CITY OF SHORELINE
SHORELINE
CITY COUNCIL
Monday, October 25, 2004
Shoreline Conference Center
PRESENT: Mayor Hansen, Deputy Mayor Jepsen, Councilmembers Chang,
Fimia, Grace, Gustafson, and Ransom
ABSENT: none
1.
CALL TO ORDER
The
meeting was called to order at 7:30 p.m. by Mayor Hansen, who presided.
2. FLAG SALUTE/ROLL CALL
Mayor
Hansen led the flag salute. Upon roll
call by the City Clerk, all Councilmembers were present.
3. CITY MANAGER’S REPORT
Steve Burkett, City Manager,
reported on the status of various capital improvement projects, including Phase
3 of the Interurban Trail and the 3rd Avenue NW Drainage
project. He also reported on the 22
volunteers who assisted in planting over 2,000 shrubs and plants at the
Richmond Beach Saltwater Park to provide soil stabilization. He requested that Council amend the agenda
to take the budget presentation after the consent calendar.
4. REPORTS OF BOARDS AND COMMISSIONS:
Councilmember Fimia reported on the success of the
Chamber of Commerce auction event.
5. PUBLIC COMMENT
(a)
Ken
Cottingham, Shoreline, urged the Council to read the 43-page traffic
engineering report he produced on the Aurora Corridor project, which includes
analysis of two main design options: 1) full median restriction; and 2)
retention of partial two-way left turn lanes.
He said the Council could use it to potentially refute Washington State
Department of Transportation (WSDOT) assertions regarding two-way left-turn
lanes. He emphasized that the City
could negotiate with WSDOT, as other jurisdictions have, in gaining concessions
on the project design. He said the City
of Everett was successful in deleting raised medians from a portion of its
Highway 99 improvement project. He
urged the Council to come up with its own design and call on WSDOT to discuss
what can actually be built.
(b)
Rick
Stephens, Shoreline business owner, said Mr. Cottingham’s report exposes the
fact that WSDOT’s insistence on raised medians is not supported by accident
data. He said the frequency and
severity of accidents in Washington State continue to be lower than the
national average. He said based on
traffic volumes, the Aurora Corridor project would not significantly decrease
the accident rate, nor would it increase traffic capacity. He asserted the project would create higher
traffic volumes in adjacent neighborhoods.
He urged the Council to reconsider the proposal to retain two-way
left-turn lanes, which would reduce the cost and size of the overall roadway
and yet still provide access for businesses to survive.
(c)
Bronston
Kenney, Shoreline, said the developer who plans to build on 8th
Avenue NW has still not resolved several neighborhood concerns relating to
stormwater drainage and quality construction.
He alleged that developers want to build inferior-quality homes to the
maximum densities possible, which detracts from neighborhoods and reduces
property values. He said it is
Council’s responsibility to adopt broad policies to ensure that new
construction maintains or enhances existing neighborhoods.
(d)
Dale
Wright, Shoreline, said that many of the statements made by merchants and other
critics of the Aurora Corridor Project have been shown to be inaccurate or
misleading. He said they do not talk
about the goals of the Aurora Corridor, nor the benefits of improved traffic
safety that raised medians will provide.
He said based on studies in other states, raised medians and limited
access can reasonably be expected to reduce traffic and pedestrian accidents by
approximately 40 percent. He said
critics have not acknowledged studies showing that converting from two-way
left-turn lanes to raised medians will not have an overall negative impact on
the adjacent business community. He
said it disturbs him that critics insist that only their demands should
prevail, particularly when the Aurora Corridor project represents the consensus
of the community. He urged the Council
to make decisions that reflect the interests of the overall community, not just
some “self-interested, special interest groups.”
(e)
Cindy
Ryu, Shoreline, thanked the Aurora Avenue property owners who commissioned the
Cottingham traffic report and encouraged the Council to study it closely. She said the report is “best available
science” and reflects the concerns of many property owners, taxpayers, and
drivers about the current design. She
concurred that the proposed design would decrease traffic capacity and
“permanently divide the City between City Hall and the business community.” She said raised medians mean fewer
opportunities to access businesses, asserting that drivers would likely drive
through Shoreline on their way to more accessible businesses in Edmonds,
Lynnwood, and Seattle. She said
eliminating the two-way left-turn lane in favor of medians requires drivers to
make inconvenient and dangerous u-turns to access businesses, which is not a
reasonable approach for Aurora Avenue.
