Almond Grove Streets Project Design DirectionCOUNCIL AGENDA REPORT
MEETING DATE: 03/03/15
ITEM NO: Li
DATE: FEBRUARY 19, 2015
TO: MAYOR AND TOWN COUNCIL
FROM: GREG LARSON, TOWN MANAGER
SUBJECT: ALMOND GROVE STREETS PROJECT DESIGN DIRECTION
STAFF RECOMMENDS THAT THE TOWN COUNCIL CONSIDER:
A. DIRECTING STAFF TO PREPARE BID DOCUMENTS FOR BOTH
CONCRETE RECONSTRUCTION AND ASPHALT PAVEMENT
OVERLAY
B. AUTHORIZING STAFF TO INCREASE THE SCOPE OF NICHOLS
CONSULTING ENGINEERS (NCE) AGREEMENT BY $19,000 TO
ALLOW A PROJECT TO BE BID FOR BOTH CONCRETE
RECONSTRUCTION AND ASPHALT PAVEMENT OVERLAY
C. PROVIDING OTHER DESIGN DIRECTION
RECOMMENDATION:
Staff recommends that the Town Council consider:
1. Directing staff to prepare bid documents for both concrete reconstruction and asphalt
pavement overlay.
2. Authorizing staff to increase the scope of Nichols Consulting Engineers (NCE) agreement
by $19,000 to allow a project to be bid for both concrete and asphalt pavement.
3. Providing other design direction.
BACKGROUND:
The Almond Grove Street Rehabilitation project will renew the streets, curb and gutter, and
sidewalks in the Almond Grove and Broadway historic districts. This project began with the
rehabilitation of asphalt streets in the area in 2013 with a rubber cape seal project (see Attachment
1 for a list of streets completed previously and concrete streets that are still pending).
The remainder of the project will provide for the rehabilitation of ten concrete streets in the
Almond Grove and Broadway Historic Districts. In addition to the concrete streets, the project
includes reconstruction of the curb, gutter, and sidewalk sections as well as driveway approaches
and accessibility ramps. The first phase for rehabilitation of the concrete street sections has
approximately $3,700,000 in funding and is scheduled to reconstruct Broadway Avenue and
Bachman Avenue in the summer of 2015 and Tait Avenue in the summer of 2016. The streets
within this phase were first discussed with the Town Council at the December 2, 2013 Town
PREPARED BY: MATT MORLEY 27.9A
Director of Parks and Pub is orks
Reviewed by: L— I Assistant Town Manager Town Attorney Finance
PAGE 2
MAYOR AND TOWN COUNCIL
SUBJECT: ALMOND GROVE STREETS PROJECT DESIGN DIRECTION
FEBRUARY 19, 2015
BACKGROUND (cont'd):
Council meeting. Staff anticipates that the current funding allocated will allow for rehabilitation
of Broadway Avenue and Bachman Avenue. Additional funds may be needed for the
construction of Tait Avenue, depending on the bidding climate. Funding for any additional
amount needed to reconstruct Tait Avenue and for the remaining seven streets has not yet been
identified.
At the December 17, 2012 Town Council meeting, staff provided an update to Council on
rehabilitation options for the project and requested that Council provide input to staff regarding
the project, including pavement material. Council instructed staff to hold discussions with the
community on the pavement choices for the rehabilitation of the streets.
At the December 2, 2013 Town Council meeting, Council authorized the Town Manager to
execute a consultant design services agreement with Nichols Consulting Engineers for the design
of the Almond Grove Rehabilitation Project in an amount not to exceed $298,500. In addition,
Council authorized staff to execute future change orders in the amount of $30,000.
DISCUSSION:
Staff has made a concerted effort to reach out to and involve the community on the Almond
Grove Street Rehabilitation project. In addition to four community meetings, staff has mailed
three community update reports. The Historic Preservation Committee (HPC) has been provided
with three project written updates, and a staff report was discussed at the January 28, 2015 HPC
meeting.
