HomeMy WebLinkAbout08-5-13 City Hall _ Park Site Traffic AnalysisCITY OF NEWPORT BEACH
CITY COUNCIL STAFF REPORT
Agenda Item No. S28
May 13, 2008
TO: HONORABLE MAYOR AND MEMBERS OF THE CITY COUNCIL
FROM: City Manager's Office
Dave Kiff, Assistant City Manager
949 - 644 -3002, dkiff(cDcity.newport- beach.ca.us
Public Works Department
Steve Badum, Public Works Director
949 - 644 -3311, sbadumOcity.newport- beach.ca.us
SUBJECT: Preliminary Traffic Analysis of the City Hall and Park Site at Newport Center
Build -Out: Farrallon Extension v. Improvements at San Miguel
ISSUE:
What options are available to establish a general design parameter for the access and traffic
circulation for the new City Hall and Park while maintaining General Plan standards for
intersections around the new City Hall and Park site assuming build -out conditions?
RECOMMENDATION:
Ratify the Building Committee's recommendation stating the intent of the City Council that
the City shall:
• Utilize improvements to key intersections at San Miguel and Avocado, San Miguel and
MacArthur, Newport Center and San Miguel, and Newport Center and Anacapa to
accommodate build -out conditions in Newport Center instead of extending Farrallon from
its current terminus at Avocado to MacArthur Boulevard; and
• Preclude "right -turn in" access from MacArthur Boulevard into the City Hall location; and
• Enhance Central Library access via a direct entrance to Avocado from the existing
Library parking area near the Book Drop; and
2. EstablishGeneral Design Parameters (see draft Parameters in Exhibit C) for the City Hall
and Park Master Plan Design Competition reflecting Item #1.
or
3. State that it is the intent of the City Council that the City shall address access and traffic.
circulation to accommodate build -out conditions in Newport Center by extending Farrallon
through from Avocado to MacArthur Boulevard (and establish a General Design Parameter
reflecting this intention).
DISCUSSION:
Following the voters' approval of Measure B in February 2008, the City Council moved to begin
designing a new City Hall and Park at a site above the Central Library between Avocado
Avenue and MacArthur Boulevard. The Council formed a Design Committee to oversee a
design competition, and it also adopted "General Design Parameters" to guide respondents to
the competition. One of the key issues not yet addressed when the Council adopted the
Newport Center Traffic Analysis (Preliminary)
May 13, 2008
Page 2
General Design Parameters was the access and traffic circulation of the new City Hall and Park
and how it would impact traffic when put in the context of "build -out" of Newport Center (as
build -out is defined in the Newport Beach General Plan).
Build -out includes the new City Hall, Park, and not - yet - constructed entitlement in the northeast
portion of Newport Center near San Nicolas and Newport Center Drive.
The City hired RBF Consulting to conduct a preliminary traffic analysis of Newport Center's
build -out. Of chief concern was addressing the operational problems that currently exist at the
intersections of San Miguel Drive and MacArthur Boulevard /Avocado Avenue and the potential
effects of the new City Hall and Park just southerly of there. As stated above, the approved
entitlements and the associated traffic mitigation improvements are included in this analysis.
Those improvements include a 3rd left turn lane on eastbound San Joaquin Hills Road onto
MacArthur and a signalized intersection at Newport Center and San Nicolas.
This traffic analysis considered a variety of scenarios, including but not limited to:
1. Connecting Farrallon from its current eastern end at Avocado to MacArthur (the "Farrallon
Extension' Option);
2. Closing portions of Avocado in the vicinity of its intersection with San Miguel Road;
3. Changing NB Avocado such that only right turns are allowed onto eastbound San Miguel;
4. Changing SB Avocado such that only right turns are allowed onto westbound San Miguel;
and
5. Restricting all left turn movements at the intersection of Avocado and. San Miguel via the
construction of a center median in San Miguel (the "San Miguel Median' Option). This
option would also include improvements to the Newport Center /San Miguel intersection and
the installation of,a traffic signal at Newport Center and Anacapa.