She questioned whether the project is simply a way to add sidewalks,
lighting, and landscaping without increased traffic capacity or improved
safety.
(f)
Diana
Stephens, President of the Shoreline Chamber of Commerce, reported on the
success of the Chamber of Commerce “Dollars for Scholars” auction event, which
raised over $43,000 for student scholarships.
She then invited the community to participate in a Chamber-sponsored
Halloween event at the Ballinger Shurgard Storage on October 30, and a blood
drive on November 8 at the Shoreline Conference Center.
(g)
Mark
Mitchell, Shoreline business owner, noting that he lost over $1 million in
revenue last year, said that local casinos could no longer compete with tribal
casinos due to the high tax rate. He
said if Initiative 892 fails, local casino owners would likely request a
property tax decrease in order to survive.
He said the amount paid in local taxes is almost “obscene,” and that
there is very little income from pull tabs anymore. He said with the high tax rate and the Aurora Corridor project’s
impact on his business, it will be nearly impossible to survive.
There
was Council consensus to suspend the rules to allow the remaining speakers to
comment. Mayor Hansen asked that
comments be limited to two minutes.
(h)
Bob
Mitchell, Shoreline business owner, encouraged the Council to support
I-892. He said the City should not be
overly concerned about losing revenue from pulltabs because it only receives 5%
of the gross sales. However, the City
receives 11% of the gross sales from cardrooms, so it would be more
advantageous to focus on ways to increase that activity.
(i)
LaNita
Wacker, Shoreline, characterized the Shoreline business community as having
three distinct personalities, seen in:
1) the Chamber of Commerce; 2) the Shoreline Merchants Association; and
3) Forward Shoreline. She pointed out that
although the City signed a $25,000 contract with Forward Shoreline this year,
it signed a $30,000 contract with the Chamber of Commerce when the City first
incorporated. She said the membership
rolls of these organizations overlap, so these organizations must determine how
they canwork together as a single economic unit.
(j)
Henk
Kunnen, North City business owner, urged the Council to revise the road
configuration in front of his business on 15th Avenue NE. He said the current configuration, which
merges two lanes into one directly before a crosswalk, results in “road rage”
and would likely result in additional traffic accidents. He felt the two-lane configuration should
continue south beyond the pedestrian crosswalk.
(k)
Larry
Wheaton, representing Goldie’s Casino, said that raised medians on Aurora
Avenue, as well as the impacts of the construction itself, would have a very
detrimental effect on his business. He
noted that Goldie’s employs 160 people and it paid $750,000 in tax revenue to
Shoreline last year. He asserted that
50% of his patrons access his business by making a left turn, which would no
longer be possible under the proposed design for Aurora Avenue. He urged the Council to possibly consider
decreasing the tax burden or doing whatever else it can to help him stay in
business.
(l)
Mark
Deutsch, Shoreline, noted that a broad spectrum of stakeholders who
participated in both the Aurora Corridor and North City projects agreed that
these projects would result in more “walkable” communities. He said the Planning Commission recently
affirmed this idea by endorsing the Central Subarea Plan. He said it would be more appropriate to
submit Mr. Cottingham’s report to WSDOT, since it made the determination that
raised medians would improve vehicular and pedestrian safety on Aurora
Avenue. He expressed concern about
trying to adjust the project to meet the demands of those who are complaining
“at the last minute.” He said the City should address the people who support
Shoreline, not those who advertise their business as being part of
Seattle. He concluded that both
Shoreline and Seattle have implemented road reductions with good results.
6. APPROVAL OF THE AGENDA
Councilmember Ransom moved
to approve the agenda, taking the 2005 budget presentation and the North City
discussion immediately following the consent calendar. Councilmember Fimia seconded the motion,
which carried unanimously and the agenda was approved as amended.
7. CONSENT CALENDAR
Councilmember Gustafson moved approval of
the consent calendar. Councilmember
Ransom seconded the motion, which carried 7-0, and the following items were
approved:
Minutes of
Workshop Meeting of October 4, 2004
Minutes of Dinner
Meeting of October 11, 2004
Minutes of Regular
Meeting of October 11, 2004
Approval of expenses
and payroll for the period ending
October 8, 2004 in the
amount of $575,499.62
Temporary Encroachment
at N 152nd Street and Aurora
Avenue, Aurora
Corridor Improvement Project, N 145th
Street to N 165th
Street
8. ACTION ITEMS: OTHER ORDINANCES, RESOLUTIONS AND MOTIONS
(a) Presentation
of the 2005 Proposed Budget
Continuing, Mr. Burkett explained the various sources of the City’s funds and compared Shoreline to other King County cities in terms of property tax revenue. Shoreline’s revenue from property tax for 2005 is projected at $6.8 million, or 9 percent of the City’s total revenues (this includes a proposed 1 percent increase in the levy). Growth in sales tax revenue is projected at 3 percent for 2005.
