HomeMy WebLinkAbout1986-01-07; City Council; 8477; La Costa Ave improvments and I-5 bridge.. z 0
U 2 0 z 3 0 0
5
TITLE: LA COSTA AVENUE IMPROVEMENTS \B# 85'77
~TG. 1/7/86 AND 1-5 FREEWAY BRIDGE WIDENINGS
IEPT. cfy
CIT - OF CARLSBAD - AGEND BILL 9$6,h-4(3
DEPT. HD.~ $4
CITY MGR.~
CITY ATTY Bp
RECOMMENDED ACTION:
That the Council:
1. Approve in concept the formation of a bridge and thoroughfare
benefit district for the purpose of improving La Costa Avenue between El Camino Real and 1-5, and to widen three bridges over 1-5 at La Costa Avenue, Poinsettia Avenue and Palomar Airport Road.
2. Direct the City Manager to initiate Action to select a
special assessment engineer and legal counsel for setting up the bridge and thoroughfare benefit district.
3. Direct City Manager to complete final design for two interim projects on La Costa Avenue:
a. Improve intersection of La Costa Avenue & El Camino Real
at an estimated cost of $990,000.
b. Improve intersection of La Costa Avenue & 1-5 at an estimated cost of $575,000.
:XPLANATION :
Continued growth of the City has created a need to widen bridges over 1-5 at La Costa Avenue, Poinsettia, and Palomar Airport Road and improve La Costa Avenue. These facilities have been adequate in the past but are now or shortly will be inadequate. facilities management program does not provide for these projects
for two reasons. Until 1984 it was assumed that the state would
provide funds to widen 1-5 bridges when necessary. CALTRANS has
now changed its policy due to lack of state highway funds.
Freeway bridge widening is now a local government responsibility.
La Costa Avenue was a county road until 1985 when it was annexed
to Carlsbad.
The public
Since it is now clear that these improvements are the responsibility
of the City it is proposed that Council authorize a financing
program to accomplish the work.
SSTIMATED COST:
Preliminary estimates indicate a cost of $2.5 million to widen
each 1-5 bridge from 2 to 4 lanes.
La Costa Avenue widening from 2 to 4 lanes with 6-8 lane inter-
sections would dost $5.5 million.
Total estimated costs of all improvements and engineering is
$13 million.
AB # Page Two
ALTERNATIVES :
The following financing alternatives have been considered:
1 - City do the work
Most of this work could be considered of general City benefit, however, the City does not have funds available. If done as a City project it would probably require a
vote of the people.
2 - County, State, Federal Funding
We have discussed these projects with other governmental agencies and have found no support. It is possible that
future increases in gasoline or sales taxes could produce
added funding but that is questionable.
Even though some of the traffic comes from outside the
City it is difficult to see how the County or other
agencies could be induced to share the cost.
3 - Developer requirement
The need for these facilities is a direct result of
development. However, there is no single developer
who could be held responsible. In actuality the entire
southern half of the City benefits from these improvements.
4 - Assessment District
Creating a 1913 District is a way of levying an assessment against benefitted property for a specific improvement. It could be used to widen the bridges. The,assessment could be spread over 10 years. It would raise the money up front. A problem is that a majority of land owners
would have to approve going ahead with the project. It is always difficult to coordinate the timing of improvements with several developers.
5 - Public Facility Fees
The $13 million facility cost could be included in PFF. This would raise the developer fee City wide. The PFF is collected when building permits are taken out so it does not produce the money up front. A possible problem is the legality of such a fee. The City Attorney has some concerns and would prefer the bridge and thoroughfare
district approach because it has statutory authority
under the subdivision map act.
AB # Page Three
6 - Bridge and Thoroughfare District
The Municipal Code provides a means of assessing and collecting fees for the construction of bridges or major thoroughfares (Sec. 20.08.140)
This procedure would allow Council to levy a fee against undeveloped land to be collected when building permits are taken out. It would be very similar to the PFF or to a traffic impact fee.
