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HomeMy WebLinkAbout061422-03.1 STUDY STUDY SESSION MEMORANDUM 3.1 TO: Town Council June 14, 2022 SUBJECT: Downtown Master Plan Update – Analysis of Priority Projects considered for American Rescue Plan Act (ARPA) Funding and Outdoor Restaurant Seating Options BACKGROUND In late 2021, the Town began the process of updating the Downtown Master Plan (DMP), an effort to reimagine how we might use some of the public realm within our downtown to provide essential connection, interaction, and engagement. In this endeavor, the Town partnered with SWA - an urban design firm - to build upon the strong framework of Danville’s small-town charm and further enhance its village-like character with more activated public spaces in a visually coordinated manner while balancing the need for adequate public parking, drainage facilities, accessibility to all businesses and essential services such as trash pick-up. Community Feedback Public outreach earlier this year generated significant feedback from the general community as well as from business stakeholders and Town Commissioners. This effort resulted in over 5,300 visitors to the project website, nearly 1,500 responses to the community survey, and active engagement at business interviews and general pop-ups. The overarching messages we heard from the community include: • Overwhelming appreciation for Danville’s small-town charm, walkable downtown, and diverse local businesses; • Hartz Avenue is the community’s favorite downtown area, followed closely by the Danville Community Center/Library and the Town Green; • Request for more outdoor gathering spaces that are not associated with restaurants; • Interest in enhancing the east-west connection between the Iron Horse Trail and San Ramon Creek; • Desire for a trail along San Ramon Creek, from Diablo Road to the Town Green; and • Concerns about the visual character of the existing parklets and their impact on traffic safety as well as on-street parking. This feedback is the basis for the placemaking strategies proposed in the DMP Update. Downtown Master Plan Update 2 June 14, 2022 DISCUSSION On May 17, 2022, SWA presented draft strategies and eight preliminary project concepts to the Town Council. As with the original Downtown Master Plan, implementation of these concepts would take over a decade and millions of dollars of infrastructure investment. However, the Town Council wished to advance one of these projects using Danville’s allotment of American Rescue Plan Act (ARPA) grant funding. To qualify for ARPA funds, these projects must be completed no later than 2026. After careful consideration, the Town Council eliminated a proposed concept to convert Prospect Avenue into a one-way street. The Town Council then selected the following three projects for further analysis. One of these could be selected as the first DMP project to be implemented utilizing $2.5 million reserved in the Capital Improvement Program (C-362), which includes $1.5 million in ARPA funds: A. Hartz Avenue Sidewalk Expansion (from Linda Mesa to Prospect Avenue) B. Church Street Plaza (from Railroad Avenue to Front Street) C. Prospect Avenue Public Realm (from Hartz Avenue to Front Street) In addition, direction was provided to assess whether additional street lighting can be incorporated into the first ARPA-funded phase of the downtown improvements. Lastly, given that decisions related to the DMP Update would affect outdoor restaurant seating, Town Council also directed staff to develop options for consideration with Downtown Master Plan Update 3 June 14, 2022 regard to how the concept of outdoor dining parklets could be incorporated into the downtown, if it is determined to be appropriate. Therefore, this memorandum is presented in two parts. The first is an analysis of all the three conceptual projects that could be fast-tracked using ARPA funds. The second is an evaluation of potential outdoor restaurant seating options, at a policy level. POTENTIAL PROJECTS FOR ARPA FUNDING As a parallel effort to the DMP Update, Town Council directed SWA and Town staff to complete a more in-depth analysis of top priority projects for ARPA funding: Project A, Area 1 (North of Diablo): Hartz Avenue Sidewalk Expansion The objective of this project is to increase the pedestrian realm by expanding the sidewalk and adding tree grates, which protect the tree roots and offer additional pedestrian space. This project would add 2,600 SF of new pedestrian area. It is also designed to enhance pedestrian safety by narrowing the roadway to calm traffic, reduce pedestrian crossing distance by enlarging/adding intersection bulb-outs and raising the entire intersection of Hartz and Linda Mesa Avenues. The project would add specialty art lighting for pedestrian-level illumination. Project Considerations: • Estimated Cost: Approximately $2.5 million • Primary Area of Benefit: One downtown block, approximately 240 linear feet • Removes 14 on-street parking spaces (0 spaces remaining) • Timeline: Approximately 9 months for design and 12-18 months for construction. Achievable within ARPA time frame. Downtown Master Plan Update 4 June 14, 2022 • Complexities: Numerous utility vault adjustments/relocations, unknown roadway utility locations, regional water quality control board (MRP 3.0) requirements, limited access to businesses during construction period. Project A, Area 2 (South of Diablo): Hartz Avenue Sidewalk Expansion Similar to the project above, the objective of this project is to increase the pedestrian realm by expanding the sidewalk, adding tree grates, and increasing the pocket park at the northeast corner of Hartz and Prospect Avenues. It is also designed to enhance pedestrian safety by narrowing the roadway to calm traffic, reduce pedestrian crossing distance by enlarging/adding intersection bulb-outs and raising the entire intersection as shown. The project would also add specialty art lighting for pedestrian-level illumination. Given the costs and construction complexities associated with this project, a partial- expansion and full-expansion alternative