sheets A0.10 and C2.1 of Attachment A for imagery of the project site and vicinity. Existing pedestrian circulation in the vicinity of the project site is limited to Petaluma Blvd North and the Lynch Creek Trail. At Petaluma Blvd North, vehicles are accommodated in one travel lane in each direction with a shared center turn lane. Public sidewalks are present on both sides with an un-signalized crosswalk at the north side of Oak Street. Existing bus stops are located approximately 200 feet to the north and adjacent to Penry Park to the south. The Lynch Creek Trail extends westerly from the vicinity of Prince Park (in east Petaluma) to the planned extension of Water Street North (in downtown Petaluma). Project: Summary The proposed project consists of a request to construct two apartment buildings ranging between three to five stories in height and including a total of 184 units. The project includes the extension of Oak Street and Water Street North (within its boundaries), a new Class I multi-use path along the Petaluma River, and an emergency vehicle access roadway to the vicinity of Washington Street. A total of 276 off-street (1.5 per unit) and twenty-three (23) on-street vehicle Page 1
parking spaces are provided. Ninety-three (93) bicycle parking are provided on-site within secure rooms dedicated to this purpose. Additional circulation features are described below. Planned Pedestrian and Bicycle Facilities Figure 1 Project Location Four separate documents addressing the topic of planned pedestrian and bicycle facilities apply to the project site. These include: (1) the General Plan (Figure 5-2, Proposed and Existing Bicycle Facilities); (2) the Central Petaluma Specific Plan (and SmartCode); (3) Petaluma River Access and Management Plan; and (4) City Council Ordinance No. 2216 N.C.S. (An Ordinance Establishing a Precise Plan Line for the Reservation of Future Rights-of-way for Water Street North Between Washington Street and Lakeville Street): General Plan (Proposed and Existing Pedestrian and Bicycle Facilities) General Plan Figure 5-2 (Proposed and Existing Bicycle Facilities) (Figure 2 below) shows the planned extension of both Class I and Class II facilities across the project site, as follows: Oak Street: The easterly extension of Oak Street to the Petaluma River includes a Class II facility. Water Street North: The southerly extension of Water Street North from Lakeville Street to the intersection of Oak Street includes a Class II facility. Petaluma River: A Class I (Off-Street) facility is shown crossing the Petaluma River at the approximate intersection with Oak Street and extending southerly to Washington Street. Note: the extension of a Class II bike lane east of Petaluma Blvd North is intended to be carried Page 2
over the Petaluma River via a Copeland Street bridge (and road extension to Washington Street) that is no longer being pursued. Figure 2 General Plan Figure 5-2 (Proposed and Existing Bicycle Facilities) Figure 3 SmartCode Section. 5.10.100 (Thoroughfare Regulating Plan) Page 3
Central Petaluma Specific Plan The Central Petaluma Specific Plan s SmartCode provides development standards for both the private and public realm. With regard to the public realm, the SmartCode provides a detailed set of design standards which are keyed to a Thoroughfare Regulating Plan that identifies existing, required and recommended street types. Figure 3 above identifies a required Commercial Street with Parallel Parking corresponding to the easterly extension of Oak Street from Petaluma Blvd South and north/south extension of Water Street North between Lakeville Street and to a point approximately 500 feet to the south of the project. See cross-section for the Commercial Street with Parallel Parking at Attachment B. The SmartCode also identifies the extension of this street type as a looped roadway easterly from Water Street North along the north and east boundary of the project site, along the Petaluma River, and then back to Water Street North within the boundary of a separate abutting parcel to the south. Petaluma River Access and Management Plan The Petaluma River Access and Management Plan was prepared prior to the planning documents mentioned above and, as a result, shows slightly different alignments. For the project site, it depicts a Combined Pedestrian & Bicycle Trail along the Petaluma River (and connecting to the now constructed pedestrian bridge over the river) (Figure 4 below). Note: this plan envisioned a westerly river trail route around the railroad right-of-way/lakeville intersection. Page 4 Figure 4 River Greenway & Access Plan (Lakeville Industrial Segment)
City Council Ordinance No. 2216 N.C.S. This ordinance serves a simple purpose of providing notice of the city s intent to construct Water Street North along a surveyed alignment between Washington and Lakeville Street. As proposed, the project aligns with the requirement of this ordinance within the boundaries of its site. Project: Circulation Features The project includes the extension of Oak Street easterly from Petaluma Blvd North and Water Street North within the site boundaries. In-lieu of the SmartCode s planned loop roadway easterly of Water Street North, the project accommodates access for pedestrians and bicyclists along a Class I multi-use path that coincides with a drive aisle segment providing access to a parking garage as well as an emergency vehicle access (EVA) roadway (terminating at a hammerhead turnaround near the river) (Figure 5 below). Figure 5 Proposed Site Plan The project includes a second EVA roadway from its southern boundary to Washington Street. This EVA roadway would occur across off-site private property until the vicinity of the Brewster s Garden project now under construction. From that point to Washington Street, public Page 5
