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Res No 1631
PLANNING COMMISSION RESOLUTION NO. 1631 A RESOLUTION OF THE PLANNING COMMISSION OF THE CITY OF PALM DESERT, CALIFORNIA, RECOMMENDING TO CITY COUNCIL APPROVAL OF A NEGATIVE DECLARATION OF ENVIRONMENTAL IMPACT AND AMENDMENTS TO THE GENERAL PLAN LAND USE AND CIRCULATION ELEMENTS AS DELINEATED ON EXHIBITS 'B' AND 'C' ATTACHED. CASE NO. GPA 93-3 WHEREAS, the Planning Commission of the City of Palm Desert, California, did on the 18th day of May, 1993, hold a duly noticed public hearing and continued public hearings to consider recommendation of approval of a Negative Declaration of Environmental Impact and amendments to the General Plan Land Use and Circulation Elements; and WHEREAS, said application has complied with the requirements of the "City of Palm Desert Procedure for Implementation of the California Environmental Quality Act, Resolution No. 80-89," in that the director of community development has determined that the project will not have a significant impact on the environment and a Negative Declaration of Environmental Impact has been prepared; and WHEREAS, at said public hearing, upon hearing and considering all testimony and arguments, if any, of all interested persons desiring to be heard, said planning commission did find the following facts and reasons to exist to justify its actions: 1. The city has annexed several areas in the recent past and this general plan update is necessary in order to unify those new areas with existing city land use policies and to properly coordinate the circulation element. NOW, THEREFORE, BE IT RESOLVED by the Planning Commission of the City of Palm Desert, California, as follows: 1. That the above recitations are true and correct and constitute the findings of the commission in this case. 2. That the Negative Declaration of Environmental Impact Exhibit 'A', GPA 93-3 Exhibit 'B' (Land Use), and GPA 93-3 Exhibit 'C' (Circulation) on file in the department of community development are hereby recommended to the city council for approval. PASSED, APPROVED and ADOPTED at a regular meeting of the Palm Desert Planning Commission, held on this 16th day of November, 1993, by the following vote, to wit: AYES: BEATY, COX, JONATHAN, WHITLOCK, SPIEGEL NOES: NONE ABSENT: NONE ABSTAIN: NONE ATTEST: RAMON A. DIAZ, Sectary 6474 2---;414 BERT A. SPIE R G man PLANNING COMMISSION RESOLUTION NO. 1631 EXHIBIT A Pursuant to Title 14, Division 6, Article 7, Section 15083, of the California Administrative Code. NEGATIVE DECLARATION CASE NO: GPA 93-3 APPLICANT/PROJECT SPONSOR: City of Palm Desert PROJECT DESCRIPTION/LOCATION: General Plan Land Use and Circulation Element Update The Director of the Department of Community Development, City of Palm Desert, California, has found that the described project will not have a significant effect on the environment. A copy of the Initial Study has been attached to document the reasons in support of this finding. Mitigation measures, if any, included in the project to avoid potentially significant effects, may also be found attached. November 16, 1993 RAMON A. DIAZ DATE DIRECTOR OF COMMUNITY DEVELOPMENT 2 CITY OF PALM DESERT LAND USE ELEMENT Prepared By: Jeff Winklepleck May 13, 1993 73-510 Fred Waring Drive Palm Desert, California 92260 TABLE OF CONTENTS I. INTRODUCTION A. Requirements B. Relationship to Other Elements C. Overview Page No. 1 2 5 II. LAND USE CLASSIFICATIONS 6 A. Residential Density 6 B. Land Use Categories 7 III. EXISTING LAND USES 11 A. Incorporated Area 11 B. Unincorporated Area 13 IV. STATISTICAL SUMMARY - LAND USE ELEMENT 13 A. Residential 13 B. Commercial 14 V. LAND USE AREAS 15 A. Area 1: Hillside Area 15 B. Area 2: South Palm Desert 16 C. Area 3: Commercial Core Area 17 1. Subarea 1: North Highway 111/Alessandro 18 2. Subarea 2: South Highway 111-Desert Sun Building to El Paseo 21 3. Subarea 3: South Highway 111/E1 Paseo to Monterey Avenue 22 4. Subarea 4: Gateways 24 (Table of Contents Continued) D. Area 4: Palma Village 25 E. Area 5: North Sphere 28 1. Incorporated Area 29 2. Unincorporated Area 30 F. Area 6: Cook/Hovley Industrial Area 32 G. Area 7: Unincorporated Area South of the City Limits 34 ii LIST OF TABLES AND EXHIBITS Page No. Table No. Title I Incorporated Area Land Use 12 II Designation/Acres 13 III Designation/Acres/Dwelling Units/Intensity 14 IV Land Use Designation/Acres/Square Footage 14 Exhibit No. Title 1 Land Use Map 35 iii CITY OF PALM DESERT LAND USE ELEMENT I. INTRODUCTION A. REQUIREMENTS The State of California Planning and Zoning Law requires that a land use element be prepared as part of a general plan as follows: Government Code Section 65302(a): A land use element which designates the proposed general distributions and general location and extent of the uses of the land for housing, business, industry, open space including agriculture, natural resources, recreation, and enjoyment of scenic beauty, education, public buildings and grounds, solid and liquid waste disposal facilities and other categories of public and private uses of land. The land use element shall include a statement of the standards of population density and building intensity recommended for the various districts and other territory covered by the plan. The land use element shall also identify areas covered by the plan which are subject to flooding and shall be reviewed annually with respect to such areas. CITY OF PALM DESERT LAND USE ELEMENT MAY 13, 1993 The land use element has the broadest scope of the state required elements as it represents a composite of the policies and issues contained in the other elements. The land use element of the Palm Desert General Plan is a major factor in determining the physical form of Palm Desert. It identifies and establishes the City's policies regarding future development patterns, density, intensity and land use relationships. The land use element seeks to provide sufficient land for all the needs of the community while preserving the quality of the environment. This document is an update to the land use element included in the 1980 General Plan. The purpose of this update is to include the those areas which have been annexed to the City and those areas which have had a change in land use designation as a result of a general plan amendment. B. RELATIONSHIP TO OTHER ELEMENTS The land use element of the General Plan represents a composite of the other elements in physical form. In differing degrees, all of the elements of the General Plan will contain policies or proposals which relate to the land 2 CITY. OF PALM DESERT LAND USE ELEMENT MAY 13, 1993 use element. The following discusses the relationship of other elements to the land use element. Seismic Safety: This element defines areas suitable or not suitable for urbanization or development of a particular type. Public Safety: This element identifies areas for public safety land uses such as potential sites for additional fire stations or sheriff facilities. Circulation: Probably the element most closely associated with the Land Use Element, it designates the major roads proposed to serve the expected land uses. The nature, routing, and design of circulation facilities are major factors in the determination of land use ( and vice versa). Open Space/Conservation: Together they define lands to be preserved in a natural state and other lands for urban purposes. Also, they define criteria, standards, and programs needed to control the impact of ,physical development activities on the natural environment. 3 CITY OF PALM DESERT LAND USE ELEMENT MAY 13, 1993 Housing: The Land Use Element indicates the location, density, and intensity of residential uses throughout the planning area. Public Facilities: The Land Use Element indicates the possible location of public facilities and serves as a guide to public investment in such facilities. Noise: Considers the location of noise generation activities such as streets, highways and certain industries in relation to the location where people live and work. Urban Design/Scenic Highway: The land use pattern is a major factor in determining the physical form of Palm Desert and, therefore, establishes parameters for the design aspect of the community. Population/Economics: The land use pattern and intensity of designated uses are major determinants of the ultimate population.It also indicates the amount of commercial land use that will be needed to serve the needs of residents. 