SR-417-002-09 (4)
'8A
FER 2\ 8; 2006
Council Meeting: February 28, 2006
Santa Monica, CA
TO: Mayor and City Council
FROM: City Staff
SUBJECT: Adoption of a Resolution Certifying of the Downtown Parking Program
Environmental I mpact Report, Adoption of a Resolution Making Necessary
CEQA Findings, Adoption of a Statement of Overriding Considerations and
Mitigation Monitoring and Reporting Program, and Approval of Program to
Retrofit, Rebuild and Add Parking Resources in Downtown Santa Monica
and Authorization to Proceed with Implementation of the Program
INTRODUCTION
This report recommends that the City Council certify the Downtown Parking Program
Environmental Impact Report (EIR) and approve a Statement of Overriding Considerations
for seismic retrofitting of two nine-story parking structures; tearing-down and rebuilding
three five-story parking structures; and adding up to two new parking structures in the
Downtown area, with a total net increase of 1,712 parking spaces and approximately
59,000 square feet of ground-floor commercial space. The report recommends that
Council approve the Downtown Parking Program and authorize staff to proceed with
implementation of seismic retrofit of Structures #4 and #2; acquisition and design of new
perimeter parkiQg resources; and a design development process focused on the three
structures to be demolished and rebuilt.
BACKGROUND
On April 9, 2002, the City Council conceptually approved the Downtown Parking Task
Force's recommended strategic plan to retrofit, rebuild and add parking resources in the
Downtown area over a ten-year period. Council authorized staff to prepare a programmatic
EIR, to analyze the potential for new revenue sources to fund the program and to proceed
2 8 2005
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with next steps towards property acquisition or joint development options for new perimeter
structures, predicated on the identification of funding.
On December 19, 2000, City Council established the Downtown Parking Task Force. The
task force was created in response to a Planning Commission suggestion for a public
process to assess community sentiment concerning a recommendation in the "Downtown
Parking Management Program" report by Kaku Associates, dated April 2000, for the need
to add public parking in the downtown. The Planning Commission also requested that cost
and traffic impacts be assessed as part of the process. The six-member Downtown
Parking Task Force consisted of three City Council members, one Planning Commissioner
and two Bayside District board members.
As a parallel method to assess community sentiment, questions were added to the City's
annual public opinion telephone survey, conducted in November 2000, to provide input to
the task force. The results provided confirmation that the vast majority of residents
regularly visit downtown (66% responded once-a-week and 91 % responded at least once-
a-month), use the parking resources and report difficultly in finding parking. Almost two-
thirds of the residents thought that the amount of parking in Downtown should be
increased. Parking continues to be ranked as one of the most important issues facing
Santa Monica in recent resident surveys, although specific questions focused on
Downtown have not been included. In the 2005 survey parking ranked as the third most
important issue facing Santa Monica, after the homeless and traffic and was considered a
serious issue by 62% of residents.
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The task force developed a strategic and flexible approach to address the needs of the
aging structures as well to add parking. A considerable amount of effort was dedicated to
determining whether and how much additional parking was needed. A target parking ratio
was developed through a comparison with cities that rely on shared parking and strong
transit connections, including Portland, Oregon; Portsmouth, New Hampshire; and
Alexandria, Virginia. These cities exhibited parking ratios ranging from 1.5 to 2.2 spaces
per 1,000 square feet of commercial development. A ratio of 2.1 parking spaces per 1,000
square feet of commercial development was set as the goal for the Bayside area based on
recent empirical data. It was considered to be ambitious, considering the regional
attraction of the Promenade, the high proportion of retail and entertainment uses, and
Southern California's dependence on driving.
The strategy was framed within the context of a "Park Once -Pedestrian First" orientation to
encourage visitors to drive as little as possible. It was developed based on the premise
that the existing structures are in the ideal location, so that the City should maximize the
potential of these structures, while additional resources should be located within easy
access to the core of downtown to expand the vitality of the core area. The task force also
recommended a dedicated user-friendly tram to facilitate the "Park Once" concept. The
proposed strategy recommendations encompass the following components:
. Retrofit the tall structures: The three tall structures (#2, 4 & 5) provide
approximately 650 spaces each and would provide very little gain in spaces, if any,
by tearing them down and rebuilding them. Therefore, even though the structures
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have deficiencies due to their age, they should be maintained and upgraded. The
work on Structure #5 is complete. Ultimately, over a 20-year time span, the City
may decide to rebuild these structures for functional reasons, but this would be a
significant expense for no gain in the number of spaces.
