sr-121410-4aCity Council Meeting: December 14, 2010
Agenda Item: 4-A
To: Mayor and City Council
From: Eileen Fogarty, Director, Planning & Community Development
Subject: Implementation Priorities and Progress for the Approved Land Use and
Circulation Element (LUCE)
RECOMMENDED ACTION
Staff recommends that the City Council support the approach for implementing the
LUCE and provide comment and direction on workplan and priorities.
EXECUTIVE SUMMARY
The City of Santa Monica's new Land Use and Circulation Element (LUCE), adopted in
July of this year, is a comprehensive policy document to guide the vision and future
direction of the City. A dynamic and multifaceted implementation process is underway,
with integration of land use, circulation and parking necessary for the plan to become a
reality.
The General Plan is the City's fundamental policy document, setting the vision and
direction for the City for the next 20-30 years. It is an essential guide for both public and
private projects. The General Plan framework brings together inter-connected social,
physical, and economic systems. Implementation of the LUCE needs to incorporate all
of these systems in order to carry forward this integrated vision. The significant
innovation of the LUCE is recognized by the recently received 2010 Outstanding
Comprehensive Planning Award from the California American Planning Association,
and over $1.2 million in grant funding for continued planning to support implementation.
Community Commitments:
Implementation of the LUCE requires a flexible and adaptable approach. Each goal is
related to other components of the plan and the pieces must fit together if the LUCE's
objectives are to be met. This integration can be achieved by putting the right land uses
in the right locations, including focusing housing and employment near transit and
creating complete neighborhoods. Additionally, a robust Transportation Demand
Management (TDM) strategy will minimize new vehicle trips while encouraging walking,
bicycling and transit use. This integrated approach synthesizes individual projects into
a complete framework that both increases community value and creates new
opportunities.
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The vision and support for the plan was developed through years of community
engagement and consensus building. Community values incorporated into the LUCE
include:
• Conserving neighborhoods, and protecting historic resources
• Requiring community benefits in new projects, including affordable housing along
the boulevards
• Implementing aggressive approaches to produce fewer auto trips, with a goal of
No Net New Evening Peak Vehicle Trips
• Improving pedestrian, bicycle and transit facilities
• Providing open space, cultural arts, and educational programs
• Creating a sustainable and integrated land use and transportation framework that
reduces greenhouse gases
• On-going community involvement in all aspects of implementing LUCE.
Current Implementation Actions:
Critical planning efforts necessary for the implementation of LUCE are the focus of this
report. Staff began addressing first-level priorities starting last July. This report
summarizes how these issues are coming together and identifies .next steps for
consideration by the community early next year. A high priority is the incorporation of
the LUCE principles through negotiation of development agreements to meet the
expectations of the community. This is necessary to ensure that new development
provides community benefits and that the City meets the goals for reduction of future
vehicle trips and greenhouse gases.
The current multi-pronged approach includes the following elements:
Zoning: Updating zoning is a natural step following LUCE adoption. Staff is currently
working on immediate and long-term zoning tools for implementing community priorities,
including:
Interim Ordinances: initial measures to address community benefits and trip
reduction will be forthcoming in January, followed shortly by an interim zoning.
map, districts and permitted uses. Implementation of a tiered approach to
development citywide is essential so that projects support the LUCE vision for
community enhancement, reduced vehicle trips, and sustainability.
Density Bonus Ordinance: implementation of a density bonus for affordable
housing which was part of an interim ordinance previously adopted by Council.
• Neighborhood Conservation: approaches to neighborhood conservation are
being developed. Additional community involvement will be done before bringing
this forward as an overlay zone process.
• Historic Preservation: a comprehensive review of Transfer of Development
Rights (TDR) programs has been conducted and will be brought forward for
review.
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Area and Specific Plans: Two areas of the City with future Expo Light Rail stations
have been identified as the first priority for focused community planning:
Bergamot Transit Village. and Mixed-Use Creative Area Plan: The Area Plan is
underway for the combined districts, with community meetings starting in the
beginning of the year. A phased approach is being taken starting with key
connectivity and circulation issues and leading to strategies to support creation of
an urban village, expanded creative arts, and shared parking strategies. It is vital
that parameters be established to guide new development in meeting the
community's vision as articulated in the LUCE.
Downtown Specific Plan, integrated with the Civic Center efforts: A circulation
framework for the Downtown Specific Plan as it relates to the Expo Light Rail
station is underway. A community visioning process for the City's newly acquired
site at 5th and Arizona will commence in January. Concurrently there will be a
larger focus to integrate all the pieces in the Specific Plan, including issues such
as the expanded Downtown boundaries and implications for transition to
residential uses, heights, and for a possible expansion of the shared parking
district.
