HomeMy WebLinkAboutPlanning Commission 2012-01-10 #3 AttachmentPage 1 of 11
DRAFT Downtown San Rafael Station Area Plan
Executive Summary
This project is funded in part through the Metropolitan Transportation Commission’s Station Area Planning Program.
The preparation of this report has been financed in part by grants from the U.S. Department of Transportation. The
contents of this report do not necessarily reflect the official views or policy of the U.S. Department of Transportation.
The full report can be found at www.cityofsanrafael.org/stationareaplans
SMART
The Sonoma Marin Area Rail Transit (“SMART”) is a planned 70‐mile rail corridor for
passenger trains from Cloverdale to Larkspur. The SMART rail corridor encompasses the
former NWP ROW. The SMART corridor will eventually have 14 stations. SMART’s
Initial Operating Segment (“IOS”) is from Downtown Santa Rosa to Downtown San
Rafael. Rail service is anticipated to begin in 2016.
San Rafael will have two SMART stations; one at the Marin Civic Center and one in
Downtown. The Downtown San Rafael SMART station is the second southern‐most
station along the full SMART rail corridor and currently the major transfer point for
connecting bus service within Marin County and to the Larkspur Ferry for San Francisco
bound passengers. It is the southern‐most station for the IOS.
Downtown Station Area Plan
Background
The coming of SMART rail service to Downtown San Rafael in 2016 is an opportunity to
build on the work that the City of San Rafael has undertaken to revitalize the Downtown
and to create a variety of transportation and housing options, economic stability, and
vibrant community gathering places in the heart of San Rafael. This Downtown Station
Area Plan builds on previous City initiatives to create a more vibrant, mixed‐use, livable
area supported by a mix of transit opportunities, including passenger rail service.
The City of San Rafael received grant funding from the Metropolitan Transportation
Commission to prepare this Station Area Plan for the area around the future Downtown
rail station. The Station Area Plan is a multi‐agency collaborative planning effort
between the City of San Rafael, SMART, Golden Gate Bridge Highway and
Transportation District (GGBHTD), Marin Transit, the San Rafael Redevelopment Agency,
and the Transportation Authority of Marin (TAM).
The Redevelopment Agency Citizen Advisory Committee (CAC) has provided oversight
for the development of the Downtown Station Area Plan. The CAC is composed of
representatives of the citizens of San Rafael, including residents, businesspersons and
property owners.
Plan Area & Existing Conditions
The Station Area Plan encompasses
a 1/2‐mile radius around the
planned Downtown San Rafael
SMART station. The Plan Area
bounded by Mission Avenue, Irwin
Street, the San Rafael Canal and
Lincoln Avenue is the primary focus
of this Plan.
The Existing Conditions Report
(November, 2010) shows that the
Plan Area hosts a confluence of
transit services; auto, pedestrian
and bicycle access routes. The area
serves as the primary transit hub of
Marin County and for Golden Gate
Transit and Marin Transit, represents an important gateway to the City of San Rafael and
its Downtown, and acts as the primary traffic and freeway access point for San Rafael
and much of the western portion of the County. This area serves as the Gateway to
Downtown San Rafael. However, the vibrancy of the pedestrian experience in the core
of Downtown dissipates in this area. The pedestrian experience in the Plan area is
hindered by the lack of significant buildings on the west side of Hetherton, the lack of a
physical definition at the edge of the pedestrian realm due to buildings that do not
directly front onto and address the street, and the parking lots and curb cuts that
interrupt the pedestrian realm.
The Station Area Plan (the “Plan”)
The Plan considers conditions in the area, including traffic, pedestrian and bicycle
connections, and land use patterns, such as the location of residential neighborhoods
and areas of commercial concentration. The Plan sets out a community‐supported long‐
term strategy for the Downtown San Rafael station area, including the reconfiguration
and operation of a new Downtown San Rafael transit complex. Through the station
area planning process, the San Rafael community has considered and provided input on
the safest way for buses, pedestrians, bicyclists, and automobile drivers to travel to and
from residential and commercial areas, the best ways to access the SMART station and
nearby services, the most appropriate crossing improvements, design guidelines to
maximize amenities and passenger rail ridership potential, and strategies to sustain and
improve economic vitality.
The Plan is largely conceptual, laying out broad goals for the Plan Area and options for
achieving these goals. Elements that compose the community’s vision for the station
area may require further or more detailed study as they are implemented going
forward.
