SR-400-009 (16)
F:\plan\admin\land use & zoning\contrct.doc
Council Meeting: July 13, 2004
Ie.,
JUL 1 3 2004
Santa Monica, California
TO: Mayor and City Council
FROM: City Staff
SUBJECT: Award of Professional Service Contract to Prepare a Comprehensive
Update to the Land Use Element of the General Plan and to the Zoning
Ordinance; Documentation of the Circulation Element Update; and
Preparation of a Comprehensive Environmental Impact Report
INTRODUCTION
This report requests that the City Council authorize the City Manager to negotiate an
agreement with Dyett & Bhatia for professional services to prepare a comprehensive
update to the Land Use Element of the General Plan and to the Zoning Ordinance;
document the Circulation Element update; and prepare a comprehensive Environmental
Impact Report for an amount not-to-exceed $1,648,830, including a 15% contingency to
cover an option of preparing a new traffic model, additional outreach if necessary, and
unforeseen issues that may come up over a two year period.
BACKGROUND
The last comprehensive development of the Land Use Element of the General Plan took
place in the early 1980's with adoption in 1984. Subsequent revisions were made in
1987, 1993 and 1998. The proposed update will be comprehensive in scope, framing
the City's land-use and urban design vision for the next 20 to 25 years and articulating
its objectives and policies to guide the City into the future. It will incorporate
fundamentals of sustainability, livability, and smart growth with a special focus on Santa
Monica's unique commercial and residential areas, and areas of transition.
Development of the update will involve broad public participation in creating the vision.
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JUL I 3 2004
The Land Use update effort will be accompanied by a corresponding comprehensive
rewrite of the Zoning Ordinance to create a clear, accessible and easily administered
document. The Zoning Ordinance update will be expansive and address related
elements of the City's Municipal Code "Article 9 - Planning and Zoning." The
consultant scope of work calls for development of an electronic version that will be web
friendly. The scope also calls for the development of helpful illustrations and graphics,
as well as easily referenced charts and matrices.
City staff is proceeding with a comprehensive update to the Circulation Element of the
General Plan. This consultant team will have the role of mapping and analyzing survey
data collected during the Circulation Element community outreach process. The
consultant will also incorporate the analysis and recommendations of the update
process into a draft and final document containing the objectives, policies, graphics and
other materials developed.
The Consultant will prepare one Environmental Impact Report that will cover the Land
Use Element, the Circulation Elements and the Zoning Ordinance. The EIR will meet
State and City of Santa Monica CEQA requirements.
DISCUSSION
Procurement Process:
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A Request for Proposals (RFP) was sent to approximately forty consultants. Proposals
from three comprehensive teams of consultants and sub-consultants were submitted to.
the City in response to the RFP. A selection committee, comprised of eight City staff
representing three City departments (PCD, EPWM and CCS) and the City Manager's
Office, evaluated the proposals based on criteria stated in the RFP, including:
experience in preparing similar projects; proposed approach, tasks and methodology to
be used in providing the required services, including comprehensive computer-based
graphics; qualifications, experience and availability of key personnel; appropriate
distribution of responsibilities within the project team; record of successful relationships
with other public and corporate clients; ability to complete the scope of work within an
expedited project schedule; and reasonableness of proposed fee schedule in relation to
proposed work plan. All three teams were invited for interviews. The proposed teams
and their respective budgets were as follows:
. Cotton/Bridges/Associates & Moore lacofano Goltsman, Inc. (MIG) (with Urban
Studio; Kyser Marston Associates; and Kaku Associates): $1.6 million plus
options
. Crawford, Multari & Clark Associates; Design, Community & Environment; and
Moule & Polyzoides (with Strategic Economics; PCR Services Corporation; RBF
Consulting; Stanley R. Hoffman Associates; and Kaku Associates): $1.1 million
plus options
. Dyett & Bhatia (with EIP Associates; Hamilton, Rabinovitz & Alschuler; Moore
Rubell & Yudell; Kendall Planning & Design; Historic Resources Group; and
Kaku Associates): $1.3 million plus options
Although the decision was difficult because all the teams were well qualified, the Dyett &
Bhatia team was selected as the top ranked firm based on the criteria listed above. The
management structure under one firm provides assurance of consistency and
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continuity. The firm has demonstrated strong capability to provide high quality graphics,
3-dimensional modeling and web-based documents that can be effective tools for
explaining concepts and illustrating alternatives to both policy makers and the
community at large. Sample graphics are provided as Attachment A. The prime
consultant offers extensive land use and zoning experience in arenas both national and
statewide. The sub-consultants offer valuable local knowledge and presence.
