HomeMy WebLinkAboutCD SMART Downtown Station Area Plancrry of
Agenda Item No:
6 as
Meeting Date: April 2, 2012
SAN RAFAEL CITY COUNCIL AGENDA REPORT
Department: Community Development
Prepared by: Stephanie Lovettebi
City Manager Approval e #. v
Economic Development Manager g
SUBJECT: Presentation of the Downtown San Rafael Station Area Plan (P10-002(CD))
RECOMMENDATION: Staff recommends that the City Council approve the attached
resolution accepting the Downtown San Rafael Station Area Plan.
Summary of Downtown Station Area Plan:
Vision Statement
The Downtown San Rafael Station Area is at the crossroads of Marin, where people travel
north/south through the County and east/west to shop, to neighborhoods and to treasured open
spaces. Some of San Rafael's most vibrant neighborhoods are just a short walk from the
Downtown San Rafael transit complex and include: Downtown, Montecito/Happy Valley,
Francisco Boulevard West and the Canal neighborhoods. At the heart of this area is a regional
transit complex that fits seamlessly into the context of the surrounding neighborhoods and
connects people to destinations throughout San Rafael, Marin and the greater Bay Area.
Guiding Principles
Recommendations in the Plan are guided by the following principles:
Fostering a strong sense of place as the gateway to Downtown San Rafael. Recommended
implementation actions include streetscape treatments, pedestrian amenities, artwork, public
gathering spaces, restored natural features, and high-quality architecture and design.
Improving the street network and bicyclelpedestrian conditions to promote transit ridership.
Recommended implementation actions include improving the pedestrian experience and
addressing gaps in the bicycle and pedestrian network.
Modifying parking and land use regulations in the area to address the constraints that are
hindering the development that supports the vision for the area. Recommended implementation
actions include modifications to parking, height, density, and floor area ratio regulations to assist
FOR CITY CLERK ONLY
File No.: aye
Council Meeting: Ltlt
Disposition: c rpt
SAN RAFAEL CITY COUNCIL AGENDA REPORT / PaLe: 2
in enabling the kind of development envisioned for the Plan Area. The small parcels in the Plan
Area cannot accommodate sufficient parking as part of individual development projects.
Improved parking demand management, combined with strategies to enable some off-site
parking such as the development of a new municipal parking structure, can play an important
part in facilitating new development that implements the vision of a vibrant community in the
Plan Area.
Improving conditions fon pedestrians, cyclists and transit users. Improvements include short,
medium, and long term ideas for improving these conditions, including the eventual creation of
an integrated transit center complex with bus and train operations located within the same block.
BACKGROUND: In 1996, the City Council adopted zoning standards to support TOD projects
in the vicinity of the Downtown transit station: high densities (up to 72 units/acre), heights up to
six stories, reduced parking requirements (i.e., 1 space/unit) and revised traffic standards for
Downtown. During the next ten years, hundreds of new housing units were built in Downtown.
Affordable housing is required by zoning, and must be built as an integral part of a development.
The Transit -Oriented Development policies of San Rafael were recognized and highlighted in
Smart Infill: a practical guide to creating vibrant places throughout the Bay Area (2008). The
City has worked with the bicycle community on bicycle routes through the transit center area,
using funds from the federal Non -motorized Transportation Pilot Program.
Specific general plan policies for this area include:
NH -36. Hetherton Office District.
a. Transportation Hub. Use the Transportation Center to coordinate and facilitate the different
ways people move to and around Downtown, including by bus, rail, auto, bicycle, and on
foot. Include safe pedestrian and bicycle connections linking this area to the stores, services,
cultural facilities, and recreational opportunities in other parts of Downtown. Expand
connections from the Transportation Center to other parts of the City by:
■ Encouraging expanded bus transit,
■ Considering shuttle service to feasible locales when such service is warranted and can be
funded,
■ Incorporating a rail station if rail service is initiated,
■ Improving walking and biking facilities,
■ Providing a safe connection to Mahon Path,
■ Facilitating the movement of commuters to and from the neighborhoods, and
■ Creating safer pedestrian crossings on Second and Third Streets.
NH -36b. Transit Service. Support efforts by Caltrans, the Golden Gate Bridge District, the
Marin County Transit District and other transportation providers to increase transit service at
the Transportation Center.
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C -17a. SMART. Should voters approve funding of SMART commuter service, support the
following design features within San Rafael:
1. Establish stations in Downtown and in the Civic Center that will serve as multi -modal
commuter transit hubs.
