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HomeMy WebLinkAboutCC Res 2394 1975-01-24 " .. .. -. I RESOLUTION NO. d3tff A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF SEAL BEACH ADOPTING A REVISED CIRCULATION ELEMENT TO THE GENERAL PLAN AND REPEALING ALL PROVISIONS IN CONFLICT THEREWITH. The City Council of the City of Seal Beach does hereby resolve: WHEREAS, California Government Code Section 65302(b) requires that cities adopt circulation elements to their general plans; and WHEREAS, the City recently adopted a revised Land Use Element to the General Plan; and WHEREAS, the Circulation Element should be consistent with the policies of the Land Use Element; and WHEREAS, on January 15, 1975, the Planning Commission conducted a public hearing and recommended adoption of a revised Circulation Element to the General Plan. NOW, THEREFORE, BE IT RESOLVED that the City Council of the City of Seal Beach does hereby adopt the revised Circulation Element to the General Plan, attached hereto and made a part hereof, and repeals all provisions in conflict therewith. I ADOPTED AND APPROVED by the City Cou cil of the City of Seal Beach at a meeting thereof held on the t527!1. day of ( , 1975, by the following w~: / councilmenLtk~~ ~/J~~ d~) Co""il"'~ ABSENT: Councilmen AYES: NOES: t1- ~~ y ATTEST: uU I .. ~ Resolution Number . I CIRCULATION ELEMENT OF THE CITY OF SEAL BEACH . I . Prepared by: City of Seal Beach Planning Department Robert S, Neprud, Director II Resolution Number - . TABLE OF CONTENTS Section One: Introduction Purpose Statement Conceptual Framework Location Definitions I Section Two: Transportation as it applies to the Needs of the City's other General Plan Elements Features and Needs of the.City Relationship to Other Elements: Land Use Relationship to the Bicycle Route Element . Section Three: Modes of Transportation Land.Transportation Roadway Proposals Coastal District and Proposals Public Transportation Existing and Proposed Routes Air Transportation Water Transportation I. Section Four: Implementation . .. . v Resolution Number SECTION ONE: INTRODUCTION PURPOSE STATEMENT This element is intended to provide direction to the City in its efforts to attain a feasible and efficient system of transportation,- incorporating many modes of transportation in a manner that will best serve the residents of Seal Beach and still blend with a regional network, In providing this direction. this element is designed to satisfy State requirements regarding ~eneral plans 'and circulation elements. I . 1 . CONCEPTUAL FRAMEWORK A major service provided by a community is the efficient flow of people, goods and services'. Without the ability to enter, exit and move about within a space, to receiv~ and transmit any commodity, there is little value to that space. Transportation provides this vital function in the city. Not only is there a functional relationship between transportation and a city, but also a physical and social relationship, for it is a major factor in shaping the stl'ucture and activity of a city. Historically, cities have developed along major transportation routes. Seal Beach was developed as a resort community along the Pacific Electric Railroad and the Pacific Coast Highway, LOCATION Seal Beach is located in the northwest corner of Orange County, just east of the Long Beach area which is a part of the Greater Los Angeles Basin. The city is somewhat unique in that being a beach community it is affected by land and water modes of transportation. Major links are provided to the adjacent cities of Long Beach, Los Alamitos, Garden Grove, Westminster and Huntington 1 . . I . 1 . Resolution Number Beach by Pacific Coast Highway, San Diego; Garden Grove and San Gabriel Freeways. DEFINITIONS This section serves as a point of reference and explanation for a number of technically oriented concepts in the text. It is hoped that this glossary of terms will ensure the reading ease of this document. Principal Streets: This type of street provides access to units abutting the street, moves traffic, serves as an easement for utilities, and provides light and air ventilation at the block level. Also, it can serve to filter traffic to larger streets; thereby serving a collector > function. The width of this type of street varies, however, and this is based on the function it serves and its intensity of use, Examples include Central Avenue, Catalina Avenue, Monterey Road, and Candleberry Street. Secondary Roadways: With 80 feet of right-of-way, these are generally designed to serve as collector streets in that traffic is diverted from principals before the latter's capacities are exceeded and conduct it to either larger arterials or local generators such as neighborhood shopping centers. Examples are Ocean Avenue and Lampson Avenue. Primary Streets: With a 100 foot right-of-way, these serve as major traffic carriers. Access is usually limited and they serve principally as conveyors of traffic. Examples are Pacific Coast Highway and Westminster Avenue, Major Arterial Highways: With a 120 foot right-of-way, it is the heaviest travelled city street usually leading to a freeway interchange or major traffic generator. Typical of such streets are highways designed to handle great amounts of traffic (though less than freeways) with a mininlal amount of access from other streets. Seal Beach Boulevard is an example of a major arterial highway. 