HomeMy WebLinkAboutMINUTES - 11271984 - IO.2 y
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TO: BOARD OF SUPERVISORS
FROM: INTERNAL OPERATIONS COMMITTEE
DATE: NOVEMBER 279 1984
SUBJECT: ESTABLISHMENT OF AREA OF BENEFIT TO PROVIDE FUNDING FOR CONSTRUCTION OF ROAD
IMPROVEMENTS IN THE RICHMOND/EL SOBRANTE AREA
Specific Request(s) or Recommendation(s) & Background & Justification
RECOMMENDATION
1. Direct the Clerk of the Board to set a time and date for a public hearing on the
establishment of an Area of Benefit for the Richmond/El Sobrante Area.
BACKGROUND
On November 19, 1984, our Committee met with representatives from the Public Works Department
and the El Sobrante Area Traffic Advisory Committee. The El Sobrante Traffic Advisory
Committee identified approximately $18.5 million of road improvements for the El Sobrante
area and recommends that $6.3 million of these improvements should be borne by new develop-
ment in the area. Based upon anticipated growth and land use in the E1 Sobrante/Richmond
area, the E1 Sobrante Area Traffic Advisory Committee recommends that the following fees be
adopted: single family residential , $1,700 per unit; multiple family residential , $1,225
per unit; commercial , $1.25 per square foot.
Our Committee approved the attached development program report and recommends that the
Clerk of the Board set a date and time for a public hearing on the establishment of an El
Sobrante/Richmond Area of Benefit.
Continued on attachment: X yes Signature:
Recommendation of County Administrator x Recommendation of Board Committee
X Approve her:
Signature(s): To �owers— ��cL�v' Nancy C. Fanden
Action of Board'on: November 27, 1984 Approved as Recommended X Other X
The Board also requested a six-month status report and a one-year review of the adequacy
of fee structure.
Vote of Supervisors I HEREBY CERTIFY THAT THIS IS A TRUE
AND CORRECT COPY OF AN ACTION TAKEN
,Unanimous (Absent ) AND ENTERED ON THE MINUTES OF THE
Ayes: Noes: BOARD OF SUPERVISORS ON BATE SHOWN.
Absent: Abstain:
bd.elsob.tll (TQB:sj 11.26.84) Attested 7 y�
Orig. Div.: Public Works (TP) PHIL BATCHEL R, CLERK OF
cc: County Administrator OF THE BOARD OF SUPERVISORS
AND COUNTY ADMINISTRATOR
By
DEPUTY WERKV
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DEYELOPNENT PROGRAM REPORT
FOR41 .
AREA OF BENEFIT
PROVIDING FiNNDING FOR CONSTRUCTION
RICIIEIVIIE- AREA ROAD IMPROVEIENT'S ,.
PREPARED PINtSUANT TO SECTION 913
COUNTY ORDINANCE CODE
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Departmentsand Planning
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INTROQUCTION
It is the determination of the Board of Supervisors of Contra Costa County that
new development should, as far as possible, pay its own way for benefits received
so as not to become a financial burden on County taxpayers.
Section 66484 of the Subdivision Map Act authorizes local jurisdictions to adopt
ordinances providing for the collection of requisite fees to defray the cost
of construction or augmentation of major thoroughfares and bridge. crossings.
Division 913 of the Contra Costa County Ordinance Code has been enacted to provide
for assessing on the basis of benefit and collecting the necessary fees as a
condition of approval :of final subdivision maps or building permits.
In February 1984 the El Sobrante Technical Advisory Committee completed their
final. report on solutions, to the transportation issues in the E1 Sobrante area.
Various funding mechanisms were proposed to implement these solutions.
This development program report proposes an area of benefit within the County
unincorporated areas of central E1 Sobrante and includes a portion of the City
of Richmond. This area, of, benefit is proposed as a means :of providing funds,
for the construction of road improvements to service potential new residential
and commercial development. in this area. Without'major road improvements being
constructed in conjunction with each phase of development, the capacity of the
existing road .network will be ..exceeded and an increase. in traffic congestion
and road accidents willoccur.
ROAD CAPACITY IMPROVEMENT PLAN
This road network capacity improvement plan has been produced to allow the orderly
development of the road element of the transportation needs. Funded by and
constructed with .the development of the property within the area of benefit, .
the roads will provide the roadway capacity needed to adequately serve the increasing
population and related travel needs. ,
However; in.'the ,El'1obrante .area, the needed road improvements .are so large..
that the amount of development expected would be over-burdened if it was to
,,. .. :: pay for all of the needed improvements Therefore, this area of benefit will
specifically fund the construction of only those road improvements that have
been Identified as directly attributable to potential new development.::
Periodic review must' be made to evaluate growth impacts and facility costs.