Dyett & Bhatia has worked with cities that are essentially built-out, such as downtown
Chicago and downtown Sacramento, demonstrating sensitivity to in-fill issues, while
also having extensive smart growth experience. In 2003 the firm completed a voter-
mandated Smart Growth General Plan for the City of San Ramon, which met with
overwhelming community acceptance. The firm recently completed new zoning code to
implement Palm Beach County's smart growth plan. Currently, the firm is leading the
San Diego Downtown Plan, one of the largest urban planning efforts underway on the
West Coast and is focused on neighborhood livability. D&B has prepared regulations to
promote transit, including the Model Regulations for Transit prepared for Portland's Tri-
Met.
Examples of their work can be found at the following websites:
San Diego Downtown Community Plan Update: The site illustrates the teams ability
to provide a comprehensive web site and extensive land use modeling:
www.ccdc.com/planupdate
4
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. Palm Beach County Uniform Development Code: provides an example of
interactive code and the use of graphics and tables in zoning code. Click on
"Interactive Code" and review Article 3 "Overlays & Zoning Districts: Chapter F -
Traditional Development Districts"; Article 7 "Landscape and Buffering" and Article 8
"Signs," that were developed by this team:
www.co.palm-beach.fl.us/pzb/new/zoninq/newzoninq
. City of Concord Zoning Ordinance Update: another example of a comprehensive
web site and materials produced:
www.citvofconcord.orq/abouUzoninqupdate
Public Participation:
The RFP did not identify a specific public participation process to guide the preparation
of the Land Use Element and Zoning Ordinance updates. Rather, prospective
consultants were encouraged to propose an outreach process that would maximize
opportunities for public input, ensure transparency in the process and provide
opportunities for Council and Planning Commission consideration throughout the'
conceptualization and preparation stages of plan development. Concepts will be
provided to Planning Commissions and Council for comment and generally anticipate
joint Planning Commission/City Council Meetings at key points in the process, including
an initial session to launch the project. A variety of means to maximize opportunities for
a wide range public input, as described in their draft Public Participation Program scope
of work is in Attachment B. Proposed components include: newsletters, a inter-active
web-site and surveys; a statistically accurate phone survey; community-wide workshops,
5
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including a community vision fair; a "road-show" of materials that will be available at a
wide range of ongoing community meetings and events; focus groups; intercept surveys;
and a youth oriented program.
Next Steps and Schedule:
The initial steps of the update process are expected to begin in September with an
intensive two-year process to result in the final EIR, adopted Land Use Element,
Circulation Element and Zoning Ordinance.
BUDGET/FINANCIAL IMPACT
A significant budget is required for an extensive update of this nature that addresses
City-wide land use issues in a comprehensive manner, covering a 20-25 year time
horizon, and provides a thorough analysis and reshaping of the zoning code. In
addition to the enormous analytical effort, the process will include an extensive
multifaceted public participation component; labor-intensive GIS-based mapping;
incorporation of numerous graphic illustrations; and web-based interactive features, all
of which are costly components. Funds will be saved through the preparation of one
program-level environmental review document that incorporates the Land
Use/Circulation Elements and Zoning Ordinance, as compared to preparing individual
documents for each component. The project also incorporates Planning Division
priorities that would have been accomplished individually and will now be merged into
the comprehensive update.
6
This effort also provides an opportunity to develop a new travel-demand model that can
better address mode-shifts and other longer term forecasting issues. The decision to
proceed with a new model will depend on whether it can be developed and refined on a
timely basis and in a manner that will be applicable to future projects. The development
of a travel demand model is included as contingency and will be used if it is determined
that it is feasible to develop and implement the model within the necessary time frame.
