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HomeMy WebLinkAbout5.1 TOWN OF Los ALTOS HILLS December 13, 1995 Staff Report to the Planning Commission RE: REVIEW OF PROPOSED PATHWAY ELEMENT OF GENERAL PLAN FROM: Curtis Williams,Planning Direcor RECOMMENDATION That the Planning Commission: Consider the attached draft Pathway Element and ordinance amendments, discuss, recommend changes, and continue to a public hearing on January 10, 1996. BACKGROUND At its November 8, 1995 meeting, the Planning Commission discussed the draft Pathway Element of the General Plan, and provided staff with a number of suggestions at that time, as well as in writing. The Pathways Committee had also provided comments to the Commission and staff. The Commission directed that staff consider the comments and revise the draft for further Commission consideration. DISCUSSION The revised Pathway Element is attached. Substantive changes from the previous version are noted in bold (added language) and strikethru (deleted language). Minor language changes are not highlighted. Several "Goals" were added to provide an overall framework for the document, and the format was revised slightly to include the Master Path Plan as part of the "Implementation" section. The "nexus" discussion, rather than being a separate attachment, has been incorporated into the various sections of the Element, with the thrust of the issue being addressed on pages 6 and 7 ("Implementation Actions"). Ordinances Accompanying the Pathway Element are several amendments to the Town's Subdivision and Site Development ordinances. These amendments would establish a pathway in-lieu fee fund, and would modify the current pathway requirements to be consistent with the new language of the Pathway Element, particularly with regard to the extent of development required to grant easements, construct paths, or provide in-lieu fees. c Planning Commission: December 13, 1995 ' Pathway Element Page 2 ! Negative Declaration and Public Hearing The proposed Pathway Element comprises a revision to the Town's General Plan. As such, the revision will require at least one public hearing before the Commission, with Town-wilide published notice at least 10 days in advance of,the hearing. Similarly, the ordinance amendments will require published notice and public hearirl g. Staff suggests setting the hearing for the January 1'0th Commission meeting, allowing further review by the public and by the Pathways Committee, which has not had a chance to review the revised draft. The Commission's action will be a recommendation to the Council, which will also conduct a hea ing prior to final action. I Pursuant to the California Environmental Quality Act (CEQA), staff will also need to prepare a Negative Declaration to support the Pathway Element and ordinances. A 21-day publc notice and review period will be required prior to the Commissi n's final consideration of the Negative Declaration and the draft Pathway Element. Staff is available to respond to questions from the Commission and the community. ATTACHME TS Draft Pathways Element (Revised) Draft Ordinances i ! , e GENERAL PLAN OF THE TOWN OF LOS ALTOS HILLS PROPOSED PATHWAY ELEMENT BACKGROUND Paths serve two basic and important functions -- circulation and recreation. The Town's pathway system is composed of roadside paths and off-road paths. For the purposes of this discussion, a "trail" is also a kind of path, although it generally refers to a pathway in a more natural condition or setting. as the sidewalks of our rural residential community. The primary users and beneficiaries of most of these paths arc likely to be local residents. Roadside paths provide safe routes for pedestrians and equestrians, in effect serving as the sidewalks of the community, while off-road paths provide links between adjacent neighborhoods and schools for pedestrians, bicyclists and equestrians. In addition to providing access to nearby destinations, paths provide a place to exercise, to walk dogs, or to ride horses. The primary users and beneficiaries of most of these paths are likely to be local residents. Roadside paths, being similar to city sidewalks, are located within or adjacent to the road right-of-way. The road right of way is generally planned to have the needed width to accommodate the paved road as well as a separated path. Off-road paths, which connect to roadside paths, are located on dedicated easements on private property or public lands. Roadside paths separate the car and the pedestrian or other non-vehicular user, and allow each a safer movement. The hills of the Town result in streets which often have steep sections or blind curves, which make pedestrian separation more important than with a grid street system. The Town street system is also designed to minimize the intrusion of the car into and through the Town, and cul-de-sacs are therefore common. This configuration can make it difficult to travel to nearby neighborhoods using Town roads. Off-road paths overcome this limitation by connecting neighborhoods for pedestrians and other pathway users, but not for cars. Unlike larger communities, the Town does not maintain a park system with "active" recreational uses, and instead relies primarily on the pathway network to fulfill