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HomeMy WebLinkAboutAgenda Packet 09/29/1992 ' LEE RABOIN CITY CLERK AGENDA JOINT CITY COUNCILIPLANNING COMMISSION - STUDY SESSION Tuesday, September 29, 1992 7:00 P.M. Rotunda Room (Fourth Floor) - Administration Building Atascadero, California CALL TO ORDER PLEDGE OF ALLEGIANCE ROLL CALL PUBLIC COMMENT F b A. Circulation Element. Presentation y DRS Associates of draft Circulation Element. Review and discussion prior to scheduling of draft plan and EIR before the Planning Commis- sion. B. Future Joint Study Sessions. Including discussion of potential agenda topics, e.g. , updated Housing Element. ADJOURNMENT This agenda is prepared and posted pursuant to the requirements of Government'==Code Section 54954.2. By listing a topic on this agenda, the City Council has expressed its intent to discuss and act on each item. In addition to any action identified in the $rief general description of each item, the action that may be taken shall include: A referral to staff with specific requests for information; continuance; specific direction to staff concerning the policy or mission of the item; discontinuance of consideration; authorization to enter into negotiations and execute agreements pertaining to the item; adoption or approval; and, disapproval. Copies of the staff reports or other documentation relating to each item of busipess referred to on the agenda are on file in the office of the City Clerk (Room 208) and in thfe Information Office (Roos 103), available for public inspection during City Hall business houirs. The City Clerk will answer any questions regarding the agenda. In compliance with the Americans with Disabilities Act, if you, need special hssistance to participate in a City meeting or other services offered by this City. please contact the City Manager's Office ((805) 461-5010) or the City Clerk's Office ((805) 461-5074). Notification at least 48 hours prior to the meeting or time when services are needed wilt assist the City staff in assuring that reasonable arrangements can be made to provide accessibility to the meeting or service. i GENERAL PLAN GUIDELINES OFFICE OF PLANNING AND RESEARCH, STATE OF CALIFORNIA, JUNE 1987 . EXCERPT : CIRCULATION ELEMENT CHAPTER III: THE REQUIRED ELEMENTS OF THE GENERAL PIAN CIRCULATION ELEMENT CIRCULATION ELEMENT PERTINENT GDVERNMENT CODE SECTIONS Government Code Section 65302(b): [The general plan shall include] a circulation element consisting of the general location and extent of existing and proposed major thoroughfares, transportation routes , terminals, and other local public utilities and facilities, all correlated with the land use element of the plan. Government Code Section 65303: The general plan may...address any other subjects which, in the judgment of the legislative body, relate to the physical development of the county or city. BACKGROUND The circulation element, required by state law since 1955, is not simply a transportation plan. It is actually an infrastructure plan that concerns itself with the circulation of people, goods, energy, water, sewage, storm drainage, and communications. Its provisions support the . goals, objectives, policies and proposals of the land use element. In turn the land use element is a reflection of a community's circulation system and the planning proposals for that system. It is no wonder that long before any other general plan elements were mandated, state law required the circulation element to be correlated with the land use element. Perhaps the correlation requirement was a forerunner of the internal consistency provision of Government Code Section 65300.5. The circulation element also has direct relationships with the housing, open- space, noise and safety elements. The provisions of a circulation element affect a community's physical, social and economic environment as follows: • Physical: The circulation system is one of the chief generators of physical settlement patterns, and its location, design and constituent modes have major impacts on air quality, plant and animal habitats, environmental noise, community appearance and other environmental components. • Social : The circulation system is a primary determinant of the pattern of human settlement. It has a major impact on the areas and activities which it serves, on ccumunity cohesion, and on the quality of human life. The circulation system should be accessible to all segments of the population, including the disadvantaged, the young, the poor, the elderly, and the handicapped. • • Economic: Economic activities normally require circulation for materials, products, ideas or employees, and thus the viability of the community's economy is directly affected by the circulation element. 91 CHAPTER III: THE REQUIRED ELEPO:M OF THE GENERAL PLAN CIRCULATION ELEMENT No city is an island in its regional setting. It is therefore prudent for a local planning agency to coordinate its circulation element provisions with the applicable regional transportation plan. (See Government Code Sections 65103(f) and 65080 et seq. ) Furthermore, federal and state transportation planning must be coordinated with local planning pursuant to Section 134, Title 23 of the U.S. Code and California Government Code Section 65080(x), respectively. COURT IRIERPRETATIMS Three California appellate cases have addressed the subject of correlation between the circulation and land use elements: Concerned Citizens of Calaveras County v. Board of Supervisors of Calaveras County (1985) 166 Cal.App.3d 90, Twain Harte Homeowners Association v. County of Tuolumne (1982) 138 Cal.App.3d 664, and Camp v. Mendocino County Board of Supervisors (1981) 123 Cal.App.3d 334. The Concerned Citizens case sheds some light on the term "correlated" as follows: "Correlated" means "closely, systematically, or reciprocally related.. .." [Webster's Third New Internat. Dict. (1981) p. 511. 