4 CITY OF PALM DESERT LAND USE ELEMENT MAY 13, 1993 C. OVERVIEW The City of Palm Desert is a resort community with 24,800 permanent residents and approximately 18,000 seasonal residents. The city is 22.2 square miles in size and is approximately 55% developed. Palm Desert continues to be a resort destination due to its consistently temperate winter weather, country club atmosphere, and extraordinary mountain views. The city has also become a more family oriented community for the above reasons as well as its relatively affordable housing in comparison to housing costs in Orange and Los Angeles Counties. Due to its central location, the City has become the Coachella Valley's most desirable retail and restaurant location. The City can be divided into seven general areas: Hillside, South Palm Desert, the commercial core, Palma Village, Cook/Hovley industrial area, the area north of the Whitewater Storm Channel including the north sphere area (North Palm Desert), and the unincorporated areas within the City's sphere of influence. The majority of future development will occur in the vacant area in north Palm Desert between Country Club Drive and 5 CITY OF PALM DESERT LAND USE ELEMENT MAY 13, 1993 Interstate 10 with the remaining development occurring primarily as infill projects in the other areas. The Hillside area will be the slowest to develop due to natural constraints as well as the stringent development regulations involved which are designed to preserve important visual and natural resources. II. LAND USE CLASSIFICATIONS A. RESIDENTIAL DENSITY For each of the residential land use classifications below, the density ranges are not meant as strictly minimums or maximums. The lower figure for each category represents a "guaranteed" density and the higher figure represents a "potential" density that could be located in each area after certain standards and criteria are met. Residential Designation Density Range High Density Medium Density Low Density Very Low Density 6 7-18 du/ac 5-7� du/ac 3-5 du/ac 1-3 du/ac CITY OF PALM DESERT LAND USE ELEMENT MAY 13, 1993 B. LAND USE CATEGORIES High Density Residential (7-18 du/ac) The high density designation is characterized by a wide range of residential development including attached and detached single-family units and multi -family attached units. High density neighborhoods are located immediately adjacent to the commercial core area, College of the Desert and major streets. Medium Density Residential (5-7 du/ac) This designation is intended for residential development characterized by single-family detached home on small to medium lots in standard subdivision form and/or single-family attached units with common open space. Low Density Residential (3-5 du/ac) The low density designation is intended for residential development characterized by single-family detached homes on medium to large lots in standard subdivision form and/or single-family attached units with common open space. Very Low Density Residential (1-3 du/ac) This designation is intended for residential development characterized by single-family homes on large lots which are sensitive to natural terrain. 7 CITY OF PALM DESERT LAND USE ELEMENT MAY 13, 1993 Service Industrial (No maximum site coverage) The service industrial designation is intended to allow for a mixture of industrial uses oriented toward storage, distribution, assembly and service of goods for Palm Desert and the surrounding communities. Core Commercial (No maximum site coverage) The core commercial designation is intended to provide for a core shopping area with specialty and general commercial facilities for residents of the City. General commercial designations are located along Highway 111 and El Paseo. District Commercial (50% maximum site coverage) This designation provides for mid -size commercial developments (5-15 acres) outside the commercial core area and is intended to provide convenient shopping opportunities for the surrounding residential areas. District commercial designations are located at the southeast corner of Country Club Drive and Monterey Avenue, the northwest corner of Country Club Drive and Cook Street, the northeast corner of Country Club Drive and Washington Street and at the future Cook Street/Interstate 10 interchange. 8 CITY OF PALM DESERT LAND USE ELEMENT MAY 13, 1993 Regional Commercial (40% maximum site coverage) The designation provides for large commercial developments (minimum site size 35 acres) which offer a wide range of goods and services to the residents of Palm Desert and the Coachella Valley as a whole. Regional commercial designations are located along Highway 111 (Palm Desert Town Center) and the Monterey Avenue/Interstate 10 freeway interchange. Resort Commercial (40% maximum site coverage) The resort commercial designation is intended to provide for developments ranging from 4-10 acres which include low-rise bungalow scale hotels, entertainment, and restaurant facilities with related commercial uses. Specialty commercial designations are located at the Highway 111 gateways and along the west side of Highway 74 south of El Paseo. Planned Community Development The planned community development designation is intended to provide for master planned community areas. The master plan will show proposed uses of all land including residential, school sites, public and private recreational facilities, all common open space, commercial and professional centers, and industrial facilities. 9 CITY OF PALM DESERT LAND USE ELEMENT MAY 13, 1993 Open Space/Parks The open space/parks designations are intended to provide for areas reserved for parks, public or private recreation, open space, governmental public uses, or areas where a hazard to the public may exist. The open space/parks network is more fully discussed in the Parks and Recreation Element. Office Professional (50% maximum site coverage) The office professional designation is to intended to allow for a mixture of administrative or professional offices which, by their nature, are of relative low intensity and, therefore, are compatible with adjacent residential zoning. Hillside Planned Residential (based on site) The hillside planned designation is intended to allow limited development in the hillside area due to site constraints and important visual and natural resources. In no case does the density exceed two dwelling units per acre. Affordable High Density (15-25 du/ac) This designation is intended to provide affordable housing primarily in the form of apartments. Affordable high density neighborhoods are located adjacent to major streets to provide easy access to public transportation. 10 CITY OF PALM DESERT LAND USE ELEMENT MAY 13, 1993 Senior Overlay Zone The senior overlay zone is intended to provide optional standards and incentives for the development of specialized housing designed for and restricted to residents over the age of 55. Density in the senior overlay zone is determined by intensity (people per acre), age, and project area. Residential Study Zone The residential study zone designates areas that will be residential in nature, however, the specific density for the area has yet to be determined. III. EXISTING LAND USES A. INCORPORATED AREA The 22.2 square miles of Palm Desert contains an assortment of land uses that have developed in response to socially determined decisions, economic growth, and technological change. The land use patterns that exist in the city are not random. They have been generated with the best use of land in mind, which means the most suitable use for the community as a whole. The existing land use pattern will be of great 11 CITY OF PALM DESERT LAND USE ELEMENT MAY 13, 1993 importance in the formation of city policies for future land uses. Table I identifies the city's current land use inventory. A comprehensive survey was completed in April 1993 which includes the recently annexed Price Club area. TABLE I* INCORPORATED AREA LAND USE PERCENT DESIGNATION ACRES VACANT (%) OF TOTAL High Density 225 103.5 4.6 Medium Density 2418 628.7 17.0 Low Density 6712 2953.3 47.2 Very Low Density 0 0 0 Service Industrial 365 132.9 2.7 Core Commercial 106.5 13.3 0.8 District Commercial 105 94.5 0.7 Regional Commercial 239 74.1 1.7 Resort Commercial 432.5 69.2 3.0 Planned Com. Development 460 460 3.2 Commercial/Industrial 765 757.4 5.4 Park 147 98.5 1.0 Office Professional 45.5 24.6 0.3 Hillside Planned Residential 502.5 465.8 3.5 Open Space 735 735 5.2 Affordable High Density 90 40 0.6 Public Utilities 120 36 0.8 Public Facilities 315.5 246.1 2.2 Elementary School 10.4 0 0.1 Middle School 16.2 0 0.1 High School 26.3 0 0.2 Senior Overlay 10 0 0.1 Scenic Conservation 20 0 0.1 Residential Study 110 110 0.8 Low Density/Service Industrial 240 240 1.7 Total 14,216.4 7,282.9 100% *Roadway areas are included in the adjacent land use calculations 12 CITY OF PALM DESERT LAND USE ELEMENT MAY 13, 1993 B. UNINCORPORATED AREA