that function. Path-related recreational activities (such as walking, jogging, hiking, bicycling and horseback riding) are among the most 1 J popular and rapidly growing forms of outdoor recreation as the public is becoming increasingly more health and fitness conscious. Both the recreational and circulation functions of the paths will become even more important as population continues to grow and as demand increases. • The pathway system began to be developed with the incorporation of the Town in 1956. Early off-road paths were developed primarily for equestrian and some pedestrian use. Throughout the years as each new subdivision developed and each new residence was built, an increased use and need for roadside and off-road paths occurred. The paths have expanded incrementally along with the new developments and increased population. Each new development that adds potential new users of the system contributes to It' he pathway system by dedication of easements and/or construction of paths or the payment of in-lieu fees which are used by the Town for improvements of the pathway system. The system remains incomFlete. Implementation of a Town-wide path system and the individual paths within it is a long term process that will take many years to accomplish. In many instances, it will literally be a gift that one generation of Town residents provides to the next. It takes a long time to complete a pathway network because paths are generally implemented one l segment at a time as opportunities arise. The Town is not ever likely to have all the money that might be required to purchase all o the easements needed to develop all of the desired paths. Consequently, obtaining pathway easements and construction of pathways will continue to rely on a variety of processes, on a case-by-case basis, as opportunities arise and resources are available. Piecing together a Town-wide path system, one small segment at a time, is a difficult, time-consuming, and fragile process. Failure to obtain a few critical links in a desired pathway can disrupt the continuity of the path and thus delay, and possibly even prevent, its eventual completion. The fragility of this piecemeal process makes it all the more critical that opportunities be taken advantage of as they arise for they may not arise again for many years, if ever. GOALS GI All residents of the Town shall have immediate access adjacent to or across the street from their residence to a pathway or pathways, for safe and coni enient pedestrian and other non-vehicular travel along Town roads and to schools and community facilities, and for recreational enjoyment of the natural amenities of the community. 2 G2 Pathways should, wherever possible, also serve to provide access to and from neighborhoods in the event of an emergency. G3 Pathways should be separated from the roadway pavement and should meander, wherever possible. G4 All paths should be located and designed to preserve the beauty and natural character of the area and to safeguard the user. G5 Except for connections to regional trail and bikeway networks, Town paths should be designed primarily for local circulation and recreational use. POLICIES A. ROADSIDE PATHS Al Roadside paths shall be located within or immediately adjacent to the right-of-way of Town streets and on separate path easements on adjacent to or over private streets. Roadside paths should be separated from the roadway pavement and should meander, where possible. A2 The Town Council shall adopt a list of those streets or segments of those streets that shall be planned for paths on both sides of the street. A3 A roadside path shall be maintained on only one side of the street unless the street is included on the list adopted pursuant to Policy A2. The path may be located on alternating sides of the street,however, depending on factors such as available easements, topography, or proximity to schools or other facilities. A4 A roadside path shall not be maintained on a cul-de-sac that serves or could serve six or fewer lots. The traffic on such streets is deemed so minor that pedestrians can safely use the paved surface as a walkway. A roadside path along a cul-de-sac may be required by the Planning Commission or Council, however, for topographic or for safety reasons. A5 The Town Council may exempt require that an easement separate from a private street path be dedicated, or that pathway access over the paved roadway be provided (if feasible), when the width of a private street will not accommodate both the paved surface and a separate path. 3 A6 Where additional right of way is required to accommodate a roadside path so that it may be separated from the paved road or because of steepness of a shoulder, the additional dedication shall not affect the computation of the MDA (maximum development area) of the lot. Dedication of pathway easements outside of required road rights-of- way shall not affect the computation of the net area, LUF (lot unit factor), MDA (maximum development area) or MFA (maximum floor area) for a lot. B. OFF-ROAD PATHS B1 Off-road paths shall be located on private property on easements which have been dedicated to the Town, or over public lands. They provide connections between neighborhoods and provide direct routes