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c�<,FORN'P City Council Staff Report
February 23, 2021
Agenda Item No. 18
TO: HONORABLE MAYOR AND MEMBERS OF THE CITY COUNCIL
FROM: David A. Webb, Public Works Director - 949-644-3311,
dawebb@newportbeachca.gov
PREPARED BY: Brad Sommers, Principal Civil Engineer
bsommers@newportbeachca.gov
PHONE: 949-644-3326
TITLE: Oceanfront Boardwalk Update
ABSTRACT:
On September 22, 2020, the City Council reviewed potential calming measures and
regulations related to the Oceanfront Boardwalk. That evening, the City Council also
approved revisions to Newport Beach Municipal Code Section 12.54 (Oceanfront
Boardwalk Safety Program) to ensure the stated regulations apply to all Oceanfront users,
including electric bicycles, and increased fees related to violations of the regulations.
Additionally, the Council requested staff return with an update on four related items:
1. The Castaways Trail Rumble Bump test project;
2. Additional research for possible bicycle speed calming devices;
3. The Oceanfront Boardwalk Improvement Project; and
4. Consideration of Pedestrian Only restrictions during summer weekends.
RECOMMENDATION:
a) Determine this action is exempt from the California Environmental Quality Act (CEQA)
pursuant to Sections 15060(c)(2) and 15060(c)(3) of the CEQA Guidelines because
this action will not result in a physical change to the environment, directly or indirectly;
and
b) Receive and file staff report, as well as provide any further direction.
FUNDING REQUIREMENTS:
There is no fiscal impact related to this item.
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Oceanfront Boardwalk Update
February 23, 2021
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DISCUSSION:
On September 22, 2020, the City Council reviewed potential calming measures and
regulations related to the Oceanfront Boardwalk. After hearing public comment and
having a detailed discussion, the City Council approved revisions to Newport Beach
Municipal Code Section 12.54 (Oceanfront Boardwalk Safety Program) to ensure the
stated regulations apply to all Oceanfront users, including electric bicycles, and increased
fees related to violations of the regulations. Additionally, the Council asked staff to return
with an update on four related items. The requested information is as follows.
1. Update on the Castaways Rumble Bump test project
In September 2020, Public Works staff designed and installed three sets of rumble bumps
on the Castaways Trail as a test project to evaluate and determine their effectiveness as
a possible bicycle speed calming device for use on pedestrian and cycling trails.
Since deployment, staff has observed many types of users travelling over the rumble
bumps and has worked to engage both residents and users regarding the installation.
Through this effort, staff has noted the following:
1. The community appreciates installation of the devices and the City of Newport
Beach's (City) effort to improve the trail;
2. Staff has not received any complaints related to the deployment and has not
observed issues with pedestrian or small -wheeled users;
3. Rumble bumps increase awareness by creating a contrasting marking on the
pavement along with a vibration that can be felt by wheeled users;
4. Skateboards and other hard -wheeled devices create notable noise.
5. Bicycles with larger volume tires, such as beach cruisers and most electric bikes,
"feel" the rumble bumps less than road bikes with narrow higher -pressure tires
and therefore are less likely to slow for them; and
6. Cyclist speeds were not consistently slowed by the deployment.
Although the test deployment does not consistently cause cyclists to slow down, rumble
bumps may be useful to increase awareness where trail characteristics change. When
considering them for use on the Oceanfront Boardwalk, sound may likely be an issue due
to the close proximity of adjacent homes. At this time, staff plans to continue to monitor
the deployment of these rumble bumps, and although they may not be a good fit for use
in close proximity to residential units along the Oceanfront Boardwalk, there may be some
areas adjacent to commercial properties (such as near either of the public piers) that
could be considered for potential future implementation.
2. Continued research for bicycle speed -calming devices
During the September meeting, staff noted the lack of any examples of speed -calming
devices for use on non -vehicular, pedestrian and cycling trails. Additionally, staff
discussed the challenges of adapting devices created to slow motor vehicles on
roadways, such as speed bumps, due to possible adverse impacts to the various
pedestrian, cycling and small wheel trail users. At the conclusion of the discussion,
Council requested staff continue looking for bicycle speed -calming devices that may be
appropriate for the multi -use trail.
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Oceanfront Boardwalk Update
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Since the last meeting, staff conducted a great deal of research and outreach including
the following:
1. In person/on-bike tour of many multi -use and beachfront trails within Orange, San
Diego and Los Angeles Counties;
2. Additional discussions with transportation professionals and representatives from
several other coastal agencies;
3. Posted/discussed the topic on the International Institute of Transportation
Engineers online forum; and
4. Continued discussions with the community.
With the above personal observations and discussions with transportation professionals
and experts from across the United States and Canada, it was determined that:
1. All trails, including their physical layout, adjacent land use, users and uses are
unique;
2. Most agencies have received similar complaints related to poor user behavior on
their multi -use trails;
3. All agencies have installed various signage/striping strategies in response to
community concerns in an effort to improve behavior and compliance;
4. None of the responding agencies have installed permanent "vertical" traffic calming
devices due to the lack of accepted devices designed for installation on multi -use
trails and concern of creating a hazard; and
5. Most respondents noted separating pedestrians and wheeled travel is the
preferred strategy through splitting and/or widening multi -use trails where able.
