Agenda Report
Fullerton City Council
MEETING DATE: AUGUST 15, 2023
TO: CITY COUNCIL / SUCCESSOR AGENCY
SUBMITTED BY: Daisy perez, deputy city manager
PREPARED BY: edgar rosales, SENIOR ADMINISTRATIVE analyst SUBJECT: UNION PACIFIC TRAIL PHASE TWO DESIGN
SUMMARY
City Council directed staff to include a trail design option with a multi-modal element for Union Pacific Trail Phase Two on November 2, 2021. The Parks and Recreation Commission considered the multi-modal option and a trail-only option on July 10, 2023 and voted 5 – 0 – 2 to recommend City Council approve the trail-only option.
RECOMMENDATION
Approve one of the following options:
Option 1: Direct City Manager proceed with original Union Pacific Trail Phase Two project design, as recommended by the Parks and Recreation Commission and direct staff to bring back an appropriate budget request for approval on the Consent Calendar.
Option 2: Direct City Manager to incorporate a multi-modal element to the Union Pacific Trail Phase Two project and direct staff to identify up to $1 million in street funding options for City Council consideration at a later date and direct staff to bring back an appropriate budget request for approval on the Consent Calendar.
Option 3: Direct City Manager to terminate the grant agreement with the State of California Natural Resources Agency and return grant funding for the proposed project or request staff to reapproach the Agency to reallocate grant funding to be moved to another project in the City.
CITY MANAGER REMARKS
The City Manager recognizes that the trail project (option 1) was recommended unanimously by the Parks & Recreation Commission. While I appreciate the recommendation, I believe there are multiple dynamics occurring on this project. If you look at Phase 1, there were vehicle access points to some buildings along that corridor to ensure that property owners could fully benefit from both the trail as well as fully have access to their property.
I believe option 2 provides an opportunity for some form of one-way vehicle access to the back of properties along the corridor.
The future development of this area includes the potential for mixed-use development and multi-family housing options. Option 2 which provides for a limited multi-modal option provides the benefits of a trail connection as well as flexibility to future development options along the corridor.
PRIORITY POLICY STATEMENT
This item matches the following Priority Policy Statements:
Public Safety
Infrastructure and City Assets.
FISCAL IMPACT
The Parks and Recreation Department received a $1.78 million grant to construct a non-motorized trail and class-one bikeway with landscaping. The City’s match requirement totals approximately $330,000, which is available in Park Dwelling fund balance. Option 1 (trail-only) would require no additional funding other than the match requirement. Option 2 (trail with multi-modal element) would require approximately an additional $1 million funding for design, grading and construction of the one-way street from the General Fund or other funding source identified by City Council. The grant funds and the Park Dwelling fund have restricted use and not eligible to use for any portion of the street. Option 3 would return $1.78 million in grant funds.
DISCUSSION
City Council / Redevelopment Agency approved a Union Pacific Right-of-Way Trail and Park Project plan and application for the State of California Department of Parks and Recreation grant funding on September 7, 1999. The plan included a class-one bikeway, recreational trail, one-acre neighborhood park and parking lot. The Union Pacific Right-of-Way property begins just south of the Transportation Center and extends 0.8 miles west to Independence Park between Truslow and Walnut. The project provides a safe alternate route from the Transportation Center to the Richman Park and Independence Park neighborhoods. The City completed the first phase of the bikeway and trail project in 2006, running 0.5 miles in length, extending from the Transportation Center to Highland Avenue.
Phase Two for the Union Pacific Right-of-Way Trail includes the design and construction of the portion of the trail that runs from Highland Avenue to Independence Park. The proposed project would transform an existing 50-foot to 80-foot wide, blighted corridor into a greenbelt trail providing alternate transportation modes and linking the Transportation Center and several parks, including Independence Park, at its terminus. This project aligns with the Hunt Branch Library to the west, with the vision of providing potential future linkages that could create a regional trail connecting multiple cities. Staff estimates project cost would total $2.1 million.
Phases One and Two of the Union Pacific Right-of-Way Trail comprise part of a larger proposed trail that would connect several parks and neighborhoods throughout Fullerton. The Union Pacific Right-of-Way continues past Independence Park through the Bastanchury Greenbelt to the Fullerton Golf Course and ends at Lambert Road behind the Beckman Business Center. Both the City and County masterplans include the proposed trail.
The Parks and Recreation Department received a $1.78 million grant from the Urban Greening Program through the California Natural Resources Agency to fund Phase two of the Union Pacific Trail Project in 2020. City Council adopted a resolution for the grant application and funding on August 18, 2020. The State announced award of the $1.78 million grant to the City in April 2021 and the City signed the grant agreement in May 2022.
The grant will cover the following elements of the project:
irrigation
electrical
lighting
trail excavation and grading
pedestrian trail
class-one bike lane
landscaping throughout trail including planting 176 trees.
City Council directed to staff to research alternative options for the trail on November 2, 2021, including a potential design with a multi-modal element for Union Pacific Trail Phase Two. Staff explored multiple options, including shifting the grant funds to another location or project in the City. The California Natural Resources Agency confirmed that the City could not transfer grant funds to an alternate location or project. Additionally, the grant will not cover excavation, grading or construction of any part of a potential street portion as this grant specifically aims to add greening and natural elements to existing urban areas.
Phase Two of the trail has two segments – Highland Avenue to Richman Avenue and Richman Avenue to Independence Park – for a total 0.3 miles. Both segments are in an industrial zone with an existing MP – Manufacturing Park land-use designation. The Highland Avenue to Richman Avenue segment borders private properties to the north and south with various manufacturing uses. The segment from Richman Avenue to Independence Park borders manufacturing and railroad properties.
Staff considered various multi-modal options for this area and incorporated a multi-modal option into a potential design for the segment of trail from Highland Avenue to Richman Avenue, based on design standards requiring a 20-foot minimum for vehicular traffic. The segment from Richman Avenue to Independence Park is not wide enough to incorporate vehicular traffic alongside the class-one bikeway and trail. Staff prepared two project design options for consideration based on this information.
Option 1 includes a pedestrian trail and class-one bike lane. Option 2 includes a pedestrian trail and class-one bike lane along with a multi-modal option for the segment from Highland Avenue to Richman Avenue. Staff included both proposed conceptual plans with this report as Attachments 1 and 2.
Staff held a community meeting to present both options of the Union Pacific Trail Phase Two project on June 29, 2023. The City mailed postcards to properties surrounding the project area with an invitation to attend the meeting and a link to an online survey. Staff also posted information for the online survey at Union Pacific Park. 57 participants completed the survey and approximately 58% of survey respondents supported Option 1.
Staff presented both design options to the Parks and Recreation Commission on July 10, 2023. The commission voted 5 – 0 – 2 to recommend City Council approve the conceptual plan for Option 1. The Urban Green Grant and Park Dwelling Funds would fully fund Option 1. If City Council decides to move forward with Option 2, the City would need to identify alternate funding for the multi-modal components of the project not eligible for funding with current funding sources. Once City Council approves a final concept, staff would finalize design, bid the project and return to City Council to request approval of the construction contract award and final budget appropriation requests.
Attachments:
Attachment 1 – Union Pacific Trail Phase Two Option 1
Attachment 2 – Union Pacific Trail Phase Two Option 2
Attachment 3 – Urban Greening Grant Agreement
Attachment 4 – Survey Map for Postcards
cc: City Manager Eric J. Levitt
Union Pacific Trail Phase Two Design
August 15, 2023 – Page 2