The contingency is also intended to cover any additional public outreach and to address
unanticipated issues that may come up over the next two years.
Budget:
Contract amount
Contingency
Total Budget
$1,398,830
250,000
$1,648,830
Sources of Funds: An appropriation of $1,648,830 is needed at account number
#P010880.589000. Sufficient funds have been identified in the fund balance from
FY2003/04 year-end savings.
RECOMMENDATION
It is recommended that City Council authorize the City Manager to negotiate and
execute a professional services contract with Dyett & Bhatia in an amount not to exceed
$1,648,830 for a comprehensive update of the Land Use Element and the Zoning
Ordinance; documentation of the Circulation Element Update and Preparation of an
Environmental Impact Report and appropriate funds as described above.
7
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Attachment A: Sample Dyett & Bhatia Graphics
Attachment B: Draft Public Participation Program Scope of Work
Prepared by: Suzanne Frick, Director
Ellen Gelbard, Deputy Director for Special Projects
Andrew Agle, Assistant Director
Amanda Schachter, Planning Manager
Lucy Dyke, Transportation Planning Manager
Planning and Community Development Department
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ATTACHMENT A-1
CARMEL BY-THE-SEA UPDATE OF THE ZONING ORDINANCE
& LOCAL COASTAL PROGRAM IMPLEMENTATION PLAN
City of Carmel by-the-Sea, California; 2004
MEASURING BUILDING HEIGHT
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Height is measured using plumb vertical distances between existing or finished grade
(whichever is most restrictive) and the highest projection on the building.
Mansard Raof
Flat Roof
MAXIMUM SITE COVERAGE
A single walkway (maximum 3 ft wide) and a single driveway (maximum 9 ft wide
and 500 square feet in area) are exempt from the site caverage.
WINDOW TYPES
Oriel Window
Pitched or Hipped Roof
Dyett and Bhatia was retained by the City
of Carmel-by-the-Sea to revise, simplify,
and update work already done by a
consultant on the City s zoning/Local
Coastal Implementation Program.
The City wanted additional review of the
code for consistency with the General
Plan/Local Coastal Plan, streamlining and
simplification of regulations and standards,
and new provisions on limited/capped
uses, lot line adjustments and the California
Environmental Quality Act (CEQA). This.
update involves extensive revision and
reorganization of the code, and the
inclusion of updated zoning graphics and
diagrams to illustrate standards.
MEASURING FENCE AND WALL HEIGHTS
lIT
~ Window
HeiJht shall be
measured from the
most restrictive of
the existing 01" flJlal
ande.
Pillor
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Existing Grade
AMI Grade
DYETT & BHATIA
Urban and Regional Planners
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DYETT & BHATIA
Urban and Regional Planners
Santa Monica: Land Use Element and Zoning Ordinance Update
ATTACHMENT B
Draft Public Participation Program
This is a draft of the Public Participation Program for the Land Use Element/Zoning Ordinance
update; the program will be finalized after decision-maker discussion, as part of Task 1 of the
Scope of Work.
The update to the Land Use Element and the Zoning Ordinance offers an opportunity to
define a positive and proactive vision for Santa Monica that will guide many future planning
decisions. The challenge will be to reach out and engage the attention, interest, and active
involvement of a broad representation of Santa Monica's interests. To ensure inclusion
within the practical limits of time and budget, a mix of techniques is proposed that will
provide opportunities for the entire city to be educated about and provide input for the
planning process, as well as provide feedback for decision-making that reflects broad
community viewpoint.
This program will move out of City Hall and will engage individuals, organizations and
groups, communicate using imagery and graphic tools to facilitate understanding of
planning concepts and policies, employ methodologies that foster effective input and assure
participants that their voices have been heard, and build a constituency for the Plan's
policies and programs. In particular, the public involvement program will address the need
to develop an outreach program that speaks to and engages participants of diverse
backgrounds, educational levels, and interests, and one that provides objective feedback
from a broad spectrum of the community, not just self-selected individuals.
OBJECTIVES
An effective public participation program should create confidence in the planning process,
ensure that Plan policies have broad-based understanding and support, and reflect the
interests and needs of the community. Successful Plan-making requires a collaborative
relationship between the general public, community representatives, decision-makers and
the planning team (city and consultant staff).