2. Design stations and rail crossings safe for pedestrians and with minimal impacts on
roadway traffic.
3. Support crossings at -grade through Downtown and strongly advocate for trains that are of
a length that they avoid blocking traffic at an intersection.
4. Ensure that new development adjacent to the rail line is set back a safe distance and
adequately attenuates noise.
5. Encourage high-density transit -oriented development in the vicinity of the rail stations.
6. Include noise mitigation as described in policy N-9 (Sonoma Marin Area Rail Transit).
7. Provide a north/south bike/pedestrian path on or adjacent to the railroad right-of-way.
Downtown Station Area Planning Grant
In 2009, City staff and staff from other agencies met to prepare and submit a Station Area Plan
grant application to the Metropolitan Transportation Commission ("MTC"). On May 3, 2010,
the City Council authorized the City Manager to Accept and Expend a Grant in the Amount of
$528,000 from the Metropolitan Transportation Commission for Station Area Pians for the
Downtown and Civic Center San Rafael Stations, of which a total of $488,000 was for the
Downtown Station Area Plan.
The public agency partners for the Downtown Station Area Plan were the City of San Rafael,
SMART, Golden Gate Bridge Highway and Transportation District, Marin Transit District and
the Transportation Authority of Marin ("TAM"), collectively the Joint Project Team ("JPT").
The JPT partner agencies provided grant matching funds in the amount of $97,000. The City of
San Rafael provided matching funds of $1,000, SMART provided $41,000, Golden Gate Bridge
Highway and Transportation District provided $33,000, Marin Transit District provided $20,000,
and the Transportation Authority of Marin provided $2,000; and
The results of this conceptual planning effort are in the attached Downtown San Rafael Station
Area Plan Executive Summary (Exhibit 1) and Downtown San Rafael Station Area Plan,
available at www.citvofsanrafael.ori/stationareaplans.
Citizens' Advisory Committee
In fall of 2010, the Citizens' Advisory Committee on Housing and Economic Development
(CAC) (formerly, Redevelopment Agency Citizens' Advisory Committee) began their work as
an oversight committee to the Downtown San Rafael Station Area Plan (Plan). Generally, the
CAC met monthly to discuss a variety of issues related to circulation, traffic, housing, access and
safety for all modes (train, bus, car, pedestrian, bicycle), connectivity, economic vitality, and
parking.
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Between July 2010 and March 2012, the CAC worked on the draft Station Area Plan at sixteen
meetings; reviewed background data; participated in two walking tours of the area; hosted two
community outreach workshops and a series of presentations on the draft Station Area Pian,
including presentations to the Boards of TAM and Marin Transit, the Transportation Committee
of the Golden Gate Bridge and Transportation District, and the San Rafael Design Review Board
and the San Rafael Planning Commission.
At its meeting of February 2, 2012, the CAC assessed the information obtained from the
community meetings, the presentations to the JPT agencies, and the San Rafael Design Review
Board and San Rafael Planning Commission. The CAC also invited additional public comments
from the community. The CAC made revisions to the draft Plan and unanimously recommended
that the City Council accept the final Downtown San Rafael Station Area Plan.
Partner Agencies and Joint Project Team
The public agency partners that applied to MTC for a Downtown Station Area planning grant
were the City of San Rafael, SMART, Golden Gate Bridge Highway and Transportation District,
Marin Transit District and the Transportation Authority of Marin ("TAM"), collectively the Joint
Project Team ("JPT").
The Joint Project Team was convened in 2009 by the City to assist with the development of the
Pian. The JPT consisted of staff from City of San Rafael, Sonoma Marin Area Rail Transit
(SMART), County of Marin, Marin Transit, Golden Gate Bridge Highway & Transportation
District (GGBHTD), Transportation Authority of Marin (TAM), and the former San Rafael
Redevelopment Agency. City staff included representatives from Community Development,
Parking Services, Public Works, and Economic Development. Prior to applying for the planning
grant, these agencies had not engaged in any coordinated effort to address the potential impacts
of SMART in Downtown San Rafael. In fact, the initial grant preparation meetings were the first
time that the staff from several of the agencies had ever met. From June 2010 to March 2011,
the JPT generally met monthly to review and discuss the project elements.
In addition to the Joint Project Team, a Steering Committee made up of executive level staff
from each partner agency met bi-monthly for the duration of the project.