The traffic analysis showed that, while the Farrallon Extension results in the most significant
improvement in traffic (again at build -out) at San Miguel x MacArthur, other alternatives offer
some improvement without extending Farrallon. The most significant improvement without the
Farrallon Extension is a scenario that affects the intersection of Avocado and San Miguel. This
intersection would go from a full 4 -way signalized intersection there to an intersection that would
prohibit all left turns by constructing a median along San Miguel. The median would mean that
only right turns are allowed onto and from Avocado if a driver wanted to utilize Avocado (see
Exhibit A for the Farrallon Extension and Exhibit B for the San Miguel Median Option).
Other issues studied by the Committee involved:
Entering the City Hall location from a right -turn from southbound MacArthur Boulevard. The
Committee believed that the significant slope here plus the right turn's proximity to another
right turn into Corona del Mar Plaza (CdM Plaza) made this option less than desirable.
Circulation around ,the Library and Corona del Mar Plaza. Many believe that the current
access point to the Library and Center (a signalized intersection about 500 yards northerly
of Coast Highway on Avocado) doesn't work as well as it could. Drivers coming into CDM
Plaza and then to the Library face a confusing 2 -way stop at a three -way intersection. The
Committee studied (and is proposing) a direct access point from Avocado to the Central
Library's parking lot near the Avocado "book drop" location (see Exhibit D).
RBF will present their analysis at the meeting on Tuesday, May 13, 2008 using their animation
to assist the Council and community in seeing the traffic impacts of these alternatives.
Newport Center Traffic Analysis (Preliminary)
May 13, 2008
Page 3
The Building Committee (Mayor Selich, Council Member Henn, and Council Member Rosansky)
has reviewed the RBF animation and analysis and decided to recommend to the full City
Council that the Council direct the staff and the City Hall and Park Master Plan Design
Committee to proceed with City Hall and Park planning using the recommendations in
Recommended Action #1 above.
Environmental Review: The entire Project will be subject to detailed environmental review in
the coming months.
Prepared and Submitted by:
e
Dav
Assistant City Manager
Attachments: A — Farrallon Extension Diagram
B — San Miguel Median Diagram
C — General Design Parameters with proposed new Parameters
D — Library Parking Access Diagram
Newpod Center Traffic Analysis (PrelYninary)
May 13, 2668
Page 4
ExhiNt A
Farrallon Extension
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Newport Center Traffic Analysis (Preliminary)
May 13, 2008
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Exhibit B
San Miguel Median.
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Newport Center Traffic Analysis (Preliminary)
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Exhibit C 00", General Design Parameters with proposed new Parameters City Hall and Park Master Plan Design Competition
General Design Parameters
(adopted by the City Council on April 22, 2008, posted April 24, 2008
and amended on May 13, 2008)
The following General Design Parameters are for the firms /teams selected to participate
in the Newport Beach City Hall and Park Master Plan Design Competition.
a. Access to Site and Circulation — The d a $A th° —�'-and
surrounding &sulatien 411 be pre6eRted !a Gity Qawnril by the ri
9R May 13, 2098. An aeeeSS/GiFoulation study is URdePWay asd will be - Flet-�-by
the end of n.,.a The et, ,ay will h„ att... hed as Exhibit G when Gemp,ete_Vehicular
access to the City Hall and Park site shall be off of Avocado Avenue. Farrallon shall
not be extended through to MacArthur from its current eastern terminus at Avocado.