Because of the wide-ranging impacts of the Land Use Element and Zoning Ordinance, it is
particularly important to facilitate a broad range of public participation. The process should
allow input from all, reach out to those often under-represented in the decision-making
process, and provide feedback representative of the community at large. Thus, Santa
Monica's Land Use Element and Zoning Update public participation program is designed to
fulfill four broad purposes:
1. Educate the public about the purposes of the Land Use Element and Zoning Update,
its physical, economic, and social implications, its process, and how the public can
be involved.
2. Inform the public about planning issues, and critical trends that may affect the
City's future.
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DYETT & BHATIA
Urban and Regional Planners
Santa Monica: Land Use Element and Zoning Ordinance Update
DRAFT Public Participation Program
3. Provide opportunities for the vigorous discussion of and effective input regarding
issues, visions, planning principles, growth and development scenarios, Plan policies
and programs, and comments on the Environmental Impact Report.
4. Achieve public ownership of the recommended updated Land Use Element and
Zoning Ordinance.
The public participation process should provide a means of expression to established groups
that are comfortable with the political process and individuals and groups who do not
normally participate in traditional decision-making processes. It should also serve as an
educational forum, providing an understanding of the inter-relationship between Plan
issues, and their implications for City residents and businesses. The success of this planning
effort will depend in large measure on how well it takes into account the public's views
about growth and conservation issues, and how well it addresses those issues identified as
most critical to the future of the community.
Decision-Maker Involvement
The Planning Commission and the City Council will be involved at all key decision points
to provide policy direction for subsequent steps. Thus, at key points in the process,
including discussion of the Planning Alternatives and the Preferred Plan, the Scope of Work
includes joint Study Sessions of the Council and the Commission to obtain policy direction.
PROGRAM COMPONENTS
Finalized Public Participation Program
Following feedback on the Draft Public Participation Program from the Planning
Commission and the City Council at initial study sessions, the Public Participation Program
will be finalized. Opportunities for community members to participate in the process will be
announced on the project website and in the first newsletter.
Project Image
An identifiable and representative image of the project will be created to generate interest
and involvement in the Zoning Update and Land Use Element Update. A logo can impart a
unified look to outreach materials, meeting and workshop graphics, and publications,
enabling more effective, sustained communication with the community. This project
"branding" could be implemented in conjunction with a targeted informational campaign.
Interactive Web Site
A Land Use Element and Zoning Update website, hosted on the City's website, will be
developed and regularly updated throughout the Update process. The site will provide
information about the purposes of the planning process and project progress; workshops;
access to meeting materials, reports, and graphics on-line; and responses to surveys and
other information gathering forums. The site will also act as a record of the process,
providing meeting dates, agendas and meeting notes in a central, accessible location. Project
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DYETT & BHATIA
Urban ~nd Regional Pl~nners
Santa Monica: Land Use Element and Zoning Ordinance Update
DRAFT Public Participation Program
memorandum and milestone documents will be uploaded to the project website to be
accessed by interested citizens.
Sign-up opportunities to be on the Update e-mail list will be provided, and periodic mailers
will be sent to those on the list to inform them of availability of new reports, participation
opportunities, etc.
Newsletters
A newsletter is an excellent vehicle for informing the public about the update process,
describing how they as citizens can participate and presenting schedules, information about
community workshops, key issues, plan alternatives, and policy recommendations. The
newsletters will emphasize graphics, photos, and illustrations in order to be eye-catching
and make the planning concepts easily understood. This project could develop a stand-
alone newsletter or insert it into the Seascape Newsletter published six times a year by the
city.
Newsletters will be developed at three key points in the process:
. Newsletter #1: Issues and Visioning. The update process will be announced and
invitation to participate in a workshop and/or citywide online survey extended.
. Newsletter #2: Alternatives. Alternatives plans will be depicted visually and in text.
Invitation to participate in community workshop and/or online survey will be
extended.
. Newsletter #3: Draft Land Use Element/Zoning Ordinance. This will provide key
ideas from the drafts and announce the hearing process.