Due to resident comments regarding traffic speeds at the first community meeting in October
2013, staff created the first conceptual design which incorporated traffic calming elements,
including substantially narrowing streets, placement of traffic bulb -outs, and the installation of
raised pedestrian crossings at intersections. Staff presented this initial conceptual design
showing the traffic calming to residents in May of 2014 at a community meeting. Following this
meeting, residents were asked to provide feedback on the design through comment cards, e-
mails, and phone calls. Results of the responses from residents clearly showed that residents
were not in favor of the traffic calming options presented. Consequently, these design options
were removed from the conceptual design and a revised conceptual design was created.
This second conceptual design provided for a rehabilitation of the streets which stays relatively
true to the historic street widths. Exceptions are made for some minor widening of the park
strips to achieve the Town standard four foot width, which results in minor narrowing of some
street sections. Adequate park strip widths are important to retaining a substantial tree canopy,
another important element to the community. Trees need the extra space for proper root
structure and to minimize project damage to existing roots. This will also protect the Town's
substantial investment in the new street improvements by reducing future damage by roots to the
streets and sidewalks.
PAGE 3
MAYOR AND TOWN COUNCIL
SUBJECT: ALMOND GROVE STREETS PROJECT DESIGN DIRECTION
FEBRUARY 19, 2015
DISCUSSION (cont'd):
Hearing the importance of street width to the neighborhood, the concept design allows for no less
than a thirty-six foot wide street section. This provides two ten foot driving lanes and eight foot
wide parking lanes on both sides of the street, in addition to sidewalks and park strips. This
street width is common for residential neighborhoods in Los Gatos.
During the community engagement process, staff presented a discussion of both asphalt and
concrete pavement materials and the pros and cons of both. Town historic codes for the Almond
Grove and Broadway districts (Attachments 2 and 3) do not preclude the use of paving materials
other than concrete but do state if something other than concrete is used, the alternative should
be reviewed by the Historic Preservation Committee, and that the appearance of the streets
should retain the look of 1976 and 1992, respectively.
Staff is currently proposing two options, either a reconstruction in concrete as it exists or an
overlay of the existing concrete streets with asphalt. A brief summary of the pros and cons of
concrete and asphalt pavement are listed below:
Reconstruction with Concrete
• Pros: Longest lasting 40+ years, little future maintenance, cooler pavement.
• Cons: Higher initial cost, 5 to 7 day cure period, difficult to match color when cut and
replaced, more unforeseen costs when excavating subgrade, longer overall construction time
frame (meaning significant disruption to the neighborhoods).
Thick Overlay on top of Existing Concrete:
• Pros: Conventional pavement in California, least expensive, less construction time.
• Cons: Lasts 20 years before major rehabilitation is needed, requires routine maintenance
every 7 to 10 years, dark surface is hotter, cracking more likely to reflect up from concrete
requiring more frequent maintenance.
In addition to the pros and cons of concrete and asphalt, staff has provided information on the
cost for these paving materials. In general, the cost of the entire project would be approximately
20% more expensive if completed with concrete as compared to a thick asphalt overlay on top of
the existing concrete surface. Comparative costs for Bachman Avenue are provided (Attachment
4) as an example of cost differences between alternatives. Asphalt prices are directly correlated
to the price of oil and consequently vary with the fluctuation in oil prices. To determine the
exact cost differential between using concrete or asphalt pavement for the project, staff is
recommending bidding of the project for both pavement solutions. A discussion of other asphalt
colors is contained later in the report.
Following the presentation of the information on asphalt overlay and concrete pavement
materials, the neighborhood appeared split on the type of pavement materials desired for the
rehabilitation of the Almond Grove district streets. For informational purposes, staff mailed a
ballot to all property owners whose property fronted a street that is scheduled for rehabilitation,
PAGE 4
MAYOR AND TOWN COUNCIL
SUBJECT: ALMOND GROVE STREETS PROJECT DESIGN DIRECTION
FEBRUARY 19, 2015
DISCUSSION (cont'd):
either during the first phase or future phases of the project to ascertain the
neighborhood's preference regarding paving surface material. The results of the informational
ballot showed that approximately 60% of the residents favored concrete pavement and 40% of
residents favored asphalt.
Staff presented the information on the revised conceptual design and pavement material choices
to the Historic Preservation Committee on January 28, 2015. The Committee reviewed the
information presented and recommended that the project move forward with a material that has
the look of concrete pavement, but does not necessarily need to be concrete pavement.