Consultants
The work of the JPT and CAC was assisted by a team of consultants comprised of Community
Design + Architecture, Arup, and Strategic Economics for the Background Report, Alternatives
Analysis Report, two Workshop Summary Reports, Draft Downtown San Rafael Station Area
Plan, and Final Downtown San Rafael Station Area Plan. The consultants were funded entirely
with the Metropolitan Transportation Commission grant.
ANALYSIS:
The Constraints and Opportunities in the Downtown Station Area
The visioning process began with a review of conditions in the area around the transit center.
The constraints and opportunities may be summarized as:
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Opportunities
■ Regional transit center
■ Development opportunities
■ Proximity to Downtown
Constraints
■ Heavy traffic flow
■ Small parcels under multiple ownership
■ On-site parking requirements
■ Difficult pedestrian environment
The Vision
The Vision which has emerged speaks to the desires of the community for a vibrant gateway
district with a strong sense of place.
The Vision identified six goals for the area:
■ Integrate rail and bus transit within the Plan Area.
■ Provide a street network that supports the Plan's land uses, while balancing the needs of
drivers, bus and rail riders, bicyclists, and pedestrians.
■ Enable pedestrians and bicyclists to safely and comfortably get to, around, and through
the Plan Area.
■ Supply adequate parking for new housing and businesses while encouraging transit use,
walking and bicycling.
■ Explore zoning changes to provide a consistent and connected urban fabric on both sides
of the freeway.
■ Enable new transit -oriented development characterized by increased activity, a mix of
uses, and a strong sense of place.
The Executive Summary (Exhibit 1) provides an overview of how the Plan addresses these goals.
Plan Recommendations
As a visioning document and a conceptual plan, the Downtown Station Area Plan is just the first
step in seeing ideas become reality. The implementation ideas include short-term projects which
can be timely opportunities or catalysts for other actions, generate tax revenues, or are
manageable in scope with quick results.
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Short term projects:
■ Facilitate re -use of Whistlestop site and relocation of senior services.
■ Extend building heights and FAR.
■ Widen sidewalks.
■ Install directional signage.
■ Improve conditions under Highway 101 — to pursue ways to install lighting and other
improvements under 101 at Second, Third, and Fourth Streets, and Fifth Avenue.
■ Complete bicycle network.
■ Install new traffic signal controllers.
■ Improve Third Street crossing at Tamalpais Avenue.
■ Tamalpais Avenue as "front door" to transit station.
■ Modify on-site parking requirements.
Longer term projects are included as well. However, these projects require comprehensive
community dialogue, considerable engineering and extensive environmental review. Progress
will be incremental, and depend on substantial grant funding.
Longer-term projects:
■ Relocate bus operations to SMART station block.
■ Build municipal parking garage.
Details on these implementation actions can be found in the Executive Summary (Exhibit 1).
Public Review Process
Partner Agency Presentations. The Downtown Station Area Pian was presented to Golden Gate
Transit's Transportation Subcommittee on 12/15/2011, Marin Transit on 12/19/2011, and
Transportation Authority of Marin on 1/26/2012. Presentations to Golden Gate Transit and
Marin Transit were made by their agency staff and the presentation to the Transportation
Authority of Marin was made by CAC Vice -Chair, Bill Carney. The following is a summary of
the major comments made by the various board members and commissioners:
■ The SAP process was a good starting point to bring all transit operators together. The
collaboration should continue with additional studies to address the transit operations
issues identified in the SAP.
■ Regional bicycle connections are important. A viable east -west connection should be
addressed.
■ Whistlestop is an essential service provider and their needs should be addressed.
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■ A congestion management program is needed for regional thoroughfares and freeway
access.
■ As SMART's plans develop, it will be important to understand how pedestrians will
interact with the Station Area and the design of the SMART right-of-way.
■ Assessment of changes to bus operations or locations due to SMART should include the
impact of increased travel time of bus patrons.
Design Review Board. The Downtown Station Area Plan was presented to the Design Review
Board on January 18, 2012. Video of this meeting can be viewed online here:
http://cityofsanrafael.granicus.com/MediaPlayer.i)hi)?view id=2&clip_id=187. Comments from
the Design Review Board included:
■ The Board supports the overall intent of the Plan; the Pian represents an excellent
direction for San Rafael
■ The Board requested a careful analysis of increased heights; concerned about 66 foot
height at the entrance of Fourth Street as well as heights on east side of freeway; heights
should transition into neighborhoods and step backs should be encouraged.