Growth and costs are considered significant variables in this plan;. their-effects.
along with other information must be included in periodic updates of this plan.
if it is to .maintain its adequacy.
GENERAL PLAN RELATIONSHIP
The land use projections in this report are based on a composite land use plan
consisting of the adopted General Plans .and. r.elated zoning densities of the
City of Richmond and Contra Costa County. ' The majority of the central El Sobrante
area is designated as residential with major .Retail/Commercial land uses in
the existing commercial area - on San, Pablo Dam Road' and the area west of I-680
and north of Hilltop Drive.
00 . 264
DESCRIPTION OF AREA OF BENEFIT
The proposed area of benefit approximates the central E1 Sobrante Valley area
which .is bounded on the north by Sobrante Ridge and on the south by San Pablo
Ridge. It includes portions of the City of Richmond and unincorporated areas
of Contra Costa County.
The boundary of the area of benefit is shown in Appendix A and is described
in Appendix .B,
DEVELOPMENT POTENTIAL
The City of Richmond's and the County's Planning Departments have estimated
that the new residential development for E1 Sobrante will be 1,662 single family
residents a6d. 2,024 multiple family residents for a total of 3,686 potential
new dwelling units.
The same sources es.timate. that 'a possible 71 .,acres are available for potential
commercial development. A building coverage -of 25% of the gross-acreage was
used to determine the floor area of the expected development. Two commercial
'-categories were identified: shopping and office. Estimated commercial shopping
floor area will. be 686,070 square feet and estimated commercial office floor
area will be 76,230 square feet. The.potential ,'total for commercial development
wiI). 'therefore be 762,300 square feet.
EXISTING TRAFFIC
The :most heavily 'utilized street `in .ehe area is',San 'Pablo Dam Road. ; A1974
" traffic count indicated that 29,000 vehicles °use :thit roadway, on an average
day. A recent :count taken on July 18,4984 .0owed that traffic on San Pablo
°Dam Road, west of Appian Way is approaching 37,700 vehicles per day; an increase
of 307 over the 1974 traffic count. ; Traffic on Appian May varies from an ADT
of .13,506 (south of Paloma Road)" to'=an ADT of,16,300 .(north :of,..Manor Road).
:- These counts were taken in 1983. xy,�
Most other streets in, the area operate below:capacity with traffic congestion'
% limited to short peak periods only. Some ;itreets,. .such as May Road operate
at. or above desirable traffic limits when considering adjacent residential uses.
PROJECTED 'TRAFFIC.
:.The following horizon year traffic`-volumes'for, the11 Sobrante area is from
the 1975 E1 Sobrante Area Traffic Study by Deleuw Cather and Company. San Pablo
Dam Road is expected to carry up to. 54,000 vehicles per day in the horizon year. .
Large traffic increases-'are also expected to., occur on the 'Oam -Road toward the
east reflecting the easterly_ orientation of,_future traffic growth in El Sobrante.
Valley View Road and Castro Ranch Road .whic'li will Doth connect San Pablo Dam
Road to future developments in east El Sobrante is expected to experience great
' increases in traffic volumes. Valley View Road„at'Sobrante Avenue can 'be .expected '
to Carry 20,00 vehicles per day. ,
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Appian Way north of San Pablo Dam Road is expected to carry 22,000 vehicles
per day. South of Sarah Drive Appian Way is expected to carry 23,000 vehicles.
In addition to the above it is expected that the potential new dwelling units
in El . Sobrante will put 30,138 additional trips on the road network; and the
potential new commercial development will generate 32,928 additional shopping
trips and 1,143 additional office trips. However, only 23% of the commercial
shopping trips will be new trips from outside E1 Sobrante by persons attracted
to the new shopping facilities and 77% will be redistribution trips of existing
and new E1 Sobrante residents. (El Sobrante Area Traffic Study, Technical Report
1975 ,by Deleuw Cather and Company, page 22, Table 3. ) Hence, only 8,716 may
be classed as new commercial additional trips. Although an actual distribution/assign-
ment analysis has not beenmade, it may safely be assumed that 38,855 additional
vehicle trips would contribute to the area roadway deficiencies.
ESTIMATED COST OF ROAD NETWORK IMPROVEMENTS
The E1 Sobrante Traffic Advisory Committee has determined that the total cost
of road improvements needed in .the area will amount to $18,452,000. Less frontage
improvement costs of $857,000 the balance to be funded will be $17,595,000.
It would not be reasonable to expect potential new development to pay for all
of the above costs. Therefore, it became necessary to estimate the percentage
of traffic impacts directly attributable to potential new development.
Total estimated trips per day for the El Sobrante area at buildout is estimated
to be 107,800. This represents an. update by the Richmond Traffic Engineer of
the 1975 Study by'":Deleuw, Cather and .Company.
Therefore, the additional vehicle trips of 389855 from new developments will
constitute 3671 of total buildout traffic in the area.
