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ADOPTION OF AN INITIAL STUDY/PROPOSED MITIGATED NEGATIVE DECLARATION AND APPROVAL OF A PRECISE ROAD PLAN FOR THE MINER AVENUE COMPLETE STREETS PROJECT, LOCATED BETWEEN CENTER STREET AND THE UNION PACIFIC RAILROAD UNDERPASS (P16-0560)
recommended action
RECOMMENDATION
It is recommended that the City Council accept the Planning Commission’s recommendation and adopt a Resolution for an Initial Study/Proposed Mitigated Negative Declaration and approve the Precise Road Plan for the Miner Avenue Complete Streets Project, in accordance with the Findings for Decision in the Proposed Resolution.
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Summary
The Miner Avenue Precise Road Plan spans the ten block segment between Center Street and Aurora Street. The Precise Road Plan sets the expectations and requirements on what will be constructed along the corridor and provides a framework to protect, preserve, and require dedications as development occurs. Miner Avenue is currently a four-lane road, with two lanes in each direction (Attachment B - Existing Miner Avenue Plan). The Precise Road Plan calls for a reduction in the number of vehicle travel lanes from two lanes to one lane in each direction with Class II bicycle lanes, median islands with landscaping, a round-about at the intersection of Miner Avenue and San Joaquin Street, traffic signal and lighting improvements, sidewalk improvements and other amenities. The Planning Commission considered the proposed project in a public hearing held on January 26, 2017, and adopted the Resolution forwarding a recommendation to the City Council for the adoption of the Initial Study/Proposed Mitigated Negative Declaration and approval of the Miner Avenue Precise Road Plan. It is recommended that the City Council accept the Planning Commission’s recommendation and adopt a Resolution for an Initial Study/Proposed Mitigated Negative Declaration and approve the Precise Road Plan for the Miner Avenue Complete Streets Project, in accordance with the Findings for Decision in the Proposed Resolution.
DISCUSSION
Background
Miner Avenue is designated as a public right-of-way (ROW) and therefore has no zoning designation. Miner Avenue is bounded to the:
• north by various commerce/warehousing buildings and vacant lots zoned CG (Commercial, General), CD (Commercial, Downtown), and IL (Industrial, Limited);
• east by Union Pacific Railroad Road tracks;
• south by a variety of commercial/warehousing buildings and vacant lots zoned CD and IL; and
• west across Center Street by the Weber Events Center zoned CD (Attachment A - Location Map and Aerial Photograph).
The General Plan designates Miner Avenue as an Arterial and land on either side of the right-of-way for Commercial and Industrial land uses.
The Miner Avenue corridor between Center Street and Aurora Street is bordered by vacant and underutilized parcels, varied building stock, and in close proximity to downtown and adjacent neighborhoods. Consequently, Miner Avenue offers redevelopment potential to attract new residents, employees, and visitors to the City’s downtown. Significant downtown investments have already been constructed in the past decade. These investments include the renovation of the historic Cabral Station at the east end of the corridor, the Downtown Transit Center, the Weber Point Events Center, the Stockton Ballpark, and the Stockton Arena at the west end of the Miner Avenue corridor. However, Miner Avenue which serves to unify and connect the Cabral Station with Weber Point still exists as a distressed corridor in need of revitalization.
In 2009, the City and the San Joaquin Regional Rail Commission obtained a grant from the California Department of Transportation to study ten blocks of Miner Avenue corridor between Center Street and Aurora Street. The study concluded with the completion of a Miner Avenue Streetscape Plan which was adopted by the City Council in March of 2012. The Miner Avenue Streetscape Plan developed a comprehensive conceptual design for the corridor which included dedicated bicycle lanes, a continuous tree canopy, understory plantings, decorative street lighting, enhanced crosswalks at intersections, sidewalk improvements, parklets, and amenities such as benches, bollards, trash receptacles, and bicycle racks. The Streetscape Plan would establish Miner Avenue as a prominent “complete street” that emphasizes pedestrian amenities and multi-modal transportation.
On December 12, 2016, the Development Review Committee considered the Precise Road Plan for the Miner Avenue Complete Streets Project and recommended approval of the Plan, subject to proposed Findings of Fact and Conditions of Approval, as indicated in the proposed Resolution. On January 26, 2017, the Planning Commission reviewed the proposed project at a public hearing and adopted a Resolution forwarding a recommendation to City Council for the adoption of the Initial Study/Proposed Mitigated Negative Declaration and approval of the Miner Avenue Precise Road Plan.
Present Situation
The Precise Road Plan for Miner Avenue sets the expectations and requirements on what will be constructed within the City’s ROW. No acquisition of additional ROW is anticipated. Miner Avenue is currently a four-lane road, with two lanes in each direction (Attachment B - Existing Miner Avenue Plan). The Precise Road Plan calls for a reduction in the number of vehicle travel lanes from two lanes to one lane in each direction, the addition of Class II bicycle lanes, median islands with landscaping, and a round-about at the intersection of Miner Avenue and San Joaquin Street. Additional improvements include traffic signal modifications at the signalized intersections and the installation of streetlights, pedestrian and bicycle amenities, “parklets” (small landscaped amenity areas), and accessible street crossings with bulb-out round corners and bollards.
As part of the proposed improvements, a number of street trees would be removed and replaced and some existing non-uniform street lighting would be removed and replaced to match other existing lighting in the corridor. To avoid conflicts with existing underground utilities, the median design would be adjusted or the utilities would be relocated within the existing ROW.