The LUCE identifies an integrated vision for the Downtown/Civic Center tied
together through shared circulation, parking, and open space linkages. A
comprehensive review of integrated Downtown/Civic Center planning and capital
improvement projects will be coming to Council in January. Several projects
supporting the .Downtown/Civic Center vision were funded through the Council's
Redevelopment priorities, and the LUCE framework guides decision-making to
create synergies between projects and maximize the community value of public
investment.
Expo Light Rail: Extensive work has been underway to ensure that the future light rail
stations at Bergamot, Memorial Park and Downtown, as well as the street-running
sections through Santa Monica, are carefully integrated into Santa Monica. In addition
to the area planning discussed above for Bergamot and Downtown, staff has been
working with the Expo Construction Authority staff to address transit, bicycle and
pedestrian interface requirements, including at the Memorial Park station. A report
regarding the street-running section, Downtown circulation and an update on the
stations will be brought to City Council and the community in January.
Congestion Management and Circulation: A core LUCE target, to achieve No Net
New Evening Peak Vehicle Trips, is predicated on instituting aggressive Transportation
Demand Management (TDM) measures and providing infrastructure to encourage the
use of transit, walking, and biking as viable alternatives to the auto. These are part of
the balanced approach that also includes the land use strategy of locating new jobs and
housing near transit, and creating complete neighborhoods so that residents can walk
or bike to local services.
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Implementm~ the LUCE. Immediate Next Steps
DEC JAN
2010 2011
fEB MAR
2011 2011
APR MAY
2011 2011
JUN JUL AUG SEP OCT
2011' 2011 2011 2011 2011,
A TDM ordinance update is coming forward in the Spring, with additional targets and
strategies are being incorporated into the area planning processes. The LUCE bicycle
network is being implemented through citywide improvements such as bike stations,
new bike racks, intersection bike detection, and lanes or sharrows (Arizona Avenue,
Ocean Park Boulevard, 20th and 14th Streets). Pedestrian, bike and transit connections
and improvements are also key to achieving No Net New Peak Trips and are underway
in coordination with Big Blue Bus particularly near the Expo Light Rail stations. In
addition to the TDM measures being applied to development proposals, tools to improve
traffic flow and manage congestion are being implemented including active signal
management, parking management, and real time way-finding. Staff has also been
developing a nexus study for transportation improvements so that new development
contributes a fair share of funding for the future transit network being implemented. A
proposal will be brought to Council for consideration early next year.
Next Steps:
This report is an overview of implementation that has occurred since the July LUCE
adoption and steps that are taking place during the first half of next year. Immediate
next steps are illustrated in the chart above. A tremendous level of work has been
undertaken since the LUCE adoption and will be brought forward to the Council and
community over the next several months. Through the LUCE adoption, commitments
have been made to the community and the work underway will help to make them a
reality.
BACKGROUND
The City Council unanimously certified the Final EIR and adopted the Final LUCE on
July 7. 2010, following .the Planning Commission's unanimous recommendation for
approval on June 3, 2010. The Council's action was the culmination of years of
community engagement and consensus building. The Final LUCE emerged from a
strong desire to preserve Santa Monica's unique assets-its neighborhoods, open
space, arts and culture, and character-while enabling the evolution of a sustainable
City that meets the real challenges of climate change. Thousands of Santa Monicans
shaped this vision that evolved from the Strategy Framework in 2008 through to the
Final LUCE in 2010. The Final LUCE also incorporated the results of focused research
on strategies for phasing and monitoring, fiscal stability, neighborhood protection,
community benefits, and transportation demand management. In summary, the LUCE is
distinguished by its emphasis on:
• Conservation and Preservation: The LUCE is fundamentally a conservation plan,
controlling while guiding potential change, encouraging adaptive reuse, and
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supporting compact mixed-use near transit. Open space, green buildings, and
resource conservation go hand in hand with these strategies.
Neighborhoods: The LUCE protects and conserves existing neighborhoods,
which make up the vast majority of the City's land area. The Plan includes an
innovative program of incentives and restraints designed to redirect intensive
residential market pressure away from existing neighborhoods.
• Integrated Sustainability: The plan encourages local-serving uses that provide
daily needs within walking distance to reduce the number and length of routine
car trips. It focuses future housing and employment at Expo stations and other
transit locations, and prioritizes pedestrian and bicycle connections throughout
the City. This strategy establishes the fundamental framework to reduce
greenhouse gas emissions.
• Balanced Transportation Strategy: Through the LUCE the City regains control of
its streets. The LUCE supports the transformation of the City's auto-oriented
boulevards into inviting avenues with improved transit, wider sidewalks, bicycle
facilities, distinctive architecture, landscaping and neighborhood-friendly
services. Rather than accept additional automobile congestion and delay, the
plan enables the City to rely more on high-capacity, efficient forms of
transportation: walking, bicycling, and transit.