■ The Board stated that height and FAR bonuses should not be automatic and that the
Planning Commission and Design Review Board should have discretion in approvals.
■ The Board encourages the Plan to enhance the existing charm of Downtown through
good design guidelines (eclectic, architecturally diverse).
Planning Commission. The Downtown Station Area Plan was presented to the Planning
Commission on January 10, 2012. Video of this meeting can be viewed online here:
http://citvofsa.nrafael.granicus.com/MediaPlayer.php?view_ id=2&clip_ id=184. The Commission
provided a mixture of policy level and site specific recommendations based on their experience
and expertise.
■ The Commission members agreed with the Plan's desire to improve the pedestrian and
bicycle experience and connections in the Plan area to maximize walk ability, and stated
that Tamalpais Avenue is the lynchpin of the plan; a good connection to Canal
neighborhood is important and they supported improvements under Highway 101. The
Commission supported the multi -use path south of Second Street and pedestrian
improvements under the freeway. The Commission was concerned about pedestrian
safety while crossing Third Street and the 101 crossing contained in the Canal Paseo
concept. The Commission members suggested that it may be necessary to sacrifice
specific pedestrian crossings to provide overall pedestrian improvements. The
Commission suggested that the City increase enforcement of traffic rules to improve
pedestrian safety.
■ While supporting additional pedestrian/bicycle improvements, the Commission members
also acknowledged that Second and Third Streets are important regional arterials and
supported traffic capacity improvements.
■ The Commission stated that existing bus operations and riders should not be
compromised and the weather protection for transit users is important. The Plan area
must work for transit users, otherwise ridership will decrease. The Commission
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supported the consolidated transit block concept, but were concerned about capacity to
house the buses on the new site.
■ The Commission supported increased residential uses in the Plan area although there was
some concern about proximity to the freeway.
■ The Commission cautioned about an overreliance on retail uses in the area.
■ The Commission supported parking policies: shared parking, car share, lower parking
standards (parking maximums instead of minimums). Some members of the Commission
were concerned that there is not enough parking for transit users. All agreed that a
parking structure under the freeway would be good utilization of that space.
■ The Commission supported height and FAR increases but did not agree that increased
height on the west side of the freeway was the only way to achieve a "gateway".
Suggestions included using trees and landscaping to create a pedestrian -friendly
environment and a caution to not make "walls".
o The Commission recommended adjusting the proposed FAR and heights east of
101 to address MARA's concerns.
■ The Commission agreed with the Plan's emphasis on Whistlestop as a unique and
important building to the area.
■ The Commission suggested that form based zoning may be appropriate for the area.
CAC Review
The Plan that the CAC is recommending be adopted by the City Council is the result of their
work with the community and the consultants and their deliberations on the issues raised during
the community outreach. Members of the public expressed concern over a few areas of the Plan.
The CAC deliberated and made several changes to the draft Plan. Some areas of concern that
may remain are:
1. Class one bike path on Tamalpais Avenue
The Plan recommends specific bicycle improvements and recommends assessing the feasibility
of additional improvements on Tamalpais Avenue after SMART is operational. The CAC
received requests that the Plan include a specific recommendation for a class one bikeway from
Mission Avenue to Second Street along Tamalpais Avenue. The City adopted Bicycle and
Pedestrian Plan has a class one bikeway on Hetherton Avenue. During the NTPP process, the
Tamalpais Avenue alternative was studied and determined to be less safe then Hetherton Avenue
due to unsignalized intersections and multiple driveways. The CAC is not recommending a class
one bike path on Tamalpais Avenue since the Hetherton Avenue path is reflected in the NTPP
final plans approved by Council and has already been designed.
2. Height limits west of Highway 101
The draft Plan originally proposed extending the 54 foot height limit and the 1.5 FAR from the
Hetherton Office District to the area east of 101 on Fourth Street between Irwin Street and Grand
Avenue and along both sides of Irwin Street between Mission Avenue and Second Street. The
Montecito neighborhood (MARA) requested this proposal be removed from the draft Plan.