2 II . I . I . Resolution Number Roadbed: That amount of the right-of-way between the curbs, Orange County Master Plan of 'Arterial Highways: A plan by which all exist~ng and proposed streets other than principals are .delineated at the county level. The objective of this plan is to encourage all cities in the county to cooperate in providing a continues arterial system. Operation: (Refers to aircraft flights) An operation consists of ': a takeoff or landing by an aircraft, but does not include aircraft flying by the base and establishing radio communication with the base. 3 .. . I . . Resolution Number SECTION TWO: TRANSPORTATION AS IT APPLIES TO THE NEEDS OF THE CITY AND OTHER GENERAL PLAN ELEME~TS FEATURES AND NEEDS OF THE CITY The intent of this portion of the section is to provide a brief overview of the features and needs of the City of Seal Beach, most of which will be further examined at a later point in the text. Cities are shaped by transportation systems to the degree that their needs must be serviced, Seal Beach places somewhat unique demands on its system and 'for this reason it varies a little from other communities. The city consists of a number of relatively distinct geographic units that are separated by freeways, a highway, or undeveloped areas. These units are listed below: College Park West College Park East and Rossmoor Center I Leisure World Marina Hill Coastal District Naval Weapons Station Surfside Colony Of major importance on the transportation system of the city is the Naval Weapons Station which consists of about 5000 acres, This station is anticipated to remain in operation for at least the life of this element (1985). If this I area were to change in status, major reconsideration of the Circulation Element would be necessary. Most of the listed areas are connected in a north-south direction by Seal Beach Boulevard, a major arterial. Other areas are connected in an east-west direction by Pacific Coast Highway, Westminster Avenue, and the San Diego Freeway. 4 . . I . I . Resolution Number The City may generally be defined as a "bedroom" or residential community with considerable out-migration during morning hours and in-migration during evening hours. Most residents commute to employment centers in the Los Angeles and Orange County areas. There is relatively little industrial and commercial demand on the street system. Overall the city is experiencing relatively few problems in terms of traffic congestion. The system has provided adequate service over the years and while there are certain impacted areas at times, their cumulative effects are reduced. As indicated in the Land Use Element of the General Plan a stable population is expected during the life of the plan (1985), implying that those systems that are providing adequate services at the present will continue to do so. The plan suggests a modest 9%' population increase, about half of whom will be absorbed in the Coastal District. Another feature unique to the City is its large population of retired residents (about one-third of the city's population), Buses service the Leisure World area, in addition to the other areas of the city, thus providing transportation between these areas and commercial and social centers throughout the city and surrounding communities. The final feature of the city's rather unique transportation need is the summertime influx of non-residents, Obviously, being a beach community, there is a heavy demand placed on the transportation system during these months. RELATIONSHIP TO OTHER ELEMENTS: LAND USE The circulation system of a community is intimately related to other aspects of it. This relationship is reflected in the effects of circulation on the other elements of the General Plan; specifically, the Land Use and Bicycle Route Elements. The most important relationship is with the Land Use Element since 5 II Resolution Number , . it is here that the intensities of dernand on the transportation system may be understood. Because of the modest nature of proposed development prescribed in the adopted Land Use Element little impact on the circulation system is anticipated. Regarding industrial development. sixty acres are planned. Accessibility to the sites is high and based on existing traffic flows there will be a capability to meet the future circulation demand. Thirty-six acres of commercially zoned property in the city are yet to be developed. These sites are located throughout the city and the greatest concentration is in the area north of the San Diego Freeway on either side of Seal Beach Boulevard (near the Rossmoor Center), This arterial is presently below capacity and the anticipated development, if it occurs, could be adequately I absorbed in the circulation system. . The proposed residential development, totaling 120 acres, with an increased I population of about 2700 persons, is scattered throughout the city. However, the largest concentration is expected to occur in the Coastal District. There is a possibility that residentially zoned land behind Marina Hill might be developed, and if this occurs, the circulation system in the area will have to reflect the intensity of development. RELATIONSHIP WITH THE BICYCLE ROUTE I The city has an adopted Bicycle Route Element that enlists the use of lanes on streets and paths to provide an alternative means of travel to the automobile. Referral to Figure II of that Element provides the designated routes. Any new development of the circulation system will be designed with the needs of bicycle operators in mind. . 