to schools and open space. Cul-de-sacs should have off-road paths which connect the end of the street to adjoining neighborhoods. B2 There are three classes of Off-Road Paths: Class 1 -- Off-road pal the for which easements have been granted to the Town for a completed route, on which a path has been developed or pathway use has been established, and which'is maintained by the Town and is open for public use. The Town will only maintain and hold open to the pub!is Class 1 off-road paths. Class 2 - Off-road paths for which easements have been granted to the Town for less than a completed route, or where the pathway easement exists but the path has not been constructed or maintained and is not open for public use. Such paths remain to be completed in the future. Class 3 -- A planned future off-road path, as shown in the Master Path Plan. B3 Off-road path easements may be through are a permitted use in a conservation easemLt. B4 An emergency road easement may also shall also include an off-road path ea ement. B5 The design of new subdivisions - especially those with cul-de-sac streets - should incorporate pathway connections to nearby neighborhoods or community facilities) such as schools, and to open space areas. 1 4 B6a .. _ :. - . . : . - -- _ ' . - = - - -- = - - -- e - - _ - _ . . - - - . . Dedication of off-road pathway easements shall not affect the computation of the net area, LUF (lot unit factor), MDA (maximum development area) or MFA (maximum floor area) for a lot. B7 Off-road paths are to be maintained in as natural a state as possible. B8 Off-road paths should be located along or as close to property lines as possible. C. REGIONAL CONNECTIONS The pathway system of the Town is intended to primarily serve Town residents but it should be connected to the path and trail systems of neighboring jurisdictions. The Town and Palo Alto paths along Arastradero Road provide links from the Town to Arastra Preserve, Esther Clark Park and Gunn High School. It would be very desirable if Foothill Park trails were also accessible to the Town. Access from and to Shoup Park and Redwood Grove in Los Altos, and along Adobe Creek to O'Keefe Lane and the Town's path system would improve pedestrian access for both cities. The western boundary of the Town meets Rancho San Antonio Open Space Preserve of the Midpeninsula Regional Open Space District. This Preserve has an extensive trail system that attracts large numbers of visitors. The primary entrance to the Preserve, where extensive parking is available, is at Rancho San Antonio County Park at the end of Cristo Del Rey Drive in Cupertino. Connections into the Preserve from the Town are intended for local residents and have very limited parking (Ravensbury Avenue, Stonebrook Avenue, La Loma Drive, Rhus Ridge Road, Francemont Avenue, Hidden Villa). IMPLEMENTATION OF THE PATHWAY SYSTEM A. THE MASTER PATH PLAN The Master Path Plan shall consist of all of the following: 1. The list of A book of street maps of the Town in which is recorded streets with paths planned on both sides of the street, after adoption by the City Council (see Policy A2). 5 J 2. A book of street maps of the Town in which is recorded the side of each street on which a roaldside path is planned, for streets with paths on only one side of the street. Determination of which side of a street the path should be located will be made incrementally by the Planning Commission, with the advice of the Pathways Committee and the City Managr, at the time of subdivision approval or site development approval. A determination may also be made by the Pathways Committeelupon they request of the City Manager or his designee, for construction or maintenance purposes. The book of street maps shall also show those streets exempt from the status of roadside paths for cul-de-sacs and private streets, in accordance with Policies A4 and A5. 3. A book of street maps of the Town in which is recorded the location of Class 1 off-road paths. 4. A book of street maps of the Town in which is recorded the location of Class 2 off-road path. The Pathways Committee will review from time to time these paths to determine the feasibility of their development and to recommend actions to convert Class 2 paths to Class 1 paths. 5. A map to be developed by the Pathways Committee and approved by the City Council shoving future needed off-road paths. Such a map, upon adoption, will identify Class 3 paths. Off-road paths shown on the Mater Path Plan of 1981 shall remain in effect until the City Council adopts the new map, but all paths designated by the 1981 Plan shall be critically evaluated relative to function, slope, and other constraints prior to adoption of the new map. In addition to or in lieu of the documents required by 1 through 5, the Town may display the Master Path Plan through other mapping or computer data; bases for public and staff use. B. IMPLEMENTATION ACTIONS 1. Development of paths shall occur incrementally as development generates increased demand and use of the system, based on resultant increases in population. Either at the time of subdivision or site development, property owners shall be required to dedicate easements and/or construct paths on their property. Owners of property on which no path is needed shall