• No Net New Trips: This objective represents the City's commitment to
measurable success in rebalancing the transportation system. In order to achieve
the City's overarching goals of reducing congestion and carbon emissions as well
as fostering community use of open space and active living, the plan calls for No
Net New Evening Peak Period Vehicle Trips. It encourages alternative modes of
transportation and proposes a system of city-wide bicycle paths and green
corridors, improved pedestrian amenities and enhanced transit.
• Ensuring Community Benefits: The LUCE establishes a performance-based
approach to ensure that development which seeks to expand upon base project
parameters provides community benefits. There is specific emphasis on
affordable housing and trip reduction.
• Commitment to On-Going Community Involvement: The Plan establishes a
structure for development review and on-going planning that continues to engage
the community in creative dialogue.
• Monitoring Change: The LUCE sets forth regular monitoring and measuring to
ensure that the pace, and type of change meets expectations.
DISCUSSION
The General Plan is the City's fundamental policy document, guiding the vision and
direction for the City for up to 20-30 years. It is a valuable guide for both public and
private projects. Most importantly, it synthesizes individual projects into a complete
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framework that creates value and new opportunities for the community that would not
exist otherwise. The General Plan framework brings together inter-connected social,
physical, and economic systems that are the underpinnings of local quality of life, values
and aspirations. Implementation of the LUCE through policy efforts and public and
private projects needs to incorporate all of these systems in order to carry forward this
integrated vision.
There are numerous LUCE implementation efforts underway including work on Expo
Light Rail, area and specific plans, transportation improvements; capital improvement
projects and interim zoning ordinances. In addition, proposed development agreement
projects are incorporating community benefits and trip reduction strategies required by
the LUCE. This staff report summarizes work to date, as well as next steps in the
process of achieving the community vision. It begins with Expo Light Rail because of its
transformative role in transportation and land use, and incorporates the numerous
public and private planning and construction efforts in process throughout the City.
Early Implementation through Development Agreements
During development of the LUCE staff worked with applicants for potential development
agreement projects to communicate the anticipated requirements of the LUCE for
community benefits, trip reduction, open space, connectivity, quality housing, land use
mix, and shared parking. Incorporation of these features from the start provides the
greatest opportunity for successful integration, sets an example for future actions, and
establishes key infrastructure for districts and boulevards throughout the City. For
example, the creation of new green pathways through and around the Expo Light Rail
Bergamot station is critical for creating walkable city blocks that link all uses to transit
while also providing more options for people, cars and bikes to move around.
Going forward, development agreements will continue to be an important and valuable
tool to ensure that projects above the base height contribute to the community as a
whole, creating special places in the City that enhance its unique character and quality
of life. These will come forward to Planning Commission and City Council with proposed
community benefits that consider community priorities and unique opportunities of the
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subject site or area. The types of community benefits anticipated in the LUCE include
affordable and workforce housing, physical improvements to the City such as wider
sidewalks and transit improvements, social and cultural facilities/programs, and historic
preservation.
IMMEDIATE LUCE IMPLEMENTATION ACTIONS
A. INTEGRATING LAND USE AND TRANSPORTATION IN EXPO STATION AREAS
The LUCE identifies each Exposition Light Rail station as part of a unique District or
Activity Center. As Expo moves forward the City must proactively plan the station areas
to create an integrated neighborhood that seamlessly connects with existing and future
surrounding .development. There are both opportunities- and pressures around these
stations that need to be shaped in order to serve the community in the best way
possible. The Area Plan for Bergamot and a Specific Plan for Downtown are the first
LUCE priority planning implementation projects. Both work efforts are beginning with
identification of the circulation framework.
1.Bergamot Transit Village & Mixed-Use Creative Area Plan
The Area Plan is underway for the combined Bergamot Transit Village and Mixed-Use
Creative Districts, which also encompass the Bergamot Arts Center and Bergamot Light
Rail station. Parameters must be established to guide new development to ensure that
each project contributes to creating the community's vision as articulated in the LUCE.
Planning and Community Development has engaged an interdepartmentalgroup in this
effort including Community & Cultural Services (CCS) and Housing and Economic
Development (HED). The vision as identified in the LUCE includes:
• Housing: Encourage a range of housing affordability and type including artist live-
work, and other priority needs.
• Arts and Culture: Maintain and enhance the character of the Bergamot Station Arts
Center. Encourage the arts, including space for the film, music, and television
industries, and performing arts spaces.
• Sustainability: Integrate land use and transportation to achieve reduced greenhouse
gas emissions, reduce per capital vehicle miles traveled, and create a sustainable
local community.
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• Active Streets and Open Spaces: Create an active street life with a village
atmosphere that encourages walking, strolling and social interaction, and additional
community open spaces.
• Neighborhood Needs: Introduce local-serving commercial and retail uses to serve
area residents and optimize the mix of uses near the light rail.