6 .. Resolution Number SECTION THREE: MODES OF TRANSPORTATION ... LAND TRANSPORTATION This medlum consists of all activities that occur on streets. and highways I ... I or that are related to them. In this area roadways are the principal means of circulation, Activities taking place on streets that are of concern to the city are automobile usage, public transportation and parking. Circulation in the Coastal District is of specific concern. Roadway proposals In referring to the Circulation Element Map attached to the back of this document it may be noted that the streets considered to be significant have been classified. These streets have been considered significant as based on the criteria of v91ume of traffic and right-of-way, The present circulation element, adopted in 1967 required certain changes. Listed below are those I proposed changes, as shown on the map. It should be noted that in some cases , minor deviation from right-of-way standard has been deemed appropriate by the city, but this is not anticipated to present any problems. 1. Reclassification of First Street from Pacific Coast Highway to Marina Drive from a major street (120' right-of-way) to primary (100' right-of-way). Also, reclassification of this street from Marina Drive to Ocean Avenue from a major to a secondary street (82' right-of-way). Due to density reductions in the area as prescribed in the city's.Land Use Element, the additional right-of-way will not be necessary. However, it will be necessary to increase the right-of-way south of Marina Drive from the existing 60 feet to meet the anticipated need. 2. Development of Marina Drive (to con~ence shortly) as a secondary street in compliance with the city's Circulation Element and the Orange ... County Master Plan of Arterial Highways. 7 II Resolution, Number 3., Reclassification of Golden Rain Road and St, Andrews Drive (Leisure World) from principal to secondary streets, based on traffic volumes. Even ~ though these are private streets it would be in the city's fiest interest to reclassify these streets. 4. Link Seal Beach Boulevard and Pacific Coast Highway to the west with a primary street. This would entail a First Street extension from Pacific Coast I Highway. Ft'om this point the road would parallel the San Gabriel River, then curve east behind Marina Hill and Gum Grove Park, and tie in with Seal Beach Boulevard. Based on this extension, Avalon Drive, is proposed to'link up with First Street behind Marina Hill. The right-of-way for this principal street will be 54', to be consistent with existing right-of-way. Also, a secondary street (80' right-of-way) would be developed from the First Street extension to West- minster Avenue.. Suggested alignment for this street is located between the exist~~ . . ~ ing North American Rockwell facility and the proposed industrial park area to the I west. These developments are proposed for the following reasons: A. The city ~ould achieve a loop system for the Coastal District thus diverting some of the residential and beach-oriented traffic that : presently travels Seal Beach Boulevard, Bolsa Avenue and Main Street. B. Additional access would be provided to Gum Grove Park. C. A northerly access point would be provided to the Marina Hill District, thus easing traffic burden on Bolsa Avenue. D. Accessability from Westminster Avenue to First Street 1 extension could be ensured. E. By illustrating the proposed street on the circulation map, ~he City would have a general committment of making provisions for future residential growth in the area. Coastal District and Proposals ~ The Coastal District of the city is the most heavily impacted area of the City during the summer months, The diagonal parking on Main Street and the 8 II Resolution Number 4It shortage of parking spaces aggravates congestion. The Main Street poses a number of problems for as it exists the flow of traffic during the summer months is subject to delay due not only to the diagonal parking, but also the traffic control problem at the intersection of Main Street and Electric Avenue. Alternatives are being studied, and one mitigating measure would be the redesigning of the intersection, as illustrated in the Specific Plan for the Pacific Electric right-of-way. The circulation problems of the Coastal District stem from a characteristic that is typical of most older communities in Southern California. Developed I 4It 'at about the turn of the century, streets in the area were not designed for the volumes of