(b) North
City Project
Mr.
Burkett explained that staff has done further analysis of options for North
City in response to the Council’s decision not to award the bid for North City
since the bids were higher than the engineer’s estimates. He noted that the options assume a four-lane
street configuration in the North City Business District (NCBD).
Councilmember
Fimia clarified that several Councilmembers favor the four-lane configuration
for the entire corridor and view the North City project as the work
encompassing the entire length of 15th Avenue NE.
Paul
Haines, Public Works Director, said his discussion of options in the North City
Business District would not preclude any other options for the remaining
corridor. He explained that the options
analyzed by staff consider the original vision that the North City Plan was
meant to achieve. This vision includes:
visually narrow roadways; calm traffic through the streetscape improvements;
buildings adjacent to the street; a sense of urban closure by placing parking
behind buildings; creation of a pedestrian shopping district; wider, more
contiguous sidewalks; buffered pedestrian zones with on-street parking and
street trees; opportunities for pedestrian crossings; and encouragement of
redevelopment of the area while preserving the privacy and safety of the adjacent
neighborhoods. The options presented
tonight reflect the fact that most of the opposition to the proposed project
relates to the change to three lanes.
These options proceed with the project in a four-lane alignment.
Continuing,
Mr. Haines outlined the advantages and disadvantages of the three options as
follows:
Councilmember
Fimia asked if Option 1 includes any major cost savings over the original
proposal. Mr. Haines said the potential
cost savings in Option 1 would be advertising the project in a favorable bid
climate. Mr. Burkett said if the
Council could agree on any of the scope reductions identified by staff, they
could be put into the design and then rebid to see what the new costs would be.
Councilmember
Ransom noted that staff identified “narrow lanes” in Option 1 as both an
advantage and disadvantage because it achieves the stated desire for a
four-lane configuration but reduces the width of individual travel lanes to
approximately 10 feet.
Mr.
Haines concurred, noting that while narrow travel lanes will achieve a “natural
calming” of the corridor, they would be more inconvenient for motorists turning
into business driveways. He said a
10-foot width is more conventional for an urban-level improvement in a higher
density business district, whereas wider lanes would be better suited for an
arterial. He clarified that the
three-lane configuration had 12-foot center lanes and 14-foot outside
lanes.
Councilmember
Grace clarified that he requested this item be placed on the agenda tonight
because of his desire to achieve a resolution before the Council’s time is
dominated by discussions on the budget and Comprehensive Plan.
Mayor
Hansen called for public comment.
(a) LaNita
Wacker, Shoreline, recommended Option 1, since it includes the most amenities,
can be implemented quickly, and would achieve environmental and economic
objectives. She said the project will
fulfill the environmental objectives of achieving mixed-use density as required
by the Growth Management Act, noting that underground utilities is critical to
mixed-use development. She said the
project is economic because thousands of people are depending on the
infrastructure improvements to water, gas, sewer, and telecommunications. She said not taking the advice of the
economic development coordinator is like “going to the doctor and not taking
the doctor’s advice.” She said the
staff proposal will meet the obligations made with utility companies and
deliver an environmental and economically sound project that will show what a
good neighborhood business district can be.
(b) Sally
Granger, Shoreline, urged the Council to vote for the project, noting that it
was put on hold because 700 people said they don’t want a two-lane road. She said the letters of opposition as
advertised in the Shoreline Enterprise only
reference the two-lane configuration.
(c) Rick Stephens, Shoreline business owner, said that local businesses are very unhappy with the City’s lack of understanding and inclusiveness. He said the City could resolve the North City project rather quickly if it met with the business community to work out the differences. He said the width of the sidewalks could be reduced in some places because the trenches connecting the ten-foot underground utility vaults are only four feet wide.
(c) Richard
Johnsen, Shoreline, described the current difficulty of negotiating traffic
using the left-turn lane in North City.
