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
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$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.
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k-2 CARLSBAD VILLAGE REDEVELOPMENT AREA II-
OPPORTUNITIES & CONSTRAINTS - WJ l oe i
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Economm Resewcc *ssn.xte~ ~- LCWAU * - )oF c.
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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.
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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
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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.
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Elm Am. Corridor
Carlsbad Redevelopment Area
Design Study
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II. THE CARLSBAD BLVD. CORRIDOR
A. Existing Conditions
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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.
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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. .
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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.
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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
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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.
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Cwbbrd Blvd. at Elm Ave.
Carlsbad Redevelopment Area
Design Study
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Section II
PUBLIC IMPROVEMENTS AND LAND USE RECOMMENDATIONS SUMMARY
URBAN DESIGN
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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
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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
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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
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SCOPE OF PROJECT l eeeCae