1 Section 65302 [of the Government Code] therefore requires that the circulation element of a general plan, including its major thoroughfares, be closely, systematically, and reciprocally related to the land use element of the plan. 0 In its more concrete and practical application, the correlation requirement in subdivision (b) of [Government Code] Section 65302 is designed to insure that the circulation element will describe, discuss and set forth "standards" and "proposals" respecting any change in demands on the various roadways or transportation facilities as a result of changes in uses of land contemplated by the plan. (See Twain Harte Homeowners Assn. v. County of Tuolumne (1982) 138 Cal.App.3d at p. 701; and Camp v. Board of Supervisors (1981) 123 Cal.App.3d at p. 363. ) The statutory correlation requirement is evidently designed in part to prohibit a general plan from calling for unlimited population growth in its land use element, without providing in its circulation element, 'proposals' for how the transportation needs of the increased population will be met. After defining "correlated," the Concerned Citizens decision pointed out a situation where correlation does not exist. The court stated: We conclude the [Calaveras County] general plan cannot identify substantial problems that will emerge with its state highway system, further report that no known funding sources are available for improvements necessary to remedy the problems, and achieve statutorily mandated correlation with its land use element (which provides for substantial population increases) simply, by stating that the county will solve its problems by asking other agencies of government for money. To sanction 92 CHAPTER III: THE REQUIRED ELEMENTS OF THE GENERAL PLAN CIRCULATION ELEMENT such a device would be to provide counties with an abracadabra by which all substance in section 65302 's correlation requirement would be made to disappear. The Concerned Citizens decision appears to have limited its search for evidence of correlation to Calaveras County's circulation element. By contrast, the Twain Harte case (which originated in a different appellate district) indicates that the courts will look beyond the circulation element to supporting documents (e.g. , other sections of the general plan) when such evidence is not readily apparent (Twain Harte, supra, at p. 701 ) . The court in the Camp decision upon discovering that correlation was not "expressly shown" in Mendocino County's circulation element, apparently attempted to find it by means of construction (Cam , supra, at p. 363 ) . To be on the safe side, local governments should provide explicit evidence of correlation in both their circulation and land use elements. The Twain Harte case indicates that the courts will not automatically presume the existence of correlation simply because a local government has adopted both its circulation and land use elements. Although general plans, as legislative enactments of the police power, will be 'presumed valid by the courts (in the sense that they are not arbitrary and capricious, but instead are reasonably related to promoting or protecting the health, safety or welfare) , such plans must nevertheless be in substantial compliance with state law. (See Cane at p. 348 and Buena Vista Gardens Apartments Association v. City of San Diego Planning Department (1985) 175 Cal.App.3d 289, 298. ) In other words, the courts will review a plan for its actual capliance with the requirements of the state's general plan statutes. PZLEVANT ISSUES Although the list of mandatory circulation element issues is relatively Mandatory short, it is, nevertheless, encompassing. Issues such as "transportation TSW routes" and "other local public utilities and facilities" could, depending upon the local situation, cover a wide variety of topics. Mandatory circulation issues are: o Major thoroughfares o Transportation routes o Terminals o Other local public utilities and facilities In addressing the above mandatory issues, cities and counties may wish to optional consider "the following topics. The list below was derived ,frau the Is°uea mandatory issues and is also based on possible local optional issues. It is not meant to be all-inclusive. 93 CHAPTER III: THE REQUIRED ELEMENTS OF THE GENERAL PLAN CIRCULATION ELEMENT s Streets and highways s Public transit routes, stops and terminals (e.g. , for buses, light rail systems, rapid transit systems, commuter railroads, ferryboats, etc. • Private bus routes and terminals s Bicycle and pedestrian routes .and facilities s Truck routes a Railroads and railroad depots s Paratransit plan proposals (e.g. , for jitneys, car pooling, van pooling, taxi service, and dial-a-ride) • Navigable waterways, harbors (deep-draft and small-boat ) , and terminals s Airports (commercial, general and military) • Parking facilities • Transportation system management • Air pollution from motor vehicles IDEAS FOR DATA AND ANALYSIS Once a city or county has identified its circulation issues and goals, the planning agency should collect and analyze data. The following suggestions are meant to stimulate thinking rather than encompass all the research possibilities that go into preparing or amending a circulation element. Major Thoroughfares and Transportation Routes Assessment of the adequacy of the existing street and highway systems and the need for expansion, improvements and/or transportation system management as a result of traffic generated by planned land use_ changes. Analyze existing street and highway traffic conditions. (N) • Determine current street and highway capacities. s Determine existing traffic volumes (using peak-rate flows). • Determine the levels of service of existing streets and highways. 