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The CAC believes that the Plan area requires strong edges and an integrated street fagade similar
to the central part of Fourth Street to draw pedestrians through the barrier created by 101. The
plan contains recommendations for pedestrian improvements under 101 and for increasing the
height and FAR limits on the west side of 101 along Irwin Street. The CAC initially
recommended a 54 foot height limit and 1.5 floor area ratio (FAR) along bothsides of Irwin
Street between Second Street and Mission Avenue and on both sides of Fourth Street between
101 and Grand Avenue. The Design Review Board, Planning Commission and the Montecito
Neighborhood Association (MARA) recommended scaling back the area due to the potential
light, shadow and privacy issues on the residential properties.
The CAC felt that it was important to have the additional height and FAR on the east side of 101
but wanted to minimize the impact on the residences in the neighborhood. The Pian includes the
CAC recommendation for a 54 foot height and 1.5 FAR on the west side of Irwin Street between
Mission Avenue and Fourth Street, both sides of Irwin Street between Fourth and Second Streets
and the south side of Fourth Street between Irwin Street and Grand Avenue (see Section III -
Vision 1).
3. San Rafael Department of Public Works
The pian contains many ideas and suggestions for street and pedestrian improvements. All of
these items will require additional study by the Department of Public Works to asses the impact
on pedestrian safety and traffic congestion. The Department of Public Works is very concerned
about the safety of the suggested mid -block crossing on Third Street and requested that it be
removed from the Pian. The CAC expressed a desire for further analysis on the concept and did
not recommend its removal at this time.
Next Steps
Staff recommends the City undertake the following implementation actions:
1. Pursue grant funding opportunities to achieve the Plan Vision including analyzing the real
impact of SMART on the road network, traffic and parking.
a. Staff recommends the City pursue grant funding for infrastructure improvements
and technical studies related to specific infrastructure improvements and prioritize
grant applications based on the prioritization in the Plan's implementation
strategy matrix (Chapter VIII).
b. The Transportation Authority of Marin, Metropolitan Transportation Commission
and Association of Bay Area Governments indicates that there may be upcoming
grant opportunities to implement station area plans.
2. Incorporate some of the Plan recommendations for inclusion in the next update of General
Plan 2020. Specifically:
a. Goal 4 of the Implementation Plan (supply adequate parking).
b. Goal 5 of the Implementation Plan (making zoning changes for a consistent urban
fabric on both sides of 101).
3. Continue working closely with partner agencies on implementation.
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CEQA: The Plan sets forth a vision for the area around the future SMART Station. It identifies
areas for future study. As the Council is only accepting these documents with the completion of
the work of the Advisory Committee and directing staff to consider the recommendations for
future plans and projects, the document is not subject to CEQA review. In future implementation
projects, CEQA review will be conducted as required by State law.
FISCAL IMPACT: There is no direct budget implication of accepting the Downtown San
Rafael Station Area Plan. Subsequent implementation of the Plan's programs will require staff
time for grant applications and project management. As the majority of the Plan's ideas are for
infrastructure improvements, the Department of Public Works will most likely be the I lead
agency. The City Council will review and approve any grant matches and staffing allocations as
opportunities become available.
OPTIONS:
a) Accept the Downtown San Rafael Station Area Plan.
b) Modify the proposed Downtown San Rafael Station Area Plan.
c) Return the document to the Citizens' Advisory Committee for reconsideration.
ACTION REQUIRED:
a) Adopt Resolution accepting the Downtown San Rafael Station Area Plan
101,46011010
1. Executive Summary of the Downtown San Rafael Station Area Plan
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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.cityofsanrafaeLoralstationareayions
Background
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
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.
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Plan Area & Existing Conditions
The Station Area Plan encompasses
a 1/2 -mile radius around the
planned Downtown San Rafael
SMART station. The Plan focuses on
an area bounded by Mission
Avenue, Irwin Street, the San Rafael
Canal and Lincoln Avenue.
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 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.
S. 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 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 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:
L 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.
iii. Coordinate bus and rail schedules to minimize disruption of bus service.
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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. Modify Platform C and Platform D when rail service is extended to the south, as
described in Chapter V, Section 2 of the Plan
ii. Consider options for providing additional space for shuttles, buses, taxis, kiss -
and -ride, and other passenger loading activities, as discussed in Chapter VI,
Section 6 of the Plan.
Concept C. Long -Term: Consolidate bus and rail service in a Son 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 modifications 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 Netherton 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 Netherton Street, as discussed in Chapter VII, Section 2 and the
"Alternatives Report." However, this proposal would require further study. Any
improvements to traffic capacity should be considered in light of potential impacts on
bus and rail, bicyclists, and pedestrians.
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
Page 5 of 12
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.