LA COSTA AVENUE
Council appropriated funds to do an engineering study to
determine the cost of improvements needed on La Costa Avenue.
The consulting engineer (Wildan) has filed a report recommending
4 lanes for La Costa Avenue between 1-5 and El Camino Real and
6 to 8 lanes at the El Camino intersection and the 1-5 bridge.
The estimated cost of all improvements is $8 million.
The primary congestion problem on La Costa Avenue occurs at
its intersections with 1-5 and El Camino Real during morning
and evening peak hours. It is recommended that improvements
be made to the intersections as soon as possible.
If Council desires to improve La Costa Avenue in 1986 it is suggested that City funds be advanced for the interim projects ($1.5 million). This loan could be reimbursed from the bridge and thoroughfare fees as development occurs.
ATTACHMENTS
A - Municipal Code 20.08.140
B - Wildan Report 12/16/85
3
.- - EXHIBIT A
20.08.130--20.08.140
20.08.130 Drainage and sewer facilities--Payment of fees required. Prior to filing of any final map or parcel
map, the subdivider shall pay or cause to be paid any fees for defraying the actual or estimated costs of constructing planned drainage facilities for the removal of surface and storm waters from local or neighborhood drainage areas or sanitary sewer facilities for local sanitary sewer areas established pursuant to Section 66483 of the Subdivision Map Act. (Ord. 9417 SZ(part) , 1975).
20.08.140 Bridge crossing and major thoroughfares. (a) The purpose of this section is to make provision for assessing
and collecting fees as a condition of approval of a final map
or as a condition of issuing a building permit for the purpose
of defraying the actual or estimated costs of constructing
bridges or major thoroughfares pursuant to Section 66424 of the Subdivision Map Act.
they shall have the following meaning:
of-way, administration of construction contracts and actual *
construction:
the circulation element of the general plan whose primary pur- pose is to carry through traffic and provide a network connect-
ing to the state highway system. (c) Whenever this section refers to the circulation ele- ment of the general plan or to the transportation or flood con- trol provisions thereof, it shall mean the circulation element
of the general plan and the transportation and flood control provisions thereof heretofore adopted by the city pursuant to
Chapter 3 of Title 7 of the Government Code, toqether with
any additions or amendments thereto hereafter adopted.
an area of benefit established pursuant to this section, the subdivider shall pay or cause to be paid any fees established
and apportioned to said property pursuant to this section for
the purpose of defraying the actual or estimated cost of con- structing bridges over waterways, railways, freeways or canyons or constructing major thoroughfares.
(e) Prior to the issuance of a building permit for
construction on any propert;. within an area of benefit estab-
lished pursuant to this section, the ap9licant for scch pernit shall pay or cause to be paid any fees established and 323-
portioned pursuant to this section for the purFose of defray-
ing the actual or estinated cost of constructing bridges over waterways, railways, freeways or canyons or constructing major thoroughfares, unless such fees have been paid pursuant to subsection (d) of this section.
(b) Whenever the following words are used in this section,
(1) "Construction" means design, acquisition of right-
(2) "Major thoroughfare" means a roadway as shown on
(d) Prior to filing a final nap which includes land within
325 (Carlsbad 7/15/79)
20 . 08 -140
(f) Notwithstanding the provisions of subsections (d) and (e) of this section:
less the planned bridge facility is an original bridge serving the area or an addition to any existing bridge facility serving the area at the time of adoption of the boundaries of the area
of benefit:
required unless the major thoroughfares are in addition to, or a reconstruction of, any existing major thoroughfares serving
the area at the time of the adoption of the area benefit. (4) Prior to establishing an area of benefit, a public hearing shall be held by the city council, at which time the
boundaries of the area of benefit, the costs, whether actual or estimated, and a fair method of allocation of costs to the area of benefit and fee apportionment, and the fee to be col-
lected, shall be established.