94 CHAPTER III: THE REQUIRED ELEMENM OF THE GENERAL PLAN CIRCULATION EIM4ENT Ccoputer Program Capabilities The following descriptions of computer software, though not comprehensive, suggest the range of transportation programs that are available to planners who are collecting and analyzing circulation element data. Programs are available which: • Estimate urban travel volumes, trip generation, distribution, mode , split, and trip assignment. (One program calculates traffic generated by 80 different land uses or building types.) s Predict changes in transit use as a result of changes in transit fares, headways, vehicle travel times and access/egress times. ® Locate the stops, computes the the order of stops and provides shortest trip routes for van pools, transit and other multi-stop trips. • Assist planners and local zoning boards in predicting the impact of a development on local roads. • Provide a simple interactive graphics network analysis package suitable for simple shortest path and traffic assignment. • Estimate population and employment redistributions due to highway projects in or near small oc m inities. • Calculate the maximum building size for a parcel of land with given zoning and parking requirements. s Analyze single intersections for the purpose of achieving optimum traffic signalization efficiency (for the purpose of minimizing air pollution). • Estimate the air quality impacts of a roadway and intersection design. • Calculate energy savings associated with transit-related transportation system management actions. • Estimate the air quality impacts of proposed changes in land use based on projected vehicle trips and speeds. Analyze projected street and highway traffic conditions. (N) • Estimate the number of trips generated by proposed land uses. • Make assumptions about the routes of such trips. • Make assumptions about the modal split (i.e. , estimate the percentages of trips by transit, passenger car, van pools, etc. ). 95 CHAPTER III: THE REQUIRED ELEMENTS OF THE GENERAL PLAN CIRCULATION ELEMENT References For Transportation Planning Catiputer Software The U.S. Department of Transportation has prepared a comprehensive listing of microcomputer software for transportation entitled UTPS Microcomputers in Transportation Software and Source Book. Copies can be obtained by calling 202/366-4208 or by sending a self-addressed gummed label to: Technology Sharing Program (I-30SS) Office of the Assistant Secretary for Governmental Affairs U.S. Department of Transportation Washington, D.C. 20590 The Institute of Transportation Studies, University of California, Berkeley, maintains a data base called INFO TAP that lists and "downloads" (provides copies of) current public domain transportation software. Planners may obtain access to INFO TAP by using a modem and calling 415/642-7088. For more information contact the institute at: Institute of Transportation Studies University of California, Berkeley 107 McLaughlin Hall Berkeley, CA 94720 415/642-1008 Planners can also obtain information about software by contacting: Analytical Studies Research and Regional Support Branch Division of Transportation Planning California Department of Transportation P.O. Box 942874 Sacramento, CA 94274-0001 916/445-8238 Information regarding software that estimates transportation-related air quality impacts of land use charges can be obtained by contacting the California Air Resources Board at: Technical. Support Division California Air Resources Board P.O. Box 2815 Sacramento, CA 95812 916/322-5350 Project future traffic volumes on existing streets and highways (using peak-rate flows) by adding together current traffic volumes and the estimated marginal increase in volumes resulting from planned land use changes. 96 CHAPTER III: THE REQUIRED ELEMENTS OF THE GENERAL PLAN CIRCULATION ELEMENT • o Determine the effects of ] ro'ected traffic volumes on existing P street and highway capacities. o Determine the future levels of service of existing streets and highways. Compare projected levels of service with desired levels. Analyze the potential effects of alternative plan proposals and implementation measures (related to transportation and/or land use) on desired projected levels of service. Historical data and trends with regard to automobile accidents. Analysis of the physical condition of sidewalks, streets, highways, and bridges. Terminals Evaluation of the use of existing transportation terminals. (LU) Evaluation of the need for new or relocated transportation terminals. (LU) Local Public Utilities and Facilities Assessment of the adequacy and availability of existing community water, sewer, and drainage facilities and the need for expansion and improvements. MU) Existing and projected capacity of treatment plants and trunk lines. • Trends in peak and average daily flows. Inventory of natural gas pipelines and major electric transmission lines and corridors and review of plans for additional facilities. (LU) Transit Assessment of the needs of people who depend on public transit. • Number and distribution of households without an automobile. • Assessment of the transportation needs of special groups within the population and the extent to which such needs are being met (e.g., the handicapped and elderly). 