Concept A. Consider options for improving bicycle and pedestrian access on Tamalpais
Avenue.
The Plan considered several bicycle and pedestrian improvements to Tamalpais Avenue,
including widening sidewalks, constructing bicycle lanes, and providing green space in
the City -owned right-of-way adjacent to the SMART tracks. These improvements would
require modifications to Tamalpais Avenue (see Goal 2, Concept A, above) in order to
free up the required right-of-way.
Concept B. Explore other options for improving pedestrian and bicycle conditions in the
Plan Area.
The Plan identified a number of other potential improvements that would significantly
improve pedestrian and bicycle conditions in the Plan Area, as discussed in Chapter VI,
Sections 3-5. These 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 Netherton
Street.
ii. Wider sidewalks and improved pedestrian connections under US 101 at Third,
Fourth, Fifth, and/or Mission Streets.
iii. Bicycle signage on Fourth Street, Fifth Street, Lincoln Avenue, and Mission
Avenue.
iv. A multi -use path along the southern side of Second Street between Netherton
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.
Providing wider sidewalks and improved pedestrian connections around the transit
stations would facilitate passenger access and transfers between the Bettini Center and
SMART station. Creating a multi -use path would contribute to completing the City's
Canalfront pathway, described in the San Rafael Canalfront Conceptual Design Plan. The
proposal to install bicycle signage on Fourth Street, Fifth Street, Lincoln Avenue, and
Mission Avenue is included in the 2011 San Rafael Bicycle/Pedestrian Master Plan.
While the City would lead most of these projects, some would require coordination with
other agencies, including Caltrans (which owns and operates park-and-ride lots under
US -101) and the transit agencies (since service could potentially be impacted by curb
extensions or other street changes). Cost will be a key consideration in deciding how to
prioritize improvements.
Page 6 of 12
Concept C. Consider adding wayfinding signs and features in and around the Plan Area.
New wayfinding features in and around the Plan Area would help orient visitors to San
Rafael and facilitate access to the transit stations, downtown, and shopping and other
amenities. The City could coordinate efforts 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.
SMART and GGBHTD could also consider asking MTC to modify the scope of the Hub
Signage Program to include integrated wayfinding for the SMART station and bus transit
center.
Concept D. Work with developers and property owners to provide wider sidewalks and
pedestrian amenities along the frontages of the transit center and parcels as they
redevelop.
Portions of Netherton Street and Tamalpais Avenue have narrow sidewalks and other
pedestrian deficiencies. As redevelopment occurs, the City could work with developers
to widen the sidewalks and provide pedestrian amenities adjacent to development sites.
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. Review parking regulations for the Plan Area and consider making changes to
encourage more efficient use of privately owned parking spaces.
The Plan explored a range of short- and long-term options for adjusting City regulations
to ensure that privately -held parking is managed efficiently and to facilitate the
development of small lots that can dedicate limited space to parking. Options include
reducing minimum parking requirements, allowing off-site parking for new
development, allowing tandem parking and/or unbundled parking, and/or allowing
bicycle parking in lieu of some portion of required automobile parking (see Chapter IV,
Section 2). Implementing these changes would require making amendments to the
City's zoning code.
Page 7 of 12
Concept B. Consider implementing public parking management strategies in the Plan
Area.
The Plan also evaluated parking management strategies that the City could implement
to help accommodate public parking demand, while protecting existing residential
parking and encouraging walking, bicycling, and taking transit over driving. As discussed
in Chapter IV, Section 1, potential strategies include installing new signage to show
parking locations and time limits; establishing short-term parking zones; installing
electronic meters; and/or exploring strategies to manage parking on residential streets.
As discussed below, funding for parking management strategies may be available from
TAM and MTC.
Concept C. Explore the feasibility of establishing car -share near the transit stations.
A car -share program could help reduce reliance on the private automobile, in turn
reducing parking demand and vehicle travel. 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.
Typically, car -share organizations require proximity to transit, a mix of land uses,
difficult parking conditions in the surrounding neighborhood, and a significant pool of
existing or potential car -share members before they will locate car -share vehicles in a
new area. These factors are likely to become more prevalent with the a-rrival of SMART
service and continued redevelopment in the Plan Area.
Concept D. 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. For example,
additional bicycle parking could potentially be provided in the Whistlestop area or at the
current Bettini Center site if bus operations were relocated.
Concept E. 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.