contribute by the payment of a pathway in-lieu fee. The pathway in-lieu fee shall be established at an amount roughly proportilonate to the cst of pathway construction on the subject lot, if a pathway were requir I d. 6 2. All new development which is expected to result in an increased demand for use of pathways shall comply with requirements for non- vehicular access, including dedication of easements and/or construction of paths, or payment of in-lieu pathway fees, as follows: a. All subdivision development (except for lot line adjustments) will be required to comply with pathway requirements, as the project would result in an increase in the number of homes (and residents) in the Town. b. All proposals for new main residences and/or secondary dwellings will be required to comply with pathway requirements, as the project would result in an increase in the number of residents in the Town. c. A development of 900 square feet of "habitable" floor area or greater will be required to comply with pathway requirements, as 900 square feet is considered a "major addition" requiring Planning Commission discretionary review; is generally the size of a large master bedroom and bathroom suite or three smaller bedrooms, based on typical submittals to the Town; and is roughly equivalent to the average area of floor space per Town resident, resulting in an increase (presently or in the future) in the number of residents in the Town. d. Development of a barn or stables in excess of 900 square feet will be required to comply with pathway requirements, as the project would generate additional stable capacity and place an increased burden on the equestrian use of pathways. e. Other types of development proposals, such as conditional use permits or variances, would require a specific justification of the "nexus" for pathway requirements for that particular project. 3. Where pathway installation is required for a project, construction of the path shall occur concurrent with development of the project, unless the Planning Commission or Council determine that the path would serve no useful purpose in the near future, due to the incompleteness of the pathway segment. 4. A lot that contributed a pathway in-lieu fee at the time of subdivision shall not be required to contribute again at the time of site development. 5. Pathway in-lieu fees shall be deposited in a designated fund and used only for pathway projects. 7 y 6. The incremental development of the path system sometimes results in gaps in both the roadside and off-road pathways. Public funds availabe to the Town, including the pathway fees, shall be used on project that will complete the gaps in the system. • 7. Pathway standards sihall be adopted by resolution of the City Council, to address roadside and off-road pathway design. Standards should also address required access for disabled persons,where feasible, consistent with applicable provisions of the Americans with Disabilities Act and State law. 8. ' Site development authorities should be sensitive to path location and design. This is especially the case for the off-road paths. The location shall be sensitive to the privacy of future residents whenever a parcel is subdivided or a lot i developed. All paths shall be located and designed to preserve the beauty and natural character of the area and to safeguard the user. Particular care should be given to retaining trees and vegetative cover and to minimize grading and erosion. 9. Typically, off-road paths should be located along property lines, when topography permits. Affected property owners should be included in pathwaby planning. The Pathways Committee shall give notice and hearing to a property owner before it makes a recommendation relative to an off-road path to be located on the property of the owner. Fencin . along paths may sometimes be appropriate to protect privacy, so long as it does not intrude into easements or right-of-way. 10. Street trees along the roadside path system should be promoted-lay-the Town to enhance the pathway experience, but should be located to ' avoid conflict with hath use. 11. Pathway maps showing interesting neighborhood walks should be ' made available so as to encourage greater use by residents. 12. Property owners who damage paths on their property should be required to repair thm. Damage can occur by landscaping planted too close to the path, sprinklers near the path, and slippery driveway surfaces across a path. 13. Class 1 off-road paths should have sign posts at their entrance to help residents locate them and feel free to use them. 8 14. Major off-road paths should be named as a way to encourage their use and to recognize historical entities associated with the Town or to honor Town residents who have contributed to the development of the system. 15. The Town should accept offers of dedication of Class 2 paths made at the time of development and record them so that the future pathway right-of-way is identified. 16. The Town should seek donations of path easements needed to complete gaps in the system. The Town should assume the legal and engineering costs involved with donations unrelated to development and inform residents of possible tax advantages from easement dedication. 