During previous community meetings, residents had asked staff if it was possible to install
asphalt that looks like concrete. Staff responded in a community update letter that noted there
are two main ways to add color to asphalt. One is with a cementitious material that is applied to
the surface of the asphalt. This system colors the surface only, would be as or more costly than
concrete, and would be difficult to replace following utility cuts and repairs. The second method
is where color is mixed into the top layer of the asphalt. With this process, colors are limited to
reds and browns. Achieving a color similar to concrete would not be possible.
It should be noted that the color of black asphalt pavement will change over the years due to
oxidation Asphalt is black in color when it is first placed, but the exposure of asphalt pavement
to oxygen over time causes the asphalt to turn lighter black and eventually grey. This color
change can take many years to occur and is why asphalt is different colors in different locations
throughout the Town. In addition, staff maintains many of the asphalt streets around Town with
a slurry seal coating that contains a black aggregate. This causes some of the recently
maintained streets to appear very black in color, especially when adjacent to an asphalt street that
does not have this slurry seal coating.
Staff has recommended bidding the project for both concrete and asphalt overlay pavement.
Bidding of the project for both pavement types would be a change in the scope of work for the
project design engineers, Nichols Consulting Engineers (NCE). Staff has negotiated an increase
in design fees of $19,000 to change the plans and specifications to allow for this bid option.
ALTERNATIVE RECOMMENDATIONS:
Council could provide direction based on the following alternatives:
Alternative 1: Bid the project as a concrete replacement project without the comparative asphalt
overlay bid. This could be the direction based on the HPC and the neighborhood input as well as
the longevity provided by concrete streets. Staff has not recommended this alternative, as the
project cost information to be obtained from bidding the project with both options will be helpful
in the current and future phases.
PAGE 5
MAYOR AND TOWN COUNCIL
SUBJECT: ALMOND GROVE STREETS PROJECT DESIGN DIRECTION
FEBRUARY 19, 2015
ALTERNATIVE RECOMMENDATIONS (cont'd):
Alternative 2: Bid the project as an asphalt overlay only. This could be the direction based on
the expected costs savings and potential for the budgeted funds to allow for the paving of
additional streets in future phases. Staff has not recommended this alternative as the magnitude
of cost savings are unclear and because this option will require additional design, there is limited
downside to bidding both options.
CONCLUSION:
Staff recommends that the Town Council consider directing staff to prepare bid documents for
both concrete reconstruction and asphalt pavement overlay and authorizing staff to increase the
scope of the Nichols Consulting Engineer's agreement by $19,000, to allow for this change.
FISCAL IMPACT:
There are sufficient funds for this proposed expense, as shown in the fiscal table below.
Available
Budget
FY2014/15 Fiscal Impact Funding
411-811-0003 $ 3,912,583
TOTALS $ 3,912,583
Consultation Services
TOTALS
Attachments:
Expended/_
Encumbered
To Date
$ 204,098
$ 204,098
Proposed
Contract
Amount
$ 19,000
$ 19,000
�,Mn64 r:
$ 19,000
$ 19,000
1. List of Streets
2. Ordinance 2165 Almond Grove Historic District
3. Ordinance 2166 Broadway Historic District
4. Comparison of Bachman Ave costs between asphalt and concrete
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Streets
1. Broadway
2. Bachman Avenue
3. Tait Avenue
4. Almendra Avenue
5. Bayview Avenue
6. Bean Avenue
7. Glen Ridge Avenue
8. Massol Avenue
9. Nicholson Avenue
10. Wilder Avenue
Almond Grove Reconstruction Project
Tentative Construction
Summer 2015
Summer 2015
Summer 2016
TBD
TBD
TBD
TBD
TBD
TBD
TBD
FY 2012-13 Annual Street Resurfacing Project
Streets
1. Pennsylvania Avenue
2. Wadsworth Avenue
3. Fairview Avenue