97 CHAPTER III: THE REQUIRED ELEMENTS OF THE GENERAL PLAN CIRCULATION ELEMENT' Assessment of the adequacy of existing transit routes, services and facilities and the need for expansion and improvements. • Trends in transit use and estimates of future demand. • Determination of existing and projected levels-of-service for transit. Private Buses Evaluation of private bus conpany services. s Identification of the private bus routes within the local jurisdiction. s Evaluation of the transportation needs that are or are not being met by private bus canpanies. Determination of the private bus company plans to provide bus service in the future. .Bicycles and -Pedestrians Assessment of the adequacy of existing bicycle routes and facilities and the need for new ones. • Trends in bicycle ownership and usage. Assessment of the level-of-service of pedestrian facilities (both current and future levels). Assessment of historical data and trends with regard to bicycle and pedestrian accidents. Truck.Routes Identification of existing truck routes. (N) Determination of needed changes in truck routes. .Railroads Inventory of rail lines and facilities and assessment of plans for expansion and improvements. (N) Determination of transportation needs that are or are not being met by railroads. 98 III: THE REQUIRED ELEIOM OF THE GENERAL PLAN CIRCULATION ELEMENT Paratransit Inventory of paratransit services and routes. a Inventory of existing paratransit services and Uses- Identification ses.Identification of the needs served by paratransit. a s Determination of future paratransit needs. .Navigable.Waterways, Ports .and .Harbors .Assessment of the adequacy of navigable waterways and port and harbor facilities, including the need for expansion and improvements. • Historical data on the use of facilities and vessel registrations. • Projection of future demand based on new or expanded economic activities and recreational trends. • Projection of future needs for navigable waterways and port and harbor facilities. • Review of plans for improvenents by harbor and" port districts. Airports Assessment of the adequacy of and safety hazards associated with existing aviation facilities (general, ccmmercial and military) and the need for expansion and improvements. Inventory of potential safety hazards posed by airport activities to surrounding land uses. (N) Inventory of potential safety hazards to aircraft passengers posed by existing or proposed land uses near airports. Assessment of the provisions of an airport land use commission plan prepared pursuant to Public Utilities Code Section 21675. (N) Parking Facilities Assessment of the adequacy of existing on- and off-street parking, particularly in urban and ccamercial areas. (LU) Transportation System Management . Analysis of existing and projected transportation system levels of service. 99 CHAPTER III: THE REQUIRED ELEMENTS OF THE GENERAL PIAN CIRCULATION ELEMENT Useful Transportation Element Definitions And Information Levels-of-Service: According to the Transportation Research Board's 1985 Highway Capacity Manual Special Report 209, level-of-service is a qualitative measure describing the efficiency of -a traffic stream. It also describes the way such conditions are perceived by persons traveling in a traffic stream. Levels-of-service measurements describe variables such as speed and travel time, freedom to maneuver, traffic interruptions, traveler comfort and convenience, and safety. Measurements are graduated ranging from level-of-service A (representing free flow and excellent comfort for the motorist, passenger or pedestrian) to level-of-service F (reflecting highly congested traffic conditions where traffic volumes exceed the capacities of streets, sidewalks, etc. ). Levels-of-service can be determined for a number of transportation factors including freeways, multi-lane highways, two-lane highways, signalized intersections, intersections that are not signalized, arterials, transit and pedestrian facilities. Paratransit: Transportation systems, such as jitneys, car pooling, van pooling, taxi service, and dial-a-ride arrangements. Recreational Trails: Public areas that include pedestrian trails, bikeways, equestrian trails, boating routes, trails, and areas suitable for use by physically handicapped people, trails and areas for off- highway recreational vehicles, and cross-country skiing trails. Streets and Highways: A jurisdiction's planning of streets and highways may involve the following terms: Arterial: A major street carrying the traffic of local and collector streets to and from freeways and other major streets, with controlled intersections and generally providing direct access to properties. Collector: A street for traffic moving between arterial and local streets, generally providing direct access to properties. Expressway: A highway with full or partial control of access with some intersections at grade. Freeway: A highway serving high-speed traffic with no crossings interrupting the flow of traffic (i.e., no crossings at grade). Streets and Highways Code Section 23.5, in part, states that "Freeway means a highway in respect to which the owners of abutting lands have no right or easement of access to or from their abutting lands or in respect to which such owners have only limited or restricted right or easement of access." Local Street: A street providing direct access to properties and designed to discourage through-traffic. Scenic Thoroughfares: The following are scenic thoroughfare terms that planners may encounter: 100 CHAPTER III: THE REQUIRED ELEMENTS OF THE GENERAL PLAN CIRCULATION ELEMENT Local Scenic Highway: A segment of a state or local highway or street that a city or county has designated as "scenic." Official County Scenic Highway: A segment of a county highway the Director of the Department of Transportation (Caltrans) has designated as "scenic." Official State Scenic Highway: A segment of a state highway identified in the Master Plan of State Highways Eligible for Official Scenic Highway Designation and designated by the Director of the Department of Transportation (Caltrans). Scenic Highway Corridor: The visible area outside the highway's right-of-way, generally described as "the view from the road." Transit: Urban and suburban rail, bus systems and ferryboats. . Identification of existing and proposed modes of transportation. Analysis of the projected effects on the transportation system of construction improvements versus the projected effects of transportation system management. Comparison of the costs of construction improvements versus the costs of transportation system management. Air Pollution frcm Motor Vehicles Estimation of air quality impacts (CO, LU) s Analysis of air quality trends • Assessment of existing air quality • Estimation of air quality impacts of motor vehicle trips generated by land use changes and new thoroughfares. Identification and evaluation of measures that will reduce the air quality impacts of motor vehicle traps. (CO, LU) IDEAS .FOR DE MEMENT POLICIES The circulation element should contain goals, objectives, policies, principles , plan proposals and/or standards for planning the • infrastructure supporting the. circulation of people, goods and communications. These development policies should be carefully correlated with the provisions of the land use element. With this and 101 CHAPTER III: THE REQUIRED ELEMENTS OF THE GENERAL PLAN CIRCULATION ELEMENT the above ideas for data and anal sis in mind, cities and counties Y may wish to consider development policies for: The location and design of major thoroughfares in new developments. (N) The development and improvement. of major thoroughfares based on proposed land use patterns, including ,a street and highway classification system. (LU) The levels-of-service of transportation routes, intersections and transit. The circulation between housing and work places. (LU) The scheduling and financing of circulation system maintenance projects. The locations and characteristics of transportation terminals. (LU) The development, improvement, timing and location of community sewer, water, and drainage lines and facilities. (LU, CO) The location of pipelines and facilities for the transmission of electricity. The acquisition of necessary public utility rights-of-way. (LU) The selection and carrying out of financing measures to expand and improve public utilities. Transportation and utility-related exactions. Assistance to those who cannot afford public utility services. The mix of transportation modes proposed to meet comninity needs. The development and improvement of transit and paratransit services. Transit and paratransit assistance. The roles of railroads and private bus companies in the transportation system. (N) The development and improvement of rail and private bus facilities and services. The encouragement of railroad and private bus company services. The development and improvement of bicycle routes and walkways. Proposed truck routes. (N) • 102 CIRCULATION ELEMENT (EXISTING) Adopted March 24, 1980 TABLE OF CONTENTS PAGE VIII. CIRCULATION 109 Road System 110 Freeways and Highways 110 Divided Arterials 111 Undivided Arterials Collectors 112 Local Streets 113 Paper Streets 113 Trails 113 Curbs, Gutters and Sidewalks 123 Traffic Problems in the Central Business District 115 Drainage Problems Related to Streets 116 Other Forms of Transportation 117 Railroads 117 Airports 117 Public Transportation 117 Bikeways 118 Pedestrians 118 Circulation Policy Proposals 120 TABLES VIII-1 Recapitulation Of Colony Road System 115 VIII-2 Recapitulation of Proposed Capital Improvements within the Colony under Various Fiscal Jurisdictions 119 VIII. CIRCULATION This Plan discusses the requirements of all the current methods of transportation in Atascadero. Existing methods are presumed to be practical within the terms of this Plan, and circulation improvements are scaled to the growth of all types of transportation uses that are assessed. Policies related to transportation planning must relate to feasibility and the estimated cost of improvements to such intangible variables as the costs to motorists, convenience between origins and destinations, and accidents and deaths. The original Atascadero Colony road system was designed for the automobile as the primary mode of transportation. The system was laid out' in the form of a wheel, the hub being the Administration Park and the Central Business District , and the spokes being principal arteries. The outer rim of the wheel and several inner concentric roads were also principal arterials, designed to carry traffic from point to point without entering the downtown area. The original streets were laid out with a 40-foot right of way. There are three major factors which have contributed to the present inadequacy of parts of the circulation system. The first of these is the failure to develop and maintain all roads to their full rights of way. Shoulders either have not been developed or have become overgrown with weeds and eroded by weather . Residents have built fences or planted trees and shrubs within the rights of way. In some instances , utility poles have been located too close to the pavement. These occurrences have resulted in some roads being narrower than planned, with few or no facilities for pedestrians, bicyclists and equestrian traffic. A second factor is the failure of the Central Business District to develop in the areas envisioned in Lewis ' plan. Due to lack of planning in the past, the commercial area has grown along the E1 Camino Real corridors. This strip commercial development has created traffic and parking problems. The third factor was the bisection of the town in 1954 by Freeway 101 . The introduction of the freeway interrupted east-west traffic flow, and too few grade separation crossings were added to compensate for the traffic interruption. The 200-mile Colony road system has six components : Freeway and Highways, Arterials Divided , Arterials Undi- vided, Collectors, Local Streets and Paper Streets. Road classifications are indicated on LAND USE AND CIRCULATION MAP. 109 Road System Freeways and Highways The major highways are Freeway 101 (7.0 miles) and Highway 41 . Freeway 101 bisects the Colony from San Ramon Road to - south of Santa Barbara Road. There are eight freeway exits, four of which are poorly designed and contribute to traffic - - congestion (Traffic Way southbound on-ramp, Morro Road northbound off-ram and Santa Rosa Road , both north and soutbound off-ramps) . The appearance of the community along U.S. 101 from Santa Barbara Road to San Ramon Road and along the Morro Road section of Highway 41 needs to be improved. This can be accomplished by: 1 . Effective- landscaping using- native shrubs-,-to screen - - - land uses from the highway. 