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HomeMy WebLinkAbout1986-07-15; Housing & Redevelopment Commission; 69; Streetscape Design in Redevelopment AreaHOUSING AND=‘EDEVELOPMENT COMMW--IN - AGENDA BILL 4 AB# 69 TITLE: AUTHORIZATION FOR REQUESTS FOR PROPOSALS FOR A STREETSCAPE DEPT. HD.li)bV MTG. 7/15/86 DESIGN IN THE REDEVELOPMENT AREA CITY Am-b!,!% DEPT. RED CITY MGR.x RECOMMENDED ACTION: If Housing and Redevelopment Commission concurs your action is to authorize staff to solicit proposals for a streetscape design in the Redevelopment Area. ITEM EXPLANATION The Economic Research Associates study of the Redevelopment Area recommended that a public improvements program begin in 1986. They established a priority list'of improvements ranging from streetscape to parking lots. Their first priority was to begin streetscape improvements of Elm Avenue cooridor. Their second priority was to construct public improvements on Carlsbad Boulevard in the Redevelopment Area. The scope of work would include such items as landscaping, curbs, gutters, sidewalks, medians, lighting and street furniture. The Economic Research Associates fiscal analysis indicated that these improvements could cost $2.4 million. Sufficient funds would be generated from tax increment to pay for these improvements through a Redevelopment Bond. Staff is requesting that proposal be requested to determine the design and actual costs of the Elm and Carlsbad Boulevard segments of the streetscape program. This information could then be presented to the Commission for their review. FISCAL IMPACT Estimated cost $100,000. Funds are available in Redevelopment Fund balance. EXHIBITS l- Excerpts from Economic Research Associates Study 2- Location Map IMPLEMENTATION AND COSTS Given limitations in the market for new commercial development in the short term, as demand catches up with the abundant new supply of commercial space in the region, the Agency should concentrate its efforts on public improvements in the near term so that the downtown may position itself to capture quality commercial development in the near future when demand has met existing supply of space and new development Urban Design Implementation costs: Elm Avenue Corridor - Harding Street to the Sea The Carlsbad Boulevard Corridor State Street - North at Grand Avenue Interstate 5/Elm Avenue Interchange Grand Avenue - Carlsbad Boulevard to Harding Street Total Priority: is needed. $1,230,000 1,155,ooo 764,000 202,000 822,000 -e-w----- $4,173,000 0 The above areas should be treated in the order presented above, with the Elm Avenue Corridor receiving the first attention, and Grand Avenue receiving the last treatment. URBAN DESIGN CONSIOERATIONS In the course of this urban design review, which has entailed extensive field observation and discussions with city staff and merchants, several opportunities for public improvements have been identified and prlorltited for specific tones within the Redevelopment Area. These zones are distinct in land use, visual characteristics, and function and represent a hferarchial circulation network within the Village Area. In order of priority these zones are: I. Elm Ave. Corridor II. Carlsbad Blvd. Corridor, including the intersections of Carlsbad Blvd. at Elm Ave. and Grand Ave. III. State Street Corridor North of Grand Ave. IV. Elm Ave./I-S Interchange. V. Grand Ave. - Carlsbad Blvd. to Harding St. In the following, each of these zones are analyzed in terms of their existing conditions and the opportunit#es/constraints they pose for Improvement. Finally, specific urban design recommendations are made for each zone which not only help define it but which also contribute to the overall texture and physical, design fabric of the Redevelopment Area. These reconendations are ranked in the order proposed for implementation. The thrust of these recommendations is to physically reinforce the distinctive character and function of each zone, yet, at the same tjme, to unify them through a cormnon vocabulary of urban design elements. In general, variations in street trees and special paving treatments are proposed as the primary elements for distinguishing the zones. Specially designed and complementary street lightjng and furniture and signage are viewed as the major ingredlents for establishing a strong sense of unity and interconnectedness in the Village Area. To illustrate the process through which design reconmnendatlons have been derived and to aid visualization of their impact, Exhibit I-l has been provlded. 107BL I-2 I -. - .~-. 1 -. i . . -_I_ -7 - J k-2 CARLSBAD VILLAGE REDEVELOPMENT AREA II- OPPORTUNITIES & CONSTRAINTS - WJ l oe i I ill I Economm Resewcc *ssn.xte~ ~- LCWAU * - )oF c. I- --.I L-.-.-e: .