With these findings, and the lack of adaptable bicycle speed calming devices, staff will
continue searching for new and innovative items that may be applicable to the
Oceanfront.
3. Oceanfront Boardwalk Improvement Project
The Oceanfront Boardwalk Improvement Project was developed through many years of
conversations and requests from the community. Improvements to the Oceanfront
Boardwalk including addressing congestion, user conflicts, speed, resident/boardwalk
interface and other related boardwalk issues have been the main topics of these
discussions and requests. The goal of the project would be to develop larger -scale
solutions through public outreach and by utilizing specialized consulting services for the
following three facilities:
1. Oceanfront Boardwalk between 15th street and 3611 Street — Consider
improvements to the existing facility and possibly develop concepts to separate
pedestrian and wheeled travel through potential widening of the boardwalk or
creation of a second trail;
2. Oceanfront Parking Lot — Consider improvements to maintain the parking lot use
while looking for alternate routes for Oceanfront traffic to travel through or around
the parking lot; and
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3. McFadden Plaza — Revitalize the plaza, recognizing the unique nature of the area,
surrounding businesses, and people congregating and passing through the plaza.
The Oceanfront Boardwalk Improvement Project was initially scheduled to begin prior to
the summer of 2020, but funding was deferred due to the COVID-19 crisis. Prior to placing
this project on hold, staff completed the Request for Proposal process leading to the
selection of a consulting firm that specializes in this type of work.
Currently, project funding is proposed to be included in the Fiscal Year 2021-22 CIP
budget. Should the funding be included in next year's CIP, staff plans to request City
Council award of a consulting services contract in June, to ensure the project team can
collect the necessary data and make observations during the peak summer conditions.
4. Consideration of Pedestrian Only restrictions during summer weekends
Noting the primary community concern relates to speeding cyclists, Council requested
consideration of restricting the Oceanfront to only allow pedestrians (travelling by foot)
and those with disabilities requiring wheeled transportation during summer weekends
between the Memorial Day and Labor Day holidays.
Several follow-up discussions with the community and Peninsula homeowner association
representatives revealed strong opposition to consideration of removing wheeled travel,
including bicycles, from the Oceanfront for any period of time. Residents noted riding
bicycles on the Oceanfront is essential and provides them and visitors the option to travel
the Peninsula without using their vehicles and to avoid congestion and parking issues.
Due to the lack of support from the community, staff recommends removing consideration
of implementing Pedestrian Only restrictions on the Oceanfront Boardwalk from further
consideration.
Oceanfront Boardwalk Ambassador Pilot Program
Turning to another means of looking to decrease bicycle speeds, user conflicts or other
poor behavior by users, staff would like to provide an update on the Police Department's
"Oceanfront Boardwalk Ambassador Pilot Program." This program was recently rolled
out and utilizes a private contractor, Contemporary Services Corporation (CSC), who are
providing two 2 -person teams, including a supervisor, to patrol the Oceanfront Boardwalk
on foot on Saturdays and Sundays during daylight hours (10AM-6PM). These two
Ambassador teams are set up to be highly visible, approachable, and professionally
uniformed (but unarmed) and will be patrolling the Oceanfront Boardwalk between E
Street to 36th Street, including the plaza areas of the Balboa and Newport Piers.
The pilot program's focus in Newport Beach is to improve quality of life for
residents/visitors to the peninsula by ensuring compliance with City municipal codes and
boardwalk safety rules as well as providing friendly advice, guidance, and directions to
visitors in need of assistance.
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The first patrols of these contracted Ambassador teams started on Saturday, 2/13/21 and
Sunday, 2/14/21. The teams and supervisory staff reported generally positive feedback
from their interactions with the public with this new program roll-out. NBPD staff will be
providing direct operational support and oversight for the Ambassadors team and will
provide further periodic program status and input back to the City Council as time goes
on.
ENVIRONMENTAL REVIEW:
Staff recommends the City Council find this action is not subject to the California
Environmental Quality Act (CEQA) pursuant to Sections 15060(c)(2) (the activity will not
result in a direct or reasonably foreseeable indirect physical change in the environment)
and 15060(c)(3) (the activity is not a project as defined in Section 15378) of the CEQA
Guidelines, California Code of Regulations, Title 14, Chapter 3, because it has no
potential for resulting in physical change to the environment, directly or indirectly.
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The agenda item has been noticed according to the Brown Act (72 hours in advance of
the meeting at which the City Council considers the item).
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