2. Banning off-premises outdoor advertising signs along these corridors. The completion of Freeway 101 eliminated a vital traffic route which served the Central Business District when access to Atascadero Avenue was interrupted by the Freeway. -- CalTrans should initiate a project to raise the Freeway at the present Mall pedestrian tunnel to permit vehicular traffic on Atascadero Mall from El Camino Real to Atascadero Avenue. - Highway 41 bisects the community at right angles to Freeway 101 . The eastern half runs through part of the CBD , directly between two schools and through a densely populated _ residential area. Proposed plans to realign and improve Highway 41 along the Mercedes route would: 1 . Eliminate the truck traffic hazard on West Mall in the _ area of the Atascadero Junior High and Lewis Avenue Elementary School campuses. 2. Eliminate truck traffic at the very narrow bridge and dogleg over Atascadero Creek. 3 . Prevent trucks reaching the Southern Pacific underpass _ on Capistrano Avenue with its impaired -vertical _ clearance of 13'-6". Design of Highway 41 along the Mercedes alignment should attempt to minimize the visual impacts on Pine Mountain and should , with regard to the roadway width and residential 110 �� driveway access , be similar to that of surrounding City streets to minimize any appearance of bisecting the commu- nity . When rerouting of Highway 41 does take place , adequate pedestrian and bicycle pathways shall be provided. Divided Arterials The two arterials are E1 Camino Real and Morro Road. They - serve as major highways linking Atascadero with other communities, and they channel traffic to different parts of town. Divided arterials shall be developed in two lengths: on El Camino Real from Rosario to San Diego Road and on Morro Road from E1 Camino Real to San Gabriel Road. The divided arterials shall also have a paving width that _ will accommodate four traffic lanes , parallel parking strips, bicycle lanes and curbs and sidewalks. Undivided Arterials These roads serve as major access routes between residential areas, shopping centers , employment centers and primary recreation areas. Roads in this classification must have shoulders wide enough to accommodate multi-use paths and emergency parking. There are fourteen segments of undivided arterials: 1 . Atascadero Avenue from Morro Road to Freeway 101 provided major access to Santa Rosa Road Elemen- tary School . It is noted for heavy traffic and lack of shoulders. 2. Traffic Way from EI Camino Real to Potrero Road and a future extension of Traffic Way beyond Potrero Road to E1 Camino Real as a truck route . The portion of Traffic Way between E1 Camino Real and Olmeda Avenue is also designated to have 40 feet of paving to allow for two eight-foot parking strips on both sides of the arterial. 3 . Curbaril Avenue from Morro Road to the Salinas River crossing is a major local traffic route and is also characterized by lack. of adequate shoulders for non-automobile traffic. 4. Portola Road from Morro Road to Ardilla Road to San Anselmo Road to Freeway 101 . 5 • Santa Lucia Road from Portola Road to Freeway 101 . 6. Monterey Road from Del Rio Road to San Anselmo Road. 7• San Anselmo Road from El Camino Real to Del Rio Road. 8. Del Rio Road from Monterey Road to San Anselmo Road. 9. Santa Rosa Road from 'Morro Road to E1 Camino Real. 10. El Camino Real from -Santa Barbara Road to the south Colony boundary. 11 . Potrero Road from Del Rio Road to Traffic Way. 12. E1 Camino Real north of Rosario. 13• E1 Camino Real south of San Diego Road. - 14. Morro Road west of San Gabriel Road. To complete the northwestern segment of the outer perimeter road , San Gabriel Road shall be connected to Santa Ana and Graves Creek Roads by a bridge over Graves Creek at Santa Lucia Road. _- Collectors These are further classified as urban, suburban and rural collectors. These roads are designed primarily to carry traffic from local streets within a neighborhood district to the arterials. Shoulders must be appropriately designed to include multi-use paths. 1 . Urban Collectors a. San Jacinto Avenue from Olmeda to Traffic Way b. Bajada Avenue from Rosario Avenue to Traffic Way C. Rosario Avenue from E1 Camino Real to Traffic Way d . San Marcos Road from Curbaril Avenue to San Andres - Avenue e . San Andres Avenue from Santa Lucia Road to Morro Road _ f. Santa Ysabel Avenue from Curbaril to Atascadero Creek, across the proposed bridge crossing, and along Lewis Avenue from Atascadero Creek to Traffic Way. 112 2. Suburban Collectors a. San Gabriel Road from 'Morro Road to Atascadero Avenue b. Marchant Avenue from Portola Road to Morro Road c. . San Benito Road from E1 Camino Real to Del Rio = Road d. E1 Bordo Avenue from E1 Camino Real to Chalk Mountain Regional Park 3. Rural Collectors a. Santa Lucia Road from Portola Road to the end b. Viejo Camino from E1 Camino Real to Santa Barbara Road c. A loop consisting of Santa Barbara Road, Carmel Road and San Antonio Road Local Streets Purther studies of