HomeMy WebLinkAbout17 - Control of Pacific Coast Highway in Corona del Mar•
AGENDA ITEM 17
TO: Mayor and City Council
FROM: Homer Bludau, City Manager
SUBJECT: Transfer of Control of Pacific Coast Highway in Corona del Mar
from Caltrans to City of Newport Beach
RECOMMENDATION
Adopt a Resolution of the City Council of the City of Newport Beach Requesting
that the California Transportation Commission Support Relinquishment of a
Portion of State Highway Route 1.
BACKGROUND
• The Corona del Mar Business Improvement District (BID) and Residents
Association are working on Vision 2004, a plan for Corona del Mar's centennial.
This plan is being presented at the study session of April 10, and a summary is
attached. The Vision 2004 plan involves major improvements to the Pacific Coast
Highway right -of -way, including median and sidewalk landscaping, decorative
paving on sidewalks and in parking lanes, decorative lighting fixtures, three new
traffic signals, and enhanced pedestrian crossings.
The proposed improvements are a significant departure from Caltrans standards,
and the State would not approve or agree to maintain them. In addition,
Caltrans is less likely than the City to approve activities like outdoor dining and
sidewalk sales, which are important for the commercial "village' atmosphere
envisioned by the plan. Therefore, the BID has been negotiating with State
officials for the relinquishment of this reach of Pacific Coast Highway to
Newport Beach. The City Council considered the BID's proposal for City control
of the highway on February 8, 2000. Council's action is summarized below, and
an excerpt of the minutes is attached.
• Authorize the BID to work with City and Caltrans staffs on the issues (long
term maintenance costs and liability risks to the City) and report back to the
Council.
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• Reserve the right to secure a legislator to sponsor legislation to accomplish •
the relinquishment.
• Direct staff to negotiate with Caltrans a "state of good repair' settlement.
Through the BID's negotiations with Caltrans, it now appears that
relinquishment of the highway is possible. The first formal step of the process is
for the City Council to adopt a resolution of intention to accept control of the
highway. With this action, the highway relinquishment can be added to a
Caltrans bill that already has been introduced in the State Legislature. This
report provides information on the impacts on the City if Caltrans relinquishes
control of the highway. A resolution is attached for the City Council's
consideration.
ANALYSIS
The improvements proposed in the Vision 2004 plan have an estimated cost of
$12 million. The BID is exploring Federal, State and local funding sources, and
hopes not to make a major request of the City General Fund. This report does
not address the improvement costs, but focuses on the long -term maintenance
and liability implications to the City.
Maintenance Costs •
The City currently maintains the sidewalk, curb and gutter, and does street
sweeping, litter control, median landscape maintenance and tree trimming.
These costs would increase with the additional landscaping and decorative
paving proposed in Vision 2004. City control of the highway would add costs
for traffic striping, traffic signage, minor and major street maintenance. The
table on the next page shows actual costs under current conditions, and
estimated costs with City control of the highway, and with City control and the
Vision 2004 improvements. The BID currently pays $9,900 per year for bedding
plants, weeding of tree wells and irrigation; this analysis assumes the BID's
contribution for these items would continue.
These estimates show that the City would have much higher costs in exchange
for taking control of Pacific Coast Highway, and costs would increase more with
the Vision 2004 improvements. The increased maintenance responsibilities
would require the addition of one maintenance worker position in the General
Services Department.
•
FA
Item
Current Cost
Cost with PCH
Control
Cost with PCH and
Vision 2W4
Sidewalk, curb & gutter
$15,000
$15,000
$ 22,500
Traffic striping
6,500
6,500
Traffic signage
5,200
5,200
Traffic signal maint & op
30,000
60,000
Crosswalk light maint.
4,000
Minor street maint.