• Trip Reduction: Provide innovative and strong TDM programs including shared
parking to further reduce vehicle trips.
Phased Approach
A phased approach is being undertaken, starting with critical transportation and
connectivity issues. Staff is working with transportation experts to identify pedestrian,
bicycle, and roadway connections. The first phase focused on the location and
character of streets, eventually leading towards creating a hierarchy of streets with
criteria that will include street width, sidewalk treatment, bicycle facilities, transit
amenities, and relationship to adjacent buildings. Other work to integrate the area with
Expo Light Rail has also included:
• Increasing Access to Expo Light Rail. Key access points to the station, station
configuration and relationship with the Bergamot Arts Center have been
identified.
• Integrating with the Expo Regional Bicycle Path. Options for routing the bicycle
path have been explored including connections to the City's bike network and
interaction with the bus passenger loading/drop-off zone on Olympic Boulevard.
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Concurrently work has been underway on important issues related to character, urban
form, arts, shared parking, inter-relationship between projects, community benefits,
open space and infrastructure. Work to date and future efforts include:
September 2010 - Creating an Urban Village Strategies and criteria to ensure the
April 2011 creation of a village-like character that is walkable, pedestrian-
friendly and human scaled are being explored. This includes
issues of building scale, nature and location of open space, and
relationship to the street via entrances, driveways, and building
facades.
November 2010 - Expanding Creative Arts and Cultural Activities. Specific models
June 2011 for incubating creative arts and expanding the range of arts
activities are being identified, including options for artist housing,
affordable housing and other supportive land uses.
November 2010 - Parking Concepts. Identify existing parking, and estimate
February 2011 additional parking needed for future development and
alternatives for shared parking and parking districts.
December 2010 - Identifying Property Ownership and Relationships between
January 2011 Proposals. Several development proposals are in various stages
of review within the planning area. The planning team will meet
with major property owners to ensure understanding of the
LUCE, the intent of the Area Plan, and how the property fits
within the future urban village.
January -June Worksessions and Community Meetings Three internal work
2011 sessions have been held to date and it is anticipated .that the first
community workshop will be held in January/February with a
presentation on initial findings to occur in March 2011.
The next step will incorporate a community process that will include a number of
community workshops and Planning Commission meetings in the upcoming months that
engage the arts community, neighborhood groups, property owners and businesses.
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2. Downtown Specific Plan
Santa Monica's Downtown is the heart of the City, its most celebrated of public places
and integrally linked to the beach, oceanfront, and Civic Center. The Downtown has
both public and private projects coming forward, including the recently completed Santa
Monica Place and the future Expo Light Rail station which are both transformative
components of the Downtown. It is critical to ensure that projects incorporate the
essential components of the LUCE such as achieving No Net New Evening Peak Hour
trips, providing quality housing with open space, integrating with the Downtown station
as well as the beach and Civic Center, and incorporating a range of local and visitor-
serving uses.
The LUCE vision ties Downtown with the Civic Center to create a culturally rich center
of activity and social gathering. The Downtown area is expanded through the LUCE to
include the north side of Wilshire Boulevard, the east side of Lincoln Boulevard, and the
properties around and including the Expo light rail station. The Santa Monica Place
mall redevelopment and future Expo station, combined with the range of public projects
including public parking structure improvements and the visioning for the 5th/Arizona
City property, bring the Downtown to a unique opportunity. The convergence of these
elements will be integrated through the strategic planning effort of the Downtown
Specific Plan proceeding concurrently with specific flagship projects.
Expo and Downtown Circulation
In anticipation of the Expo Light Rail a wide range of circulation patterns including
various options for roadway reconfigurations and/or future capital projects has
been evaluated. This evaluation has addressed, among other things, challenges.
such as freeway access and creating direct access to the City's parking
structures as well as addressing congestion. This analysis of Expo and the
Downtown circulation will provide the foundation for integrating the land use and
transportation decisions in the Downtown.
The circulation analysis has taken place concurrently with the extensive analysis
for the Downtown station. The location for station access, the station alignment
and impact on the site, and public amenities have been fully evaluated and
shared with the Expo Construction Authority, and were unanimously endorsed by
Council in July 2010.
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-~ DOWNTOWN
°°•-°~ SPECIFIC PLAN
.'Support
Framework
• Expo Station and
Gateway
• TOD opportunities
• Connections and
Linkages
5th and Arizona
Visioning
• Downtown Parking
• Structure 6
• Civic
Center/Downtown
• Circulation Program
• Vehicles, transit, bike,
ped access to
businesses
Economic Study
. • Height & FAR dialysis
Phase 1:
Approach
• Interview
Stakeholders,
• Consolidate/Review
Past Plans
• Consolidate Base
Information
• Coordinate Downtown
Projects
• Summary Presentation
-Issues, Opportunities,
& Priorities
-Circulation/Mobility
-Urban Design
- Economic Health
Phase 2:
Key Components
Variations of:
• Land Use Intensity
• Transition in Height
and Density to
North/East
• Linkages to Adjacent
Districts
• Infrastructure
• Circulation:
ped/Bike/Car
• Parking
• Transit Interface
• Economic Findings/
Implementation
Refinement of Chosen Alternative
Informational Review
Prepare Administrative Draft Planning Commission
• Inter Department Review City Council
• Community review ,........_..........._ ............._..,...