are offered for consideration. Partial Expansion Alternative This alternative expands the sidewalk at select locations along this block, primarily in front of existing ‘paseos’ and near the intersection of Hartz and Prospect Avenues, enlarging the public pocket park. This project would add 2,760 SF of new pedestrian area. Project Considerations: • Estimated Cost: Approximately $2.6 million • Primary Area of Benefit: One downtown block, approximately 384 linear feet • Removes 14 on-street parking spaces (17 spaces remaining) • Timeline: Approximately 9 months for design and 18 months for construction. Achievable within ARPA time frame. Downtown Master Plan Update 5 June 14, 2022 • Complexities: Numerous utility vault adjustments/relocations, unknown roadway utility locations, regional water quality control board (MRP 3.0) requirements, limited access to businesses during construction period. Full Expansion Alternative This alternative expands the sidewalk along the entire length of this block on both sides, including the enlargement of the public pocket park. This project would add 5,100 SF of new pedestrian area. Project Considerations: • Estimated Cost: Approximately $3.3 million • Primary Area of Benefit: One downtown block, approximately 384 linear feet • Removes 28 on-street parking spaces (3 spaces remaining) • Timeline: Approximately 9-12 months for design and 18-24 months for construction. Ability to complete the within ARPA time frame is uncertain given the number of utilities located within the sidewalk and under the roadway, as well as the potential need for construction sequencing and need to modify work hours to provide customer and delivery access to numerous businesses along this block. • Complexities: Numerous utility vault adjustments/relocations, unknown roadway utility locations, regional water quality control board (MRP 3.0) requirements, and limited access to businesses during construction period. Project B: Church Street Plaza The objective of this project is to increase the pedestrian realm by expanding the sidewalk and adding tree grates. Enhanced pedestrian safety is achieved by narrowing the roadway to calm traffic, reduce pedestrian crossing distance by enlarging intersection bulb-outs and raising the intersection. This project would add 3,915 SF of new pedestrian area. Downtown Master Plan Update 6 June 14, 2022 Further, the project is intended to improve the east-west pedestrian connection across the downtown, as expressed through the community input phase. Retractable bollards are proposed to section off segments of this roadway to create smaller outdoor venues for public gathering. Café style string lights, crisscrossed over the sidewalk, is proposed. Project Considerations: • Estimated Cost: Approximately $4.1 million. It is possible to reduce the project cost by limiting sidewalk expansion to the south side of Church Street. • Primary Area of Benefit: Two downtown blocks, approximately 400 linear feet • Removes 17 on-street parking spaces (0 spaces remaining) • Timeline: Approximately 9 months for design and 18 months for construction. Achievable within ARPA time frame. • Complexities: Numerous utility vault adjustments/relocations, regional water quality control board (MRP 3.0) requirements, and limited access to businesses during construction period. Further, the lack of storm drain inlets on Hartz Avenue south of Prospect Avenue presents a challenge for this proposed raised intersection, which would impede the flow of storm runoff. Consequently, this project may be constructed without a raised intersection. Project B (Extended): Theatre Plaza One of the primary objectives of the Church Street Plaza is to improve the east-west pedestrian connection across the downtown. Consequently, it may be appropriate to consider the Theatre Plaza concept as either an extension of the Church Street Plaza project or a stand-alone project that could activate this underutilized public space. Café style string lights, crisscrossed over plaza, is proposed. This project would add 6,465 SF of new pedestrian area. Downtown Master Plan Update 7 June 14, 2022 Project Considerations: • Estimated Cost: Approximately $0.8 - 1.2 million • Primary Area of Benefit: Downtown Arts District • Timeline: Approximately 4 months for design and 3-4 months for construction. Achievable within ARPA time frame. • Complexities: Potential regional water quality control board (MRP 3.0) requirements. In addition, it may be necessary to adjust the location of the bollards to accommodate the location of EV charging stations. Project C: Prospect Avenue Public Space This project is designed to increase the pedestrian realm by expanding the northern sidewalk and adding tree grates. On-street parking is retained on the south side of the street. Café style string lights, hung above the sidewalk and parallel to the roadway is also proposed. This project would add 7,195 SF of new pedestrian area. Downtown Master Plan Update 8 June 14, 2022 Project Considerations: • Estimated Cost: Approximately $1.2 million • Removes 17 on-street parking spaces (0 spaces remaining) • Timeline: Approximately 9-12 months for design and 18-24 months for construction. Ability to complete within ARPA time frame is uncertain given the number of utilities located within the sidewalk and under the roadway, as well as the potential need for construction sequencing and need to modify work hours to provide customer and delivery access to numerous businesses and residents along this block. • Complexities: Numerous utility vault adjustments/relocations, unknown roadway utility location, limited access to businesses during construction period. The height of the roadway relative to the sidewalk along sections of East Prospect Avenue result in a short curb height. Therefore, expanding this sidewalk may result in a condition where new sidewalk may be at grade with the travel lane. Hybrid Project: Raised Intersections and Specialty Art Lighting Town Council could consider an alternative hybrid project that entails: a. Three raised intersections on Hartz Avenue (Linda Mesa, Prospect, and