Section 65091 of the Government Code. In addition to the re- quirements of Section 65091 of the Government Code, such notice shall contain preliminary information related to the boundaries of the area of benefit, estimated cost and the method of fee apportionment.
(h) At any time not later than the hour set for hearing objections to the proposed bridge facility or major thorough- fare, any owner of property to be benefited by the improvement may file a written protest against the proposed bridge facility or major thoroughfare or against the extent of the area to be benefited by the improvements or against both of them. Such protests must be in writing and must contain a description of
the property in which each signer thereof is interested, sufficient to identify the same and if the signers are not shown on the last equalized assessment roll as the owners of
such property, must contain or be accompanied by written evidence
that such signers are the owners of such property. All such protests shall be delivered to the city clerk and no other protest or objections shall be considered. Any protests may be withdrawn by the owner's making the same, in writing, at any time prior to the conclusion of the public hearing. (i) If there is a written protest filed with the city
clerk by the owners of more than one-half of the area of the property to be benefited by the improvement, and sufficient pro- tests are not withdrawn so as to reduce the area represented to less than one-half of that to be benefited, then the proposed proceedings shall be abandoned, and the city council shall not, for one year from the filing of that written protest, commence or carry on any proceedings for the same improvements under
the provisions of this section.
(1) Payment of bridge fees shall not be required un-
(2) Payment of major thoroughfare fees shall not be
Notice of the public hearing shall be given pursuant to
326 (Carlsbad 9/85)
..._
20 . 08 -140
If any majority protest is directed against only a portion of the improvement then all further proceedings under the pro-
visions of this section to construct that portion of the im-
provement so protested against shall be barred for a period of one year, but the city council may commence new proceedings not including any part of the improvement or acquisition so protested against. Nothing in this section shall prohibit the city council within such one-year period, from commencing and carrying on
new proceedings for the construction of a portion of the im- provement so protested against if it finds, by the affirmative vote of four-fifths of its members, that the owners of more
than one-half of the area of the property to be benefited are in favor of going forward with such portion of the improvement or acquisition.
not been made they shall make the determinations required by
subsection (9) of this section and decide whether or not to confirm the area of benefit.
shall be recorded with the recorder of the county. There are established fees for the purpose of defraying the actual or estimated cost of constructing the bridge or thoroughfare as described in such resolution as the council may adopt pursuant to this section. Said fees and the area of benefit to which such fees are apportioned shall be established as set forth in
said resolution. Such apportioned fees shall be applicable to
all property within the area of benefit and shall be payable as a condition of approval of a final map or as a condition of issuing a building permit for such property or portions thereof.
(k) Notwithstanding the provision of subsection (j) of this section, payment of such fees shall not be required for: (1) The use, alteration or enlargement of an existing building or structure or the erection of one or more buildings or structures accessory thereto, or both, on the same lot or parcel of land: provided, the total value, as determined by the building and planning director, of all such alteration, enlargement or construction completed within any one-year per- iod does not exceed one-half of the current market value, as determined by the building and planning director, of all existing building on such lot or parcel of land, and the altera- tion or enlargement of the building is not such as to change
its classification of occupancy as defined by Section 501 of the Uniform Building Code:
private garages, children's playhouses, radio and television
receiving antennas, windmills, silos, tank houses, shops, barns, coops and other buildings which are accessory to one-family or two-family dwellings.
(j> If the city council finds that a majority protest has
The council shall announce its decision by resolution, which
(2) The following accessory buildings and structures:
327 (Carlsbad 3/83)
--.. '0.09.010--20.09.020
(1) Upon application by the subdivider or applicant for
a building permit, the city council may accept consideration in lieu of fees required pursuant to this section, provided:
(1) city manager that the substitute consideration has a value equal to or greater than the fee: and
The substitute consideration is in a form accept- able to the city council. ((3rd. 9758 S4, 1985; Ord. 1261 S31,
1983; Ord. 9521 S7, 1979: Ord. 9417 §2(part), 1975).