Prepare/Publish
Draft Specific Plan
NOP Si Draft 45 Day Public Response to Publish
EIR Comment Period ;, Comments .. EIR
Concurrent Plans & Projects:
5th and Arizona Plan, Miramar Specific Plan
Projects: Parking Structures, Colorado Esplanade, Station Plaza, Pier Bridge, Palisades Garden Walk, TOD Opportunity Sites
Circulation Improvements to Roadways Bridges and Sidewalks,
Actions
Planning
Commission
Recommends
to Council
City Council
Certifies FEIR
and Approves
Plan
Community Outreach / 'Plan Review, Refinement and CEQA
Alternative Development ,oh,ontns
5month5
Multiple Planning Processes Shape the Downtown Specific Plan
In addition to circulation, another critical building block that will set the direction
for the downtown is the planning for the City property at 5th and Arizona. This is
a great opportunity for the City to bring vitality to this section of the Downtown,
with the potential for public parking, open space/plazas or other community
benefits, and a supportive mix of uses. The public process for planning of this
site will be initiated early next year, as identified in the staff report that is item 3-M
on the December 14th agenda (Visioning Process for City-Owned Downtown
Property). The process will engage key stakeholders, specifically Bayside, as
well as the community at large in a number of public workshops.
Transit-Oriented Uses at Future Expo Station Site
Concurrently there has been extensive background information gathering and
evaluation of transit-oriented development at the Downtown Expo station site.
The opportunities for transit-oriented development that would be associated with
the station and adjacent sites are being evaluated and will come forward to
Council next yeas
All of this work, coupled with the analysis on the key components for the specific plan,
will be brought forward as quickly as possible in the continuation of the process
identified above for 5th and Arizona. The key components for Downtown, necessary to
create a rich and complete experience include:
• Circulation and parking strategies with an emphasis on access to the City's
public parking structures, and flexibility for shared parking.
• Transition to adjacent residential areas, particularly to the north and the east.
• Urban design considerations to integrate the subareas and address height and
massing.
• Small business health and vitality.
• Enhanced transit interface: bus, train, and shuttle.
• Intensity and location of Land Uses -office, residential, visitor and local-serving.
• Hotel development and redevelopment.
• Connections to beach and open space, and linkages to the neighborhoods.
• Gathering places that respond to the energy of the Downtown urban
neighborhoods.
• Congestion Management including roadway management and TDM strategies.
Starting in late spring, work with the key stakeholders, including Bayside, and the
community through Planning Commission community-wide workshops will focus the
development of the plan. The Downtown Specific Plan will engage the community and
the Bayside District in addressing the pressures in the Downtown and capturing
opportunities to achieve the LUCE vision.
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3. Concurrent Capital and Private Projects in Downtown
While the Downtown Specific Plan is underway, City staff will also be processing a
number of development application projects. It is vital that these projects contribute to
creating quality housing, providing public benefits, and fostering the highest quality
public realm. Of particular significance is the need for all projects to participate in
achieving No Net New Trips by incorporating the parking and transportation demand
management strategies identified in the LUCE as well as the necessary bicycle and
pedestrian connections. These projects implement the vision of the LUCE for the
Downtown as a mixed-.use district. Key projects coming forward are the development
agreements for the 710 Wilshire hotel project, and the Miramar Hotel that will undertake
a very focused specific plan within the context of the larger Downtown Specific Plan.
As a result of the Civic Center/Downtown planning process, Council initiated in May
2009 several potential public projects that create the gateway for Downtown, and that
synthesize and optimize the experience for residents and visitors. The projects that
would connect directly to the Downtown include:
• Colorado Esplanade and Pier Entrance. Design and construction of the
Colorado Esplanade -from 4r" Street to Ocean Avenue including the
intersections and Pier Entrance at Ocean Avenue.
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• Freeway Capping. Identification of vital linkages across the freeway. The first
phase is the entry to Palisades Garden Walk at the corner of Ocean and
Colorado Avenues.
• Parking Structures. Reconstruction of Parking Structure #6 with additional
spaces, and demolition of Parking Structure #3 and other improvement
projects.
4. Civic Center Planning and Capital Improvement Projects
Civic Center Specific Planning dates back to the 1990s with implementation proceeding
along with a number of Specific Plan updates. An interdepartmental team will be
bringing forward a comprehensive update on integrated Downtown/Civic Center
Planning in January, that updates the comprehensive report to Council on March 24.