20,000
30,000
Street resurfacing
50,000
70,000
Tree trimming
1,313
1,313
6,500*
Landscape maintenance
2,000
2,000
15,000
Irrigation maintenance
7,500
11,250
Street sweeping
13,350
13,350
13,350
Litter control
2,000
2,000
2,000
Overtime & emergencies
3,000
3,000
TOTAL
$ 33, 663
$155,563
$249,300
Caltrans reimbursement
10,000
TOTAL CITY COST
$ 23,663
$155,563
$249,300
* $19,500 per year for first 3 years of new trees.
Traffic Flow
Pacific Coast Highway through Corona del Mar cannot carry its daily traffic
volume of between 40,000 and 50,000 vehicles at the Newport Beach standard of
level of service (LOS) D. This is due to the number of intersections and on- street
parking spaces, and the City's decision in the 1970's to keep the area four lanes.
Traffic volume in the area is projected to grow by 10% over the next twenty
years.
The Vision 2004 plan anticipates possible new traffic signals at Iris, Orchid and
Seaward Avenues. The City has previously studied the impacts on traffic flow of
adding new signals at Iris and Orchid Avenues, and determined that there was
about a 5% loss of capacity from adding those two. No information is available
at this time regarding the possible impact of a new signal at Seaward Avenue.
The impact of new signals is a function of their location in relation to existing
signals.
Caltrans has operated the signals along Coast Highway in a coordinated system
for decades. The coordination of these signals is not obvious to the motorists due
to a number of factors that interrupt the platoons of vehicles normally created by
signal coordination. These factors include the rolling, curving nature of the
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highway, the impact of vehicles entering and leaving the on- street parking, the
numerous side streets where traffic enters and leaves and the large number of
pedestrians that cross Coast Highway.
In a study some years ago, it was found that over 2,000 pedestrians cross Pacific
Coast Highway in Corona del Mar on an average day. Approximately half of
them cross at the signalized intersections and the other half primarily at
unsignalized intersections with or without marked crosswalks. The Vision 2004
plan has a number of features intended to facilitate pedestrian activity between
the two sides of Coast Highway. Curb extensions at the intersections reduce the
distance pedestrians must cross as well as making the pedestrians more visible to
motorists before they step into the street. Additional traffic signals would
provide more frequently spaced locations where pedestrians would have added
protection. A third possible feature is the use of in- pavement lights to call
motorists' attention to the presence of marked crosswalks without signals. This
is a relatively new device and the City will need to fully explore the benefits and
liabilities associated with it.
Traffic Enforcement
The Police Department anticipates that the impact of City control of the highway
would be negligible, as they currently respond to all emergencies and calls for
service and enforce all rules and regulations on this stretch of roadway. If the
Vision 2004 plan is implemented, there may be some service level increases, as
construction likely will send some traffic on alternate routes through the
residential streets of Corona del Mar. Responding to complaints from these
residents and providing an increased level of enforcement in the residential
neighborhood probably can be accommodated with current staffing levels.
However, it would require resources to be dedicated to this area with a
corresponding decrease in staffing levels during the interim in other areas of the
City.
Parking enforcement. is currently done through the marking of tires in time zone
areas. This method is labor intensive and time consuming, and creates a safety
hazard for the officer due to the slow speed required to mark tires on a heavily
traveled road. Increasing the number of spaces would increase the time
required, and narrowing the travel lanes could increase the safety concern. If
parking meters were installed, parking enforcement would be easier, less time
consuming, and safer.
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• Liability
It is very difficult to estimate how the City�s exposure to liability may change as a
result of this project. Pacific Coast Highway in Corona del Mar is different from
other streets over which the City has control, so comparable data is not available.
And the potential for accidents and City liability will depend on how the area is
used after the Vision 2004 improvements are made, and how drivers, cyclists and
pedestrians react to the improvements.