He surmised that if 15th Avenue were changed to a three-lane
configuration, it would likely create a “massive traffic jam.” He wondered if the narrow lanes described in
Option 1 would accommodate future Metro buses. He expressed a preference for a
combination of Option 1 and Option 2, but felt the City should take more time
to consider its options for the corridor.
He also suggested that the City conduct a peak-hour traffic study.
(d) John
Sims, owner of Frank Lumber, said he opposes the project because it has not
been done with the businesses in mind.
He said the Council has not been aware of the business or employment
situation in North City, and the process went forward without their input. He said North City is a “great area the way
it is now,” and that the proposed configuration will make businesses leave
North City. He said he would like the
City to “say no to this and walk away from it before it’s too late.” He concluded that he is moving part of his
business to Marysville.
Councilmember
Ransom asked Mr. Sims which aspect of the project he feels would do damage to
businesses in North City.
Mr.
Sims said the overall plan, including the conversion to the two-lane road, has
already done damage to businesses by keeping traffic from entering the business
area. He said he has lost one-quarter
of his business after 3:00 p.m. due to the lane reduction.
Councilmember
Fimia asked Mr. Sims if he or other business owners would object to extending
the sidewalks north and south on 15th Avenue (where there are
currently no sidewalks).
Mr.
Sims said the 1,500 letters submitted to the City reflect that people want
sidewalks around schools; they did not necessarily comment on the North City
project specifically. He said people do
not think the business district is a problem the way it is.
Councilmember Gustafson
moved Option 1 as proposed by staff.
Deputy Mayor Jepsen seconded the motion.
Mayor
Hansen felt the Council should have an open discussion and refrain from making
a decision on the project tonight.
Councilmember
Gustafson spoke in favor of the motion, noting that Option 1 would achieve the
City’s goals and benefit the adjacent neighborhoods and business community in a
variety of ways.
Councilmember
Grace said it is critical for him to understand the extent of collaboration
with utility companies as well as the costs of undergrounding. He asked staff to clarify whether the City
is defraying most of the cost when it should really be shared among the various
utilities.
Mr.
Haines explained that all the utility companies have programmed improvements
for the corridor because it is cost effective and convenient to coordinate with
an entity (Seattle City Light) that already plans to underground
utilities. He said the City can take
advantage of a single road closure and potentially the same contractors, and
the finished product would likely be higher in quality. He said the Shoreline Water District plans
to upgrade its system regardless of the City’s decision. He said the cost will show up in the City’s
contract, but Seattle City Light will reimburse the City for its costs,
including the repairs associated with their vaults and conduits. He said the City would probably have to pay
most of the costs to underground telecommunications lines.
Councilmember
Ransom said one of the key differences among the Councilmembers is the weight
to which they give the letters that were submitted. He commented on the 1,500 letters opposing the project, compared
to the 150 favoring it. He said he
received 140 personal phone calls against the project, versus 30 in favor of
it. He said a conventional formula for
determining public sentiment is multiplying the number of personal contacts by
ten, which would mean that approximately 1,400 people oppose the project while
only 300 support it. He felt this is a
clear and convincing indication that people do not want the project. He said he and other Councilmembers consider
such public input a “mandate,” but some Councilmembers discount this
input.
For
the sake of discussion, Councilmember Grace asked Councilmember Ransom which
elements he would support, and which he opposes. Councilmember Ransom said he could support sidewalks and
undergrounding.
Councilmember
Gustafson reiterated his support for Option 1, saying this is a great project
and it is important to act now. He then
left the Council table at 9:50 p.m.
Councilmember
Chang expressed concern about the safety and efficiency of the design, noting
the several accidents that have occurred.
He wondered if the design would jeopardize the City’s insurance status
or make it vulnerable to litigation. He
also asked if there have been attempts to reach out to the business community
to determine if a compromise is possible.
Ian
Sievers, City Attorney, said the City’s position is that the two-lane road with
center turn lane is a safer design than the existing configuration. Mr. Haines added that he would not propose a
design he felt might be flawed. He said
he would follow up with the Council if he feels that refinements or adjustments
are necessary.
Mr.
Haines stated that at this point it has been a technical exercise to develop
the options. The timeline would allow
working with businesses once the option is selected.
Councilmember
Chang expressed concerns about the cost of the overall project (145th
to 205th). He pointed out
that 87% of the Aurora Corridor project is funded by grants, but the North City
Project is funded entirely by the City at a cost of $9.2 million. Responding to Mayor Hansen, he said he would
support sidewalks, undergrounding, and street lights.