Farrallon may be considered as an entrance point to the City Hall and Park provided
that no direct connection to MacArthur Boulevard exists from Farrallon. There shall
be no "right -turn in" vehicular entrance to the City Hall and Park site from MacArthur
within the Central Parcel, Exhibit A shows surrounding streets, today's access
points to the Library, and identifies the three key parcels (North Parcel, Central
Parcel, Library Parcel) subject to the master plan.
b. City Hall location on the site - The City Hall and its parking shall generally be
located in the Central Parcel south of the projection of Farrallon Drive, as shown on
Exhibit B.
c. Building Height - The height of the City Hall building (and parking facility) shall be
no higher than the height limits imposed by the Newport Village PC Text View Plane
limitation as depicted on Exhibit C except that architectural design features,
appropriate to the scale of the primary structure, may penetrate the view plane
created by the aforementioned height limits. Height limits in the Newport Village PC
Text are generally 45 feet above grade OR the View Plane limitation (expressed in
feet above mean sea level), whichever is lower. All landscaping and park
improvements, at maturity, shall be lower than the View Plane limitation.
d. Geotechnical Considerations - Geotechnical considerations will be set forth in a
soils investigation performed by Leighton Associates in April 2008 which is to be
attached as Exhibit D when completed. The current expected date for the final
report is the end of April. Preliminary results show no unique soils or water table
issues.
e. Library Access and Orientation to City Hall - The Newport Beach Central Library
currently faces away from the Central Parcel and the site of City Hall, towards the
ocean. The Design should, to the greatest extent practicable, maximize the Library's
relationship to the City Hall structure through consideration of a second entry, plaza,
Newport Center Tral iic Analysis (Preliminary)
May 13, 2008
Page 7
shared parking, landscaping or any other appropriate means within the context of
the proposed design.
f. Natural Park Considerations — The northerly 5 -6 acre portion of the Central Parcel
( "Newport Center Park") has been proposed as a natural park (i.e. one that is
reflective of the region's natural habitats and not. overly manicured nor oriented
towards turfgrass). Of particular importance is preserving the view from the
southernmost meadow area and creating a landscaped border around the natural
park area as a transition from the more manicured streetscape to the natural park.
g. Other Park Requirements — The southernmost meadow area of the Central Parcel
and the 3 -acre North Parcel shall have park amenities such as restrooms, a tot lot,
picnic and seating areas (including a softscape ampitheater, if appropriate), drinking
fountains, and an ADA- accessible path (the latter being around all or part of the 20-
acre master plan area). Both parcels shall be integrated as portions of the same
Newport Center Park. They shall have activity- oriented facilities but not any
organized sports fields.
h. Lighting — Exterior lighting throughout the Project (City Hall, Parking, and Park)
should be designed in such a fashion as to be the minimal intensity necessary to
meet safety needs.
i. Landscaping Considerations — The landscaping of the Park and City Hall area shall
use water conserving plant material to the greatest extent possible. The intent is to
not create a desert or dry landscape palette but a palette that is "California- friendly"
and blends into the landscape palette of Newport Center and Newport Beach. Best
Management Practices in water conservation, irrigation and drainage shall be
employed in the design.
j. Parking — 350 spaces shall be provided for City Hall with an additional 100 spaces
for the Central Library (the Library has a shortage of spaces' currently). Parking for
'the general public should be convenient to the City Hall and Library buildings. The
parking structure should be a separate structure from the City Hall building. The
additional 100 library spaces need not be in the City Hall parking structure.
k. Space Allocation and Needs Assessment Criteria — The 2002 Needs
Assessment prepared by LPA (a link to this document, and any updates to the
document, on the City's website is Exhibit F) will be the basis for the primary
program requirements for the City Hall Structure with the following adjustments:
• The City desires an open floor plan concept with maximum flexibility for future
needs;
• The building shall be designed for 270 full time employees at 200 -250 square
feet per employee, not including public areas; and
• The building's overall size shall be approximately 72- 79,000 total square feet
including public areas.
Please note that the 2002 Needs Assessment includes these two program
requirements, both of which remain desirable:
Newport Center Traffic Analysis (Preliminary)
May 13, 2008
Page 8
• A "one -stop shop" permit counter (for permits relating to Building, Planning,
Public Works, and Fire Prevention along with a cashier); and
• 'A 150 -seat Council Chambers.
I. LEED Criteria - The City Hall Structure(s) shall be designed to at least a Leadership
in Energy and Environmental Design ( "LEED ") standard of silver, with a goal to go
higher, if feasible within budgetary limitations.