The percent cost of road improvements to be borne by this area of benefit will _:
thus be $17,595,000 x 0.36= 36,334,200
BASIS FOR FEE APPORTIONMENT >;
The basis for fee apportionment consisted of determining the fair share of the
total road improvement costs to. be paid for by future development within the
area of benefit. Before a f air --share could be, allocated it was necessary to
first determine the benefit groups. Three basic benefit groins are identifiable;
1) 'road network users who travel through the area of benefit, 2 are
development
within the area of benefit, and 3) future development within the area.of benefit. ' .
The area of benefit fee program described in this report is directed at the
third benefit group (future development). The share of total road improvement
costs from the first two groups wiII have to come from sources other than as
described in this report. Determination of the share of the road improvements
attributed to future development was based on traffic impacts of future development
within the area of benefit. This share will amount to $6,334,200.
Potential new development in the area of benefit can be classified as .two land
use categories, residential and commercial.
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In general residential .traffic peaks on arterials/thoroughfares govern the size
of the roadway necessary to meet traffic demands. Local street size in the .
vicinity of commercial developments of local area interests is determined by
a combination of residential and commercial traffic during the evening peak
hours.
Therefore, it is recommended that the cost of needed transportation facilities
be allocated as 85% residential and 15% commercial . This allocation is based
upon an evaluation of the character and intensity of land use, the socio-economic
characteristics and travel attitudes of residents and future tax-contributions.
The above 85% of the improvement costs allocated to future residential development
must be reapportioned between single. family residential units and multiple family
residential units in accordance with the different trip generating characteristics.
Standard sources for trip generation rates indicate that multiple family residences
will generate 46% while ,single .family residences will generate 54% of future
residential trips within the E1 Sobrante area.
The 15% improvement cost allocated -to future commercial development will be
assigned to individual developments on a unit cost per square foot of floor
area.
RECOMMENDED FEES
The fees which result from the above allocation of area needs are: .
1. Residential Single-Family $693340,000 x 0.85 x 0.54 - 1,662 = 51,749/Unit
2.. Residential Multiple-Family $693349000 x 0.85 x0.46 - 29024 u. $1.224/Unit "
3. Commercial $69334,000 x 0015 762,300 =. S1.25/SF '
ANNUAL REVIEMI OF FEES
:
Upon recommendation of the Public Works Director, the fees collected at the
approval of the Final Map may be reduced incrementally down to a minimum of
25% of the total fees due. This recommendation will be based upon an evaluation
of road improvements needed to meet traffic needs. The remaining fees would
be collected as a building permit is issued for each unit, until such time as
100% of the fees due are collected for the subdivision. At that time, no additional i
fees will be collected for the remainder of the subdivision. Fees collected
will be deposited in an account entitled "E1 Sobrante Area of Benefit" and will
not be refundable.
In accordance with Section 913-4.404 of. Title 9 of the Contra Costa County Ordinance
Code, these fees shall not be required where:
1. Any alteration or enlargement of an existing residential building or structure
does not create an additional dwelling unit.
2. The alteration or enlargement of an existing building or structure within
any three year period does not exceed one-half of the value (as shown on
the Assessor's records) of all existing improvements on that parcel of
land; nor change the classification of occupancy; nor change the potential
for traffic generation or traffic attraction.
-CITY PARTICIPATION IN AREA OF BENEFIT FEE PRDGRAM
The proposed area of benefit includes portions of the City of Richmond, the
*City of San Pablo and unincorporated County territory:. The point powers agreement-
should,focus on cooperative funding and construction scheduling of road improvements ;
to meet the-impacts from future developments in the E1 Sobrante area.
:RECOMMENDATIONS
1.. Approve the development program report for the E1 Sobrante Area of Benefit
as presented herein.
2. . . Adopt recommended road improvement fees for all. future developments within
the boundaries of the area of benefit. Six months after the fees -are adopted,
the ,Public .Wgrks Director shall give an interim report on potential methods
for funding the balance of the identified improvements, The building industry
should be aware that the Board may consider revising the fee structure to
increase new developments share.
L Authorize the Public Works Department to negotiate a Joint exercise of
powers agreement with the City of Richmond and the City of San Pablo for
expenditure of fees and implementation of the road improvements listed
in Appendix •C". The joint power of agreement should specifically discuss
the possibility of using fee area monies as local match toward Federal/
State funding of appropriate roadways listed, in Appendix `C".