4. Fairview Plaza
5. Peralta Avenue
6. Palm Avenue
7. Walnut Avenue
Treatment Type
Cape Seal
Cape Seal
Cape Seal
Cape Seal
Cape Seal
Cape Seal
Cape Seal
FY 2011-2012 Annual Street Resurfacing Project
Streets
1. Hernandez Avenue
2. Wissahickon Avenue
3. Laurel Avenue
4. Overlook Road
5. Madrone Avenue
6. Chestnut Street
7. Wadsworth Avenue
8. Ellenwood Avenue
9. Alexander Avenue
10. Bachman Avenue (Glen Ridge Avenue to
N. Santa Cruz (PCC))
11. Belmont Avenue
12. Apricot Lane
Treatment Type
Cape Seal
Cape Seal
Cape Seal
Cape Seal
Cape Seal
Cape Seal
Cape Seal
Cape Seal
Cape Seal
Cape Seal
Slurry Seal
Slurry Seal
ATTACHMENT 1
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ORDINANCE 2165
ORDINANCE OF THF. TOWN OF LOS GATOS
AMENDING ORDINANCE NO. 1919 RELATING TO
ZONE CHANGE NO. 86 (ALMOND GROVE HISTORIC DISTRICT)
The Town Council of the Town of Los Gatos does hereby ordain:
SECTION I
The district delineated on the attached map is hereby designated historically and culturally
Significant as the Almond Grove Historic District HD-80-1A:
SECTION II
The district is designated to be historically, architecturally, or aesthetically significant for •
the reasons listed below:
A. Property: Almond Grove District. Boundaries: Bean to the south, Glen Ridge
Avenue to the west, to but not including the lots facing Saratoga Avenue to the
North, and to but not including the lots facing North Santa Cruz Avenue to the east
(see map Exhibit A).
B. Historic designation no.: HD-80-1A
C. Description of designation: District
D. Description of characteristics which justify the designation:
Historical: The Almond Grove addition was the first and largest subdivision after
the incorporation of the Town of Los Gatos. Of approximately 40 acres, the
historic tract was the last land, formerly an almond orchard as its name suggests, of
1621/4 acres bought in 1865 by John Mason from Edward Auzerais, an important
landowner in Santa Clara County after whom Auzerais Street in San Jose and
Auzerais Court in Los Gatos was named.
The purchasers and developers of Almond Grove were four very important figures
of Los Gatos history and honored by street names still used in the area. They were
Alphonse Eli Wilder, banker; Augustine Nicholson, capitalist; Magnus Tait, farmer
and miner; and John Bean, orchardist.
ATTACHMENT 2
Many important contributors to the development of the Town lived in the Almond
Grove area. L.E. Hamilton, secretary of the Odd Fellows and director of the 1889
Los Gatos Cemetery Association, built his own house at 139 Wilder (which is still '
owned and occupied by his daughter). In addition, he also did extensive carpentry
Work for Mrs. Winchester of the famous Winchester House in San Jose. The
house at 115 Wilder was owned by Clarence Lydon, nephew of town pioneer John
Lyndon. E.N. Davis, head trustee (mayor) on the board of trustees, 18980-1902,
lived at 131 Tait. The Magnus Tait home is 231 Tait. 129 Tait was the home of
E.E. Place and birthplace of George Place, owner of Place Mortuary housed in the
Coggeshall Mansion (a Town historic landmark now the site of the Chart House).
328 Bachman is the "Massol" house. Fenilen Massol was Los Gatos mayor, 1894-
97. 354 Bachman was the home of George McMurty, who as a youth helped haul
stones to build Forbes Mill Annex and later became the first treasurer of
incorporated Los Gatos, a post he held for over 40 years. 216 Glen Ridge was the
home of W.H.B. Trantham, who in 1885 became the first owner of the Los Gatos
News after its founder temporarily retired. Trantham owner the News (later the '
Mail -News) until 1976. The Mail -News remained in existence until 1953. 200
Glen Ridge was at one time the home of Raymond J. Fisher, educator, after whom
Fisher school is named. John Bean started a business right in Almond Grove that
evolved into a local family dynasty's multi -national corporation, Food Machinery
Corporation. Plagued by San Jose scale on his orchard trees, he developed an
improved chemical spray pump, a significant development in an era of tremendous
fruit growing in Santa Clara Valley. Bean gave his son-in-law, David C.