2009. As noted earlier, out of the Civic Center process several Redevelopment projects
were identified and funded. These capital improvement projects provide the opportunity
to put in place key infrastructure that catalyze the LUCE vision of connected, complete
streets, comfortable and inviting walking and bicycling and community facilities. Like
private projects, using the LUCE framework to guide decision-making provides
synergies between projects by considering pedestrian connections, complementary
uses, and shared parking to maximize the community value of public investment.
Planning is underway on a number of key projects and an update to integrated Civic
Center/Downtown .
• Palisades .Garden Walk will include key pedestrian, bicycle and transit
connections with The Village project, Downtown/Expo, Ocean Avenue
(Concept December 2010). See item 8-A on the December 14th agenda
• Shared parking and circulation program concepts that optimize parkin
resources -coupled with essential pedestrian and shuttle linkages such as 4t~'
Street and Main Street bridge improvements
• Civic Center Auditorium renovation
• Potential Art Museum -notice of availability released
• Early Childhood Education Center design and construction
• Joint Use program for shared facilities with Santa Monica High School
• Olympic Drive extension that will be built as The Village project, currently
anticipated to begin construction in 2011.
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Civic Center planning continues concurrently with these efforts. The Civic Center and
the Downtown are tied together through shared circulation and parking frameworks. The
planning effort has identified the critical linkages necessary in the near and long-term to
take advantage of shared parking, to facilitate direct pedestrian access, and bring
together complementary uses.
B. EXPO LIGHT RAIL
Extensive work has been underway on City recommendations to the Expo Construction
Authority for elements to be included in the baseline definition for the three Expo Light
Rail stations, and the Colorado alignment. Recommendations for the Stations were
unanimously endorsed by the City Council on July 13, 2010. Among the issues
addressed in the recommendations were pedestrian access points and ramp locations,
bicycle access, bus transfer, relationship to adjacent land uses, and station site impacts.
The priority has been on functionality and ridership convenience while addressing Santa
Monica's LUCE vision for the future.
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Criteria have also been developed for the Colorado Avenue street-running segment
from 17th to 4th Streets where the train travels within Colorado Avenue. The priority of
this work has been to create a functional transit street that encourages walking,
increases access to transit, supports surrounding land uses and accommodates
emergency and service vehicle access. A recommended roadway cross-section was
identified that balances the roadway space for vehicles, transit, pedestrians and parked
cars, and that
simultaneously provides
landscaped sidewalks,
increases street and
pedestrian lighting for
safety and comfort,
maximizes on-street
parking, integrates light
rail poles and wiring, and
maintains existing
crosswalks.
Staff completed an extensive review of the Stage A drawings from both design-build
teams competing for the Expo Light Rail project. Over 1,000 total comments were
submitted to the Expo Construction Authority on October 6, 2010 following the 20-day
review period. Staff continues to work with the Construction Authority to advocate
inclusion of the recommended issues into the baseline for the Expo Phase 2 project. In
addition, City staff continues to work with Expo Construction Authority in discussions
with the California Public Utilities Commission (PUC) regarding inclusion of additional
light rail crossings that are subject to PUC approval.
C. CIRCULATION: CONGESTION MANAGEMENT AND CREATING BALANCED
ROADWAYS
The LUCE establishes a new priority for reducing future vehicle trips and making
walking, bicycling and transit use a viable alternative to the car. To achieve the No Net
New Trips target identified in the LUCE, work is underway oh transportation demand
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management, congestion management, and infrastructure improvements that support
pedestrian and bicycle pathways. Coordination with Big Blue Bus on transit
improvements and connections to the Expo Light Rail stations is another key part of the
No Net New Trips effort. A transportation facilities nexus contribution for new
development will be coming forward to facilitate the achieve the necessary roadway
improvements. At the same time, signal timing coordination and new real-time
management tools are being put. in place to address day to day and event traffic
congestion.
Transportation Demand ManapemenY
A TDM ordinance is being brought forward to Council to include a wide range of
requirements for facilities and programs that reduce vehicle trips. TDM districts with trip
reduction goals are being incorporated into the area planning processes underway
taking into account area-wide targets such as average vehicle ridership (a measure of
carpooling), percentage of trips made without a car, and reduction in vehicle trips for
existing and new uses.