right-of-way has already been dedicated and/or acquired. At the project site s southern boundary with the EVA, access would be limited to emergency vehicles through a gate and pedestrian access would be prevented by a barricade. The project also accommodates a Pocket Plaza at the southeast corner of the site bordering the Petaluma River and the existing city-owned pump station. The plaza is shown as a hardscape area flanked by landscaping and seating areas. A preliminary rendering of this area (Sheet LA5 of Attachment A) illustrates a proposal to install a unique bike parking structure. At Petaluma Blvd North, the project includes two new crosswalk segments at the intersection with Oak Street. The submitted traffic impact study also identifies the need for a signalized intersection here. To the east (within the project site), crosswalks are included at the intersection of Oak Street and Water Street North as well as one crosswalk at Water Street North in the approximate middle of each apartment building. DISCUSSION As proposed, the project reconciles the requirements of four planning documents by providing pedestrian and bicycle facilities compliant with the intent of each. Sidewalks and Class III facilities are extended along new public street segments; a Class I facility extends along the northern property boundary with Hunt & Behrens, and then continues along the Petaluma River. The project also improves pedestrian safety at Petaluma Blvd North through the installation of two new crosswalk segments at a new signalized intersection. Staff is also supportive of the project s exclusion of the SmartCode s planned Commercial Street with Parallel Parking looping east of the Water Street North. Reasons supporting this include: (a) retention of a planned Class I facility; (b) constraint caused by existing city-owned pump station; (c) inability to address broader existing or future vehicle circulation needs (e.g., close existing gap in network, ability to improve efficiency and/or volumes); and (d) significant loss in development potential resulting from a 60-foot right-of-way dedication (e.g., corresponding reduction in housing units in proximity to mass transit). However, the proposed termination of a Class I facility at the southern boundary with the cityowned pump station presents a missed opportunity to integrate the project site and neighborhoods to the west into an important citywide facility. Presently, the Lynch Creek Trail provides a car-free pathway from the eastern limits of Petaluma into downtown. Closing the approximate fifty (50) foot gap by connecting the Class I facility to the existing bridge over the Petaluma River would open an important new access point, including a new safe route to school for students of McKinley Elementary School (at 100 Ellis Street). As General Plan Policy 5-P-4 directs, New development and/or major expansion or change of use may require construction of off-site mobility improvements to complete appropriate links in the network necessary for connecting the proposed development with existing neighborhoods and land uses. Many other additional General Plan policies apply in this instance and state, as follows: Policy 5-P-15 Implement the bikeway system as outlined in the Bicycle and Pedestrian Plan, and expand and improve the bikeway system wherever the Page 6
Policy 5-P-20 Policy 5-P-22 Policy 5-P-25 Policy 5-P-27 Policy 5-P-30 Policy 5-P-31 opportunity arises. Ensure that new development provides connections to and does not interfere with existing and proposed bicycle facilities. Preserve and enhance pedestrian connectivity in existing neighborhoods and require a well-connected pedestrian network linking new and existing developments to adjacent land uses. Establish a network of multi-use trails to facilitate safe and direct offstreet bicycle and pedestrian travel. At the minimum, Class I standards shall be applied unless otherwise specified. Locate connections to Class I facilities from parallel routes along the parcel line of adjoining properties to provide separation from parking lots and buildings; design connections as Class I facilities. Require all new development abutting any public trail to provide access to the trail. Make bicycling and walking more desirable by providing or requiring development to provide necessary support facilities throughout the city. Given the project s substantial change and increase in land use intensity, staff recommends that the project include the installation of a Class I facility that connects to the adjacent, existing pedestrian bridge over the Petaluma River. An easterly alignment for such a path around the existing city pump station is facilitated by public land ownership but presents a design challenge that will require more detailed review. With the closure of that important gap in the planned pedestrian circulation network, the project will be in the best interests of the City and in conformance with the General Plan. Concerning the planned extension of pedestrian facilities south of the project site, staff will present the details of ownership, easements, dedication offers, and on-going projects at the PBAC meeting. Feedback Requests: (a) PBAC is requested to comment on the Class I facilities interface with the project s design features (e.g., drive aisle, EVA, curb cuts) along the north and eastern property boundary. (b) PBAC is requested to comment on the proposed alignment of the Class I facility around the existing city-owned pump station. (c) PBAC is requested to comment on the proposal to bar pedestrian access across the EVA connecting to Washington Street. (d) PBAC is requested to comment on the proposed intersection improvements within and adjacent to the project site. ATTACHMENTS A: Project Plans B: Commercial Street with Parallel Parking Page 7