Staff has requested a liability analysis from ICW Group, the City's general
liability insurance carrier. They have outlined three general areas of potential
concern, all of which staff believes could be addressed in the engineering design
of the improvement project, as we are doing in Balboa Village. The first two
issues relate to bicyclist safety. Narrower lanes and curb extensions at
intersections could increase conflicts between bicyclists and motorists, and some
textured paving materials could make it more difficult to control bicycles. The
last concern relates to increased landscaping, and the possibility of it
compromising sight lines. As noted in the earlier discussion of traffic flow,
pedestrian safety could be improved with the proposed plan.
Other
• Along with control of Pacific Coast Highway, the City also would assume
permitting authority for things like encroachments, signs and outdoor dining in
the public right of way. The impact on the Public Works and Planning
Departments is expected to be minimal. Planning and Public Works staff now
spend time helping organizations like the BID and Chamber of Commerce to
obtain permits from Caltrans for special event banners, or devising promotion
methods that do not require Caltrans' permission. With City control, these issues
should be easier to manage.
Funding Sources
As noted previously, the BID is exploring State and Federal funding sources for
the Vision 2004 improvements. Funding for the first phase of improvements
(approximately $3.5 million) is expected from the State as part of the action to
relinquish control of Pacific Coast Highway. The final number will be
determined as part of the "state of good repair' agreement between the City and
Caltrans that will be negotiated as part of the relinquishment process. This
money will not be available for ongoing, increased maintenance of the highway.
• The BID is considering the installation of parking meters to establish an ongoing
revenue stream. This method is used in many village and downtown
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revitalization projects, and is a major source of funding for the Balboa Village •
project. Parking meters also would provide for easier and safer parking
enforcement. Increased contributions from the BID are another possible source
of funds, although this is not a secure source due to the annual renewal
requirement.
Project Benefits
The goal of the Vision 2004 plan is to strengthen the "village' atmosphere in
Corona del Mar and make it a more attractive place for both residents and
visitors to walk, shop and dine. This, and the Balboa Village and Mariner's Mile
projects, are what the Economic Development Committee is recommending as a
priority for the City. By investing in existing commercial areas to update them
and make them competitive with newer shopping centers, the City can enhance
the local economy as well as the quality of life in Newport Beach, and do so
without developing vacant parcels or increasing the intensity of existing
development. Sales tax revenue generated in Corona del Mar has increased
steadily over the time the City has tracked revenue by geographic area, starting
at $530,000 in 1993 and exceeding $950,000 in 2000. The proposed improvements
should strengthen the economic productivity of the area and increase the sales
tax it generates.
Process •
This highway relinquishment is being considered as part of legislation sponsored
by Caltrans. The California Transportation Commission (CTC) must hold a
public hearing on the relinquishment before the legislation may be adopted.
This hearing is scheduled for May . The recommended City Council action is to
adopt the attached resolution requesting CTC support of the relinquishment. If
City Council and CTC action is not taken at this time, the relinquishment could
not be considered until next year.
Attachments: 1. City Council minutes, February 8, 2000
2. Resolution
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City of Newport Beach
City Council Minutes
February 8, 2000
public and visitor signage throughout the
Council Member Glover believed that the City needs better sign restrictions.
She indicated that Mariner's Mile will be coming to the City with a sign
program that was put together by the businesses in which they discipline
themselves.
The motion carried by the following roll call vote:
Ayes: Glover, Adams, Ridgeway, O'Neil, Mayor Noyes
Noes: None
Abstain: None
Absent: Thomson, Debay
18. APPEAL OF PARKS, BEACHES AND RECREATION COMMISSION
DECISION.
Mayor Pro Tem Adams stated that he tries to oppose tree removals; however,
in this case, the City needs to remove two parkway trees to preserve the
sight lines to a stop sign that is in a school area. He noted that he would
love to see the trees remain, but believed this is one case in which the City
cannot compromise safety and the safety of school children.
Motion by Mavor Pro Tern Adams to 1) overturn the decision of the
Parks, Beaches and Recreation Commission of 21112000 to continue a tree
removal request by the Traffic Engineer; and 2) approve the removal of two
city parkway trees located at Eastbluff Drive and Vista del Oro.