"Discover Santa Monica" GuidebooklDriving/Walking Tours
A guide book will be prepared to enable participants to observe and record their comments
about key assets and issues that will help frame the discussion of the City's vision and land
use implementation strategies. The guidebook could be structured by district (Downtown,
Airport and Mid-Wilshire, etc.) or theme (urban design, housing, business districts, etc.) so
that a series would be produced. The guidebook will also further the community's
understanding of issues and land use concepts.
The guidebook would contain one or more maps and photographs that identify the
locations to be observed; questions regarding the site's positive and negative attributes,
issues, and opportunities for the future; ideas for implementation strategies; and blank
space for the recording of comments. The guidebook would be used by:
. City staff from various departments to provide structured feedback;
. Residents and merchants, who could get copies from City Hall, local parks, schools,
and other public venues, and/or local businesses, conduct a self-guided tour, and
mail copies to City Hall or drop them off at key locations.
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DYETT Be BHATIA
Urban and Relional Planners
Santa Monica: Land Use Element and Zoning Ordinance Update
DRAFT Public Participation Program
Results would be documented for use in subsequent public involvement events and
consultant work products, including analysis of opportunities and challenges. This type of
approach has been used successfully in past City planning processes for Santa Monica Pier
(1981), Palisades Park (late 1990s) and the City's 1997 Open Space Element update.
Community Surveys
Surveys are a great tool to enable people to provide direct input and for the planning team
and decision-makers to receive feedback on specific issues and proposals. Four surveys are
proposed:
1. Issues / Internet-based; Entire City. A postcard (perhaps with Newsletter #1) will be
mailed to every address in the City inviting participation in an internet-based survey
on key planning issues and concerns. Mechanisms would be built in (through a
unique identifier on each mailout) to prevent more than two responses from one
address. Participants will be able to use computers anywhere, including local
libraries, if they do not have other access to the Internet.
2. Random Phone Survey. A IS-minute length random phone survey with 600
completed responses will be prepared as part of assessment of issues and concerns. It
will be offered in English and Spanish. The survey population will be matched with
Santa Monica's demographic profile, and statistically valid results provided. Results
will also be stratified by sub-population.
3. Alternatives / Internet Based; Entire City. Sketch plan alternatives will be posted on
the Internet, and an interactive questionnaire provided to get feedback. Invitations
for this will be sent out as part of the newsletter on alternatives. (also through a
unique ID).
4. Intercept Survey. Intercept surveys will help glean input from workers and visitors, as
well as residents in specific demographic segments (for example, people in their
20s), who may not otherwise participate. One intercept survey, held probably at the
Sketch Plans or Preferred Plan stage, is proposed.
Motion by the Ocean Survey Compilation and Analysis
As part of the Motion by the Ocean survey, a variety of quantitative/tabular, geographic-
such as routes, starting points, and destinations-as well as qualitative data that describes
people's transportation experiences is being collected. The survey forms will be compiled in
a Geographic Information Systems (GIS) database to provide an organized and efficient way
to display, query, and analyze this information.
To create a GIS, the geographic information will be digitized using existing street centerline
data, creating new locations as needed. Qualitative data will be entered into a table, and
linked with the GIS files data using a unique identifier for each survey respondent. Once all
of the survey responses are collected and digitized, the data will be aggregated to display
patterns in residents' transportation habits, such a frequently-traveled routes, popular
destinations, or areas that are widely viewed as difficult places to travel. Survey information
in the GIS will be queryable by a variety of methods, including location, respondent
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DYETT & BHATIA
Urban and Regional Planners
Santa Monica: Land Use Element and Zoning Ordinance Update
DRAFT Public Participation Program
information, or mode of transportation. This will provide for flexible and dynamic analysis
of the many types of data collected by this survey.
Community Workshops
Community workshops will provide forums for education and brainstorming in interactive
settings. Workshops will be structured as events and use innovative participation techniques
that engage the interest, maximize opportunities for input, and send a message that the
input has been heard and considered in the planning process. Small-group facilitated
tabletop discussions will be preceded by an open house and introductory presentation.
Tabletop facilitation will be conducted jointly by consultant and city staff. A training session
on public meeting facilitation techniques will be conducted by the consultants, including
discussion of group dynamics and addressing challenging group members.