Table II identifies the land use area for land within Palm Desert's sphere of influence. TABLE II DESIGNATION High Density Medium Density Low Density Very Low Density Residential Study Open Space Neighborhood Commercial Commercial/Industrial Bureau of Land Management/University of California -Riverside Cooperative Research Programs IV. STATISTICAL SUMMARY - LAND USE ELEMENT A. RESIDENTIAL 15 25 1997 635 133 360 20 60 13120+ The following table summarizes the incorporated vacant acreage and approximate number of dwelling units for each of the residential land use classifications designated on the General Plan Map. Dwelling unit estimates are based on the maximum allowable density while the actual number of units will vary according to site constraints and design. In some cases, a density bonus may be approved subject to specific conditions being met (i.e. senior overlay or low income projects). Also included in the table is a measure of 13 CITY OF PALM DESERT LAND USE ELEMENT MAY 13, 1993 residential intensity which shows the approximate people per acre. DESIGNATION High Density Medium Density Low Density Planned Com. Development Hillside Planned Residential Affordable High Density Residential Study Low Density/Service Industrial DWELLING UNITS PER ACRE B. COMMERCIAL 7-18 5- 7 3- 5 2 1- 5 15 5 3- 5 TABLE III ACREAGE 225 2418 6712 460 502.5 90 110 240 DWELLING UNITS 4050 16926 33560 920 2512.5 1350 550 1200 INTENSITY PER ACRE 39.2 15.3 10.9 4.4 10.9 32.7 10.9 10.9 Table IV summarized the appropriate future commercial square footage for the city at buildout*. An average coverage of 35% is used as opposed to the maximum allowable LAND USE DESIGNATION Service Industrial Core Commercial District Commercial Regional Commercial Resort Commercial Commercial/Industrial Office Professional Total TABLE IV ACRES** 113 11.3 80.3 63 58.8 643.8 20.9 coverage. SQUARE FOOTAGE 1,724,976 172,240 1,224,036 958,320 897,336 9,814,068 317,988 15,108,964 * Approximate buildout will occur in the year 2030 **A 15% reduction in acreage is used to account for roadways 14 CITY OF PALM DESERT LAND USE ELEMENT MAY 13, 1993 V. LAND USE AREAS A. AREA 1: HILLSIDE AREA The majority of the hillside area is located south of El Paseo and west of the Palm Valley Storm Channel to the City boundary. The remainder of the hillside area is located at the southeast corner of the City. This area has been the slowest to be developed due to the site constraints and the City's strict hillside development regulations. However, as the remaining vacant land in south Palm Desert is built out, pressure to develop the hillsides will increase. POLICY 1: In order to maintain the natural contours of the hillsides, developments shall be designed so as to require minimal grading and avoid a padding or staircase effect as a result of extensive cut and fill slopes. POLICY 2: Developments shall retain natural vegetation and be required to install additional landscaping in order to stabilize slopes and maintain the necessary cuts and fills.. 15 CITY OF PALM DESERT LAND USE ELEMENT MAY 13, 1993 POLICY 3: IMPLEMENTATION: Developments shall be required to retain natural landmarks and features including vistas and the natural skyline as integral elements. The City shall continue to maintain existing land use policies. B. AREA 2: SOUTH PALM DESERT South Palm Desert is generally referred to as the area extending south from Shadow Mountain Drive to the City limits and the non -hillside area between the east and west City limits. Development in this area is primarily low density residential which includes detached single-family homes and condominiums in conjunction with a golf course or other open space. Those developments which are not low density include two mobile home parks, a large apartment complex on the west side of Highway 74, a number of smaller apartment complexes/motels on the east side of Highway 74 and along Shadow Mountain Drive 16 tea grail CITY OF PALM DESERT LAND USE ELEMENT MAY 13, 1993 and a multi -family area in the Deep Canyon Road/ Abronia Trail area. POLICY: Infill development shall be compatible with the character of the surrounding neighborhood. IMPLEMENTATION: The City shall continue to maintain existing land use policies. C. AREA 3: COMMERCIAL CORE AREA The commercial core area is bound by the north side of Alessandro Drive, the south side of El Paseo, the eastern gateway at Deep Canyon and Highway 111 east to the city limits and the western gateway at Monterey and Highway 111 west to the city limits. To formulate specific policies, the area was divided into four subareas as follows: 1. North Highway 111/ Alessandro 2. South Highway 111/ Desert Sun Building to El Paseo 3. South Highway 111/ El Paseo east to Monterey 4. Gateways- Monterey west and Deep Canyon east 17 CITY OF PALM DESERT LAND USE ELEMENT MAY 13, 1993 1. SUBAREA 1: North Highway 111/ Alessandro This area contains a diverse mixture of new and old buildings and vacant lots. Highway 111 lots vary in depth from 125 ft. to 140 ft.. These lots back onto Alessandro Drive which extends from Deep Canyon to San Pablo. West of San Pablo, only a narrow alley separates the commercial area from a sparsely developed older single-family subdivision. ISSUE 1: To meet parking requirements, projects in this area are usually limited to building on the front 50 feet of their property due to the inadequate lot depth in the area. This leaves little room for expansion. Ambitious projects are either required to devote several Highway 111 frontage lots to parking or develop parking on the north side of Alessandro Drive. POLICY 1: This area shall be redeveloped to improve access and safety, and increase parking with an adequate buffer zone between commercial and residential zones. 18 CITY OF PALM DESERT LAND USE ELEMENT MAY 13, 1993 ISSUE 2: In various blocks there are sections dominated by older buildings which, due to their original design or lack of maintenance, no longer conform to present standards. Existing policies provide little incentive for owners to improve these properties. The inability to comply with current parking requirements actually acts as a disincentive for new investment. This creates a cycle of decline which causes the properties to deteriorate further as well as depreciating adjacent buildings. POLICY 2: Incentives shall be created to encourage the remodelling or replacement of obsolete older buildings and uses. ISSUE 3: Residential areas adjacent to the commercial core area will be increasingly subject to negative impacts as the intensity of commercial activity increases. This situation is aggravated by the present lack of a distinct boundary between the two uses. 19 CITY OF PALM DESERT LAND USE ELEMENT MAY 13, 1993 POLICY 3 A: Insensitivity to these negative impacts of traffic, noise, invasion of privacy and sight line view obstructions will cause the deteriorating situation on Alessandro to spread further back into the single-family zone. Ideally, the transition from commercial to residential should be designed so both uses can co -exist and prosper. The Palma Village Plan recommendation to expand the commercial zone north of the alley between Monterey Avenue and Las Palmas one lot for the purpose of creation of an off- street parking and landscaped buffer shall be implemented. POLICY 3 B: Between San Carlos Avenue and Cabrillo Avenue, the commercial zone shall be expanded to include lots on the north side of Alessandro to an average depth of 120 feet. These lots shall be used primarily for parking and a landscaped greenbelt adjacent to the single-family zone. East of Cabrillo 20 CITY OF PALM DESERT LAND USE ELEMENT MAY 13, 1993 IMPLEMENTATION: Avenue, high density garden apartments shall be encouraged. A. Rezone the north side of Alessandro to Office Professional. B. Develop an owner participation program linking private improvements to public improvements. 2. SUBAREA 2: South Highway 111- Desert Sun Building to El POLICY: Paseo The issues confronting this area are not as complex or substantial as in other sections of the commercial core area. Most of the area has been built out with acceptable site planning and parking. A majority of the buildings have been constructed since incorporation and meet current standards. Infill projects shall be consistent with and complimentary to existing quality projects in the area. 21 CITY OF PALM DESERT LAND USE ELEMENT MAY 13, 1993 IMPLEMENTATION: Existing land use policies shall be maintained. 