Page 8 of 12
The planning process identified and evaluated several potential sites for a new
municipal parking garage (discussed in Chapter IV, Section 1). Creating such a garage
would require the City to take additional steps, including:
i. Investigating the availability of parcels in the Study Area that could be acquired
for the development of a parking garage,.
ii. Developing a financing strategy.
iii. Acquiring site; planning and developing parking garage.
Financing and timing would be the primary challenges involved in creating a new
parking garage. San Rafael's existing parking districts do not currently have a mechanism
for generating revenue to develop new parking facilities. In order to finance a new
facility, therefore, the City would need to explore options such as establishing parking
impact or in -lieu fees for new development, and/or creating a new special assessment
district.1
The former option — an impact or in -lieu fee — is a pay-as-you-go strategy that poses a
potential timing challenge: in order to generate sufficient funding from impact or in -lieu
fees to develop a garage, significant new development would be required; on the other
hand, the development opportunity sites in the Plan Area are mostly small parcels that
will be challenging to redevelop unless sufficient off-site parking is available. Because
parking impact/in-lieu fees are tied to new development, the resulting revenue
stream fluctuates over time according to changes in the real estate market and the
availability of development opportunities. These kinds of revenues are not typically
viewed as reliable or predictable enough to serve as security for the repayment of
bonds.
A new special assessment district could create a revenue stream against which the City
could issue bonds, providing up -front funding for a parking garage. However, forming
such a district requires a majority vote of the property owners.
Concept ✓_. 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 S. 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.
U
Page 9 of 12
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 "Netherton 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 the following changes to building height and FAR requirements:
• In the blocks bounded by Tamalpais Avenue, Hetherton, 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 between 3 d Street and
5t" Ave.
• In the blocks along the west side of Irwin Street between Mission Avenue and
Fourth Street, both sides of Irwin Street between Fourth and Second Streets,
and along the south side of 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.
The recommended height and FAR, as well as existing height and FAR requirements in
surrounding areas, are shown in Figure VIII -2 and Figure VIII -3. These regulatory changes
would require amendments to the General Plan and zoning code, as well as
environmental review.
Figure VIII -2. Recommended Building Height Limits
Page 10 of 12
Figure VIII -3. Recommended FAR
Goal 6. Enable new transit -oriented development characterized by increased
activity, a mix of uses, and a strong sense of place
In order to enable a greater variety of building types and achieve the Plan's vision of a
vibrant, mixed-use district, the Plan recommends that the City consider 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.
In exchange for community benefits such as public open space, public art, providing
carshare or bicycle parking, etc., the City could consider allowing discretionary height or
FAR bonuses in addition to those required by state law. These discretionary height
and/or FAR bonuses would be implemented separately from the proposed increases in
allowable height and FAR discussed in Goal 5, Concept A. Allowing increased building
height limits could allow a greater diversity of building types, contributing to a more
vibrant urban fabric that serves as a gateway to downtown San Rafael. The actual
building heights/FARs and level of community benefits that could be achieved would
depend on market conditions when development proposals come forward. Establishing
a new height and/or FAR bonus would require amendments to the General Plan and
zoning code, as well as environmental review.
Page 11 of 12
Concept B. Explore removing maximum density requirements for residential uses in the
Plan Area.
The opportunity site assessment performed as part of the planning process found that
under current regulations, maximum density was the most restrictive regulation limiting
the types of residential buildings that can be built in the Plan Area. In other words, the
maximum density is typically reached before either the maximum building height or
maximum FAR. By removing or relaxing this density requirement, the City would
effectively allow height and FAR limits to determine the density and number of
residential units that can be built on a given site. Changing the density requirement
require amendments to the General Plan and zoning code, as well as environmental
review.
Concept C. Facilitate eventual reuse should the Bettini Transit Center be relocated.
To facilitate the site's eventual reuse as an active mixed-use development should bus
operations be relocated, the Plan recommends rezoning the Bettini Center site to
conform to the surrounding Hetherton Office zoning, a designation that permits a
variety of retail, office, and multi -family residential uses.
Concept D. Facilitate reuse of the Whistlestop site
The Plan recognizes the Whistlestop site as critical to creating a strong sense of place
and providing character for the area, and recommends reusing the site in a manner that
integrates well with the station design and related activities, creates an active ground
floor use, and provides a gathering place for the area. Recommended options to be
explored include:
• Assist the current tenant, Marin Senior Coordinating Council (Whistlestop), with
relocation.