automobiles that are present during the peak days and hours of the summer months. Congestion is of particular concern in the area from 13th Street through 17th Street, bounded by Electric Avenue and Pacific Coast Highway. Roadbeds are 24 foot wide and parking is permitted on both sides of the streets whi~h makes vehicular access difficult. One means of eliminating this condition , would be the removal of one of the two parking lanes on each street, thus widening the travel lane by eight feet. However, loss of on-street parking sites would have to be carefully evaluated, since the parking supply in the area year-round is acute, Public Transportation Southern California has been committed basically to a single mode of vehicular transportation for everyday affairs. Oespite this, however, it has generally been accepted that the public good is benefited more by not having such a dependence on this single mode, and that is. essentially why emphasis is . presently being placed on the development of non-autom?bile related means of ~ transportation by regional bodies. I 9 .. . I . I . Resolution Number While the circulation network provides the necessary infrastructure for vehicular travel, which to most means the private auto, there are additional facets of transportation. Ideally, various systems should operate as an integrated whole to form a unified transportation system. At present, however, there is a need for better balance between the various modes; for less reliance on the automobile and a greater choice between viable alternatives. The present road system developed for automobiles and trucks can serve a vast bus oriented public transportation system. In addition, there is a need to develop and encourage carpooling systems. Balances must be achieved if we are to deal successfully with the problems of energy, air quality and congestion. Existing and Proposed Bus Routes Bus service is provided in Seal Beach by the Orange County Transit District (OCTD), the Long Beach Public Transit (LBPT), and the Southern California Rapid Transit (RTD). Service is designed to take advantage of the beach orientation of the community as well as meet t~e needs of those who are unable to or do not desire to use automobiles, OCTD provides a regular service with two routes traversing the City, Route 50 originates in the Coastal District, stops at Leisure World and other points along Seal Beach Boulevard, passes Rossmoor Center, turns onto Katella Avenue through Anahim, and terminates in the Mall of Orange. Route 60 extends from Old .Town to Leisure World via Seal Beach Boulevard, the~ turns on Westminster Avenue and terminates at the Santa Ana Civic Center. There is a substantial increase in users during the summer months (beach-oriented); however, year-round user levels are such that they presently do not dictate any increased service. The city has a contract with the LBPT to provide a free shuttle service to the residents of the community. One of the few such agreements in the State, 10 . Resolution Number the shuttle services the Leisure World area and adjoining commercial center, ~ Rossmoor Center and nearby residential areas, and the Coastal District. The system, which has met with much civic approval, operates on a five-day schedule and should continue at the present level of service. I ~ I The LBPT also has a regularly scheduled route (5) linking various parts of the city with each other and the Long Beach area. This route which operates on the half-hour, runs from Bolsa Avenue and Pacific Coast Highway to Seal Beach Boulevard, then through the Coastal District along Electric Avenue and connects with downtown long Beach via Marina Drive, and terminates in Compton. RTD Route 55 proceeds along Pacific Coast Highway from Newport Beach to downtown Long Beach. RTD Route 59 originates in Long Beach then services Leisure World and other points along Seal Beach Boulevard before going east along Westminster Avenue into the Santa Ana Civic Center and finally terminating in the City of Riverside, AIR TRANSPORTATION i I Seal Beach is relatively close to a number of commercial, private and military , I airports. Commercial airports include Los Angeles International, Long Beach and Orange County. Located in Huntington Beach is Meadowlark, a private air field. Located just outside the north-east boundary of the city is the Los Alamitos Naval Air Station (Air National Guard Unit). Principally, a helicopter port, it experienced about 45,000 operations during the August, 1973-August, 1974 period, and probably will remain at this level for the immediate future. The base operates on an SO hour work-week, with night flying scheduled until 10:00 p.m. on two days of the week. WATER TRANSPORTATION The city is in an advantageous location with respect to water travel that takes place within the City boundaries and directly outside them. While the ~ impact of these commercial, military and recreatiollal facilities on the trans- portation of the city is minimal, they do serve as points of activity that merit mo."....:.... ...