Crummey, a share in the business. Historical evidence indicated that Crummey
lived in the house on the corner of Bean and Santa Cruz Avenues, 212 Bean
Avenue, until the business prospered and he built the elaborate mansion at 33 Glen
Ridge Avenue. D.C.'s son, John Crummey, further improved the pump and
expanded the Almond Grove headquartered business. (In Horatio Algier tradition,
he enterprisingly rode a bicycle up and down the Sacramento Valley and lined up '
enough order to keep the company in business for years.) Under Crummey, the
Bean Spray Pump Company became F.M.C. (still retaining a division entitled Bean
Spray Pump Company). Under John Crummey's son-in-law, Paul Davies, F.M.C.
became an international corporation, and a member of his family still serves on the
board of directors.
Architectural: The predominance of Victorian architecture, including informal
Wood frame cottages and impressive homes, intermixed with bungalow -style
cottages Colonial Revival and Mission Revival homes built somewhat later reflect
the history and development of the district. Individual architectural distinction is '
not the important factor in an historic district but the neighborhood entity created
The Almond Grove area is unique in that of the 78 pre-1895 houses built here, 64
or about 82% still grace the streets. In addition, 22 houses built between 1895 and
1908, 31 houses built between 1908 and 1916 and another 30 houses built between
1917 and 1930 still exist. The 1989 earthquake significantly damaged two houses
built prior to the 1900's and one built in the 1920's which were demolished. A
total of 180 structures now line the streets within the boundaries of the district, 147
or 82% of those structures were built by 1930. The streetscapes remain basically
unchanged. Lending the district a special old-time feeling, that for many symbolize
old Los Gatos and represents an important part of the Town's heritage.
Sources: Robert E. Lee, supported by Sanborn maps, Town of Los Gatos and Santa
Clara County tax records; and History of Los Gatos by George Bruntz.
E. Listed below are Town features recommended for preservation. Review by the
Historic Preservation Committee is required for any changes to these features.
1. Roads are concrete and should be repaired to maintain appearance as of the
year 1976.
2. Date stamp in concrete sidewalks.
SECTION 1II
This Ordinance was introduced at a regular meeting of the Town Council of the Town of Los
Gatos on October 6, 2008, and adopted by the following vote as an ordinance of the Town of Los
Gatos at a meeting of the Town Council of the Town of Los Gatos on October 20, 2008. This
ordinance takes effect 30 days after it is adopted.
COUNCIL MEMBERS:
AYES: Steve Glickman, Diane McNutt, Joe Pirzynski, Mike Wasserman and Mayor
Barbara Spector.
NAYS:
ABSENT:
ABSTAIN:
SIGNED:
s/Barbara Spector
MAYOR OF THE TOWN OF LOS GATOS
LOS GATOS, CALIFORNIA
ATTEST:
s/Jackie Rose
CLERK OF THE TOWN OF LOS GATOS
LOS GATOS, CALIFORNIA
TOWN OF LOS GATOS
Almond Grove Historic District Boundaries
As Established by Ordinance 1463 on April 7, 1980
ffiIBIT A
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ORDINANCE 2166
ORDINANCE OF THE TOWN OF LOS GATOS
AMENDING ORDINANCE NO. 1921 RELATING TO ZONE CHANGE NO. 87
(BROADWAY HISTORIC DISTRICT)
The Town Council of the Town of Los Gatos does hereby ordain:
SECTION I
The district delineated on the attached map is hereby designated historically and culturally
significant as the Broadway Historic District HD-84-2A,
SECTION II
The district is designated to be historically, architecturally, or aesthetically significant for
the reasons listed below:
A. Property: Broadway Historic District. Properties located generally south of West
Main Street and west of South Santa Cruz Avenue. (see map Exhibit A).
B. Historic designation no.: HD-84-2A
C. Description of designation: District
D. Description of characteristics which justify the designation:
Historical: The Broadway was the first residential subdivision and Broadway was
the first residential street in the Town of Los Gatos. A 100-acre tract of land
including what is now the Broadway area was purchased by a Henry D. McCobb in
1863. McCobb planned to subdivide the land into city lots and name the new city
CobbsviUe. The land was ultimately sold to ex -Vermonter John W. Lyndon, one of
the most well-known in early Los Gatos history, and it was Lyndon who on
September 24, 1881, subdivided the area into 48 lots, selling for $125 and up. On
January 5, 1883, Broadway was opened up to access the Lyndon subdivision.