- -
att-. h d C h'h't C a hall be used ' the overall Ma t Plan if pmvirded The Ci
will develop a direct entrance to the Central Library's existing parking lot as shown
(generally) in Exhibit E. This entrance may or may not be signalized. No further
improvements to CdM Plaza's access are envisioned at this time.
n. View Considerations – Views are a sensitive issue in Newport Beach. In addition
to the criteria in "c" above, the design should protect the public views westward over
the property from MacArthur Boulevard. The design should also be sensitive to the
westward views from homes east of MacArthur Boulevard over the property. Any
penetrations above the view plane as permitted in `b" above should only serve to
enhance the architectural appearance of the City Hall structure or frame or enhance
the private or public views across the property. Usable landscaped roof treatments
or roof terraces are acceptable — these are neither encouraged nor discouraged.
Also, the building and parking facility's lighting design shall take into consideration
nighttime views from the residences east of MacArthur Boulevard. All landscaping
and park improvements, at maturity, shall be within the view plane on Exhibit C.
o. Building Design — The city is not setting any design theme for the City Hall
building other than seeking a timeless design that will wear well over the years and
not be dated in a few years. The design should reflect the character of Newport
Beach. It should be harmonious with the adjacent Library and the eclectic
architectural styles of Newport Center. The building should be recognized as a
significant public building.
p. Budgetary Constraints –The budgetary goal of the Project is as follows
• Approximately $400 -450 per square foot for the City Hall structure (not
including FF &E);
• Approximately $20- 25,000 per space for the parking structure; and
• Approximately $15 -20 per square foot for landscaping, irrigation, access, site
work (grading and drainage) and site improvements.
Newport Center Traffic Analysis (Preliminary)
May 13, 2008
Page 9
The above amounts are exclusive of soft costs. The City Hall is not at this time
planned to be an "essential services building." The budget parameters expressed
here are not absolute amounts but are intended to indicate the price range the City
expects the project to cost. Designers should use these numbers as a guide in
preparing their submittals. Design economy will be an important consideration.
Exhibits
Exhibit A — Diagram showing 20 -acre Master Plan area showing North Parcel, Central
Parcel, and Library Parcel along with surrounding streets and current site
access points to the Library (attached).
Exhibit B — Diagram showing the area of the Central Parcel where City Hall and
Parking are to be located (attached).
Exhibit C — Diagram of the 20 -acre master planning area showing View Plane
restrictions over the property (attached).
Exhibit D — Soils Report (to be added).
Exhibit E — Diagram showing any potential or revised access, parking or circulation
considerations for CdM Plaza (te- 13e- wed):- attached .
Exhibit F — 2002 LPA Needs Assessment with updates (web link only).
Exhibit 3---AoGe&&fGwGuIa
Newport Center .Trat is Analysis (Preliminary)
May 13, 2008
Page 1.0
Exhibit.A
The Master Plan Area
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Newport center Traffic Analysis. (Prelimioary)
May 13; 2008
Page 11
Exhibit B
City Hall' and Parking Facility. Location within Central Parcel
The area southerly of the red line in the direction of arrow is'tha area
where City Hall and Parking are to be located.
The City does not anticipate using the entire portion of'the parcel southerly of the red
line for the City Hall and parking structure this diagram is provided merely to advise
where on the parcel both should go.
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Exhibit C
View Plane Limitations
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Exhibit D
Soils Report
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Newport Center Traffic Analysis (Preliminary)
May 13, 2008
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Exhibit E
Potential locations for increased access to CDM Plaza
To be added
Newport Center Traffic Analysis (Preliminary)
May 13, 2008
Page 15
Exhibit F
2002 LPA Needs Assessment with any updates (a website link)
http: /Nwuw city newport-beach ca us/ cmol CitvHall /cityhalidesignparkmasterplan asp
Newport Center Traffic Analysis (Preliminary)
May 13, 2008
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Newport Center Trafic Analysis (Preliminary)
May 1$, 2008
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Exhibit D
Library Parking Access Diagram
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THE FICKER GROUP CONSULTING a PLANNING
URBAN PLANNING
ENVIRONMENTAL PLANNING
WILLIAM P. FICKER, AIA • NCARB ARCHITECTURE
Date: May 13, 2008 E A
"RECEI _
To: City Council, City of Newport Beach PRINTED:"
cc: Homer Bludeau, City Manager
From: William P. Ficker
Re: Newport Beach City Council Supplemental Agenda, Regular Meeting May 13, 2008
XVIL CURRENT BUSINESS
S28. PRELIMINARY TRAFFIC ANALYSIS OF THE CITY HALL AND PARK SITE
AT NEWPORT CENTER BUILD -OUT: FARALLON EXTENSION V.