. Rebuild the short structures and add spaces: The task force determined that the
effective long-term strategy is to demolish the short structures (#1, 3 & 6), which
average about 325 spaces per structure, and rebuild them with additional parking
levels and ground floor retail, adding approximately 712 spaces. Rebuilding, rather
than retrofitting will address the underlying functional problems, including improved
traffic/pedestrian circulation, handicap accessibility, ground-floor retail and high
ongoing repair requirements.
. Additional parking on Downtown perimeter: The task force concluded that since
current parking resources are near capacity and incremental growth will continue in
the downtown area, additional parking resources are needed. It was determined
that new parking resources should be located within walking distance ofthe core of
Downtown to expand the vitality of the core area. The task force identified the 5th
Street vicinity as the ideal walkable distance. The task force recommendation calls
for the construction of 1 ,000 spaces in two structures over a ten-year time span, one
near the beginning of the ten-year period and one at the end of the ten years.
A detailed phasing plan was a critical component of the recommended strategy in order to
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avoid a net reduction in parking supply during construction. Parking availability is important
to the economic vitality of the downtown area and even a temporary reduction in available
spaces would have a negative impact. The phasing plan was dependent on two sources of
replacement parking: the construction of the new Civic Center parking structure and the
creation of new public parking resources in the vicinity of 5th Street.
The task force recommended that the program be assessed every two years in order to
ensure that each succeeding component of the program is needed, based on updated
development and utilization information, and that there is adequate revenue to fund the
next phase.
DISCUSSION
CEQA ANALYSIS:
A Program Environmental Impact Report (EIR) has been prepared in accordance with
California Environmental Quality Act (CEQA) Guidelines. The Initial Study/Neighborhood
Impact Statement and Notice of Preparation (NOP) were distributed for agency and public
review, with a public scoping meeting held on January 13, 2003 and the 30-day review
period concluding on January 31, 2003. Copies of the Draft Program EIR were made
available for a 45-day public review period, which closed on October 18, 2005.
The scope of the EIR includes environmental issues determined to be potentially significant
by the Initial Study and responses to the NOP. Issues in the Initial Study found to have
less than significant impacts or no impacts do not require further evaluation. Based on the
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analyses contained in the Initial Study/Neighborhood Impact Statement, the EIR analyzes
the following environmental issues:
· Transportation and Circulation
· Air Quality
· Noise and Vibration
· Land Use and Planning
· Aesthetics/Shadows
· Construction Effects
· Neighborhood Effects
The EIR analyzed issues referenced above and identified potentially significant
environmental impacts, including program-specific and cumulative effects within the
context setting, in accordance with the provisions set forth in the CEQA Guidelines. The
EIR recommends mitigation measures for significant impacts, where feasible. To be
feasible, the mitigation measure must eliminate or reduce the adverse effect, without
creating unacceptable secondary impacts. Significant and mitigable impacts were found in
the areas of Aesthtics/Shadows and most Construction Effects. A brief description of the
impact and summary of the recommended mitigation measures for these mitigable impacts
are provided in the Executive Summary of the EIR. Significant and unavoidable impacts
that cannot be mitigated are identified in the EIR as follows:
· Transportation and Circulation - unmitigable significant traffic impacts to eleven
intersections, including PCH / California Incline, Ocean Avenue / Colorado Avenue,
4th Street / Broadway, 4th Street / Colorado Avenue, 4th Street /1-10 Westbound off-
ramp, 4th Street / 1-10 Eastbound on-ramp, 5th Street / Colorado Avenue, Lincoln
Boulevard / Wilshire Boulevard, Lincoln Boulevard / Santa Monica Boulevard,
Lincoln Boulevard / Broadway, and Lincoln Boulevard / 1-10 Westbound ramp; and
immitigable significant traffic impact on the 1-10 Freeway segment east of
Cloverfield Boulevard. More information on the traffic and circulation study is
provided below.
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· Air Quality - unmitigable significant air quality impacts related to NOx emissions
from vehicle trips and the use of natural gas and electricity use in the parking
structures and associated commercial development.
· Construction Effects - unmitigable significant air quality impacts from construction
related activities generating regional NOx and localized PM1Q emissions. There
would also be secondary traffic impacts at the intersection of Fourth Street and
Olympic Drive/I-10 eastbound on ramp and Fourth Street / Pico Boulevard due to
replacement parking at the Civic Center structure during construction of Phases 3
and 4 of the Program.
· Neighborhood Effects - unmitigable significant impacts identified in Transportation /
Circulation and Construction Effects above.
Transportation and Circulation
The City's standard methodology represents a conservative estimate of tHe traffic impacts
for this project because the program is primarily intended to provide parking for
development and traffic growth anticipated in the future. By including an ambient growth
factor on top of the cumulative base projects plus the projected trips due to the program,
the impacts are essentially overstated. For this reason, the EIR document included an
alternative analysis of the cumulative base plus the project impacts without including an
ambient growth factor. The other consideration not factored into the standard analysis is
that availability and easy access to additional parking in the downtown could improve traffic
flow. However, the mitigation measures and conclusion of the analysis are based on the
standard methodology.