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Goals of the Plan
The five goals for the Plan Area are:
1. Integrate rail and bus transit within the Plan Area.
2. Provide a street network that supports the Plan's land use vision while balancing
the needs of motorists, bus and rail customers, bicyclists, and pedestrians.
3. Enable pedestrians and bicyclists to safely and comfortably get to, around, and
through the Plan Area.
4. Supply adequate parking for new housing and businesses while encouraging
transit use, walking, and bicycling.
5. Explore making zoning changes to provide a consistent urban fabric on both
sides of the freeway.
6. Enable new transit‐oriented development characterized by increased activity, a
mix of uses, and a strong sense of place.
Vision for the Plan Area
The planning process involved multiple community workshops and meetings, extensive
discussion among the agencies that compose a project team and steering committee
and the members of the San Rafael Redevelopment Agency Citizen’s Advisory
Committee. The process has allowed for an intensive study of transit operations,
opportunity sites, and traffic, parking, and bicycle/pedestrian conditions. Several visions
emerged from this process that should guide implementation of the Plan:
Fostering a strong sense of place will be critical to meeting the community’s vision
for the Plan Area as the gateway to Downtown San Rafael.
The implementing agencies should work together to integrate the Plan’s
elements into a cohesive whole and create a unique sense of place. Reuse of the
Whistlestop building, enhancement of the existing strong pedestrian character &
sense of place from the Downtown core to the east side of 101 with Streetscape
treatments, pedestrian amenities, artwork, public gathering spaces, restored
natural features, and high‐quality architecture and design will all contribute to
achieving this vision.
Providing a range of improvements to the street network and bicycle/pedestrian
conditions to set the stage for future redevelopment and to promote transit
ridership.
The Plan Area is characterized by significant traffic congestion and gaps in the
bicycle and pedestrian network. Addressing these challenges and providing
improved bicycle and pedestrian conditions will help encourage transit ridership
and make the area more attractive for new development.
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Modifying parking and land use regulations to open up opportunities for
redevelopment.
The opportunity sites analysis conducted as part of the planning process showed
that modifications to parking, height, density, and floor area ratio regulations
can assist in enabling the kind of development envisioned for the Plan Area. Even
after regulatory changes are made, however, the sites in the area are small, so
accommodating sufficient parking as part of individual development projects is
likely to remain a challenge. Improved parking demand management, combined
with strategies to enable some off‐site parking such as the development of a
new municipal parking structure, may play an important part in facilitating new
development.
Providing improvements to improve existing conditions for pedestrians, cyclists and
transit users and to accommodate the SMART station and train service.
Some improvements are needed to accommodate SMART’s initial operations,
and will need to be completed within a relatively short time frame. However,
the Plan also includes improvements to the Bettini Center, street network, and
bicycle and pedestrian conditions that address challenges that existed prior to
SMART. While these latter improvements could be implemented independently
of SMART’s development, the introduction of SMART service may create an
opportunity to make these long‐needed improvements that will also help
optimize the benefit of SMART to San Rafael.
Implementation Actions
Goal 1. Integrate rail and bus transit within the Plan Area.
The Plan examined strategies for integrating SMART service with existing Golden Gate
Transit, Marin Transit, and other transportation providers in the Plan Area. This includes
three concepts: for short, medium, and long term implementation. Implementing the
short‐, mid‐, and long‐term visions will require coordination among the City and the
multiple transit providers that serve the Plan Area.
Concept A. "Day 1" Opening Day: SMART Initial Operating Segment to Downtown
In order for SMART’s IOS to operate safely and in accordance with California Public
Utilities Commission (“CPUC”) regulations, a series of improvements will be required
prior to implementation of the IOS, including:
i. Install new traffic signal controllers and upgrade signal interconnection systems.
ii. Mitigate the likelihood of jaywalking between the Bettini Center and SMART
station through physical design, coordination among transit agencies, and
enforcement of jaywalking regulations.
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iii. Coordinate bus and rail schedules to minimize disruption of bus service.
Concept B. Mid‐Term: Improve Operations of the Current Bettini Center
The Plan recommends the following medium‐term actions to improve operations at the
existing Bettini Center:
i. Consider options for providing additional space for shuttles, buses, taxis, kiss‐
and‐ride, and other passenger loading activities.
ii. Modify Platform C and Platform D when rail service is extended to the south.