- em- l-3 . . . - i.u- ;-. . ..I o- rr- I. ELM AVE. CORRIDOR - HARDING ST. TO THE SEA A. Existing Conditions Elm Ave. Is the major east-west thoroughfare linking the Civic Center and I-5 to the Village Centre, Carlsbad Blvd. and beach access points. Elm Ave. is an 80 foot right of way and throughout most of its length, from Harding St. to Carlsbad Blvd., provides two travel lanes, a left turn median lane and parking lanes on either side of the street which abut B foot continuous sidewalks.' The street widens to four travel lanes between I-5 and Harding St. to accommodate freeway traffic. The sidewalks from I-5 to Carlsbad Blvd. are monolithic concrete, which are punctuated at more or less regular intervals by a variety of street trees, including Dueen Palms and Carrotwood and conventional "Cobra Head" street lights. Between State St. and Carlsbad Blvd., street trees have not been planted; however, generous plantings of trees in adjoining lots, especially eucalyptus species which dominate the western horizon, give the impression of continuity in planting. At the intersection of State St. and Elm Ave:, interlocking pavers, bound in concrete bands, form the crosswalks. This special paving dramatically breaks the monotony of the sidewalks and is the first visual sign along Elm Ave. for the first time visitor that something unique may be just around the corner. For the motorist entering Carlsbad from I-5, the overall visual character of Elm Ave. between Harding St. and the sea is comfortable and pleasant, especially for the westbound traveler who has emerged out of the visual distraction of service stations and convenience retail complexes which marked his arrival. However, the existing streetscape does not do justice to the important function of this major thoroughfare as a gateway to the Redevelopment Area. 8. Opportunities and Constraints The Redevelopment Plan envisions Elm Ave. as the east-west gateway to the Village Centre and beach access points which facilitates circulation and promotes strong financial and commercial land use. From an urban design perspective, Elm Ave. represents a very strong, visual corridor which has enormous potential to promote the imageability and physical coherence of the Redevelopment Area. With the Pacific Ocean at its western terminus and visible from an extended distance, the towering trees that silhouette its western horizon and the impression it gives of descending from I-5 to the sea, Elm Ave. acts to draw the eye and excite anticipation. While the terminus of this axial street is not sufficient by itself to emphasize the axis, much can be done with landscaping, paving, lighting and, perhaps, banners and flags to visually reinforce the Elm Ave. corridor. 107BL I-4 - 2. 3. Directional and informational signage along Elm Ave. should be uniform, aesthetically designed to complement other urban design elements, strategically placed and held to a minimum. As with lighting standards, signage designed for-Elm Ave. should be used throughout the Redevelopment Area to help establish its identity. Street furniture, including benches, planter, cigarette urns, waste containers and drinking fountains, banners and bus stop enclosures, should be specially designed, complementary and strategically placed along Elm Ave. Like lighting and signage, these elements should be consistent in design throughout the Redevelopment Area to reinforce its integrity. A median should be installed in the left turn lane the length of Elm Ave. between Harding St. and Carlsbad Blvd. Consideration should be given to extending this median through certain intersections, such as Jefferson St. and Elm Ave., to improve circulation a-long Elm Ave.. The median should be planted with shrub masses and ground cover. Special paving should be installed at the perimeter of the median to define the edge and facilitate maintenance and in those sections of the median where planting is impractical. This landscaped median will soften the character of Elm Ave., yet still noticeably contribute to its function as the Redevelopment Area's major visual corridor. Special treatment is recommended in the general area of the railroad crossing on the north side of Elm Ave. The presence in this area of the park, the old railroad station (now the Chamber of Comerce), the expansive alley way west of State Street and the under-utilited parcel at the northwest corner of Elm Ave. and State St. (now a transmission repair shop), give it great potential as a vibrant, pedestrian node. In this area, consideration should be given to provide heavy landscaping and added amenities; such as a low seating wall, a fountain, an information kiosk and enriched paving detail in the alley way, to capture its potential. 4. Consideration should be given to designing and constructing an overlook at the terminus of Elm Ave. at the Pacific Ocean to maximize the public benefit of this major view and beach access point. At present, private residences partially obstruct the view and serve to diminish the importance of this major focal point. A viewing platform which extended out seaward beyond the line of houses along Ocean Street would dramatically 107BL I-6 -- unveil a panoramic view of the coastline for visitors to Carlsbad. In addition, the use of palms, decorative lighting fixtures, banners and, possibly, a gateway such as that proposed for the Elm Ave./I-S interchange area '. (see Item IV., below) would enframe and highlight the visual importance of this major focal point. . 1078L I-7 --. .