The motion carried by the following roll call vote:
Ayes: Glover, Adams, Ridgeway, O'Neil, Mayor Noyes
Noes: None
Abstain: None
Absent: Thomson, Debay
PUBLIC COMMENTS —None.
19. COAST HIGHWAY RELINQUISHMENT IN CORONA DEL MAR
City Manager Bludau cautioned Council that this would be difficult to back
out of once the City secures a legislator to sponsor legislation for the
relinquishment without losing favor of that legislator. He believed that the
process should begin but just wanted to make Council aware that
relinquishment from Caltrans is an unusual process to undertake.
Public Works Director Webb stated that the City and the Corona del Mar
Business Improvement District (CdM BID) have had many meetings with
• Caltrans. He reported that it is Caltrans District 12's preference that the
City request a relinquishment for either all of Coast Highway or the portion
from the easterly City limits to Newport Boulevard, and not just a small
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Relinquishment
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City Council Minutes
February g, 2000 INDEX
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piece. He indicated that Corona del Mar may have some differences in
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which a case can be built that the section through the business district is
different from the roadway on either side.
Mr. Webb reported that it is Caltrans' policy that local agency
relinquishment requests be done through the legislature. As part of a
relinquishment, Caltrans agrees to bring the roadway section up to a state of
good repair (having a ten year life). He reported that Caltrans has recently
done a major overlay and reconstruction project, so there may or may not be
the ability to receive large sums of money for improvements. He indicated
that negotiations will still be needed after the legislative process to define
"state of good repair ".
Mr. Webb reported that the relinquishment will be good for the Corona del
Mar area because everything requires a Caltrans permit that is currently
done to the storefronts of the entire right -of -way. If the City were
controlling that area, the permit process would hopefully be quicker. He
stated that Caltrans does not allow certain activities, like sidewalk sales or
outside dining; and are reluctant to allow extensive improvements in median
landscaping and paving. The community indicated that they would like the
ability to conduct upgrades that are not normally allowed by Caltrans.
Council Member O'Neil reported that there is a phenomenon in old Corona
del Mar in which both the business and residential communities are in total
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agreement on one thing, and that this motivates him to do whatever he can
to support it. He believed that, if the City accomplishes the relinquishment,
it will create a lot of landscaping possibilities, a more village -like character, a
more pedestrian - friendly area, and more parking opportunities. He noted
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that the CdM BID has been working on this and will continue to work on
this, and has looked at the maintenance issues and liability exposure.
Motion by Council Member O'Neil to propose a relinquishment to
Caltrans of the one mile stretch through the Corona del Mar business
district; authorize the Corona del Mar Business Improvement District
representatives to meet with Caltrans officials and staff to discuss all the
issues (i.e. long term maintenance and liability) and come back to Council
with their findings; Council reserves the right to secure legislator to sponsor
legislation to accomplish the relinquishment; and direct staff to negotiate
with Caltrans a "state of good repair" settlement.
Don Glasgow, 2620 East Coast Highway, business owner, Chairman of the
Corona del Mar Business Improvement District, stated that he has been
working with some incredible volunteers on this project for about three
years. He stated that the CdM BID hopes to move ahead with the
relinquishment at the same time their Corona del Mar plans move ahead, so
that momentum is not lost. He emphasized that they do have momentum,
cohesiveness, and ideas for the area. He reported that they need to get
Caltrans out of the way if they want to add more trees, improve pedestrian
circulation, improve parking management, add more medians, fix sidewalks,
add more landscaping and paving, add street enhancements, add more and
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better park benches, add bike racks and water fountains, improve building
facades, improve signage, clean up alleys, improve lighting, add more
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planter boxes and flower pots, add hanging plants, add more decorations,
and add more monuments at the City's entrance. He emphasized that they
need to deal with one agency, the City, and then they can work with the City
to figure out how to get everything done to make Corona del Mar one of the
most special places in Southern California. Mr. Glasgow stated that they
understand that things cost money but that they are getting creative and
researching funding sources.