local street patterns are needed. Every effort shall be made to improve Atascadero's streets to the criteria defined in this section, while retaining the rural character. At the present time, street conditions in many areas of Atascadero are below the level expected by the people. Payer Streets Paper streets exist primarily in the outer fringes of the Colony. They shall be developed as required , to the standards herein defined. Trails At present , the Colony has no established bikeways, and equestrian or walking trails are found only in limited areas. Proposed creekway paths accommodating these uses are proposed from San Gabriel Road to the east of E1 Camino Real. The paths would have two all-weather rustic bridges as off-highway crossings. Curbs, Gutters and Sidewalks The following recommended requirements apply in different use districts: 113 1 • Curbs, gutters and sidewalks shall be required in all commercial land use areas except commercial use areas oriented to highway travel. In the casef highway commercial areas, each permit should be considered as a _ separate case, and a determination based on performance standards, recognizing the character of the area, pedestrian and vehicular movements and drainage characteristics. Substitution of berms for.-curbs shall be considered. 2• Curbs and gutters shall be required in all industrial land use categories . Sidewalks may or may not be required. 3• In duplex-residential areas, each application shall be reviewed for curbs and gutters and a determination made whether they shall be required. Substitution of berms _ for curbs shall be considered. Sidewalks shall not be required. 4• In apartment areas , curbs and gutters shall be required. Each application shall meet performance standards requiring sidewalks when higher frequencies of pedestrian traffic are anticipated . Sidewalks shall be constructed of all-weather natural materials. _ 114 TABLE VIII-1 RECAPITULATION OF COLONY ROAD SYSTEM Miles Freeways and Highways 10.9 Divided Arterials - __ __ _____.1-0.8 - Undivided Arterials 22.2 Collectors 16.3 Local Streets- 73.7 Paper Streets 75 .0 Multi-Purpose Bikeways 0.0 Total . . . . . . . 208.9 Traffic Problems in the Central Business District Traffic circulation and attendent parking problems are severe in the Central Business District north of Atascadero Creek. At present there are a number of lots in the Central Business District that are in residential use . This Plan envisions eventual commercial use of these lots. Full development of this area will require a drastic change in traffic patterns to maintain a free flow of traffic. A possible solution might -be initiation of one-way traffic on some streets (e .g. , west on West Mall , south on Palma Avenue) . Off-street parking is currently required of any new commer- cial construction. The more recently developed areas of the Central Business District, namely from Atascadero Creek south to the southern border of the Thrifty Drug complex, have adequate off-street parking. But the core of the Central Business District has severe parking problems . A survey of current businesses in the core shows that 821 off-street parking sites would be required if those busi- nesses were built under present regulations. There are, in fact, only 176 off-street parking sites. One. third- of this total is located at the extreme north end of the Central Business District. There are several potential sites that could be used. They include: I . The lot fronting Traffic Way between Villa Atascadero and the Cameo Beauty Shop. 115 2 . Numerous sites that currently are occupied by duplexes. These sites exist on Entrada Avenue, Lewis Avenue and West Mall. 3• The lot on Entrada Avenue between 5975 Entrada Avenue and the Post Office building. One or more of these lots shall be acquired for parking. Possible methods of acquisition q isition include:.. -- --------_ - _ - - ----- - 1 . Downtown Parking Assessment District . This method would distribute the financial load amore all of th benefiting businesses. It would, on the other hand, penalize those merchants who have independently developed off-street parking for their businesses . Equitable distribution of cost could be built into the mechanics of district formation-.------ 2. Cooperative purchase and development by downtown merchants. This method would provide the most rapid means of developing off-street parking. It could result in a few businessmen financing off-street parking for the benefit of all, but with the possibil- ity of creating a satisfactory investment. Drainage Problems Related to Streets Zack of adequate street drainage has in the past caused temporary blockage of traffic and inundation of homes and businesses. In some areas, the problem has been corrected, but a unified drainage plan and system does not exist . Some of the worst problem areas are: - Traffic Way between E1 Camino Real. and Lewis Avenue - The intersection of Palma and Entrada Avenues - The Morro Flats A systematic study of the Colony shall be made , and a comprehensive flood control and drainage system shall be -_ designed. Implementaion of such a plan shall be integrated with a program of street improvement and expansion of the - Sewer Improvement District. 