Bicycle Facility Improvements
Because of Santa Monica's favorable climate and relatively flat topography it is an ideal
place for bicycling. And because of Santa Monica's modest size, it is possible to reach
almost any location by bicycle within 15 minutes. Implementing the bicycle network is a
priority of the community and the LUCE and work is underway on a range of key
projects:
• Recent completion of the Arizona Avenue bicycle lane
• Bike Stations in Parking Structure #7 and #8 at Santa Monica Place 12( /7/10)
featuring bicycle parking, rental and retail space, a restroom/changing room, and
storage lockers -construction to start in February 2011
• Installation of 1,000 new bike racks throughout the City to be complete
• Continued expansion of the bike valet program
• Installation of bicycle video detection at signalized intersections
• Painting sharrows and. bike lanes as streets are redesigned or resurfaced, such
as the Ocean Park Boulevard Green Street, 14th and 20t Streets.
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In addition, Planning and Community Development is completing the Bicycle Action
Plan which will identify additional specific programs and projects to achieve LUCE
goals, policies and objectives for bicycling. A key issue is investment in bicycle
infrastructure, and this Action Plan is the linchpin to qualify the City to seek bicycle
infrastructure construction grants from the State of California and Metro -currently the
largest sources of funding. The Draft Bicycle Action Plan will be released in
February/March 2011 and be finalized with Community, Board, Commission, and
Council input over the next six months. An open house meeting is scheduled for
December 13 and an on-line survey will be available at that time on the City's bicycling
web page (Bike Santa Monica - www.smgov.net/bikesm).
Circulation and Congestion Management Tools
The LUCE circulation policies require implementation of measures to improve traffic
flow and address congestion. A number of proactive roadway management programs
are underway to address day-to-day and event circulation demands.
Automated Traffic Management System -The ATMS project upgrades and
links signalized intersections, and updates signal timing plans to optimize flow as
an integrated corridor or network. Upgrades include detection equipment for
pedestrians, bicycles, and vehicles. ATMS Phases 1 and 2 have been completed
(Downtown, except Arizona Avenue). Phase 3 has just begun construction and is
anticipated to be complete by Summer 2011 (35 signals along Wilshire, Santa
Monica, and Pico Boulevards east of Lincoln Blvd). Phases 4a and 4b have
completed design and will be constructed by Fall 2011 (Arizona Ave in
Downtown, the mid-city area, and the office district). Phases 4c and 5, the last
phases, are scheduled to be completed by 2013 (Ocean Park Blvd, NeilsonlMain
St., Montana Ave. and San Vicente Blvd).
Transit Priority - To implement transit priority in Downtown and on the transit
priority streets, new traffic signal controllers (the computers that control traffic
signal timing and communication) will be installed as part of ATMS Phase 3.
These will cover portions of Wilshire, Santa Monica, Pico and Lincoln
Boulevards. This also will be valuable during special events, when special timing
plans can facilitate the flow of traffic.
Video Detection -Adjustable cameras have been deployed at over 40
intersections throughout the City. This feedback loop enables quick response to
blockages or incidents. It also recognizes bicycle riders to activate the signal
during non-peak periods where intersections may not operate on a cycle.
Traffic Management Center (TMC) -The TMC in City Hall is a centralized
monitoring area that can coordinate transportation-related activities of multiple
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City Departments. During special events or incidents, the TMC will be the
"mission control" for transportation network operations. Construction of the TMC
in City Hall will be complete by early 2011:
Dynamic Wayfinding Signs -New dynamic wayfinding signs are currently
under design and will be constructed during 2011. Beginning in 2012, the City will
embark on a larger-scale grant-funded project to deploy more dynamic
messaging signs.
Transportation Facilities Nexus Contribution
To support the critical infrastructure necessary to reduce vehicle trips, and encourage
more walking, bicycling and transit use, the LUCE proposed creation of a Transportation.
Facilities contribution. This would engage new development projects in contributing a
fair share of funding for the future transportation system. The contribution would be
based on identified network improvements necessary to serve future transportation
needs and achieve the No Net Trips goal, and would be allocated to new development
based on their size and the demands they are expected to place on the transportation
system. Technical work for the. contribution is based on the Citywide transportation
model developed for LUCE. The ordinance associated with this effort is expected to be
presented for Planning Commission review in Spring 2011, with Council consideration
shortly thereafter.
D. ZONING ORDINANCE, INTERIM ZONING, AND NEIGHBORHOOD
CONSERVATION
One of the key tools the City will use for years to come to implement the LUCE is a new
Zoning Ordinance, to be developed in a format that is simpler to use and consistent with
LUCE policies. The zoning ordinance update is the natural next step following the LUCE
adoption. To ensure the goals and policies established in the LUCE are fully
implemented, a new zoning ordinance will translate LUCE objectives into standards that
are supported by flexible guidelines with illustrations and will provide a new zoning map
with new districts and new permitted uses.
As the comprehensive zoning ordinance is being developed through a public process, it
is essential for interim ordinances to be adopted to ensure that the expectations
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embodied in the LUCE will be reflected in existing and future development projects.