-'.....IUII. 11 .. . I , Resolution Number The long Beach-Los Angeles Harbor complex already mentioned, lies west of the city and while its direct impact on the city is minimal, its indirect influences could be significant, for it serves as a place of employment for many thousands of people, As mentioned previously, the U. S, Naval Weapons Station operated out of . Anaheim Bay, in the southwestern portion of the City, Serving as a major processor of munitions related cargo bound for the various parts of the Pacific, the military operations here currently average between one and two ships entering per day on a yearly basis. Activity at the base is expected through the life of this plan (1985) as it is directly related with Naval operations throughout the Pacific. With regard to recreational craft Seal Beach is centrally located, with public launching and mooring facilities on either side of the city, Located outside the southeastern boundary of the city are the Sunset Aquatic Park and . Huntington Harbour, the latter a private facility. The Sunset facility has moorings for 220 craft and handles an estimated 25,000 visitors per year. Huntington Harbour maintains slips for 2,500 boats. Water access to both facilities is through Anaheim Bay. Immediately outside the city's western boundary is the Alamitos Bay and Long Beach Marina facilities. Public and private moorings, plus dry storage, provide space for about 3,200 boats. Access to this area is pro~ided by the Alamitos Bay Channel, directly adjacent to the San Gabriel I . River. 12 . ~ . I , Resolution Number .' SECTION FOUR: . IMPLEMENTATION Despite the unique features of Seal Beach and the requirements it places on the circulation system, the existing system is generally adequate and should meet the future demands of the city. There are specific areas of concern, however, and these have been discussed in the text. To alleviate or at least reduce these conditions, certain techniques will be necessary to implement. In considering implementation it must be remembered that there are other review authorities which have jurisdiction in the area. The city should attempt to work with these groups in an attempt to reach mutually beneficial goals. Following is a discussion of measures that may be consjdered for the implementation of this element. Zoning Ordinances . The zoning ordinance of the city is presently being revised and simplified to be consistent with the elements of the General Plan. As an instrument of . I the :General Plan it is this device through which the intentions of the City are referred to in daily affairs. Specifically, with regard to the Circulation Element, of importance is the Highway Dedication and Improvement Ordinance which provides that occupancy of a building will not occur until dedication and improvement of streets abutting the building site has taken place and is consistent with what has been specified in the city's Circulation Element. . 1 Of equal importance is the Subdivision Ordinance which requires developers to dedicate and improve streets within their project limits and tie these streets to existing streets. Intergovernmental Assistance Transportation has been recognized as a problem of regional dimensions and to attempt to cope with it on an individual or local basis is futile in some 13 . ." ; . . Resolution Number , .. 4It respects. Bus, bicycle and other transportation systems will require close cooperation between Seal Beach, other cities and regional bodies in the same I . I . .. manner as the street and highway systems have been developed in the past to insure that completed systems would function effectively. Specifically, it is recommended that the c'ity work in close cooperation with the Southern California Association of Governments (SCAG) which has done much tlork in the area of transportation planning, and the OCTD. Areas of special concern where assistance may be useful are the development of a shuttle system between outlying parking areas and the beach area, and expansion of the existing bus system. Capital Improvements Program An important instrument of implementing the Circulation Element is a program of capital improvements; that is, based on a perceived priority of areas of concern these may be specifically planned for in the future. What ought to be established then is a system through which these concerns may be practically apprpached. Priorities for the construction of improvements to the circulation I systems need to be establ\shed. Areas of concern that ought to be considered follow (in no priority): First Street extension from Pacific Coast Highway to Seal Beach Boulevard Seal Beach Boulevard--San Diego Freeway interchange improvement Continued bicycle route development Specific study of the Main Street/Commercial area. First Street extension from Pacific Coast Highway to Westminster Blvd. Publ ic Transportation . The complementary bus service available to the residents of the city is of vital concern in the transportation system of the city. It not only provides a wider latitude of travel than in most cities, but it also stimulates local businesses, due to the convenience of routing. This service is utilized throughout the year and should continue in the future. ,. ...