4., It is recommended that other sources of funding such as tax increment financing
via Redevelopment Agency,assessment district . State and Federal funds be
used to construct the improvements not provided for in the proposed area
of benefit. (Note: The City of San Pablo will continue to actively seek
Federal/State funding for the needed improvements. to San Pablo Dam Road
from Interstate 80 to Barranca Street. In addition, the County will construct
$1,968,000 of interim improvements to Appian Way as a Federal Aid Urban
project. )
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APPENDIX B
Richmond/E1 Sobrante
Area of Benefit
Boundary Description
That portion of the City of Richmond, the City, of San Pablo, and of Contra Costa
County, California, described as follows:
Commencing,at the Contra Costa County Monument D-40, station 369 + 77.42 B.C. on
San Pablo Dam Road located 4.73 miles north of the intersection of San Pablo
Dam Road and Bear Creek Road; thence from said point of commencement generally
southeast along said centerline of San Pablo Dam Road, 1,500.00 feet more or
less, to the true point of beginning, said .point of. beginning being a point
on the City of Richmond Boundary Line.
Thence from said point of beginning and said boundary line along a line bearing
North 52 degrees East, 13,170.00 feet more or .less, to a point on the northerly
Boundary Line of Rancho El Sobrante; thence generally northwest along said Rancho
Boundary, 21,4000.00 feet more or less, to a point on the City of .Pinole Boundary
Line; thence generally north along said :Boundary Line, 2,200.00 feet more or
less, to a point on the southerly righ.t of way line of Interstate 80; thence
southwesterlyalong said right of way, 7,900.00 feet *more or less,'to a point
on the City of Richmond Boundary Line; thence generally north along. said Boundary
Line, 6,600.00 feet more or less to a point on the easterly right of way of
San Pablo Avenue;+ thence generally southwest along said right of way, 2,500.00
feet more or less, to the City of Richmond Boundary Line; thence generally south
9,800.00 feet more or' less, to a point on the northerly right of way of Church
Lane; thence generally southwest along said right of way 2,000.00. feet more.
or less, to a point on the City of San Pablo/City of Richmond Boundary Line;
thence generally southeast along the City of Richmond Boundary Line 22,700.00
feet more or less, to a point on the City of Richmond/City of E1 Cerrito Boundary _
Line; thence generally southeast along. said boundary line 12,900.00 feet more
or less, to BM 886 as shown on the June 1. 1982 Official Map of Contra Costa
County, 1 inch= 2,000 feet scale; thence generally north along the City .of
Richmond Boundary Line 24,400.00 feet more or less,, to the point of beginning.
FL:dsp (9.18.84)
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APPENDIX C
AREA OF BENEFIT
EL SOBRANTE ROAD IMPROVEMENTS
Estimated Cost
San Pablo Dam Road (I-80 - Barranca) S 29000,000
E1 Portal I-80 - Dam Road S 200,000
Dam Road Couplet S 4,5000000
Pitt Way Signal S .1509000
Interim: Dual Left Turn Lanes on $ 1200000
Dam Road at Appian Way
Signal at Dam Road b Castro Ranch Road* S 125,000 .
Carpool Parking at El Portal S 159000
. Appian Way, Michael to Valley View Rd. $ 162209000
(Interim)
Appian Way Valley View Road to Dam Road $ 7481,000
(Interim]
Sobrante Avenue/Valley View/Appian Way S 193,000
Triangle .
Valley View Road,. Sobrante Avenue - . S 1170000
Richmond City Limits
Connection; Allview Avenue to Fitzgerald Drive S 4329000
5th-Lane on Dam Road, Appian to Castro S 193029000
Ranch Road
Signal at Milton Drive and Dam Road* f 125,000
Signal at Clark Road and Dam Road* S . 1259000 .
Signal at Greenridge Drive and Dam Road* S 125,000
Carpool Parking at Castro Ranch Road S 159000
Ultimate Improvements on Appian Way S 115379000
Michael to Valley View Road
,' 'Ultimate Improvements on Appian S 1,4360000
Valley View Road to Dam Road
Signal at Manor Road and Appian Way* $ 1259000
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Signal at Allview Avenue and Appian Way* E 1259000
Signal at Pebble Drive and Appian Way* E 1259000
Signal at La Paloma Road and Appian Way* E 1005000
Signal at May Road and Valley View Road* E 1253,000
Signal at Morningside Drive and Valley E 1250000
View Road*
Hilltop Drive and Park Central Intersection E 100,000
Hilltop Drive from Freeway to Manor Road E 8189000
Bike Path on Hilltop Drive, Park Centrale E 1121,000
to Manor Road
Castro Ranch Road Widening E 614,085
Salida Way Connection E 1571,000
Manor Road East of Hilltop Drive E 2619,000
Manor Road West of Hilltop Drive $ 1520000
Signal at Hilltop Drive and Park Central* E 1259000
Dual Left Turn Lanes on Dam Road at E • 929000
May Road
Third Lane on Dam Road, Castro Ranch Road E 435,000
to Tri Lane
Signal at Barranca and El Portal* E 759000
May Road Widening E 230,000
S 189452,000
Less Frontage Improvements (Estimated) E 857,000
E 1795959000
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