116 �.,- Other Forms of Transportation Railroads Railroads are the most energy efficient method of transpor- tation. Single passenger commuting by car to San Luis Obispo and Paso Robles is the least efficient . As the energy crisis deepens, - studies shall be made of , the econom- ics of operating single-car diesel commuter service over the Southern Pacific, as is done in the East. Spur tracks exist, and more could readily be developed to serve the proposed Industrial Parks along the right of way. Airports Carrier and cargo service is available to Atascadero at the Paso Robles Municipal Airport, 15 miles to the north, and the San Luis Obispo County Airport, 20 miles to the south, ' both via Freeway 101 . Previous General Plans for Atascadero have shown an airport facility east of the Salinas River. The County Aviation Plan and the 1972 plan of the Southern California Associa- tion Governments propose an air ark to be located in the tion of o P P P Atascadero area, at a site yet to be determined. An airpark in Atascadero is a desirable facility, especially as the population grows towards 30 ,000 , and with a major golf course in the 200-acre Chalk Mountain Regional Park. Public Transportation The principal mass transportation service in the Atascadero area is that of the Greyhound Bus Company. Although bus service appears adequate, terminal facilities are lacking, and the location of the bus stop is disruptive to traffic. A location near the Central Business District shall be acquired for terminal use . The bus company shall .be encouraged to locate a terminal as soon as possible. Commuter bus service to San Luis Obispo and other County destinations remains a need. There are many persons who might support such a system. Several types are available, from fixed routes to the personalized Dial-a-Bus system. Y i 117 Bikeways In past years a great network of roads, streets and highways has been built in the Colony to accommodate the automobile, with virtually no provision for bicycle use. The energy _ crisis, recreation, more leisure time, interest in physical _ fitness and concern for the environment are all stimulating the bicycle's resurgence , reflected in increasing public pressure _for pathways and routes where -bicycles can --be --- - ridden in relative safety. This will allow utilization of the roads for several purposes and make the roadways safer for vehicles, pedestrians, bicyclists and equestrians. Pedestrians Pathways shall be incorporated in some bikeways and eques- trian trails. Busy areas magnify the importance of provid- ing space for the pedestrian. Of special importance is a pedestrian-oriented -Central Business District. 118 TABLE VIII-2 RECAPITULATION OF PROPOSED CAPITAL IMPROVEMENTS WITHIN THE COLONY UNDER VARIOUS FISCAL JURISDICTIONS 1 . Primary arterial (2 . 1 miles ) parallel to EI Camino Real, with a heavy-duty bridge over Atascadero Creek. 2 . A bridge over Graves Creek to connect San Gabriel Road with Graves Creek Road. 3. Multi-purpose bikeways. 4. A new fire house. 5 . New schools. 6. Acquisition of Stadium Park. 7. Development of Chalk Mountain Regional Park. S. Development of SEDES Creekways Plan. 9. New Post Office. 10. Landscaping of Freeway 101 to San Luis Obispo stand- ards. 11 . Freeway 101 overcrossing at the Mall. 12 . Reacquisition of that part of the Sunken Gardens now occupied by the Junior High School campus. 13. Acquisition of Graves Creek Reserve. 14. Acquisition of Wranglerette Arena. 15. Acquisition of Chandler Parkland. -= a 119 Circulation Policy Proposals 1 . Freeways and major highways shall be effectively landscaped to screen urban land uses and improve - community appearance. Refer to Chapter XIII, COMMUNITY APPEARANCE. 2. Outdoor advertising -signs shall be eliminated along - freeways and major highways. 3• Highway 41 shall be realigned and improved northerly of Freeway 101 along the adopted Mercedes alignment. 4. Design of the roadway along the Mercedes alignment should minimize visual impacts to Pine Mountain and should mitigate concerns associated with bisection of the community. 5 • In the rerouting of Highway 41 , adequate pedestrian and bicycle paths shall be provided. 6 . Construction of a heavy-duty bridge across Atascadero Creek linking Lewis Avenue with Santa Ysabel 'shall be programmed immediately. 7. Pathways on streets near schools shall be constructed as soon as practical. _ 8. Elevation of U.S. 101 to permit vehicular traffic on Atascadero Mall from E1 Camino Real to Atascadero Avenue shall be programmed by CalTrans and the Division of Highways. _ 9. New street extensions on unimproved rights of way shall be developed to reasonable improvement standards. 10. Greyhound Bus Lines shall be encouraged to acquire a new permanent terminal site near the Central Business _- District, close to freeway access. 11 . Plan lines shall be established for all urban arterials -_ and local collectors • and appropriate setbacks insti- tuted. 12 . A more complete and adequate directional signing program shall be initiated.• - 13• A high priority shall be given to projects which are . designed to improve the safety of existing transporta- tion facilities. 120 14. The potential for inter- and intra-community public transit shall periodically be investigated. 15. Any transportation improvements system shall be compatible with the environment . There shall be a wise use of available resources, avoidance of despoil- ing irreplaceable resources, promotion of the aesthetic quality of the area and minimization of environmental change. 16 . The County ' s curb and gutter ordinance shall be amended to include multiple residential districts and professional office districts. - 17. Offers of dedication for additional rights of way in single-family residential areas shall be required before issuance of a building permit along arterials and collectors that are plan-lined. Additional rights of way required shall be determined by the County minimum road standard of fifty (50) feet in width, but the required dedication shall not exceed twenty-five (25) feet from the centerline of the road. Additional rights of way shall be' acquired by the appropriate governmental agency as needed. 18. The highest priority must be given to provision of multi-use shoulders. 19. Hillside Recreational Road Standards shall be applied 9 PP whenever possible. 121