With respect to the driveway restrictions along Miner Avenue, the Precise Road Plan would emphasize automobile driveways on side streets, where possible, to limit the potential conflicts with pedestrians, bicyclists, and public transit along Miner Avenue. The proposed approach to access control is listed as follows:
1. If an existing driveway is in use, it will remain in place until the parcel is redeveloped. At that time the location of the driveway would be evaluated and compared to the Precise Road Plan and could be modified or abandoned.
2. If an existing driveway has been abandoned, it could be removed on the Precise Road Plan. This would also apply to vacant lots.
3. If a parcel is reconfigured, the location of the driveway would be evaluated and adjusted to comply with the Precise Road Plan or a Precise Road Plan amendment could be filed to request a new driveway.
Findings of Fact
Stockton Municipal Code (SMC) Section 16.148.070.A requires two Findings of Fact to support the approval of the Precise Road Plan. The Precise Road Plan must comply with general land uses, objectives policies, and programs of the General Plan and other adopted goals and policies of the City, as well as be in compliance with applicable provisions of the California Environmental Quality Act (CEQA).
Here, the Precise Road Plan complies with General Plan Land Use Policy No. 4.6, Commercial Strip Centers; Economic Development Policy No. 1.1, Internal City Image; and Transportation and Circulation Policy No. 5.1, Pedestrian and Bicycle Facilities. Further, an Initial Study/Proposed Mitigated Negative Declaration has been prepared for the project and circulated to comply with State CEQA guidelines, as indicated in the Proposed Resolution.
Public Meeting
The Public Works Department held the first public meeting for the project on June 8, 2016. Twenty-five people attended the meeting, consisting of 15 members of the public, one elected official, and nine members of the project team. The meeting was conducted as an open house with a presentation by the consultant’s project manager, followed by questions and comments from the audience. The questions raised by the public were related to the project’s funding resources, Miner Avenue construction phasing, the elimination of on-street parking, parking meters, the location of a proposed roundabout, current volume of traffic, and opportunities for public art. A second public meeting was held on January 4, 2017. Sixteen people attended the meeting, consisting of four members of the public, one elected official, and 11 members of the project team. Questions raised by the public were related to the utilization and maintenance of the parklets by adjacent business owners, additional police patrols in the area, and securing future funding to complete the median islands, pedestrian walkways, and bicycle lanes.
Planning Commission Public Hearing Discussion
On January 26, 2017, a public hearing was held before the Planning Commission. The City’s consultant informed the Planning Commission that the proposed Precise Road Plan would provide a framework to protect, preserve, and require dedications for the roadway as development occurs. The design of the roadway, including parklets, bicycle amenities, and driveways would remain flexible to accommodate future development.
The Commissioners asked questions regarding the location of the proposed parklets and the maintenance of landscaping. The response was that the location of the noted parklets would remain flexible, based on the site design of future projects.
Construction of the parklets would be either completed as part of a City project or in conjunction with private development. Parklets that are constructed as part of a private project will require the developer to apply for an encroachment permit, and sign a maintenance agreement. Landscaping within the plan area will utilize low-maintenance trees and shrubs. Construction of the median, installation of landscaping, and maintenance of landscaping will be contingent upon future grant funding.
Two persons appeared at the public hearing and presented testimony supporting the proposal. No one spoke in opposition to the project.
Following the public hearing, the Planning Commission voted 7 to 0 to forward its recommendation to the City Council for the adoption of an Initial Study/Proposed Mitigated Negative Declaration and approval of the Precise Road Plan for the Miner Avenue Complete Streets Project.
Environmental Clearance
The City has determined that the project involves the potential for significant, adverse environmental effects, but that these effects could be reduced to a less-than-significant level with recommended mitigation measures. As a result, a public draft Initial Study/Proposed Mitigated Negative Declaration has been prepared for the project, in accordance with State CEQA Guidelines.
A “Notice of Intent” to adopt the public draft Initial Study/Proposed Mitigated Negative Declaration was circulated for public review and comment between December 8, 2016 and January 09, 2017, and was filed with the San Joaquin County Clerk’s Office and the Governor’s Office of Planning and Research State Clearinghouse (Attachment C - Public Draft Initial Study/Proposed Mitigated Negative Declaration). All the comments that were received during the public review have been responded to in the Final Initial Study/Mitigated Negative Declaration (Attachment D - Final Initial Study/Mitigated Negative Declaration).
Pursuant to Section 15074 (b) of the State CEQA Guidelines, the Initial Study/Proposed Mitigated Negative Declaration must be adopted by the decision-making body of the lead agency (the City Council) prior to the approval of Precise Road Plan for the Miner Avenue Complete Streets Project. In addition, the “Mitigation Monitoring Plan” for the project must be adopted to ensure that adequate mitigation measures are implemented as part of the project.
The environmental documents, including the public draft Initial Study/Proposed Mitigated Negative Declaration, and Final Initial Study/Mitigated Negative Declaration for the project have been posted on the City’s website (<http://www.stocktonca.gov/environmental>) for the City Council’s review.
FINANCIAL SUMMARY
The Public Works Department obtained a Federal Grant for the subject project through the Active Transportation Program (ATP). This project is fully funded. Any balance remaining at the completion of the design phase will be transferred to the construction phase of this project.
There is no impact to the City’s General Fund or to any other unrestricted fund as a result of the project.
Attachment A - Location Map and Aerial Photograph
Attachment B - Existing Miner Avenue Plan
Attachment C - Public Draft Initial Study/Proposed Mitigated Negative Declaration
Attachment D - Final Initial Study/Mitigated Negative Declaration