17. A Pathways Committee of residents interested in the pathway system shall be appointed by the Council. A major responsibility of the Committee shall be to suggest priorities for the Council and the City Manager regarding those paths most in need of maintenance or development. The Committee should also be responsible for the maintenance and development of the Master Path Plan. 18. Property owners shall not block pathways or otherwise impede pathway use through the placement of fences, landscaping, irrigation, mailboxes, or any other means. 19. Provision for pathway crossings or bridges should be made at appropriate locations, such as across creeks. 20. Trails and paths shall be permitted uses in open space and conservation easements. These trails shall be constructed and maintained to minimize the environmental impact upon the area. 12/13/95 9 DRAFT ORDINANCE NO. • ORDINANCE OF THE TOWN OF LOS ALTOS HILLS AMENDING MUlfICIPAL CODE TO PROVIDE FOR A PATHWAY FUND, AND TO REVISE REQUIREMENTS FOR PATHWAY EASEMENTS, CONSTRUCTION, AND IN-LIEU FEES SECTION 1: Article 3 (Pathway Fund) is hereby added to Title 3, Chapter 3 of the Town of Los Altos FIills Municipal Code as follows: I ' "Article 3. Pathway Fund Section 3-3.301 Established There is hereby established a special fund to be known as the "Pathway Fund." Section 3-3.302 Deposits All funds collected tursuant to the provisions of Sections 9-1.1112 and 10-2.608 shall be deposited into the Pathway Fund. Section 3-3.303 Expenditures All funds received and held in the Pathway Fund shall be used exclusively for the maintenance, repair, construction and acquisition of property for the pathway system." • • • • Ordinance: Pathways Page 2 SECTION 2: Section 9-1.1112 of the Town of Los Altos Hills Municipal Code (Subdivisions) is hereby deleted and a new Section 9-1.1112 (Pathways) is added as follows: "Section 9-1.1112 Pathways Every subdivider shall dedicate pathway easements and construct paths to Town standards when such dedications and construction requirements are a condition of approval of the tentative map, consistent with the Pathway Element of the General Plan and the Master Path Plan. Any lot in the subdivision that does not contain a path shall be assessed a pathway fee, the amount of which shall be fixed by Council resolution. Funds collected shall be deposited in the Pathway Fund." SECTION 3: Section 10-2.606 (Dedication of Pathway Easements) of the Town of Los Altos Hills Municipal Code (Site Development) is hereby amended as follows: "Section 10-2.606 Dedication of Pathway Easements Whenever a site development permit is requested for a main residence, a secondary dwelling, an addition of at least 900 square feet of "habitable" floor area, or a barn or stable of at least 900 square feet in area, on a property which is '- . . . -- - - . . • designated for an off-road pathway on the Master Path Plan or for a roadside pathway but where all or a portion of such roadside path cannot feasibly be located within the existing public or private right-of-way, the Site Development Committee or Planning Commission Authority may require the dedication of an easement for public use as part of the Town's pathway system according to the guidelines contained in the Path and Trail Pathway Element of the General Plan. Pathway easements shall be required within emergency road easements. In addition, the following guidelines apply: (a) An easement should generally be located along the boundary of a property; (b) The easement shall be located so as to connect to existing or future pathway segments at the boundaries of a property; (c) The easement shall not be located on terrain that cannot be safely or conveniently traversed by pedestrians or equestrians." Ordinance: Pathways Page 3 SECTION 4: Section 10-2.607 (Construction of Pathways) of the Town of Los Altos Hills Municipal Code (Site Development) is hereby amended as follows: "Section 10-2.607 Construction of Pathways The Site Development Committee or Planning Commission Authority' may require the construction of pathway improvements within dedicated easements of public ifights-of-way for public use as part of the Town's pathway system as shown on the Master Pathway Plan, and according to the Engineering Standards of the Town, for any site development permit for a mlain residence( a secondary dwelling, an addition of at least 900 square feet of "habitable" floor area, or of a barn or stable of at least 900 square feet." SECTION 5: Section 10-2.608 (Pathway Fee) of the Town of Los Altos Hills Municipal Code (Site Development Code) is hereby added as follows: "Section 10-2.608 Pathway Fee A site development permit for a lot on which no path is needed and on which is to be constructed a main residence, a secondary dwelling, an addition of at least 900 square feet of "habitable" floor area, or of a barn or stable of at least 900 square feet shall be assessed a pathway fee, the amount of which shall be fixed by Council resolution. Funds collected shall be deposited iri the Pathway Fund. No fee shall be assessed if the lot has peen assessed and paid a fee pursuant to Section 9-1.1112 (Subdivisions)." SECTION 6: Subsection 10-2.1314(b) of the Town of Los Altos Hills Municipal Code (Site Development Code) is hereby deleted. /path.ord 12/13/95 li