Broadway was the first plotted street in Los Gatos. Scattered houses and
businesses such as Forbes Mill preceded Broadway, but this subdivision marked
the beginnings of a formally laid -out Town.
In addition to founding Broadway, John Lyndon, one of the original Town Trustees
(equivalent to Town Councilmen), was a stockholder in the new Los Gatos Fruit
Packing Co., organized a gas company, started a bank, built a new hotel (Ten Mile
House, predecessor to the Lyndon Hotel) and deeded the land for the Southern
Pacific Coast Railway depot where the post office now stands.
ATTACHMENT 3
Among the first land purchasers was William L. Lingley, once a sailor from Maine,
who bought the Lyndon "Subdivision A" for $600 in gold coin in September,
1881. Part of the original Lingley home still stands near what are now the
apartments at 350 W. Main Street. The creek running through that area and #1
Bayview (original location of the Victorian Abbey Inn) is called Lingley Creek.
The historic John W. Lyndon home, which later became the Farwell home, was a
Victorian mansion at 55 Broadway. John's brother built a stately two-story
residence at the southwest comer of Broadway and S. Santa Cruz Avenue when
Boardway was still a dirt road. The cottages built in 1887 for Mr. Thomas
Hayselden still stand. Clifton Avenue was once called Hayselden Avenue.
Among memorable people who have dwelt on Broadway was Marion Mace
Lyndon, second wife of John Lyndon. Her mother was a minor poet and friend of .
Longfellow. The Mace home still stands on Clifton Avenue.
According to neighbors, the present Bruce Berryman residence at 89 Broadway as
once rented by writer Jack London's first wife.
Architectural: The proposed district contains approximately 51 structures, many of
which were built before 1900 and are significant both historically and
architecturally. A. variety of architectural styles are represented in the area,
including Victoria, Craftsman/Bungalow, Colonial Revival and one Norman
French. The Norman French is unique not only to district, but to that era of the
Town. Although it is not as old as many of the other houses, it was designed by
Henry Crall whose family has been in Los Gatos since the late nineteenth century.
The house was originally an exact replica of a house Mr. Crall had seen in
Normandy, France. The exterior remains unchanged.
The structure located on the corner of Tait and Main Street was the first fire house •
-built in Los Gatos for that specific purpose. It was constructed in 1927 with funds
raised through a bond issue and housed a 750-gallon American LaFrance pumper.
The building now houses the Los Gatos Museum.
One of the architectural gems of the area, the Waterman House built in 1883.at 45
Broadway, is a superb and excellently preserved example of Victorian Italianate
style.
Taken together, the homes in the Broadway and Main Street area offer a diverse
and irreplaceable sample of architectural styles, including some of Los Gatos'
oldest and most distinctive buildings.
Sources: Mary Durham, William Wulf, Los Gatos Weekly of May 18, 1984.
E. Listed below are Town features recommended for preservation. Review by the
Historic Preservation Committee is required for any changes to these features.
1. Roads are concrete and should be repaired to maintain appearance as of the
year 1992.
2. Date stamp in concrete sidewalks.
SECTION III
This Ordinance was introduced at a regular meeting of the Town Council of the Town of Los
Gatos on October 6, 2008, and adopted by the following vote as an ordinance of the Town of Los
Gatos at a meeting of the Town Council of the Town of Los Gatos on October 20, 2008. This
ordinance takes effect 30 days after it is adopted.
COUNCIL MEMBERS:
AYES: Steve Glickman, Diane McNutt, Joe Pirzynski, Mike Wasserman and Mayor
Barbara Spector.
NAYS:
ABSENT:
ABSTAIN:
SIGNED:
sBarbara Spector
MAYOR OF THE TOWN OF LOS GATOS
LOS GATOS, CALIFORNIA
ATTEST:
s/Jackie Rose
CLERK OF THE TOWN OF LOS GATOS
LOS GATOS, CALIFORNIA
TOWN OF LOS GATOS
Broadway Historic District Boundaries
As Established by Ordinance 1648 on.April 8, 1985
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