Two workshops are planned:
. Issues and Challenges. This workshop will assist the team in "scoping" issues for the
Land Use Element and Zoning Ordinance. The intent is to ensure that issues felt to
be pertinent by the public and are appropriate for consideration in the program are
brainstormed in an interactive fashion. In addition to gathering input on citywide
issues/visions, the workshops may be structured to get feedback on specific
geographic areas.
. Alternative or "Sketch" Plans. This workshop will focus discussion and comparison
of alternative plans, again in a small-group facilitated tabletop setting. The
workshop will be announced as part of Newsletter #2.
Traveling Roadshow
We will work with City staff to prepare a "traveling roadshow" that enables staff or
"community ambassadors" to serve as facilitators of community involvement efforts. We
will also develop a kit of "traveling roadshow" materials, which will include large-scale
graphics, handouts, techniques for addressing the media, etc. The Road Show kit would use
a combination of posterboard exhibits, newsletters and PowerPointlslide presentations to
describe the process and purpose of the Land Use Element and Zoning Ordinance Update,
facilitate a discussion of specific issues, and announce upcoming opportunities for further
input and information. Where needed, materials, presentations, and facilitation in Spanish
can be provided.
This roadshow will be updated at four key stages in the process (completion of
Opportunities and Challenges, preparation of Sketch Plans, preparation of a Preferred Plan,
and preparation of Hearing Draft Documents).
Community Briefings
An important step in the public participation process is establishing contact with key
constituencies in Santa Monica: community groups, City Boards and Commissions,
building industry groups, environmental organizations, the Chamber of Commerce, and
other relevant parties. Ongoing neighborhood, merchant, PTA meetings, etc., provide
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DYETT & BHATIA
Urban and Regional Planners
Santa Monica: Land Use Element and Zoning Ordinance Update
DRAFT Public Participation Program
excellent leveraging opportunities for the planning team to keep community members
informed and gain feedback. Consultant and/or City staff will track these meetings, and
make short presentations or announcement periodically, using roadshows where
appropriate. We have budgeted approximately 40 such briefings by Consultant (with
additional briefings by staff).
Focus Groups
Focus groups will enable qualitative discussions with a small number of randomly selected
people, brought together to discuss potential choices, especially in designing and evaluating
Alternatives and a Preferred Plan. Unlike the one-way flow of information in a one-on-one
interview, focus groups generate data through the give-and-take of group discussion.
Listening as people share and compare their different points of view provides a wealth of
information - not just about what they think, but why they think the way they do.
Two focus groups are planned. Members will be selected either from a pool of interested
people determined as part of the random phone survey, or gathered with professional
marketing firm help.
Children and Youth Programs
One of the most effective public outreach techniques is the involvement of local schools.
This may involve activities in which children either participate directly or serve as the
conduit of information to their parents. The former can include input regarding the
students' perception of community issues and visions for the future - drawing
pictures/making collages of their favorite and least favorite places, how the City should look
in the future, and plans for neighborhoods and districts; writing essays about community
issues and their visions for the future of the City; and/or responding to questionnaires.
Specific activities would be designed to reflect the grade level of the participants.
The consultant team will coordinate with City Staff and the Santa Monica/Malibu School
District to develop a program for classroom use, which would also be made available to
private schools in Santa Monica. Drawing upon the successful youth outreach conducted as
part of the Open Space Element and the Recreation and Parks Master Plan preparation, this
is likely to be in the form of the following components:
. High School Outreach/Internship Program. Interns in 11th and 12th grades (five or
six) will be recruited to plan input activities for students at Santa Monica High
School. These may include a questionnaire, mapping places students visit and
frequent, like and dislike. The interns will provide analysis of the findings, with
guidance from consulting team, and present these to the student body at large.
. Children and Youth Activity Packet. A packet will be developed for elementary and
middle school teachers to elicit ideas and direction from youth regarding how they
perceive and use their built environment, and introduce them to some techniques
used by planners to assess community needs.
. Presentation of Students Work/Planning Discussion for Parents. At the culmination of
the students work, parents will be invited to an evening meeting to view the work
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