Council Member Ridgeway applauded the CdM BID on all their goals, but
cautioned them of the downsides to relinquishment (long term maintenance
costa after ten years and the liability risks). He stated that Council needs to
evaluate the cost and tort risks to the City prior to proceeding forward.
Council Member Glover stated that there will be a cost to the City because it
will be handling all the lawsuits that occur there, but noted that the City
always ends up being one of the parties affected anyway. She pointed out
that, although the cost will be spread throughout the City, this is a real
positive thing for the City. She indicated that the City needs to concentrate
on improving all the older areas and agreed with Mr. Glasgow that Corona
del Mar can be taken to another level.
The motion carried by the following roll call vote:
Ayes: Glover, Adams, Ridgeway, O'Neil, Mayor Noyes
Noes: None
Abstain: None
Absent: Thomson, Debay
20. BALBOA PENINSULA PARKING MANAGEMENT PLAN.
Council Member Ridgeway reported that this item has been reviewed both
by Council and by Promote Revitalization of Our Peninsula (PROP).
Tom Hyans, President of the Central Newport Beach Community
Association, stated that they have done considerable work with Council
Member Ridgeway on the peninsula parking plan and that this plan deals
entirely with commercial areas. He believed that the determination of what
will work best for the businesses is for the businesses to explore and that
options can be tried at relatively little expense to the City. Regarding
residential areas, the Association does not feel there should be meters in
these areas. Additionally, they are also not supportive of higher fees or
raising the parking permit program in the residential areas. Mr. Hyans
indicated that he reviewed the Balboa Inn plans but expressed concern
relative to parking buses near this business.
Council Member Ridgeway reported that the Balboa Parking lot will be
reviewed at a later date. Regarding Option 4 (Implement Business Parking
Permit Program), he indicated that the City will be watching very closely as
to whether businesses impact residential areas.
Motion by Council Member Ridgeway to approve the following options
and direct staff to implement as soon as possible:
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Parking
Management
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RESOLUTION NO. •
A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF NEWPORT BEACH
REQUESTING THAT THE CALIFORNIA TRANSPORTATION COMMISSION
SUPPORT RELINQUISHMENT OF A PORTION OF STATE HIGHWAY ROUTE 1
WHEREAS, the Village of Corona del Mar, although part of the City of Newport Beach,
is a unique area of the City whose history predates the incorporation of the City of Newport
Beach; and
WHEREAS, the Village of Corona del Mar has a unique, community serving business
district fronting on State Highway Route 1, whose interests can best be served by the City of
Newport Beach having jurisdiction over State Highway Routel through Corona del Mar; and
WHEREAS, the City of Newport Beach desires the State of California to relinquish a
portion of State Highway Route 1 through the City of Newport Beach; and
WHEREAS, the State Department of Transportation ( "Caltrans ") has agreed to sponsor
legislation relinquishing said portion of State Highway Route 1; and
WHEREAS, the State of California has adopted guidelines for relinquishment of State
highways, which guidelines provide that the California Transportation Commission shall hold a
public hearing on the proposed relinquishment;
NOW, THEREFORE, BE IT RESOLVED that the City Council of the City of •
Newport Beach respectfully requests the California Transportation Commission to take the
following actions:
Section 1. Schedule a public hearing on the proposed relinquishment of a portion of
State Highway Route 1 for May 2001.
Section 2. Take all action necessary and appropriate to relinquish a portion of State
Highway Route 1 through Corona del Mar and transfer ownership to the City of Newport Beach.
The portion of highway to be relinquished is generally defined as the segment from Seaward
Drive to Avocado Avenue. Terms of the relinquishment and description of the segment to be
relinquished shall be mutually determined, and included in a final agreement between the State
of California and the City of Newport Beach.
ADOPTED this day of April 2001.
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ATTEST:
CITY CLERK
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