3. SUBAREA 3: South Highway 111/E1 Paseo to Monterey Avenue The Highway 111/E1 Paseo area is the City's most intensively developed specialty retail/general commercial district. For many visitors, the impression created by the Highway 111 frontage will define their image of Palm Desert. It is therefore important to upgrade the buildings and landscaping in this area to be equal to the new development occurring at the City's gateways and El Paseo. El Paseo remains unique throughout the Coachella Valley as an outdoor urban specialty retail/restaurant boulevard designed on a scale appropriate for the pedestrian. This area's ability to successfully compete with the new developments west of Monterey Avenue will be dependent on continued enhancement of the El Paseo's uniqueness. The President's Plaza area which is bound by Highway 111, El Paseo, Portola Avenue, and Larkspur Lane was 22 CITY OF PALM DESERT LAND USE ELEMENT MAY 13, 1993 ISSUE 1: developed to provide mutual access rear parking which, in turn, would provide easy pedestrian access to Highway 111 businesses and El Paseo businesses. The rear elevations which face the parking lot at the President's Plaza need to be upgraded in order to provide an inviting plaza atmosphere as originally envisioned. POLICY 1: All planning and redevelopment programs shall emphasize the El Paseo and President's Plaza as a pedestrian oriented specialty retail district. IMPLEMENTATION: Current land use policies shall be maintained POLICY 2: Pedestrian oriented businesses shall be encouraged to locate in street fronting first floor spaces. IMPLEMENTATION: Current land use policies shall be maintained. 23 CITY OF PALM DESERT LAND USE ELEMENT MAY 13, 1993 POLICY 3: Incentives should be created for the inclusion of public plazas of various sizes within private commercial developments. IMPLEMENTATION: The zoning ordinance shall be amended to provide incentives in the form of off-street parking requirement reductions in exchange for the inclusion of public plazas or "pocket parks" in their design. To offset this reduction in private parking, the Redevelopment Agency shall purchase and develop less desirable commercial property located off El Paseo. 4. SUBAREA 4: Gateways Gateways, a visitor's first exposure to Palm Desert, play a critical role in defining the City's character and identity. In addition to communicating an overall impression of quality, it is important for gateways to emphasize that on is entering a unique and distinctive community. 24 CITY OF PALM DESERT LAND USE ELEMENT MAY 13, 1993 POLICY: Projects in these areas shall be required to provide architecture and landscaping which will enhance the image of Palm Desert. IMPLEMENTATION: Existing land use policies shall be maintained. D. AREA 4: PALMA VILLAGE Palma Village was the first major residential subdivision in the Palm Desert area. When the tract was laid out in 1935, it was designed as a small, low density single-family residential village surrounded by desert and date palms. Over the past 57 years, the desert and date palms have given way to the College of the Desert, the Palm Desert Town Center, the Civic Center, and the McCallum Theater. While the overall growth of Palm Desert has significantly impacted Palma Village, existing land use patterns and policies have remained essentially unchanged. ISSUE 1: There are a number of vacant lots and poorly maintained properties in the area which discourage new investment, rehabilitation, and new construction. 25 CITY OF PALM DESERT LAND USE ELEMENT MAY 13, 1993 POLICY 1: ISSUE 2: The City shall take a proactive role in promoting compatible, high quality infill private development and public works consistent with the area policy criteria. Narrow strips of commercial and multi -family zones adjacent to single family zones exist in the area. These lots are poorly suited for quality development and negatively impact adjacent properties. POLICY 2: Multi -family and commercial lots should be of sufficient depth to allow efficient site planning and the creation of adequate buffer areas adjacent to single-family zones ISSUE 3: Because of their relative age, many of the structures in the area are of poor architectural quality as compared to the majority of developments that have been built since the City's incorporation in 1973. POLICY 3: In order to serve as a stimulus for overall neighborhood improvement, new projects shall 26 CITY OF PALM DESERT LAND USE ELEMENT MAY 13, 1993 meet the same high architectural and site planning standards being applied to new projects elsewhere in the City. ISSUE 4: The adoption of the City's zoning map in 1975 resulted in extensive down zoning of multi- family property developed under the county which created a number of legal non- conforming developments. These units may remain as they presently exist, but cannot be replaced if they are destroyed or substantially damaged. This non -replacement feature discourages lenders from financing the sale or rehabilitation of these units which often results in low levels of building maintenance leading to generalized deterioration. POLICY 4: The City shall continue to allow presently non -conforming residential properties to obtain conforming status through architectural and site rehabilitation as part of the certificate of zoning conformance process. 27 CITY OF PALM DESERT LAND USE ELEMENT MAY 13, 1993 E. AREA 5: NORTH SPHERE The area generally north of the Whitewater Storm Channel between Monterey Avenue and Washington Avenue is commonly referred to as the Palm Desert North Sphere. The north sphere represents both incorporated and unincorporated land and contains nearly 8400 acres with approximately one-half of the area being undeveloped. The developed portions encompass a variety of land uses including industrial, retail commercial, offices, resort hotels, and various housing types. The area serves as the City's northern gateway, therefore the quality and type of future development will have tremendous impact on the community and its future. Palm Desert's long range commitment to assure proper development of the area is reflected in its acquisition of over 230 acres. Potential development on this land includes a municipal golf course, a conference center, an employee village and park facilities. GENERAL POLICY: The land uses within the north sphere need to be a continuation of the City's present growth patterns, balancing private economic 28 CITY OF PALM DESERT LAND USE ELEMENT MAY 13, 1993 concerns including commercial and residential projects with long term community goals of reinforcing Palm Desert as a city of quality, taste, and stability. 1. INCORPORATED AREA POLICY 1: New developments within the north sphere must demonstrate the ability of public facilities and services to accommodate them prior to approval POLICY 2: Special attention shall be paid during the development review process to assure that proper mitigation and transition is provided between uses. POLICY 3: Development agreements shall be encouraged to enable Palm Desert the flexibility required to answer the unique concerns of the north sphere. POLICY 4: Residential developments on land within 2000 feet of the railroad and Interstate 10 shall 29 CITY OF PALM DESERT LAND USE ELEMENT MAY 13, 1993 be required to implement noise mitigation measures. Because of the additional costs involved, higher densities in this area may be appropriate. 2. UNINCORPORATED AREA The unincorporated area of the north sphere which encompasses approximately 1629 acres is generally bound by Country Club Drive on the north, Fred Waring Drive on the south, Washington Street on the east and Oasis Club Drive on the west. Developments in the area include the Palm Desert Country Club, Woodhaven Country Club, Oasis Country Club, and the Palm Desert Resort and Country Club. The majority of the area's land use is low density residential with some higher densities located along Washington Street. There are small commercial developments located at the southwest corner of Country Club and Washington and at the southwest corner of 42nd Street and Washington which are designed to provide convenient shopping opportunities for the surrounding residential areas. 