HomeMy WebLinkAboutMINUTES - 03261985 - 1.19 ;`ATO: . BOARD OF SUPERVISORc
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FROM: J. MICHAEL WALFORD, PUBLIC WORKS DIRECTOR
DATE: March 26, 1985
SUBJECT: ESTABLISHMENT OF AREA OF BENEFIT TO PROVIDE FUNDING FOR CONSTRUCTION OF ROAD
IMPROVEMENTS IN THE RICHMOND/EL SOBRANTE AREA
Specific Requests or Recommendations & Background b Justification
RECOMMENDATION
I . Direct the Clerk of the Board to set April 23, 1985, 10:30 A.M. for a public hearing
on the establishment of an Area of Benefit for the Richmond/E1 Sobrante Area and
accept the Development Program Report dated March 1985.
FINANCIAL IMPACT
None
REASONS FOR RECOMMENDATION/BACKGROUND
On November 19, 1984, the Internal Operations Committee met with representatives from the
Public Works Department and the E1 Sobrante Area Traffic Advisory Committee. The E1
Sobrante Traffic Advisory Committee identified approximately $18.5 million of road improve-
ments for the E1 Sobrante area and recommends that $6.3 million of these improvements
should be borne by new development in the area. Based upon anticipated growth and land
use in the Richmond/E1 Sobrante 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; and commercial , $1.25 per square foot.
The Internal Operations Committee approved the attached development program report and has
recommended that the Clerk of the Board set a date and time for a public hearing on the
establishment of a Richmond/E1 Sobrante Area of Benefit.
CONSEQUENCES OF NEGATIVE ACTION
None
Continued on attachment: yes Signature*
Recommendation of County Administrator ecomnendat,IW of B and omn"ittee
Approve Other:
Signature(s):
Action of Board on: March 26, 1985 Approved as Recommended X Other X
The Board fixed April 23, 1985, at 10:30 a.m. for public hearing on the proposed
establishment of an Area of Benefit for the Richmond/El Sobrante Area.
Vote of Supervisors I HEREBY CERTIFY THAT THIS IS A TRUE
AND CORRECT COPY OF AN ACTION TAKEN
X Unanimous (Absent AND ENTERED ON THE MINUTES OF THE
Ayes: Noes: BOARD OF SUPERVISORS ON DATE SHOWN.
Absent: . Abstain:
BO.E1Sob.t3 Attested March 26, 1985
Orig. Div.: Public Works - TP PHIL BATCHELOR, CLERK OF
cc: County Administrator THE BOARD OF SUPERVISORS .
AND COUNTY ADMINISTRATOR
By
E_P TCTK
DMOPI ENT PROGRAM REPORT
FOR
AREA OF BENEFIT
PROVIDING FUNDING FOR CONSTRUCTION
RIOMM/EL SOMME AREA ROAD IMPROVEMENTS
PREPARED PURSUANT TO SECTION 913
COUNTY ORDINANCE CODE '
Contra Costa County Public Works
and Planning Departments
March 1985
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INTRODUCTI0N
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 E1 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.
Thi.s 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 will occur.
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 E1 Sobrante 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. related zoning densities of the
City of Richmond and Contra Costa County. The majority of the central E1 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.
I 1
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 and 2,024 multiple family residents for a total of 3,686 potential
new dwelling units.
The same sources estimate 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 686,010 square feet and estimated commercial office floor
area will be 76,230 square feet. The potential total for commercial development
will therefore be 762,300 square feet.
EXISTING TRAFFIC
The most heavily utilized street in the area is San Pablo Dam Road. A 1974
traffic count indicated that 29,000 vehicles use thit roadway on an average
day. A recent count taken on July 18, 1984 showed that traffic on San Pablo
Dam Road, west of Appian Way is approaching 379700 vehicles per day; an increase
of 30% over the 1974 trafftc count. Traffic on Appian Way 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.
Most other streets in the area operate below capacity with traffic congestion
limited to short peak periods only. Some streets,, '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 the E1 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 Dam Road toward the
east reflecting the easterly orientation of future traffic growth in El Sobrante.
Valley View Road and Castro Ranch Road which will both connect San Pablo Dam
Road to future developments in east E1 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.
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 E1 Sobrante will put 30,138 additional trips on the road nttwork; 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 778 will be redistribution trips of existing
and new E1 Sobrante residents. (E1 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 been made, 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 E1 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 38,855 from new developments will
constitute 36% 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= 56,3349200
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 fair share could be allocated it was necessary to
first determine the benefit groups. Three basic benefit groups are identifiable;
1) road network users who travel through the area of benefit, 2g existing 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 will 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 $693349200.
Potential new development in the area of benefit can be classified as two land
use categories, residential and commercial.
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 allocate 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 El 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 $6,334,000 x 0.85 x 0.54 - 1,662 = $1,749/Unit
2. Residential Multiple-Family =6,334,000 x 0.85 x 0.46 - 2,024 s $1,224/Unit
3. Commercial $6,334,000 x 0.15 - 7620300 = $1.25/SF
ANNUAL REVIEW OF FEES -
The established fee will be increased annually (on January 1 of every year)
by the previous year's increase in the California Construction Cost Index as
published annually by Caltrans.
COLLECTION OF FEES
Experience has shown that when fees are collected only at the building permit
stage, traffic demand increases more rapidly than new road facilities can be
funded and constructed. This results in dissatisfaction to old and new residents,
as has been shown in the Discovery Bay area. It is therefore necessary to assure
that road facilities are completed before newly generated traffic exceeds the
capacity of existing facilities. To assure this occurs, fees will be collected
at the time of approval of a subdivision final map, or issuance of a building
permit, in accordance with Section 913-4.202 of Title 9 (Subdivisions) of the
Contra Costa County Ordinance Code. For those properties that have approved
tentative maps prior to the adoption of this Area of Benefit, the fee will be
collected when the building permit- is issued.
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 PROGRAM
The proposed area of benefit includes portions of the City of Richmond, the city
of San Pablo and unincorporated County territory. The joint powers agreement
should focus on cooperative funding and construction scheduling of road improve-
ments to meet the impacts from future developments in the El 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 Works Director shall give an interim report on potential methods
for funding the balance of the identified improvements. One year after the
adoption of the fee, the Board of Supervisors shall review adequacy of the
fee structure. The building industry should be aware that the Board may
reconsider revising the fee structure to increase new developments share.
3. 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/EL 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 point of intersection of the City of Pinole Boundary Line with
the southerly right of way line of Interstate 80; thence southwesterly along said
right of way, 7,900 feet, more or less, to a point on the City of Richmond
Boundary Line; thence in a general northwesterly direction along said Boundary
Line, 6,600 feet, more or less, to a point on the easterly right of way of San
Pablo Avenue; thence in a general southwesterly direction along said right of way,
12,300 feet, more or less, to the City of Richmond Boundary Line; 'thence along
said boundary line, to the northerly right of way of Church Lane; thence in a
general southwesterly direction along said right of way, 2,000 feet, more or
less, to the City of San Pablo/City of Richmond Boundary Line; thence in a
general easterly direction along said City of Richmond Boundary Line, 6,000 feet,
more or less, to the easterly most point of Alvarado Park; thence in a general
easterly direction along the East Bay Municipal District right of way line,
54,000 feet, more or less, to its point of intersection with the northerly
Boundary Line of Rancho E1 Sobrante; thence in a general northwesterly direction
along said Rancho Boundary Line, 4000 feet, more or less, to a point on the City
of Pinole Boundary Line; thence in a general northerly direction along said
Boundary Line, 2,200 feet, more or less, to the point of beginning.
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