HomeMy WebLinkAboutPlanning Commission 2012-06-12 #2 CorrespondenceDRAFT Civic Center 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.
The San Rafael Civic Center Station Area Plan is the culmination of nearly two years of work by
the City of San Rafael and a citizens committee to identify a community vision for the area
around the future Civic Center SMART station in North San Rafael. The Plan builds on previous
planning efforts, and sets out a conceptual framework for development and circulation
improvements in the area. No environmental review has been done as part of this conceptual
planning effort. Future, detailed plans will be needed to further develop and implement the
concepts in the plan and conduct environmental analysis.
SMART
The SMART District is proposing implementation of passenger rail service along a 70-mile rail
corridor extending from Cloverdale in Sonoma County to a station located near the Larkspur
ferry terminal. Two stations would be constructed in San Rafael, one Downtown and the other
in North San Rafael at what is called the Civic Center Station. The first phase of the SMART
project will connect the Downtown San Rafael station to the North Santa Rosa station and will
include the Civic Center station.
The Study Area and Citizens Advisory Committee
The Civic Center SMART station is located underneath US 101, just north of the Marin County
Civic Center and adjacent to Civic Center Drive. The Study Area is the land within a one-half
mile radius of the station, with particular emphasis given to that within a quarter mile.
½ mile and ¼ mile radii around SMART station
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A 14 member Advisory Committee appointed by the City Council to represent all aspects of the
surrounding community developed this Plan through a community-based process over the
course of 24 months. The Plan was developed by the Committee, with input from the public at
regular monthly meetings as well as two public workshops and numerous public outreach
meetings.
Goals of the Plan
The overarching goal of this Plan is to “set the stage for creating a vibrant, mixed-use, livable
area supported by a mix of transit opportunities, including passenger rail service.” It focuses on
key pedestrian, bicycle and transit connections, and identifies transit-oriented land use
opportunities. Other goals include:
Leverage investments to maximize riders
Explore the opportunity for a bus hub
Improve access for pedestrians and bicyclists
Maximize opportunities for adjacent land uses
Leverage the rail station for housing and economic development
Key Considerations
Through the course of developing this Plan, key considerations evolved. These considerations
and how they were addressed are:
Take Advantage of Previous Extensive Planning Efforts. North San Rafael has been the
subject of numerous visioning and planning efforts. Rather than revisit these issues, this Plan
incorporates, and builds on those efforts. Specifically, this Plan incorporates elements of the
North San Rafael Promenade, bicycle and pedestrian improvements listed in the Bicycle and
Pedestrian Master Plan, roadway improvements described in General Plan 2020, affordable
housing policies from the Housing Element, environmental resource protection policies in the
Conservation Element, and references to the Climate Change Action Plan.
Focus on Station Access and Neighborhood Connectivity for Bicycles and Pedestrians.
A common theme that emerged was a focus on improving bicycle and pedestrian connections
between the neighborhoods and the station. New and/or improved sidewalks, new bicycle
lanes, and adequate bicycle parking at the Station were identified that will make cycling or
walking to the train a pleasant experience. Connections between the existing neighborhoods
and the Station are improved by Plan provisions for the completion of the North San Rafael
promenade, connections to the new multiuse pathway along the SMART right of way, the
enhancement of the existing rail crossing and a proposal for a new crossing on the west side of
the Civic Center Station.
Ensure that Station Parking Does Not Overwhelm Neighborhoods. Members of the public
and the Committee expressed concern that the Station would be a park-and-ride destination,
and the resulting parking intrude into existing neighborhoods. In addition, there was concern
that the SMART’s leased parking at the County Government Center is on the east of the
freeway and users on the west side of the freeway would find it more convenient to park in the
residential areas on the west side. The Plan identifies new on-street spaces on Merrydale Road
north of the tracks, includes new turnarounds on Merrydale Road both north and south of the
tracks to facilitate drop-offs, and identifies programs, such as residential parking permits, that
could be implemented to ensure that neighborhood parking is preserved for residents.
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New Development Near Station Should Preserve Character of Area. One purpose of this
Plan is to identify sites for new residential and commercial development that would encourage
use of the train. The Committee endorsed this idea while stressing the importance of preserving
the existing character of the area, including preserving views and protecting the creeks and
wetlands in the area. The Plan recommends new development close to the station, within the
traffic capacities identified in the General Plan, with design guidelines to ensure that the
character of existing neighborhoods remains.
Summary of Recommendations
The Plan includes many recommendations and implementation actions. The following is a
compilation of the recommendations included in each section of the Plan. More details and
illustrations are provided in the plan and should be consulted in all implementation actions.