30 CITY OF PALM DESERT LAND USE ELEMENT MAY 13, 1993 Also included in the unincorporated north sphere plan is 600 acres bound by Frank Sinatra Drive on the north, Country Club Drive on the south, Portola Avenue on the east and Monterey Avenue on the west. The area includes Suncrest Country Club, Palm Desert Greens Country Club, and Santa Rosa Country Club. All but approximately 12 acres is developed with either mobile home units or golf course facilities. ISSUE 1: There are a number of residents in the unincorporated north sphere that maintain horses on their lots which is permissible under current Riverside County codes. However, in the event of annexation, city standards would preclude this use from the area. POLICY 1: Where appropriate, the City shall have the ability to designate lots which are 1 acre or larger in size as residential estate (RE) which would permit domesticated animals, including horses, per the City of Palm Desert zoning code. 31 CITY OF PALM DESERT LAND USE ELEMENT MAY 13, 1993 IMPLEMENTATION: The City shall determine if a zoning ordinance amendment is required to include horses in the definition of domestic animals. POLICY 2: Infill development shall be compatible with the character of the surrounding neighborhood. IMPLEMENTATION: The City shall continue to maintain existing land use policies. F. AREA 6: COOK/HOVLEY INDUSTRIAL AREA The Cook/Hovley industrial area is generally bound by Hovley Lane on the north, The Whitewater Storm Channel on the south, the 1/2 section lines of sections 10 and 15 on the east and the 1/2 section lines of sections 9 and 16 on the west. ISSUE: This area was intended to be developed with industrial uses including the storage, distribution, assembly, and service of goods. However, much of the area has taken on business park -like characteristics with uses 32 CITY OF PALM DESERT LAND USE ELEMENT MAY 13, 1993 POLICY: including general offices and furniture stores. Office buildings have been approved in the past based on the development having sufficient parking. The design standards imposed on these buildings have definitely improved the aesthetics of the area but they have also increased the land value. With these increased land costs and building costs, many industrial uses that would be appropriate for the area can't afford to locate in Palm Desert. Future industrial subdivisions in the city shall be limited to industrial -type uses only. IMPLEMENTATION: The City shall determine if a new general plan designation limiting future industrial subdivisions to industrial -type uses only is required. 33 CITY OF PALM DESERT LAND USE ELEMENT MAY 13, 1993 G. AREA 7: UNINCORPORATED AREA SOUTH OF THE CITY LIMITS The majority of the unincorporated area south of the city limits is under the ownership or administration of either the Bureau of Land Management or the University of California, Riverside ( Phillip L. Boyd Deep Canyon Research Center) or as part of the State Game Refuge. Therefore, although most of the land is vacant, it is not likely that the area will experience much growth in the future. POLICY: The City shall attempt to ensure that the area is maintained as open space. IMPLEMENTATION: The City shall continue to maintain existing land use policies. 34 ICLOAta FpEO U..rr I FSANR II .ITt �LI COUNI.: CLUB 0111r1 0 °AS Ir.74TY OF PALM DIESiERT GENERAL PLAN LAND USE MAP •ro .•L r ^• •r' 'STATE HIGHWAY 111 J LEGEND WWI OMIT. 1-1S Or. Axp. AFFWNOASLE WWI DENSITY ►.U. turn OTERY .. "•'^ COI 0.111Wn I-r w.. LOW OENWTY a-. Dw.a Fl, PI UC FAGIRES .... Vt.. LOW OESSITY 1-S wawa. I.{. ELSMENTAS. SCHOOL . ' SESYICE morrow. LWWJL M.S. S SCHOOL COWS COWNENCML ASO KS. WWI SCHOOL RELATED WWI OPHOWT COM.O.CIAL © OWCOORS. %%/1 R4% 75PL, r0EO4YL 0000INCLAL W EA. SWOON OY10LAr PESO. COYMEIKML K SPORT COMM.. KANNEO CONYUNRY OEVELOMIENT COISESCMIyIWISrSML n....... FOAM DUMP SPWF E OF SIFLUESCE ,<_ I� FANS I.....H ►ALY OSSENT CRY LAST OP OFFICE ►sOFESSSHIAL 11.1111.1. r.CT LSE* 5010E jr SISOINTML STUDY ZONE [.:,4,l mason KANSEO IE.IDINTML OFWI MACE -- _- —_ _: LOW OINtlTYFNSYICE _ ---- EpySTSyI NOTE: SPECIFIC LOCATION OF PUBLIC FACILITIES NOT INTENDED UNLESS SITE ALREADY OWNED BY AGENCY. r CITY OF PALM DESERT CIRCULATION ELEMENT Prepared By: Stephen R. Smith January 13, 1993 Adopted by City Council Resolution No. 94-34 April 14, 1994 73-510 Fred Waring Drive Palm Desert, California 92260 TABLE OF CONTENTS I. INTRODUCTION Form and Scope of this Element Page No. 1 2 II. CIRCULATION ISSUES 2 A. Regional Transportation Corridors 3 B. City Street System 3 C. Future Growth 4 D. Transit System 5 E. Bicycle, Pedestrian and Equestrian Facilities 6 F. Transportation Demand Management 6 III. GOALS AND POLICIES 6 A. General 7 B. Level of Service 8 C. Roadway Standards 10 D. Transit System 12 E. Bicycle and Pedestrian Facilities 13 F. Equestrian Facilities 16 G. Transportation Demand Management 16 IV. IMPLEMENTATION 18 V. ROADWAY CIRCULATION PLAN 20 A. Roadway Facility Designations 21 B. Level of Service 25 C. Circulation System 26 VI. BIKEWAY PLAN 28 LIST OF TABLES AND EXHIBITS Page No. Table No. Title 1 Standards for Roadway Levels of Service 24 2 ADT Capacities 26 Exhibit No. Title 1 Roadway Cross Sections 30 2 Circulation Element Highway Network 31 3 Circulation Element Bikeway Network 32 ii CITY OF PALM DESERT CIRCULATION ELEMENT I. INTRODUCTION The efficient movement of people, goods and services within, through, to and from the city is the principal objective of the Circulation Element. While the plan reflects Palm Desert's commitment to the resolution of regional transportation issues, it also reflects a belief that Palm Desert resources should be utilized in a manner that highest priority be given to the implementation of programs that assist in achieving Palm Desert's long range goals and objectives. The Circulation Element is also concerned with establishing goals, policies, and implementation measures which will ensure that all components of the system will meet the future transportation needs of the city. Government Code Section 65302(b) provides that the Circulation Element delineates the "general location and extent of existing and proposed major thoroughfares, transportation routes, terminals and other public utilities and facilities, all correlated with the Land Use Element of the general plan." Areas of particular concern to the City of Palm Desert include: CITY OF PALM DESERT CIRCULATION ELEMENT JANUARY 13, 1993 * Streets, highways and freeways; * Truck traffic; * Public transit; * Bicycle and pedestrian facilities; * Transportation demand management (e.g. carpooling, vanpooling). FORM AND SCOPE OF THIS ELEMENT This Element contains goals and policies designed to improve overall circulation in the City of Palm Desert and to address circulation issues that concern the city at the present time. In order to assist in realizing the defined goals and policies, implementation measures are outlined together with a description of the circulation plan for roadways and bikeways. For highway transportation, the existing and future roadway types, each circulation plan provides a network of roadways defined according to designated with specific design standards. Bikeway standards are also defined. II. CIRCULATION ISSUES The following circulation issues have been identified in the General Plan Update process and are addressed within the goals, 2 CITY OF PALM DESERT CIRCULATION ELEMENT JANUARY 13, 1993 policies, implementation measures and Circulation Element maps contained in this document. A. REGIONAL TRANSPORTATION CORRIDORS State Route 74 (Pines to Palms Highway) and Highway 111 pass through the city as conventional highways. Highway 74 north of Highway 111 to the Interstate 10 Freeway is a city arterial street known as Monterey Avenue. Interstate 10 extends across the north limit of the city a distance of six and a half miles from a point midway between Bob Hope Drive and Monterey Avenue east to Washington Street. Major improvements to the Monterey Avenue and Washington Street interchanges at I-10 are in the planning stage with County of Riverside acting as the lead agency. B. CITY STREET SYSTEM The Palm Desert street system for the most part is complete. Certain areas require improvements such as widening, installation of curbs and gutters, and on -going maintenance. The three main north -south arterials in the city (Monterey Avenue, Portola Avenue and Cook Street) cross through the 3 CITY OF PALM DESERT CIRCULATION ELEMENT JANUARY 13, 1993 Whitewater Storm Channel. During rain storms it is not unusual for rain waters to flood over the streets which in the past has resulted in the closure of Monterey Avenue and Cook Street. An all weather crossing at Portola Avenue keeps this street open through all but the worst flooding situations. At this time the Cook Street all weather crossing is under construction with completion expected May of 1993. Construction of an all weather crossing for Monterey Avenue at the storm channel would provide all season circulation for the west side of the city and direct access from I-10 to the Palm Desert Town Center. There are various physical factors which influence the safe and efficient flow of traffic on the city's street system. Among these factors are street width, on -street parking, frequency of driveways, intersection location and intersection configuration. C. FUTURE GROWTH Traffic