The city council finds upon recommendation of the
(2)
Chapter 20.09
DRAINAGE FEES
Sections :
20.09.010
20.09.020
20.09.030
20.09.040
20.09.050
20.09.060
20.09.070
20.09.080
20.09.090
20.09.100
Drainage areas established. Planned local drainage facilities.
Estimated costs. Drainage fees established. Payment of drainage fees. Credit for previous payment or construction. Adjustment of fees. Use of drainage fees.
Reimbursement agreements.
Applicability.
20.09.010 Drainage areas established. Planned local drainage areas or PLD areas for the city are established,
which cover the entire drainage area of the city as adopted
by the city council. Such PLD areas are depicted upon plates
1 through 4, included in that certain Master Drainage Plan for the City of Carlsbad, dated March 17, 1980, prepared by VTN, and adopted by resolution of the city council and any amendments thereto, a copy of which plan is on file in the office of the city clerk. (Ord. 9560 §l(part), 1980).
20.09.020 Planned local drainage facilities. The city council finds that the subdivision of land within the meaning of the Subdivision Map Act will require the construction of those drainage facilities described in the drainage master plan. Such facilities shall hereinafter be referred to as planned local drainage facilities or PLDF. The city council further finds that all properties within each of the planned local drainage areas will be benefited by construction of the local drainage facilities proposed far each of the areas.
(Ord. 9560 Sl(part), 1980).
328 (Carlsbad 9/85)
DECEMBER 17, 1985
... EXHIBIT B
TO: CITY MANAGER
FROM: City Engineer
LA COSTA AVENUE IMPROVEMENTS
The City Council is considering improvement of La Costa Avenue between El Camino Real and 1-5.
Willdan Associates, consulting civil engineers, have prepared cost estimates for four projects for improving La Costa Avenue. They are:
Phase I - Interim Improvements
a. La Costa Avenue 8 El Camino Real b. La Costa Avenue @ 1-5 Total Estimated Interim Project Cost
Phase 11 - Major Improvements
a. Widen Bridge 8 1-5 b. Widen La Costa Avenue Total Estimated Major Improvements
TOTAL ESTIMATED PROJECT COST
$990.000 9;575;000
$1,565,000
$2,100,000
$4,300,000 $6,400,000
$7,965,000
It is estimated that construction could commence on the interim El Camino Real/La Costa Avenue Project on or about April 15, 1986, rain permitting; and on the interim 1-5/La Costa Avenue Project about July, 1986. We have also estimated construction could commence on or
about May, 1987 on the Phase I1 major improvements.
Attached is Wi 1 ldan Associates' 1 etter dated December 16 , 1985 depicting the above in more detail.
DED: cl e
Attachments
cc: Principal Civil Engineer, Municipal Projects
WILLDAN ASSOCIATES 0 ENGINEERS & PLANNERS
Anaheim Nowalk Venturo iancaster Son Bernardino and Son 9iego California -
t
December 16, 1985
Mr. Donald E. Donovan
CITY OF CARLSBAD
1200 Elm Avenue
Carlsbad, CA. 92008
Dear Gene:
The Carlsbad City Council has grown increasingly concerned about the
current and future traffic congestion along La Costa Avenue. Over the past
few months, they have awarded contracts to prepare an alignment study for
the ultimate improvement of La Costa Avenue, as well as for the final design
for intersection improvements and widening of La Costa Avenue immediately
west of El Camino Real.