Access and Connectivity:
1. Provide “Complete Streets” treatments, such as wider sidewalks, improved bicycle
facilities, calmed traffic, and improved streetscaping on all streets within the Study Area,
but specifically on Merrydale Road (both north and south of the railroad tracks), the
Merrydale Overcrossing, and McInnis Parkway. These treatments may be challenging
to implement due to right-of-way, cost, or engineering constraints. However, the City
should pursue improvements on these streets as opportunities become available.
2. Complete the Promenade from
Las Gallinas Avenue to North
San Pedro Road, along Merrydale
Road, the SMART Multi-use
Pathway and Civic Center Drive.
As a longer-term recommendation,
consider extension of the
Promenade north from Merrydale
Road, through the Northgate III
parcel to the Las Gallinas
Road/Northgate Drive intersection
if the Northgate III parcel were to
redevelop. As another longer-term
recommendation, consider
construction of a Class I shared
bicycle/pedestrian path along Civic
Center Drive instead of the Class
II bicycle lanes proposed as part of
the North San Rafael Vision.
Long-Range Vision Concept for Promenade
3. Complete the sidewalk network,
including portions of Civic Center
Drive, North San Pedro Road, and
Los Ranchitos Road, such that all
streets have adequate facilities on
both sides of the street.
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Existing and Proposed Sidewalk Connections
4. Maintain and improve the Walter Place Crossing. This important connection
facilitates access between the residential neighborhood south and east of the railroad
tracks and west of US 101 with the Northgate Shopping Center. In the future, when the
SMART Multi-use Pathway is constructed, this at-grade connection will facilitate access
to the regional pathway from neighborhoods on both sides of the tracks. Prior to
initiating rail service, SMART proposes to upgrade this crossing to meet current safety
and design standards. The crossing could be upgraded to meet minimum requirements
for a Class I shared, two-way bicycle and pedestrian facility. Access to the crossing
could be improved across Los Ranchitos Road. One option would be to install a new
crosswalk across Los Ranchitos Road and ADA-compliant ramps at either end.
However, this requires further study and potentially special crossing treatments to
address safety concerns.
5. Construct a new pedestrian crossing at the west end of the Civic Center Station
(connecting Merrydale Road). Providing a new pedestrian crossing at the west end of
the Civic Center Station would facilitate easier access to the station from neighborhoods
south of the railroad tracks and is strongly endorsed by the Plan.. It would also facilitate
easier access between neighborhoods in the Study Area that are currently bisected by
the railroad tracks. Implementing this improvement may be challenging due to the CPUC
approval process, which typically does not favor new rail crossings, and due to the costs
associated with safety amenities, such as gates and lights, that may be required.
6. Complete the Citywide Bicycle Network, as identified in the San Rafael Bicycle
and Pedestrian Master Plan. A number of local improvements identified in the City’s
Bicycle and Pedestrian Master Plan would not only facilitate improved local circulation
and connectivity by bicycle, they would also provide much needed connections to major
regional bicycle facilities proposed in Marin and Sonoma Counties, including the Bay
Trail, the North/South Greenway (SMART Multi-use Pathway) and the North/South
Bikeway. Specifically, construct the following improvements:
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Class I/II Bikeways:
North San Pedro Road, from Los Ranchitos Road to Civic Center Drive (Class
I/II)
Civic Center Drive, from North San Pedro Road to Merrydale Overcrossing
(Class I/II)
Merrydale Road, north of SMART tracks to Merrydale Road, south of SMART
tracks, including new at-grade crossing on west side of SMART station (Class I)
SMART Multi-use Pathway, from Northern City Limits to the Puerto Suello Hill
Path (Class I)
Walter Place Pathway, from Las Gallinas Avenue to Los Ranchitos Road (Class
I)
Class II/III Bikeways
Los Ranchitos Road, from Northgate Drive to North San Pedro Road (Class II/III)
Merrydale Road, from Las Gallinas Avenue to Puerto Suello Hill Path (Class II/III)
North San Pedro Road, from Los Ranchitos Road to Golf Avenue (Note that this
same roadway, from Los Ranchitos Road to Civic Center Drive, is also proposed
to provide Class I bikeways in the Bicycle and Pedestrian Master Plan) (Class II)
Class III Bikeways
Las Gallinas Avenue, from the Walter Place crossing at the SMART MUP to
Merrydale Avenue
Merrydale Road, from the Merrydale Overcrossing to the SMART MUP (This
improvement could be done as an interim step prior to completing this section of
the Promenade, as recommended above.)
Merrydale Road, from the Merrydale Bridge, just south of the SMART MUP to
Las Gallinas Avenue.