projections based on buildout of the Land Use Element indicate significant increases in traffic within the city limits and the surrounding planning area. As well, Palm 4 CITY OF PALM DESERT CIRCULATION ELEMENT JANUARY 13, 1993 Desert is located in the center of the Coachella Valley and is the home of many destination oriented commercial and public enterprises (e.g. Palm Desert Town Center, Marriott Desert Springs Resort, College of the Desert and College of the Desert Street Fair to name a few). Being located in the center of the valley and being home to destination oriented business activities results in the city having to handle a significant amount of regional pass -through traffic. Partially as a result of this added regional pass -through traffic the North Sphere Specific Plan Circulation Element upgraded Monterey Avenue from a four lane arterial street to a six lane arterial street. Current and projected future traffic levels indicate that Highway 111, Country Club Drive and Cook Street may also require additional traffic lanes. D. TRANSIT SYSTEM Palm Desert is served by Sunline Transit Agency which provides bus service to the Coachella Valley. An efficient bus service can reduce congestion and improve air quality by taking private automobiles off of area streets. Public transit must be convenient and accessible and operate in a timely fashion. 5 CITY OF PALM DESERT CIRCULATION ELEMENT JANUARY 13, 1993 E. BICYCLE, PEDESTRIAN AND EQUESTRIAN FACILITIES The city and valley wide network of bicycle and pedestrian routes for commuter, school and recreational use is only partially established. The lack of a continuous bikeway system inhibits the bicycle from becoming an attractive means of transportation in the city. The city's recreational equestrian trail system is only partially established. F. TRANSPORTATION DEMAND MANAGEMENT The city has adopted a Traffic Demand Management ordinance (Ordinance No. 689). III. GOALS AND POLICIES The following goals and policies form the basis for providing a circulation system which adequately serves the development intensity anticipated in the Land Use Element and which represents the desires of the community for adequate mobility and accessibility. The Circulation Element policies are intended to guide the city so that both public and private activities contribute to meeting the goals of the Circulation Element. 6 CITY OF PALM DESERT CIRCULATION ELEMENT JANUARY 13, 1993 A. GENERAL Goal 1: Provide a transportation system that supports the land use plan in the General Plan and provides for the safe and efficient movement of people, goods, and services within, into, out of, and through the City of Palm Desert. Policy 1.1: The completion of the ultimate circulation system, through the improvement of sub- standard roadway segments and intersections and the construction of missing roadway links and related facilities shall be promoted. Policy 1.2: Highway and street widening and improvements shall be supported by requiring development projects to dedicate right-of-way, pay a TUMF fee (Transportation Mitigation Impact Fee), and/or construct certain improvements as determined necessary to avoid significant traffic/circulation impacts. Policy 1.3: New residential streets should be designed so as to discourage pass -through trips which do 7 CITY OF PALM DESERT CIRCULATION ELEMENT JANUARY 13, 1993 not begin nor end within the residential area served by the street. B. LEVEL OF SERVICE Goal 2: Provide a circulation system which supports existing, approved and planned land uses throughout the city while maintaining a desired level of service on all streets and at all intersections. Policy 2.1: Level of service "C" shall be the system performance objective for traffic volumes on the circulation system. For roadways and interchanges already operating at less than level of service "C", the system performance objective shall be to maintain or improve the current level of service. Policy 2.2: Project phasing shall be 'coordinated with the construction of on -site and off -site circulation improvements to maintain the performance standards objectives specified in Policy 2.1 and to ensure that improvements are in place when needed. 8 CITY OF PALM DESERT CIRCULATION ELEMENT JANUARY 13, 1993 Policy 2.3: New development projects shall mitigate off - site traffic impacts to the maximum extent feasible. Policy 2.4: Policy 2.5: All new development shall participate in the Transportation Mitigation Impact Fee program. This fee enables circulation improvements to be funded by new development in a manner that maintains the performance objectives specified in Policy 2.1. Driveway access points onto arterial roadways shall be limited in number and location in order to ensure the smooth and safe flow of vehicles and bicycles. Policy.2.6: Secondary access should be required for projects located in the middle of a block adjacent to a limited -access arterial. Policy 2.7: Traffic signal or stop sign installation shall be required at intersections which, based on individual study, are shown to satisfy traffic signal or stop sign warrants. 9 CITY OF PALM DESERT CIRCULATION ELEMENT JANUARY 13, 1993 Policy 2.8: A program of traffic signal interconnection and computerization shall be implemented to improve traffic progression and the monitoring and maintenance of the city's traffic signals. Policy 2.9: Guidelines for the determination of appropriate intersection sight distance shall be prepared that are consistent with accepted traffic engineering practice. Policy 2.10: Adequate off-street parking shall be provided in all new or expanded projects as part of construction. Policy 2.11: Signalization at major entrances to commercial projects shall be required if determined necessary based on traffic conditions. C. ROADWAY STANDARDS Goal 3: Adopt and maintain a set of roadway standards and transportation system design criteria 10 CITY OF PALM DESERT CIRCULATION ELEMENT JANUARY 13, 1993 which supports and maintains the desired character of the City of Palm Desert. Policy 3.1: A set of roadway design standards which specify right-of-way, roadway cross -sections, and other design criteria for designated roadway classifications shall be adopted and maintained. Policy 3.2: Planting and substantial landscaping shall occur along major arterials to mitigate visual impacts. Policy 3.3: Roadways in hillside areas shall not have a significant, adverse impact on the natural contours of the land; grading for streets shall be minimized; and harsh cut slopes which may not heal into natural appearing surfaces shall be avoided. Policy 3.4: Private streets shall be required to be improved to public street standards prior to dedication to the city. 11 CITY OF PALM DESERT CIRCULATION ELEMENT JANUARY 13, 1993 Policy 3.5: The use of drought tolerant landscaped medians on arterial streets shall be encouraged in an effort to preserve the image of the community. Policy 3.6: Hillside road standards shall be developed, including standards for landscaping, levels of service, road widths, and surface color. D. TRANSIT SYSTEM Goal 4: Provide a public transportation system which serves the needs of persons living in and/or working in the City of Palm Desert. Policy 4.1: The city shall coordinate with Sunline Transit to attain a balance of transportation opportunities, including development of short/long range service plans and implementation of transit improvements. Policy 4.2: The city shall coordinate with Sunline Transit and the Coachella Valley Association of Governments to identify potential park - and -ride facility locations as a means of 12 CITY OF PALM DESERT CIRCULATION ELEMENT JANUARY 13, 1993 encouraging increased transit and ridesharing. Policy 4.3: Covered bus shelters shall be provided at every bus stop in the city. Policy 4.4: Where appropriate, the city shall require developers to construct transit facilities such as bus pullouts, covered bus shelters and benches on arterial and collector streets. Pedestrian access shall also be planned to provide breaks in noise barriers or other community wall enclosures. Policy 4.5: The city shall coordinate with Sunline Transit to establish transit stops adjacent to medical facilities, senior citizen facilities, major areas of employment and shopping centers. E. BICYCLE AND PEDESTRIAN FACILITIES Goal 5: Provide a citywide system of safe, efficient and attractive bicycle and pedestrian routes for commuter, school, and recreational use. 13 CITY OF PALM DESERT CIRCULATION ELEMENT JANUARY 13, 1993 Policy 5.1: New development and redevelopment projects shall be required to include safe, separate, and convenient paths for bicycles and pedestrians so as to encourage these alternate forms of non-polluting transportation. Policy 5.2: Plans for bicycle and pedestrian facilities shall give priority to providing continuity and closing gaps in the bikeway and sidewalk network. Policy 5.3: Proposed residential, commercial, and industrial developments shall be required to include bikeways in their street improvement plans, consistent with the Circulation Element Bikeway Network Plan, and to construct the bicycle paths, or lanes, or routes as a condition of project approval. Policy 5.4: Development projects shall be required to participate in the funding of planned bikeways which would allow employees to utilize bicycles as an alternative to automobiles. 