Despite these ongoing efforts, based on the estimated 6,000 approved, but
unconstructed, dwelling units in La Costa, the City Council is considering a
plan to complete the widening of La Costa Avenue for the entire length from
El Camino Real to Interstate 5, including the reconstruction of the freeway
interchange. This is based, in part, on the current level of service at
the intersection of El Camino Real and La Costa Avenue during the evening
peak hours, in which it is not uncommon for vehicles to wait through three
or more signal cycles before they are able to clear the intersection. Addi-
tionally, traffic waiting at the freeway off-ramps, at times, backs up to the
through lanes, which is an extremely undesirable situation. It is clear from
these conditions that improvements must be made in the near future to either La Costa Avenue and its interchange with Interstate 5, or provisions must
be made for an alternative east/west connection to the freeway, such as the
extension of Olivenhain Road to Leucadia Boulevard. This latter connection,
however, is outside of the City of Carlsbad's jurisdiction, and due to the
current agricultural operations along that alignment, it is unlikely that that extension will be completed in the near future. You have, therefore, re-
quested this letter to identify the costs for a complete reconstruction of La
Costa Avenue from El Camino Real to Interstate 5, as well as, available
alternatives and their cost implications.
Travel forecasts for this portion of La Costa Avenue, made in connection
with Hunt Property Incorporated's (HPI) proposed Pacific Rim Master Plan,
indicate that La Costa Avenue should be widened to six lanes, plus dual left
turn lanes, at El Camino Real. This six lane configuration should be carried
westerly, approximately 1,500 to 2,000 feet along the Green Valley portion of
HPl's property. At that point, due to the lack of future access, it will be
possible to reduce the width of the roadway to four lanes, with a reduced
3633 CAMINO DEL RIO SOUTH SUITE 207 SAN DIEGO CALIFORNIA 92108 (619) 281-9211
December 16, 1985
Letter to Mr. Gene Donovan
CITY OF CARLSBAD
Paqe Two
median. This narrowed four lane configuration could then be carried west-
erly to a point approximately 1,000 to 1,500 feet from Interstate 5. At that
point, the road should widen to six lanes to carry traffic to the freeway
interchange. The interchange needs to be reconstructed to accommodate a
minimum of two through lanes in each direction, plus two left turn lanes and
re la ted bicycle and pedestrian faci lit ie s .
Since La Costa Avenue currently runs along the south shore of Batiquitos
Lagoon and abuts steep slopes south of the roadway, construction of the
widened roadway will result in substantial amounts of cutting into the
hillside. This area is clearly extremely sensitive from an environmental
standpoint, therefore, it is recommended that the roadway be constructed to
minimum design standards, reducing the right-of-way as much as practical to
accommodate the traffic while still minimizing the potential impacts onto the
environment. Based on the preliminary information from the ongoing align-
ment study, a reduced right-of-way width is proposed in this area. The
street cross-sections for the various lane configurations are shown on the
attached figures.
A construction project of this magnitude will involve not only a considerable
design period, but also require permits from various agencies, including
CALTRANS for the freeway interchange, and the State Department of Fish
and Game, and U.S. Corps of Engineers for any encroachments into the wet-
lands area of Batiquitos Lagoon. Additionally, right-of-way will need to be
acquired along the entire length of La Costa Avenue. This process, if
started immediately, is anticipated to take approximately 12 to 15 months,
indicating the complete widening project could be under construction during
the Spring of 1987. Detailed time schedules are included for your review.
As noted, there is currently considerable congestion at both the freeway
interchange and at El Camino Real. The City Council has previously author-
ized a design project to widen La Costa Avenue immediately west of El
Camino Real. If this project were expanded to include the widening of El
Camino Real immediately north and south of the intersection to prime arterial
standards, the current level of service I'F" o pera ti on could be drama tica I I y
improved to level of service IIB". Since this project is substantially smaller
than the overall widening project, the design and permitting process can be
accomplished much sooner. It is anticipated that it could be under con-
struction as soon as weather permits this Spring, approximately mid-April.
A similar interim project is also possible at the freeway interchange, which
could help to alleviate some of the current congestion. By signalizing the two freeway ramps and widening La Costa Avenue from two to four lanes for
approximately 1,000 feet east of 1-5, substantial congestion relief could be
realized. Again, due to the reduced scope of this project, it is likely that
this interim project could be accomplished during the Spring of 1986 as well.