‘Y - _ ,._ -_ _. - ._ - _H . Elm Am. Corridor Carlsbad Redevelopment Area Design Study I-8 - II. THE CARLSBAD BLVD. CORRIDOR A. Existing Conditions -- - -- -. -- . . .I .I Carlsbad Blvd., conmnonly referred to as Old Highway 101, functions as the major north-south thoroughfare in the downtown area. Existing land use along this 100 foot corridor consists of tourist, highway commercial, institutional and local heritage. Several prominent landmarks punctuate the boulevard, such as the historical park, the Lutheran Home and the Twin Inns. q The Carlsbad Blvd. corridor is for the most part heavily vehicular- oriented and evokes an irregular, informal and, at times, chaotic, visual impression. Two distinct visual zones are present. Moving southward from the north entry point at the bridge over the railroad tracks to Grand Ave., the street consists of three travel lanes, a painted, left turn median lane, and bike and intermittent parking lanes on either side. Sidewalks in this area are discontinuous and do not encourage pedestrian movement. Large, mature ecualyptus specimens, randomly planted at the edges of the right-of-way and In groves and palms at the Lutheran Home, dominate the view corridor in this area. Open space is afforded by the park, the military academy athletic field and generally by low density development. Together, these characteristics act to impart a loose, informal, spacious and somewhat rural quality to the area. The second zone essentially begins at the intersection of Grand Ave. and ends at Pine Ave. Development within this area is more intense and urban. The street opens up into four travel lanes with a painted median, and intermittent parking lanes and bike lanes on either side,. Sidewalks are more or less continuous, but are of different materials and do not promote pedestrian movement. The junctures of Carlsbad Blvd. at Elm Ave. and Grand Ave. are major intersections, which like the street itself, have decided vehicular orientations. Pedestrian crossings at these intersections, especially across Carlsbad Blvd., are imposing, uninviting and do little to encourage pedestrian movement into the Village Centre. For a short distance along the east side of Carlsbad 81vd. fronting the Twin Inns, no curb exists at all, adding to the discomfort of pedestrian movement. In this area parking extends to the highway with no break, transition or buffer. With a few exceptions, this section of Carlsbad Blvd. is devoid of street trees or other landscaping, lending at times a harsh quality to the streetscape. At the south end of Carlsbad Blvd., where it veers toward the ocean and affords a panoramic view of the sea, pedestrian movement and enjoyment of the view is discouraged by the absence of improved sidewalks. With the exception of an unimproved trail to the beach, no provision has been made for walking along the bluff top overlooking the ocean. 1078L I-9 8. Opportunities and Constraints Excellent opportunities exist along Carlsbad Blvd. to enhance its function as a major scenic corridor and to contribute to the revitalization and overall character of the Redevelopment Area. The likelihood that Carlsbad Blvd. will increase in future importance as an alternative route to I-5 as regional growth continues and as a tourist destination, makes it imperative that its relationship to the Village Centre be strongly and visibly reinforced. As the primary north-south corridor into the Redevelopment Area, Carlsbad Blvd. provides major entry points into the area. At both the northern and southern entries, existing physical characteristics afford opportunities to create a strong element of surprise. At the north entry, the southbound motorist literally ascends and then descends over a bridge through a veil of towering eucalyptus into a relatively open, somewhat rustic environment, which rapidly transitions into an increasingly urban setting. This experience from the road evokes a very strong sense of arrival and discovery. Appropriately designed signage and amenities-at the intersections of Carlsbad Blvd. and Grand Ave. and Elm Ave. would reinforce this sense of arrival and serve to draw the motorist into the Village Centre. Should the southbound motorist continue beyond Elm Ave., he is awaited by the dramatic unveiling of the Pacific Ocean. This panoramic view, together with a special sense of place which marks this short span of Carlsbad Blvd., instills in the motorist an overall visual impression of the area which may prompt him to return another time. For the northbound motorist entering the Redevelopment Area along Carlsbad Blvd., the serial experience from the road is less dramatic. However, as he turns inland from the ocean, he does experience a definite sense of arrival. The unusual character of the Twin Inns, in particular, serves to signal a presence of a unique environment. Again, directional and informational signage and special amenities at Elm and Grand Avenues would attract the motorist into the Village Centre. Major opportunities also exist along Carlsbad Blvd. to intensify and promote pedestrian activity. The Village Centre, the historical park and, of course, the beaches are very strong attractions to the pedestrian-minded, especially tourists and beach visitors who can be expected to increase in number as a result of new resort development and regional growth. Landscaped medians along Carlsbad Blvd. are already being considered as measures to beautify and lend pedestrian scale to this corridor. Further improvements in pedestrian pathways and streetscapes linking areas of interest, in addition to special treatments at the Elm Ave. and Grand Ave. intersections, offer promise of transforming Carlsbad Blvd. from a largely vehicular-oriented street into a vibrant, active pedestrian network. . 