14 CITY OF PALM DESERT CIRCULATION ELEMENT JANUARY 13, 1993 Policy 5.5: The provision and maintenance of off-street bicycle paths shall be encouraged. Policy 5.6: Bicycle racks shall be required and storage facilities shall be encouraged at new or modified public, commercial, and industrial building sites. Policy 5.7: The installation of sidewalks shall be required for all new roadway construction and significant reconstruction of existing roadways within commercial and industrial zones and along arterial and secondary streets in residential districts. Policy 5.8: Along arterial and collector roadways, require the use of meandering sidewalks or the provision of landscaping between the curb and sidewalk. Policy 5.9: The design of unobstructed sidewalks, when included as part of roadway improvement plans, shall follow accepted traffic engineering practice. 15 CITY OF PALM DESERT CIRCULATION ELEMENT JANUARY 13, 1993 Policy 5.10: The installation of appropriately located handicapped ramp curb -cuts shall be required for all new roadway construction and significant reconstruction of existing roadways. F. EQUESTRIAN FACILITIES At this time horses may not be kept in the city. This may change when the city annexes the Palm Desert Country Club area in the future. The city trails committee is currently working on a revised bikeway plan. Upon completion of the bikeway plan the trails committee will address the issue of equestrian facilities in the city. G. TRANSPORTATION DEMAND MANAGEMENT Goal 7: Develop and encourage a transportation demand management system to assist in mitigating traffic impacts and in maintaining a desired level of service on the circulation system. Policy 7.1: To reduce energy consumption, noise pollution and air pollution, employment generating developments shall provide incentives to 16 CITY OF PALM DESERT CIRCULATION ELEMENT JANUARY 13, 1993 employees to utilize alternatives to the conventional automobile such as walking, bicycles, carpools, vanpools, and buses. Policy 7.2: Public and private office uses, industrial and commercial businesses shall be encouraged to use flex time, staggered working hours and other means to lessen commuter traffic. Policy 7.3: The use of multiple -occupancy vehicle programs for shopping, business and other uses shall be encouraged to reduce vehicle trips. Policy 7.4: State and national legislation directed at encouraging the use of carpools and vanpools shall be supported. Policy 7.5: The AQMD (Air Quality Management District) and RCTC (Riverside County Transportation Commission) shall be supported in their efforts to implement transportation demand management strategies. 17 CITY OF PALM DESERT CIRCULATION ELEMENT JANUARY 13, 1993 Policy 7.6: The development and completion of a people mover system within the core commercial area shall be promoted. IV. IMPLEMENTATION Within the Circulation Element, policies have been developed which call for specific implementing actions to be taken or enforced by the city. Defined as an action, procedure, program or technique that carries out General Plan policy, the following implementation measures are intended to assist the city in realizing the goals and policies of the Circulation Element: 1. The Palm Desert Public Works Department and Community Development Department shall monitor the existing and proposed street systems on a regular basis to identify current and potential problem areas and to develop solutions. 2. Every five years the public works department and community development department shall review and make recommendations to the city council for needed revisions to the city's buildout circulation plan. 3. The public works department shall prepare and maintain a circulation facility design manual containing roadway 18 usi CITY OF PALM DESERT CIRCULATION ELEMENT JANUARY 13, 1993 standards which specify right-of-way, number of lanes, typical cross -sections and parking restrictions according to designated arterial classifications. Included will be design guidelines for driveway placement, intersection site distance, dedicated turn lanes, stop sign installation, medians, landscaping, bike lanes, bike paths, sidewalks, and equestrian trails. Hillside road standards for road widths, surface color, grading, pathways, pedestrian areas, walks, landscaping, street name signs, and utilities shall also be included. 4. The public works department and community development department shall use the development review process to ensure that the design of local street improvement plans will not encourage pass -through vehicle trips within residential developments. 5. The public works department and the community development department shall use the development review process to ensure that new or expanded development projects mitigate off -site traffic impacts to the maximum extent feasible, coordinate project phasing with the construction of on -site and off -site circulation improvements which maintain the specific level of service performance standard, provide adequate off-street parking, and where feasible, provide secondary side street 19 CITY OF PALM DESERT CIRCULATION ELEMENT JANUARY 13, 1993 access for projects located in the middle of a block adjacent to a limited access arterial. 6. The city shall continue to work toward the implementation of improved transit services as a logical alternative to automobile transportation. 7. The public works department and the community development department shall use the development review process to ensure that proposed developments shall include bikeways and equestrian trails in their street improvement plans consistent with the Circulation Element Bikeway and Equestrian Trail Network Plan. 8. The public works department shall monitor and manage the city's Traffic Demand Management Program as delineated in Ordinance No. 689. V. ROADWAY CIRCULATION PLAN This section of the Circulation Element defines a roadway plan that meets the requirements for safe and convenient movement at the development intensity anticipated in the Land Use Element. It includes a classification system that applies to all roadways that 20 CITY OF PALM DESERT CIRCULATION ELEMENT JANUARY 13, 1993 serve the city, and identifies specific improvements that will be required to implement this plan. CIRCULATION NETWORK A description of each road classification is as follows: - Collector: A street, usually of two lanes, but occasionally four lanes, designed to provide access to and from one area of the community to an arterial or major thoroughfare. It is intended to provide a means for movement from within a living, working, or shopping area to the periphery of that area. - Secondary Roadway: Collects and distributes traffic from major arterials to local streets or to traffic destinations. It also serves secondary traffic generators, such as small business centers, schools, and major parks. - Scenic Secondary Roadway: Same as secondary roadway, but with a raised landscaped center median as on El Paseo. - Major Thoroughfare: A high capacity street of four or more lanes with a landscaped median (if appropriate), a limited number of cross streets, stacking and turning lanes and 21 CITY OF PALM DESERT CIRCULATION ELEMENT JANUARY 13, 1993 parking, intended to move people through and within the community. - Arterial Street: A minimum of four lane streets, designed to move people from one part of the community to another, containing few cross streets. - Freeway: A high capacity, multi-laned, divided highway of limited access with grade separated crossings, intended to move people through the community or region. 