Councilmember
Fimia said she supports the stated goals of the subarea plan, which include the
creation of a pedestrian-friendly main street for the North City
community. She noted that although it
is easier to build new than to retrofit, she is confident the Council could
find a solution everyone could agree with.
She agreed with Councilmember Ransom regarding public sentiment, noting
that the Council should pay attention to the input that has been
expressed. She felt the project could
achieve the goal of safety while maintaining the functionality of 15th
Avenue NE as a major north-south corridor.
At
10:00 p.m., Councilmember Ransom moved to extend the meeting to 10:20 p.m. Councilmember Chang seconded the motion,
which carried 5-1, with Mayor Hansen dissenting.
Councilmember
Fimia suggested the design might require a fifth lane for turning in some
intersections. She felt it is unfair to
the rest of the City to spend $9 million in such a concentrated area when there
are so many other unmet needs, such as sidewalks. She said the City’s capital improvement plan proposes to only
build 3% of the City’s total sidewalk need over the next six years. She expressed strong support for sidewalks
as part of the North City project, noting her preference for as much sidewalk
construction along the corridor as possible.
She said to be consistent, the entire corridor should be a four-lane
configuration because the area is planned for more development and increased
density, which will require more capacity.
She then pointed out the differences between the redevelopment of Aurora
Avenue and 15th Avenue NE.
Aurora Avenue is being widened, but 15th Avenue is being
narrowed. Aurora Avenue will have
raised medians, but 15th Avenue will have a center, two-way left
turn lane. Aurora Avenue will include
bus lanes, but 15th Avenue will not. She felt the City should take a consistent approach to both
corridors.
Deputy
Mayor Jepsen responded that comparisons between Aurora Avenue and 15th
Avenue NE are erroneous because the traffic volumes are completely
different. He said the real dilemma is
deciding what should happen next and how to move the project forward. He said he supports the original three-lane
configuration because safety was one of the main reasons for doing the project. He said taking out the curb bulbouts, street
trees and other amenities means the project would no longer be worth the
investment. He said if the project does
move forward, it should be worthy of the investment and achieve the vision
outlined by this community for the past six years. He pointed out that the project included considerable community
input and business participation.
Councilmember
Grace wondered whether rebidding Option 1 could really guarantee any savings
other than those achieved through a more favorable bid climate.
Mr.
Haines said some items could be removed from the project to achieve incremental
savings in the tens of thousands of dollars.
However, it is unrealistic to think the project could be scaled back by
$1-2 million, because the construction is fairly straightforward and doesn’t include
“a lot of bells and whistles.” He
clarified that staff has not really addressed the issue of reducing costs other
than hitting the best bid window.
Responding
to Councilmember Grace, Mr. Haines said the estimated cost for undergrounding
utility lines is approximately $1.8 million.
Councilmember
Grace felt that a piecemeal deletion of amenities would do a disservice to the
project and not achieve significant cost savings. However, he felt the City might achieve substantial cost savings
from the scope reductions identified in the September 10 staff memo.
Mr.
Haines pointed out that staff provided another memo that not only listed cost
savings but included a proposal for achieving additional revenue via the
Surface Water Fund.
Mr.
Burkett noted that the September 10 memo identifies traffic signal alternatives
that could possibly yield $150,000-$300,000 in cost savings.
Councilmember
Fimia submitted the following proposals, from her September 27 memo:
Mr.
Burkett asked how staff will know when it has buy-in from the community.
Councilmember
Fimia said you know you have buyoff when there is 70% acceptance by the major stakeholders. She said the City is nowhere near that
margin yet.
Due
to the time, Mayor Hansen suggested that this item be continued to next week’s
agenda, along with other items on tonight’s agenda. There was Council consensus to move agenda items 9(a) and 9(b) to
the agenda for the November 1 meeting.
Councilmember
Ransom pointed out that the costs of the project have almost doubled since it
was first proposed. He said most people
cannot afford such exponential growth in their personal finances, and the City
cannot afford it either. He said if the
project moves forward, the City will spend 30% of the reserves it has
accumulated over the past nine years.
10. ADJOURNMENT
At 10:20 p.m., Mayor Hansen
declared the meeting adjourned.
_________________________
Sharon Mattioli, City Clerk