1078L I-10 I ! d . . C. Urban Design Recommendations The Village Design Manual calls for heavy streetscaping and open space amenities along Carlsbad Blvd., particularly at the Elm Ave. and Grand Ave. intersections, to coordinate tourist, recreational and conznercial activities of the beach area with the Village Centre. Specific recommendations to achieve these objectives are set forth below: 1. Entry statements announcing arrival into the City of Carlsbad and the Village Centre, should be constructed at the north and south entrances to the Redevelopment Area on Carlsbad Blvd. Consideration should be given to constructing an entrance gate just south of the bridge similar to that proposed for the Elm Ave./I-5 interchange area (see Item IV, below). In addition, the bridge itself might be highlighted with specially designed lighting and colorful banners to emphasize arrival into the Redevelopment Area. 2. 3. The intersections of Carlsbad Blvd. and Elm and Grand Avenues should be substantially upgraded. Crosswalks should be defined with paving detail to more clearly mark pedestrian areas and invite pedestrians to cross the street into the Village Centre. Signalization and directional information should be incorporated into specially designed street light standards. In addition, entry monuments should be constructed at the northeast and southeast corners of the Carlsbad Blvd. and Elm Ave. intersection. Land use changes at the northwest and southeast corners would significantly reinforce these improvements and generally enhance the imageability of this key intersection. Landscaped medians should be constructed on Carlsbad Blvd. in the portion of the corridor from a point just north of Grand Ave. to a point just south of Elm Ave. This will serve to reinforce the sense of arrival into the urban core from the north and south, tend to slow vehicular traffic, dramatize the improved intersections and generally lend a smaller, more human scale to this wide expanse of thoroughfare. At the same time, consideration should be given to removing on-street parking on both sides of Carlsbad Blvd. between Grand Ave. and Elm Ave. to permit greater pedestrian-oriented activity. In both respects, it is important that engineering and urban design improvements be closely coordinated and performed simultaneously to insure cost effectiveness and fulfillment of urban design intent. 1078L . I-11 . . . . . 1 . c 4. Sidewalks should be made continuous the length of Carlsbad Blvd. on both sides of the street from the bridge at the north entrance to the southern boundary of the Redevelopment Area. The degree of paving detail should be intensified in the area between Grand Ave. and Elm Ave. to reinforce the more urban character of this interval of the streetscape. Monolithic, concrete sidewalks should be Installed in the areas between Grand Ave. and the bridge and Elm Ave. and Pine Ave., as required, to fill existing gaps. These spans of plain concrete will contrast with the enriched paving in the Grand Ave. and Elm Ave. area and serve to accentuate the transition in urban quality and sense of arrival into the Village Area. Street trees of the same species should be planted at relatively close intervals along Carlsbad Blvd. between Grand Ave. and Elm Ave. to create pedestrian scale, soften the visual harshness of this area and provide visual rhythm. With the exception of the segment between Grand Ave. and Elm Ave. lighting along Carlsbad Blvd. should be 'Cobra Head" fixtures with decorative standards to match those proposed for the Village Centre. In.this segment, pedestrian scale, decorative lighting fixtures proposed throughout the Redevelopment Area should be installed. Street furniture, including benches, bus stops, planters, cigarette urns, waste containers and drinking fountains, should be specifically designed to complement furniture to be used throughout the Village Centre and strategically placed along Carlsbad Blvd., but concentrated in the area between Grand Ave. and Elm Ave. Directional and informational signage should be uniform, aesthetically designed to complement other signage to be used in the Village Centre and held to a minimum. Existing bicycle paths should.be maintained but more clearly demarcated to encourage bicycling as an important alternative for accessing and experiencing the Village Area. On street parking areas along Carlsbad Blvd. should be clearly identified to facilitate circulation. 