This second interim project, however, will involve CALTRANS approvals,
!
December 16, 1985
Letter to Mr. Gene Donovan
CITY OF CARLSBAD
Paae Three
which might extend the design phase into the Spring with construction to
occur during the Summer of 1986. We are attempting to resolve the extent
of CALTRANS' invo1vemen.t and will advise you as soon as possible.
Both interim projects could be designed and constructed so that they would
be integrated readily into the overall widening project. It should also be
clear that these interim projects will provide only temporary relief, that once
the approved dwelling units are occupied, it will certainly be necessary for
La Costa Avenue and the freeway interchange to be widened as proposed.
We have completed preliminary construction cost estimates for each of these
projects in today's dollars. These costs, including design, construction and
construction management, are summarized below with a detailed cost breakL
down to be submitted under separate cover.
Interim La Costa/El Camino
Intersection Improvements - $ 991,000
Interim Freeway Interchange
Improvements - $ 575,000
Reconstruction La Costa -
El Camino Real to 1-5 - $4,334,000
Widen Freeway Interchange - $2,055,000
No specific sources of funding have been identified for the projects. The
interim projects could possibly be funded by City Gas Tax or general funds
in order to expedite their construction. The two larger projects, however,
will probably require other funding sources. Some of the other sources
might include an Assessment District, Developer Exactions, Certificates of
Participation combined with benefit fees or some combination of the above.
It is our understanding that the ongoing La Costa Area Traffic Fee Study is
reviewing similar options and should provide needed input into this area.
' .'
December 16, 1985
Letter to Mr. Gene Donovan
CITY OF CARLSBAD
Paae Four
Willdan Associates is available. to provide whatever assistance you need in
realizing the completion of these projects. Our staff is rapidly completing
the alignment study, which is expected to be available the first week of
January.
Yours truly,
WILLDAN ASSOCIATES
Division Manager *
RMS: SI
Attachments
P 85-170
JN 6841
* 12 IO
- .J IO
12 I 15
17
It
IO
-----
II I
l5 I I
II
t
II
LA N E CON F I G U RAT1 ON
LA COSTA 8 EL CAMINO
10 I
io
f
15
- 17
I7
IO
31 r-
FIGURE I
LA COSTA AVE.
4 ...... ............ .. .. ... ..L ............... I. .- . .- *. .- .. .. .. .. - ..
5 BIKE
64/80* 8
12
12
.... .*. *. .. . ,. - .. .5' : .. :. . . ,..e* .. *. .. . 5 ;' *.. .... .. .._ .* -
3k EXPANDS TO 70186 W/ 4 FT. MEDIAN AND
IO FOOT LEFT TURN LANE AT SAXONY RD.
LANE CONFIGURATION
LA COSTA BETWEEN 1-5 81 ELCAMINO
FIGURE 2
I II ' I \--.
I5 - ll
LANE CONFIGURATION
LA COSTA AVE/L-5 INTERCHANGE
FIGURE 3
cn t- u w V 2 a
v)
%Zo> c
0 uc, I
N >. C 0 .- ? z a c, Y
L 3 Y in > C -0 0 a u
0 > C
L c, S .- E C M 0 .- 0
VI .- U .- z J CT V m C 0
c, >
(z1 m 3
.-
L
1 m
V cc 0 I
-
E c,
c, m m
z 5 !i?
a a
v - /b
zo>
0 u+J
VlsP
a~m
w t 0 uo k E - v)sP
I
In L 01
m z
II
c 01
v) aJ
.-
n
c,
In
0 m
- .-
C 0
In aJ
.-
n
S 0
U
.- 2
a 3
m
c, 3
c u) Y in > C U 0 Q u
L
c, 0 C
C 0
o u m
.-
+J S Q; C
- ’1