Existing and proposed bicycle connections
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7. Implement planned SMART-proposed shuttle service to major activity centers in
the Study Area. SMART has proposed two separate shuttle routes serving the Civic
Center Station. One route would travel along Redwood Highway, north of the Study
Area, serving Professional Center Parkway, the Regency Center, and the Marin
Commons office complex. The other route would travel south and west of the station,
and would connect to the Civic Center, Kaiser Medical Center, and the Northgate Mall.
Service is dependent on funding availability, and final route details would be developed
in consultation with the service provider. Employers should be encouraged to coordinate
shuttle service to and from the station, and shuttles and transit service should
complement each other.
8. Construct a transit hub for bus and shuttle service connecting to the SMART
station. A transit hub should provide users with information on connecting transit service
as well as weather protection and seating. These amenities should be constructed as
part of the SMART station on the west side of Civic Center Drive, near the bus pull
out/turnaround area as shown on Figure 2. In addition, the use of real-time bus arrival
technology is encouraged for all transit vehicles at the mini-hub. A procedure for regular
updates of information by all transit agencies should be established. Local transit
service schedules should be coordinated with SMART train schedules to ensure
convenient transfers.
9. Construct vehicular turnaround areas at the ends of Merrydale Road north and
south of the railroad tracks. These improvements would allow residents on the west
side of the tracks to drop off and pick up passengers without having to cross US 101.
The turnaround at the end of Merrydale north of the railroad tracks could be constructed
within existing right-of-way; the turnaround at the end of Merrydale south of the tracks
would require some space from the existing mini-storage site, and would thus only be
possible as part of potential redevelopment of that site.
Vehicular turn-around and bus pull-out at station
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10. Construct improvements at Las Gallinas Avenue, from Merrydale Road to Del
Presidio Boulevard: Remove parking and widen the street to provide four travel lanes
(one southbound, two northbound, and one two-way left turn).
11. Construct Improvements at US 101 / Freitas Parkway Interchange as specified in
the General Plan 2020 :
a. Freitas Parkway and Del Presidio Boulevard: Explore the feasibility of providing
double turn lanes for northbound right turns form Del Presidio Boulevard to
eastbound Freitas Parkway, as well as widening the on-ramp to southbound US 101
from eastbound Freitas Parkway. This improvement should be considered carefully,
since double right-turn lanes can be difficult for pedestrians and cyclists.
b. Freitas Parkway / Northbound US 101 Ramps / Civic Center Drive / Redwood
Highway: Widen ramps and signalize. (Note that this improvement requires
acquisition of right-of-way.)
c. Freitas Parkway / Northbound US 101 Ramps / Civic Center Drive / Redwood
Highway: Construct new flyover ramp from Civic Center Drive to Freitas Parkway.
12. Signalize US 101 Southbound Ramps / Merrydale Road Intersection
13. Install directional signage for all modes directing people to and from key
destinations in the area. This information should be accessible to pedestrians,
bicyclists and drivers, with a particular focus on pedestrians and cyclists.
Parking:
1. Explore residential parking permits and time limits. Residential parking permits
coupled with 2 or 4-hour time limits can protect neighborhoods from long-term commuter
parking spillover. Permit programs would be at the request of the impacted
neighborhood in response to a documented problem.
Parking opportunities for SMART commuters
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2. Provide more commuter parking opportunities throughout the area. Three
additional parking opportunities have been identified for SMART commuter parking.
This will be public parking and therefore they will be open to non-SMART users as well.
They are:
a. McInnis Parkway, approximately 80 on-street parking spaces
b. Merrydale North, approximately 65 on-street spaces (depending on how the
roadway is configured without compromising the planned promenade extension)
c. Vacant parcel northeast of station, approximately 32 spaces (can include
some ADA parking for SMART and possibly more bike parking for station)
d. If more parking is needed, the City and County should pursue the use of public
lots for SMART parking.
e. Consider using new technology as it develops to communicate real-time
availability of parking to station users.
3. Coordinate parking controls. A successful parking strategy will require extensive on-
going coordination and planning for increased parking demand between the County of
Marin, SMART and the City of San Rafael. The City should survey the SMART related
parking situation annually to identify problems and seek solutions.
4. Reduce parking requirements. If coupled with other strategies that can demonstrably
show a reduced demand for parking, such as transit incentive programs, carsharing,
shuttles, unbundling parking, and shared parking, new development may need less
parking than the current ordinance requires. Developments seeking to provide less
parking may be subject to periodic review for efficiency.
5. Provide bike parking. Provide adequate bike parking at the station and in new
development. The demand for bike parking at the station should be monitored over time
and additional space provided if needed.
Land Use and Urban Design:
1. Protect existing residential neighborhoods. No changes are proposed for the
existing single-family residential neighborhoods. These neighborhoods should be
protected from adverse impacts of new development. New development should be both
in scale with the existing neighborhoods and complementary in community character.