Church); b. Expand intersection bulb-outs at all three intersection locations; c. Expand the public pocket park at Hartz and Prospect Avenues; and d. Specialty art lighting for pedestrian-level illumination at these key intersections. Downtown Master Plan Update 9 June 14, 2022 The objective of this hybrid project is to enhance pedestrian safety throughout the length of Hartz Avenue, increase the pedestrian plaza at Hartz and Prospect Avenues for artistic and recreational programming, and enhance lighting at strategic locations. Project Considerations: • Estimated Cost: Approximately $2.5 million • Remove 4 on-street parking spaces • Timeline: Approximately 6 months for design and 3-6 months for construction. Achievable within ARPA time frame. • Complexities: Limited utility vault adjustments/relocations, design considerations to allow for runoff to flow from Church Street toward the nearest storm drain inlet at Prospect Avenue. Downtown Master Plan Update 10 June 14, 2022 OUTDOOR RESTAURANT SEATING OPTIONS Prior to the COVID-19 pandemic (“pandemic”), a restaurant located within the Downtown Business District is allowed to establish outdoor seating capacity on private property that is equivalent to a maximum of 25% of its indoor capacity (Ordinance No. 2017-07). This is permitted through the issuance of a building permit to ensure compliance with safety standards established by building and fire codes. Restaurants could apply for additional outdoor seating through a more extensive review and payment of off-site parking in-lieu fees to offset the parking demand generated by additional restaurant capacity. At the on-set of the pandemic, when indoor restaurant seating capacity was either prohibited or severely limited by County Health Order restrictions, the Town of Danville was one of the first public agencies in Contra Costa to grant Temporary Land Use Permits (TLUPs) to expand outdoor dining capacity beyond what was permitted by ordinance on both public and private properties to support local businesses. These amendments to the Ordinance temporarily suspended the payment of any off-site parking in-lieu fees for this expanded seating. The outdoor dining areas occupying public property are commonly known as “parklets,” in reference to the parking spaces that they typically occupy. Over the past six months, particularly during the Downtown Master Plan (DMP) Update’s community input process, the Town received an increasing number of concerns related to parklets within the public right-of-way. These concerns are generally related to aesthetics, traffic safety (impeding travel visibility), and diminishing availability of parking as the community returns to patronizing downtown businesses. Options for Outdoor Restaurant Seating After several extensions, the TLUPs that have permitted the short-term expansion of outdoor dining are now set to expire on January 3, 2023. When this occurs, outdoor restaurant seating in the downtown area – beyond the capacity permitted by ordinance – would no longer be authorized. At its public meeting on May 17, 2022, the Town Council requested an analysis of options to consider for outdoor seating in the public right-of- way beyond the expiration date. After some research, it appears that there is a wide variety of options for consideration. A discussion of potential options would be most constructive dependent upon the Town Council’s preferred policy approach: Approach A: Allow all TLUPs to sunset on January 3, 2023. This would return all outdoor restaurant seating areas, on both public and private property, to pre-pandemic conditions. This would be consistent with the Downtown Business District (DBD) Ordinance. Downtown Master Plan Update 11 June 14, 2022 Approach B: Transition all TLUPs to Outdoor Seating Encroachment Permits, for both public and private property, renewable on an annual basis. This would require an amendment to the Downtown Business District (DBD) Ordinance. Depending on whether the outdoor restaurant seating area is located on public or private property, this approach would necessitate the development of additional implementation guidelines. For outdoor restaurant seating on private property (such as shopping center parking lots): • Develop an application and review process to ensure compliance with building and fire codes; • Adopt design guidelines consistent with the building or shopping center’s development approval; • Shopping center to develop a comprehensive approach for design and placement similar to a master sign program; and • Review parking demand to ensure adequate parking supply. For outdoor restaurant seating on public property (such as on-street parking spaces): • Develop an application and review process to ensure: o Compliance with building and fire codes; o Adequate traffic safety measures are in place; o Adjoining businesses have unimpeded visibility to the street; o All businesses and residents in the area have adequate access to services such as trash pick-up; • Develop a modified annual off-site parking in-lieu fee (currently, off- site parking in-lieu fees are a one-time payment); • Develop a potential annual ‘use fee’ for the use of public property, where proceeds from fees collected would be used for the implementation of all DMP projects; and • Selection of a leasable modular system that have adaptable components but ensures a consistent quality and aesthetic in the community (see Figures 1, 2 and 3 below). Downtown Master Plan Update 12 June 14, 2022 Figure 1. Examples of leasable modular outdoor restaurant seating (parklets) Figure 2. Examples of expandable modular parklet sizes. Downtown Master Plan Update 13 June 14, 2022 Depending on the Town Council’s direction, staff would return with refined details on either Approach A or B. RECOMMENDATION Consider the information presented in this memorandum and provide direction to Town staff regarding: 1. Which project to fast-track as the ARPA-funded project 2. Which outdoor restaurant seating approach to pursue Prepared by: Jill Bergman Business & Economic Development Director Tai Williams Assistant Town Manager