Concept C. Long‐Term: Consolidate bus and rail service in a San Rafael Transit Complex
surrounding the SMART station
The Plan’s long‐term vision recommends creating an integrated San Rafael Transit
Complex surrounding the SMART station.
Goal 2. Provide a street network that supports the Plan's land use vision while
balancing the needs of motorists, bus and rail customers, bicyclists, and
pedestrians
The Plan identified several potential improvements to the street network that would
improve multi‐modal access to the transit center and help address congestion in the
Plan Area. The City would take the lead on these implementation actions, which involve
changes to the City‐owned right‐of‐way.
Concept A. Consider improvements to Tamalpais Avenue to create a “front door” to
the transit stations and facilitate passenger loading and bicycle/pedestrian activities
The planning process evaluated alternatives for modifying Tamalpais Avenue between
Second Street and Mission Avenue to allow this section of Tamalpais to serve as a “front
door” to the transit stations, facilitate passenger loading activities, and create space for
wider sidewalks, bicycle lanes, and green space.
Concept B. If and when the Bettini Center is relocated, explore implementing traffic
capacity improvements on Hetherton Street while balancing the needs of other modes
Moving the Bettini Center to the SMART station block could potentially allow the City to
increase capacity on Hetherton Street.
Goal 3. Enable pedestrians and bicyclists to safely and comfortably get to,
around, and through the Plan Area
The Plan identified a number of improvements that would improve bicycle and
pedestrian safety and encourage more people to walk or bike to, around, and through
the station area. The City would largely take the lead on these projects, except for
projects that involve right‐of‐way owned by other agencies.
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Improvements could include:
i. Wider sidewalks, improved pedestrian crossings, and extended curbs adjacent to
the transit stations, including on Second Street, Third Street, and/or Hetherton
Street.
ii. Wider sidewalks and improved pedestrian connections under US 101 at Third
Street, Fourth Street, Fifth Avenue, and/or Mission Streets.
iii. Bicycle and pedestrian signage on Fourth Street, Fifth Avenue, Lincoln Avenue,
and Mission Avenue.
iv. A multi‐use path along the southern side of Second Street between Hetherton
and Irwin Streets. The path could be further extended to Francisco Boulevard,
with an undercrossing of the southbound US‐101 on‐ramp, an at‐grade crossing
of the SMART tracks, and a new east‐west crosswalk at Francisco Blvd.
v. Adding wayfinding signs and features in and around the Plan Area to orient
visitors to San Rafael and facilitate access to the transit stations, Downtown, and
shopping and other amenities. This could be coordinated with GGBHTD, which is
implementing MTC’s Hub Signage Program – a regional effort to install
standardized wayfinding signs, transit information displays, and real‐time transit
departure indicators – at the Bettini Center.
vi. Working with developers and property owners to provide wider sidewalks and
pedestrian amenities as properties are redeveloped.
Goal 4. Supply adequate parking for new housing and businesses while
encouraging transit use, walking, and bicycling
The Plan recommends a series of changes that the City could make to parking policies
and identifies opportunities for expanding parking capacity in the Plan Area. These
recommended actions are intended to address concerns about the parking spaces that
will be removed to accommodate SMART service; ensure efficient use of new and
existing parking spaces, whether publicly or privately owned; limit the impact of parking
from commuters, visitors, and new residents on existing residential neighborhoods
surrounding the Plan Area; facilitate the development of small parcels; and encourage
the use of alternatives to the private automobile.
Concept A. Automobile Parking Strategies
Recommended options to be explored include:
i. Reducing minimum parking requirements.
ii. Allowing off‐site parking for new development.
iii. Allowing tandem parking and/or unbundled parking.
iv. Allowing bicycle parking in lieu of some portion of required automobile parking.
v. Installing new signage to show parking locations and time limits.
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vi. Establishing short‐term parking zones.
vii. Installing electronic meters.
viii. Exploring strategies to manage parking on residential streets.
Concept B. Strategies to reduce reliance on private automobiles
Recommended options to be explored include:
i. Explore the feasibility of establishing a private car‐share near the transit stations.
A private car‐share organization would most likely provide and maintain
the cars; the City could dedicate municipally‐owned parking spaces for
car‐share and work with TAM to provide additional incentives as
required.
ii. Explore opportunities to provide additional parking for bicycles.
Various agencies play a role in providing bicycle parking in the Plan Area.
The City sets bicycle parking requirement for new development. Golden
Gate Transit provides bicycle parking to serve bus riders. SMART will
provide bicycle parking to serve train riders when SMART service begins.