2. Encourage residential uses within walking distance (generally a ¼-mile) of the
station. Inclusion of additional multi-family residential development near the station will
help increase ridership for the transit station. Affordable units will be included in new
housing throughout the Station Area through conformance with existing and future City
housing policies.
3. Allow limited retail in proximity to the station. Current market demand does not
appear to be strong enough to support significant additional retail in the area. However,
some additional station-serving and neighborhood-serving retail should be allowed,
though not required, in areas appropriate for mixed-use development.
4. Develop design guidelines to ensure compatibility with the existing
neighborhoods. Higher densities demand greater attention to high quality design, and
design guidelines can help ensure compatibility of new development with the existing
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East of US 101 Area Design Guidelines need to:
o Preservation of views from the hillside residences
o Establishment of view corridors along Avenue of the Flags to the hills, Mt. Tam
and the Frank Lloyd Wright designed Civic Center
o Height step-backs and buffers from single-family neighborhoods
o Continue the City’s creek and wetlands policies.
Redwood Highway Area Design Guidelines need to address building height
transitions, building façade articulation and massing, and setbacks to ensure
compatibility with the adjacent residential neighborhoods and prevent the
appearance of a solid wall to the adjacent single-family neighborhood.
Northgate Area Design Guidelines need to buffer existing neighborhoods from the
height increases of new development.
5. Restore and enhance the natural resources in the station area. The station area
has an abundance of natural open space, hillsides, creeks, and wetlands. These
resources should be restored and enhanced per the General Plan and zoning
designations. They should also be celebrated by new development.
New development should celebrate natural resources.
Restore and enhance the natural environment by improving and protecting creeks,
wetlands and hillsides as provided in the General Plan and zoning provisions.
The Intergovernmental Panel on Climate Change estimates that mean sea level rise
will rise between one and three feet by the end of this century. A three-foot rise
would inundate much of eastern and central San Rafael, potentially impacting the
study area. In accordance with the San Rafael Climate Change Action Plan, the City
will monitor sea level rise and plan for shoreline defense; develop a program of levee
analysis; participate in Marin County’s regional vulnerability assessment, and
prepare a local vulnerability assessment for San Rafael; and continue to provide
emergency planning and community awareness.
6. Allow an increase in building height, allowable FAR and/or residential density in
focused locations. In addition, amend the General Plan and zoning designations
on Planned Development (PD) zoned parcels to allow for additional uses. The
increases in density are contingent upon the identified limits of traffic capacity in the
area. They reflect the development potential of each of the three planning areas.
East of US 101 Area
In the current office and commercial areas, investigate and implement increases in
retail and office FAR above 0.30 and increases in residential density above 44 units
per acre within the identified limits of traffic capacity. Amend the General Plan and
zoning designations on PD zoned lots to allow residential use.
Density increases can be higher on the level lots (MCERA APN 180-410-06;
Autodesk parking APN 180-124-06), than on the more distant flat lots or on the
hillside lots.
The Christmas tree lot is under County jurisdiction. If changes to the existing master
plan are contemplated in the future, density and FAR increases to the same level as
the (MCERA APN 180-410-06 and Autodesk parking APN 180-124-06), are
appropriate.
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Include requirements for facilitating pedestrian access to the Station from the sites at
higher elevations on the hillside.
On development sites close to the station, amend the General Plan and zoning to
increase height limits to 4 stories for residential and mixed-use development only,
subject to design requirements. Allow an additional story (for a total of 5) for
developments that propose a significant benefit or amenity in the planning area.
Redwood Highway Area
On the properties closest to the station, specifically the Public Storage and Marin
Ventures sites, investigate and implement increases in retail and office FAR above
0.30 and increases in residential density above 44 units per acre within the
identified limits of traffic capacity. Amend the PD zoning to allow a mix of residential
and retail.
Increase height limits on Redwood Highway to 4 stories where residential is
constructed over ground floor retail.
Northgate Area
On the properties closest to the station, specifically the Northgate Storage site and
Northgate III, investigate and implement increases in retail and office FAR above
0.30 and increases in residential density above 44 units per acre within the identified
limits of traffic capacity.
Amend the General Plan and zoning for Northgate III to increase densities to the
levels assigned to the areas within walking distance of the station, and to allow 4
stories for residential over retail uses.
Consider the extension of the Promenade through Northgate III in any major
reconstruction of the site.
Amend the General Plan and zoning to allow height increases to 5 stories for
residential development at Northgate Mall.
Lots Proposed for Development Increase
Lots Proposed for Higher Development Increase
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Proposed 4 Story Height for Residential Over
Retail
Proposed 4 Story Height Limit for Residential over
Retail; 5 Story with Significant Public Benefit
Proposed 5 Story height Limit for Residential over
Retail
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