• Address the lack of parking at the building. This could be addressed through
zoning considerations, including permitting off-site parking.
Page 12 of 12
RESOLUTION NO.
RESOLUTION OF THE CITY COUNCIL OF THE CITY OF SAN RAFAEL TO
ACCEPT THE DOWNTOWN SAN RAFAEL SMART STATION AREA PLAN
WHEREAS, in 2004, the City Council adopted General Plan 2020, which included a
number of policies related to the two planned Sonoma Marin Area Rail Transit ("SMART") rail
stations in San Rafael, to be located in Downtown and at the Civic Center; and
WHEREAS, staff pursued grant funding for planning the areas around these stations
consistent with General Plan 2020 policies and programs including: G -23b Grants, NH -88a
Transit Oriented Development, NH 88b Safe Walkways and Bikeways, NH 36 Hetherton Office
District, C17 Regional Transit Options and SMART, C18 Local Transit Options and C20
Intermodal Transit Hubs; and
WHEREAS, in 2009, City staff and staff from other agencies met to prepare and submit
a Station Area Plan grant application to the Metropolitan Transportation Commission ("MTC").
The public agency partners for the Downtown Station Area Plan were the City of San Rafael,
SMART, Golden Gate Bridge Highway and Transportation District, Marin Transit District and
the Transportation Authority of Marin ("TAM"), collectively the Joint Project Team ("JPT"); and
WHEREAS, the JPT partner agencies provided grant matching funds in the amount of
$97,000. The City of San Rafael provided matching funds of $1,000, SMART provided $41,000,
Golden Gate Bridge Highway and Transportation District provided $33,000, Marin Transit
District provided $20,000, and the Transportation Authority of Marin provided $2,000; and
WHEREAS, on May 3, 2010, the City Council authorized the City Manager to Accept
and Expend a Grant in the Amount of $528,000 from the Metropolitan Transportation
Commission for Station Area Plans for the Downtown and Civic Center San Rafael Stations, of
which a total of $488,000 was for the Downtown Station Area Plan; and
WHEREAS, the City Council appointed the Citizens Advisory Committee on
Redevelopment ("CAC") which represents neighborhood, business, and property owners in the
San Rafael Redevelopment Project Area, which includes Downtown San Rafael, to work with the
community to develop the Downtown San Rafael Station Area Plan and to advise the City
Council on such Area Plan; and
WHEREAS, between July 2010 and March 2012, the CAC worked on the Draft Station
Area Plan at sixteen meetings; reviewed background data; participated in two walking tours of
the area; hosted two community outreach workshops, and a series of presentations on the Draft
Station Area Plan including presentations to the Boards of TAM and Marin Transit, the
Transportation Committee of the Golden Gate Bridge and Transportation District, and the San
Rafael Design Review Board and the San Rafael Planning Commission; and
WHEREAS, consistent with the provisions of the California Environmental
Quality Act (CEQA) Guidelines, the Downtown San Rafael Station Area Plan has been
reviewed to determine appropriate environmental review. As the Downtown San Rafael
Station Area Plan is a planning study that would not result in any actions to change or
amend City policies or municipal code regulations, it has been determined that this
project is exempt from environmental review per CEQA Guidelines Section 15262
(Feasibility and Planning Studies); and
WHEREAS, on April 2, 2012, the CAC presented its recommended Downtown San
Rafael Station Area Plan to the City Council, and
NOW, THEREFORE, BE IT RESOLVED that the City Council of the City of San
Rafael accepts the Downtown San Rafael Station Area Plan; and
BE IT FURTHER RESOLVED that the City Council of the City of San Rafael does
hereby thank the CAC for their extensive work on the Plan; and
BE IT FURTHER RESOLVED that the City Council of the City of San Rafael does
hereby direct staff to consider the Station Area Plan when making future amendments to General
Plan 2020 to incorporate relevant policy objectives and programs and to pursue implementation
of the Station Area Plan as infrastructure grant funding and staff resources become available.
I, ESTHER BEIRNE, Clerk of the City of San Rafael, hereby certify that the
foregoing Resolution was duly and regularly introduced and adopted at a regular meeting of the
City Council of said City held on Monday, the second day of April 2012 by the following vote, to
wit:
AYES: COUNCILMEMBERS:
NOES: COUNCILMEMBERS:
ABSENT: COUNCILMEMBERS:
ESTHER BEIRNE, City Clerk