Caltrans provides additional public bicycle parking under Highway 101.
As demand for bicycle parking increases, there may be opportunities for
these agencies to create efficiencies by coordinating the provision of new
bicycle parking.
Concept C. Consider options for providing additional municipal parking
The strategies described above will help manage parking demand and supply in the
Study Area. Even with these strategies in place, however, new parking spaces may still
be required to replace the parking that will be removed with the construction of the
SMART station and to absorb future increases in parking demand from new residents,
businesses, visitors, and SMART and other transit customers.
Concept D. Consider ways to meet parking demand for transit users as needed
As transit use expands, reserving additional parking spaces for transit riders may be
required. However, the City and transit agencies should prioritize other modes of
accessing the transit stations, such as walking, bicycling, buses, etc.
Goal 5. Explore making zoning changes to provide a consistent urban fabric on
both sides of the freeway
The Plan provides several recommendations intended to provide a consistent urban
fabric on both sides of US 101, and to ensure that – if bus operations are relocated – the
Bettini Transit Center site is redeveloped in a way that benefits the community and
contributes to a vibrant, mixed‐use environment.
Concept A. Consider allowing increased height limits and Floor Area Ratio (FAR) on
certain blocks adjacent to US 101 to match existing requirements in nearby areas
Extending the character of the “Hetherton Gateway” area (the portion of the Plan Area
located west of US 101) under the freeway to Irwin Street would help make the Plan
Area a welcoming gateway to San Rafael. In order to accomplish this goal, the Plan
recommends making changes to building height and Floor Area Ratio (“FAR”). FAR is the
total gross building square footage divided by the land area excluding parking. The San
Rafael Zoning Code sets specific FAR for non‐residential and mixed‐use developments in
each zoning district.
In the blocks bounded by Tamalpais Avenue, Hetherton Street, Mission Avenue, and
Second Street, allow building heights up to 66 feet and FAR up to 2.0 to match the
current height limits and FAR allowed on Tamalpais Avenue between Third Street and
Fifth Avenue.
In the blocks along Irwin Street between Mission Avenue and Second Street and
along Fourth Street between Irwin Street and Grand Avenue, allow building
heights up to 54 feet and FAR up to 1.5 to match the heights and FAR allowed
west of US 101.
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Concept B. Facilitate eventual reuse should the Bettini Transit Center be relocated by
rezoning the site to conform to the surrounding Hetherton Office zoning
This zoning designation permits a variety of retail, office, and multi‐family residential
uses.
Goal 6. Enable new transit‐oriented development characterized by increased
activity, a mix of uses, and a strong sense of place by allowing additional height
and FAR increases in exchange for community amenities, and removing
maximum density requirements on residential units
Concept A. Explore allowing a height and/or FAR bonus for developments that provide
community benefits in the Plan Area
Examples of community benefits include public open space, public art, or providing
carshare or bicycle parking.
Concept B. Explore removing maximum density requirements for residential uses and
mixed uses in the Plan Area
This would allow the height limit to determine the number of residential units that can
be built on a given site.
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Concept C. Facilitate reuse of the Whistlestop Building
The plan recommends preserving and enhancing this iconic building to establish sense
of place and provide character for the area. The plan recommends reusing the building
in a manner that integrates well with the station design and related activities, has an
active ground floor use and creates a gathering place for the area. Recommended
options to be explored include:
i. Assist current tenant, Marin Senior Coordinating Council (Whistlestop), with
relocation.
ii. Addressing the lack of parking at the building.
This could be addressed through zoning considerations including
permitting off‐site parking.
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Next Steps & Community Meeting Schedule
The City of San Rafael invites your participation in the Station Area Plan process. For
questions and comments please contact Rebecca Woodbury, Management Analyst, 415‐
485‐3076 or rebecca.woodbury@cityofsanrafael.org.
The full plan can be found at www.cityofsanrafael.org/stationareaplans.
The draft Downtown San Rafael Station Area Plan will be considered at the following
public meetings. All members of the public are invited and encouraged to attend and
provide input on the draft Plan. All meetings will be held at San Rafael City Hall, 1400
Fifth Avenue, San Rafael.
San Rafael Planning Commission January 10, 2012 (7 pm)
San Rafael Design Review Board January 18, 2012 (7 pm)
SRRDA Citizens Advisory Committee February 2, 2012 (7 pm)
San Rafael City Council March 5, 2012 (8 pm)