Forthcoming ordinances include:
• an affordable housing density bonus which had been an interim ordinance
• an initial interim ordinance
• an expanded interim ordinance with zoning map, districts and uses
• a neighborhood conservation overlay program
• Transfer of Development Rights (TDR) program
These actions will be supported by transportation ordinances including the TDM
ordinance, and the transportation facilities nexus contribution.
Interim Ordinances
An initial ordinance will be brought to City Council in January 2011. The intention of the
ordinance is to apply the "tiered LUCE approach," which provides for incorporation of
TDM tools and community benefits for projects over the base height (typically 32' with
variation for providing affordable housing). These projects, that are defined as Tier 2 or
Tier 3, could be processed through development agreements under the proposed initial
ordinance. This initial effort focuses on the extensive number of current and forthcoming
proposals which need to incorporate community benefits and address the traffic
associated with their projects. The initial ordinance will be followed by the density bonus
ordinance for affordable housing projects.
In the Spring, the interim zoning ordinance will come forward to Planning Commission
and City Council. This ordinance will include an interim zoning map, districts and
permitted uses and will feature implementation priorities such as shared parking, and a
neighborhood conservation overlay process. It will address provisions unique to Main
Street.
Neighborhood Conservation
Neighborhood Conservation is a fundamental component of the LUCE and one of the
first implementation efforts underway. The Plan allows residents more control over the
type of changes in their neighborhood to preserve the scale, character and quality of life
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through tools like neighborhood
conservation overlays. A preliminary
approach to creating a program of
overlay districts has been prepared
and preliminary comments received
from community, planning and
historic preservation representatives.
Revisions and modifications are
currently in process to incorporate
suggestions. Elements of creating
Neighborhood Conservation Overlay-districts include:
• Establishing Neighborhood Priorities Prioritize key characteristics and features
subject to conservation.
• Partnering with the Community Residents and City staff work together to identify
key issues and possible solutions, keep neighbors informed and hold meetings.
• Creating Flexible Guidelines or Standards. The criteria for an overlay can be tailored
for local conditions.
• Integrating with the City Laws and Process Staff works with neighborhood residents
to identify creative solutions and incentives compatible with local policies and
process so they can be implemented quickly.
• Establishing Supportive Programs The overlay may include creation of supportive
educational materials and programs such as a pattern book of design solutions, or
self-guided walking tours, and required notification within real estate sales contracts.
Further community input in January and February 2011 will be critical in shaping the
draft ordinance. It is anticipated that these policies will be shaped by the community
input and brought forward for discussion at a hearing in March/April 2011.
Historic Preservation -Transfer of Development Rights•
The LUCE celebrates Santa Monica's past by preserving attributes that characterize
and represent the City's history. A Transfer of Development Rights (TDR) program is
being developed to support the feasibility of preservation and adaptive reuse of the
City's historic resources.
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TDR is an incentive-based approach that allows the voluntary transfer of unused
development rights between properties. A TDR program creates a framework for:
• The purchase of development rights (additional height and/or FAR) from
properties in an identified Sending Area (identified in the LUCE as significant
historic structures, courtyard housing, and neighborhood conservation districts)
• The transfer of the development rights to a Receiving Area, such as on the
boulevards, activity centers, and mixed-use districts. New development will
remain within the maximum height and floor area allowed by the LUCE.
• Participation in the TDR program may be proposed as partial satisfaction of
required Community Benefits for new development above the base established in
the LUCE.
In the interest of developing a TDR program that will be an attractive incentive and will
achieve the community's preservation objectives, staff is identifying preliminary goals for
the TDR program that include:
o Keeping the program simple to understand and to administer
o Creating a public policy framework that supports private market activity
o Identifying clear, careful criteria for sending area
o Designating receiving areas with most chance for success
o Opportunities for the private market to set the price
o Reducing uncertainties of TDR transfer to increase appeal (potentially ministerial)
A comprehensive review of the performance of TDR programs with a range of models
has been completed. Based on this information and evaluation of City priorities and
opportunities, recommendations fora pilot program in Santa Monica are being
developed. Community outreach will take place early next year. A draft pilot program
will then be brought forward for review by the Landmarks Commission, Planning
Commission, and City Council.
SUMMARY
As outlined in this report, a tremendous level of implementation work has been
undertaken since the LUCE adoption and will be brought forward to the Council and
community over the next several months. This work follows through on commitments
made to the community through the LUCE adoption, and the work underway will help to
make them a reality.
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FINANCIAL IMPACTS & BUDGET ACTIONS
A fiscal impact analysis prepared for the LUCE confirmed that plan implementation
would result in a net fiscal benefit, which will be realized as projects come forward
consistent with the LUCE. Planning efforts underway have been budgeted in the FY
2010-11 annual budget.
Prepared by: Francie Stefan, Community & Strategic Planning Manager
Approved: Forwarded to Council:
arty
Development Department
Rod Goiald
City Manager
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