IMPROVEMENTS AT SAN MIGUEL
I would recommend that this is an inappropriate action and should not be taken so
precipitously.
2. For over two years while the "City Hall in the Park" was being debated and the North
Newport Center General Plan was being negotiated, there was absolutely no effort
to improve traffic or to recommend means of improving traffic in the Newport Center
area.
3. This should be a global analysis and thoughtfully performed, not done as quickly as
possible in order to meet a competition deadline for the City Hall.
4. There are many opportunities such as:
A. A right turn lane from MacArthur, which would intersect Avocado approximately
in the center of the newly- acquired open space north of San Miguel.
B. The extension of the northbound Avocado lanes to accommodate a right turn
onto San Joaquin.
C. A free right turn onto MacArthur from San Joaquin.
D. Many other opportunities with regard to traffic movements on San Miguel which
would be alleviated by some of the above.
E. Santa Rosa has a very short couplet for turns into the 610 building site and the
550 building site, which will be impacted by future growth on these sites as
well.
F. The solutions here are complex but certainly solvable, and have always been
considered solvable without the extension of Farallon, which creates a large
imposition on the City Hall site and probably would negate the most obvious
and best access to the site for the City Hall, and that is the signalized
intersection at Farallon and Avocado.
417 THIRTIETH STREET • NEWPORT BEACH, CA 92663 • PHONE (949) 675 -9628 • FAX (949) 675 -9638
.- . ,
City Council, City of Newport Beach
May 13, 2008
Page 2 of 2
G. The City Council "City Hall Building Committee" should not be trying to solve
this problem. It is a larger issue and should be one to be resolved by a
competent professional committee of planners and engineers in concert with
The Irvine Company and the input of their vast experience and concern with the
issue.
6. 1 recommend that no action be taken on this supplemental agenda item this evening
of May 13 other than to recommend that the conditions of the competition for the City
Hall design state that the primary access to the site shall be at the signal at Avocado
and Farallon and that access to the lowest part of the site shall be the existing library
service access from Avocado. In addition to that, there should be no
recommendation that a secondary entrance or exit be provided from the existing
library parking lot. This may well be a good idea but it is premature to crank into a
formula for a solution because the library also has an additional 10,000 sq. ft. to add,
and this may be the exact location where it should be added.
7. It is reasonable to assume there should be some parameters established for the
competition for the design of the building and for some planning. However, in doing
a feasibility study for the site, it should be obvious that consideration for neighboring
properties, preservation of the park, etc., were primary considerations. These are
political issues which the competing architects should be not wasting their time trying
to evaluate. In my opinion, it would be much more logical:
A. To establish the entrance at the Avocado and Farallon signal.
B. Assume a pad at approximately elevation 160 and state that the reason for this
is to minimize retaining walls.
C. There would be no parking under the City Hall building because of cost
considerations and other unpleasantness of parking in a basement below a
building rather than in a more open, airy parking structure.
D. This concept, with a "bowl' behind the City Hall toward MacArthur preserves
the MacArthur berm and the high spot for viewing for joggers, etc., and that
view will be shared by day - today occupants and visitors to the City Hall.
7.1 Those parameters should then help to focus on the design of the building rather than
on ethereal, political and more debatable issues of the site.
417 THIRTIETH STREET • NEWPORT BEACH, CA 92663 • PHONE (949) 675 -9628 • FAX (949) 675 -9638