5. Improvements should be made along the western edge of Carlsbad 81vd. at the southern end of the Redevelopment Area to permit pedestrian movement along the ocean frontage. A bluff top pedestrian promenade would maximize the ocean vistas in this area and capitalize on this undeveloped natural asset as a tourist and visitor 1078L . . I-12 3 4 1 1 I d attraction. Consideration should be given to creating a pedestrian loop in this area which would begin at the southwest corner of Elm Ave. and Carlsbad Blvd., head south along Carlsbad Blvd. to the bluff top promenade and return along Ocean St. and Grand Ave. or Christiansen Way to Elm Ave. 6. Pedestrian linkages which would connect Carlsbad Blvd. north of Grand Ave., to the beach, lagoon and the park at the north end of State St., should be explored as ways of completing a pedestrian network in the Redevelopment Area. 7. Additional informal landscaping should be provided in the southern section of Carlsbad Blvd. between Walnut Ave. and Elm Ave., especially on the east side of the boulevard. This measure would serve to enframe this entrance into the Redevelopment Area, soften the visual appearance of the area, and create a more comfortable setting for pedestrian circulation. 8. The informal, open and semi-rural quality of the Carlsbad Blvd. corridor between the north entrance to the city and Grand Ave., should be reinforced through additional landscaping. Additional eucalyptus, other complementary, flowering specimen trees and shrubs should be loosely interwoven in or along the right-of-way, especially in the historical park, to provide a bucolic setting for leisurely strolling and a retreat from the more intense activity of the Village Centre. 1 1078L I-13 1 f 3 J 3 ‘, J iI 1 1 7 1 m -_ II) - 1 m - I I J --- -. - --- ____ -me.- . - Cwbbrd Blvd. at Elm Ave. Carlsbad Redevelopment Area Design Study I-14 Section II PUBLIC IMPROVEMENTS AND LAND USE RECOMMENDATIONS SUMMARY URBAN DESIGN I . . The urban design goals place emphasis on creating a diverse village environment which is pedestrian oriented in the European tradition. Five specific zones within the Redevelopment Area were selected for design improvements to achieve this environment. These zones are described below, in order of recommended priority. Elm Avenue Corridor Existing Conditions: 0 The existing streetscape does not do justice to the important function of this major thoroughfare as a gateway to the Redevelopment Area. Opportunities and Constraints: 0 Elm Avenue is a strong visual corridor which has enormous potential to promote a strong image and physical coherence for the Redevelopment Area. Elm Avenue acts to draw the eye towards the sea and excite anticipation. Urban Design Recommendations: 0 The intersection of Elm Avenue and Harding Street should be improved with enriched paving in the crosswalks. Along Elm Avenue, palm trees should be planted at regular intervals; sidewalks should be upgraded; street furniture and pedestrian decorative lighting should be installed to announce the gateway to the Village, emphasize the corridor, focus attention 11-l 1 1 1 I I 1 1 I 1 seaward, and develop design uniformity. A landscaped median should be installed in the left turn lane the length of Elm Avenue between Harding Street and Carlsbad Boulevard, and should be extended through certain intersections. Special treatment should be given the railroad crossing area to create a pedestrian node. Consideration should be given to designing and constructing an ocean overlook at the terminus of Elm Avenue. Carlsbad Boulevard Corridor Existing Conditions: 0 The corridor is heavily vehicular-oriented and evokes an irregular visual impression. Sidewalks and pedestrian cross- ings do little to encourage pedestrian movement into the Village. Pedestrian movement to the sea also is limited. The mature landscape and open space, however, act to impart an informal, spacious and somewhat rural quality. Opportunities and Constraints: 0 Excellent opportunities exist to enhance the boulevard's func- tion as a major scenic corridor. At both northern and southern entries, existing physical characteristics afford opportunities to create a strong element of surprise and arrival. The his- torical park and the beaches are elements that should promote pedestrian activity. Urban Design Recommendations: 0 Creative entry statements announcing Carlsbad and the Village should be designed. The intersections of Carlsbad Boulevard and Elm and Grand Avenues should substantially be upgraded. Landscaped medians should be constructed on Carlsbad Boulevard II-2 from Grand to Elm. Sidewalks should be made continuous the length of Carlsbad Boulevard on both sides of the street. Pedestrian scale street trees should be planted and decorative lighting fixtures should be installed in the section between Grand and Elm. Signage should be uniform, complement Village signage, and be held to a minimum. Bike paths should be main- tained. A bluff top pedestrian promenade should be developed along the ocean frontage. Pedestrian linkages should connect Carlsbad Boulevard north of Grand Avenue to the beach, lagoon, park at the end of State Street and the Village. ;OWITION MAF 0 n * I D z SCOPE OF PROJECT l eeeCae