22 CITY OF PALM DESERT CIRCULATION ELEMENT JANUARY 13, 1993 LEVEL OF SERVICE Table 1 STANDARDS FOR ROADWAY LEVELS OF SERVICE* TRAFFIC CONDITIONS A Primarily free flow operations at average travel speeds usually about 90 percent of free flow speed. Vehicles can maneuver unimpeded within the traffic stream. Delay at signalized intersections is minimal. B Reasonably unimpeded operations at average travel speeds usually about 70 percent of free flow speed. Ability to maneuver is only slightly restricted and stopped delays are not bothersome. Drivers are not subjected to appreciable tension. C Represents stable operations, however, ability to maneuver and change lanes in midblock locations may be more restricted. Longer queues and/or adverse signal coordination may contribute to lower average travel speeds of about 50 percent of free -flow speed. Drivers will experience some appreciable tension. D Borders on a range in which small increases in flow may cause substantial increases in approach delay, and hence, decreases in arterial speed. Causes range from adverse signal progression, inappropriate signal timing, high volumes, or any combination. For planning purposes, this level of service is the lowest that is considered acceptable. Average travel speeds are about 40 percent of free -flow speed. E Characterized by significant approach delays and average travel speeds of one-third of free -flow speed or lower, caused by adverse progression, high signal density, extensive queuing at critical intersections, inappropriate signal timing, or some combination. F Characterized by arterial flow at extremely low speeds below one-third to one -quarter of free flow speed. Congestion is likely at critical signalized intersections, resulting in high approach delays. Adverse progression is frequently a contributor to this condition. *From arterial highway section of 1985 Capacity Manual 23 CITY OF PALM DESERT CIRCULATION ELEMENT JANUARY 13, 1993 Schematic cross -sections of each category of arterial roadway are provided in Figure 1. Variation in right-of-way width and specific road improvements will occur within each of the roadway classifications, based on existing conditions and other factors. In particular, the median width in six -lane and four -lane roadways will vary according to the area being served and the available right-of-way. Typically the median width for six -lane and four -lane roadways should be raised as shown in Figure 1. The arterial classification listed above may deviate from the standard where physical constraints exist or where preservation of community character dictates special treatment. B. LEVEL OF SERVICE A roadway's ability to handle existing and future projected traffic loads can be described in terms of level of service, or LOS. The LOS is a measure of traffic operating conditions as outlined in Table 1, and is based on prevailing traffic volumes in relation to roadway capacity. The following table lists representative ADT capacities for the various types of arterial roadways considered in the Circulation Element. 24 CITY OF PALM DESERT CIRCULATION ELEMENT JANUARY 13, 1993 CLASSIFICATION Six -Lane Arterial Four -Lane Arterial Two -Lane Local Collector Table 2 ADT CAPACITIES ROADWAY RIGHT- LEVEL OF SERVICE* WIDTH OF -WAY C D E 90'-104' 60'-80' 30'-54' 110'-120 80'-100' 50'-70' 42,000 48,000 52,000 26,000 29,000 32,000 10,000 12,000 14,000 *Capacities listed represent threshold capacities for entry into the next lower level of service. These capacities represent the general level of daily traffic each roadway type can carry and should be used as general design guidelines only. One of the policies included in this Element states that the city will attempt to achieve and maintain level of service II C II as a system performance standard for traffic volumes on the roadway system and as a basic design guideline for roadways in the city. C. CIRCULATION SYSTEM The goals and policies included in the Circulation Element emphasize the need for a circulation system that is capable of serving both existing and future residents while preserving community values and character. The location, 25 CITY OF PALM DESERT CIRCULATION ELEMENT JANUARY 13, 1993 design, and constituent modes of the circulation system have major impacts on air quality, noise, community appearance, and other elements of the environment. The street plan designated in the Circulation Element is illustrated in Figure 2 and indicates all of the designated freeways, arterials, major thoroughfares, scenic secondary, secondary, and collector streets. Any permanent closure to through traffic or relocation of the designated arterials and collectors will require a General Plan Amendment. Designated streets are shown within the current city limits as well as for the surrounding planning area (sphere of influence) that has been defined for the General Plan Update. The street plan in the Circulation Element indicates a number of improvements with regard to the existing roadway system in the Palm Desert planning area. The following are the more important improvements that will need to be implemented: 1. Improvement of the freeway inter -connects at Monterey Avenue and Washington Street at Interstate 10. 2. Construction of an all weather crossing at Monterey Avenue where it crosses the Whitewater Storm Channel. 26 CITY OF PALM DESERT CIRCULATION ELEMENT JANUARY 13, 1993 3. Construction of Hovley Lane from its western terminus west of El Dorado Drive to its easterly terminus midway between Oasis Club Drive and El Dorado. 4. Construction of a bridge crossing the San Pablo Channel at Magnesia Falls Drive. VI. BIKEWAY PLAN The bikeway network designated in the Circulation Element is illustrated on Figure 3. Bikeways within the current city limits as well as possible bikeway linkages to adjacent communities within the city limits will consist of one of three types of facilities as follows: Class I Bikeway (Bike Path): This is a special type of facility that is designated for exclusive use by bicyclists. A bike path may be located adjacent to a roadway though it is physically separated from vehicular traffic by a barrier, grade separation or open space. Cross flows by vehicles and pedestrians are allowed but minimized. The minimum paved width for a two-way bike path shall be eight feet. The minimum paved width for a one-way bike path shall be five feet. A minimum five-foot wide graded area shall be provided adjacent to the pavement. 27 CITY OF PALM DESERT CIRCULATION ELEMENT JANUARY 13, 1993 Class II Bikeway (Bike Lane) : A bike lane consists of a paved area for preferential use of bicyclists and is located between the travel lane closest to the curb and the curb. Pavement markings and signage indicate the presence of a bike lane on the roadway. Per the Caltrans Highway Design Manual, the Class II bike lane width is a minimum four feet on a street without curbs and gutters with parking streets with parking area parking parking off the pavement, and minimum five feet on curbed marked parking (bike lanes are located between the and the traffic lanes) and on curbed streets where is prohibited, and 11 to 12 feet on curbed streets with permitted, but without marked parking areas. Class III Bikeway (Bike Route): This type of bicycle facility refers to a conventional street where bike routes are indicated by sign only. There are not specially paved bikeways and bicycle traffic shares the roadway with motorized traffic. Only Class III facilities which connect the Palm Desert sphere with the regional bikeway system are identified in the bikeway network. Roadways which are not designated with a Class II bikeway, but which serve as connections between Class II facilities or the regional bikeway system should be considered as Class III bikeways. 28 EXHIBIT 1 ea-se'R/W ,a _ - h ,r ,r s� ,a E COLLECTOR STREET ,0s' .8' R/W a ti 12' tr ,r .r . .. _. . •.. SECONDARY ROADWAY 10s' R/W 20'* 118' R/W .4' ,r �s 12' tr rr 2a tr ,r _ , ..�-R9.1 SCENIC SECONDARY ROADWAY 120' R/W 100' R/W 12' >� 12'12' ,R r 12' _j_T Fat i .Ij I t'H •/i//// �////l///r // //l/// MA1QR TI•-HOtUGHFARE 130.-14E' R/w 110'-128' R/W SW-90' 12'-18' 8'-1 ir tct, I rt er—tr 20'* ///////////////r//////////// I• /// /////// /// ARTERIAL STREET k SCENIC EASEMENT (Variable), where appropriate. DATE 7-30-92 GENERAL GUIDELINES FOR ROADWAY CROSS SECTIONS SCALE NTS CITY OF PALM DESERT 414444 r ,D DOZY( till, Dill r 0 II:AII I' 1000' tIt}r CIRCULATION NETWORK CITY OF PALM DESERT LEGEND: OOOO fOOOO ARTERIAL STREET twriamtaxwan. MAJOR THOROUGHFARE SCENIC SECONDARY ma> — SECONDARY ROADWAY COLECTOR STREET ADOPTED SPHERE �. CITY LIMIT PROPOSED STREET TATE HIGHWAY 111 momowere RAILROAD TRACT STORM CHANNEL PROPOSED BRIDGE EXISTING BRIDGE ,I.r.1..•r.r, IW .n. v r Ir .r ,r r r Ir ,r Ir r Ir ^'• ARTERIAL STREET (IH'•"''•^' ) *SCENIC EASEMENT (Vul.W.), ',Mrs IPYroPrl'tS. �.;ffiAgvilke`CITY OF ?AL?ALM o, 3 ERT BIKEWAY FEB. 211,19614 F1i'ur� 3 111 • LEGEND CLASS 1 FUTURE SEPARATED BIKEPATII SEPARATE BIKEPATN CLASS 11 M.r -- STRIPED BIKE LANE IN STREET CLASS 111 IN STREET SION ONLY