The transportation and circulation study for the project analyzed 33 intersections during
weekday and weekend peak-hour conditions. Currently, four of the intersections operate at
unacceptable (Level of Service E or F) conditions during the weekday or weekend peak-
hour. The City's standard methodology for generating future conditions without the project
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would have assumed a future year of 2012, however, the year 2015 was used for this
analysis to anticipate the conclusion of the 10-year phased Program implementation.
Even without the project, 14 intersections are projected to operate at Level of Service E or
F during the weekend or weak-day peak-hour in 2015 after factoring in the ambient yearly
growth in traffic and the cumulative projects occurring in that time span.
The transportation analysis examined significant impacts related to Levels of Service (LOS)
and volume/capacity ratios for the project. Significant impacts are projected to occur at the
following fourteen intersections:
. PCH / California Incline
. Ocean Avenue / California Avenue
. Ocean Avenue / Colorado Avenue
. Ocean Avenue / PCH Ramps
. 4th Street / Broadway
. 4th Street / Colorado Avenue
. 4th Street! 1-10 Westbound off-ramp
. 4th Street /1-10 Eastbound on-ramp
. 5th Street / Colorado Avenue
. Lincoln Boulevard / Wilshire Boulevard
. Lincoln Boulevard / Santa Monica Boulevard
. Lincoln Boulevard / Broadway
. Lincoln Boulevard / Colorado Avenue
. Lincoln Boulevard /1-10 Westbound ramp
Mitigations measures identified for three of the intersections, Ocean Avenue / California,
Ocean Avenue / PCH Ramps and Lincoln / Colorado Avenue, would reduce the impacts to
less than significant levels. The adverse environmental impacts identified at the other
eleven intersections cannot be feasibly mitigated due to physical constraints that would
require narrowing or eliminating sidewalks, compromising pedestrian crossing facilities or
encroaching upon adjacent properties to implement mitigation. These mitigation measures
would themselves result in significant negative impacts. Narrowing sidewalk widths or
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eliminating sidewalks adversely affects the pedestrian environment by reducing the walking
area for pedestrians and potentially forcing pedestrians into the street. Eliminating
crosswalks would lengthen pedestrian crossing times by reducing direct routes.
Encroachments on adjacent properties would involve removing parts of landscape areas or
buildings, which would negatively effect the environment by removing adjacent green
space that provides visual relief, by reducing private and public facilities' ability to provide
services to customers and the public and by reducing the interest and variety of the
pedestrian experience. Mitigation through widening of City streets to accommodate
additional vehicle trips is contrary to City policy where the preservation of neighborhoods
and the pedestrian environment is highly valued. Four intersections, PCH / California
Incline, 4th Street / 1-10 westbound off-ramp, 4th Street / 1-10 eastbound on-ramp and
Lincoln Boulevard 1-10 westbound ramp involve Caltrans ownership and implementation of
mitigation is beyond the control of the City.
A significant traffic impact on the 1-10 Freeway segment east of Cloverfield Boulevard is
also identified, but cannot be feasibly mitigated because the scope of the freeway
improvements (widening) is beyond the control of the City.
Alternatives
Section 8 of the EI R analyzed eight alternatives to the proposed project that were selected
for their potential to lessen significant environmental effects resulting from implementation
of the proposed Program and/or to explore alternative locations and development
scenarios. The alternatives include:
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. Alternatives 1 and 2 represent no spaces added and, respectively, consist of a No
Project Alternative (as required by CEQA) and a scenario that assumes retrofitting
the existing structures, only.
. Alternates 3A and 3B present a reduced number of total spaces by adding only the
new structures or only rebuilding the existing structures, respectively.
. Alternative 4 analyzed the impacts of the full number of spaces, but locating the
new structures slightly outside the area designated by the Downtown Parking
Program.
. Alternatives 5A, 5B and 5C analyze variations that include mixed use above ground
and either more parking below ground, a reduced number of total spaces or
additional spaces added in a perimeter location, respectively.
Alternative 3B is identified as the environmentally superior alternative because of the
reduced intensity and partial fulfillment of the program objectives by providing an additional
712 net new spaces. However, the alternative still results in significant and unmitigable
traffic impacts at eight intersections, adds a new construction impact due to a lack of
replacement parking, would create significant levels of NOx and PM10 during construction,
and adds new Neighborhood Effects resulting from a long-term shortage of parking. While
Alternative 3B would reduce the Program impacts, this reduction is commensurate with a
reduction in the achievement of the Program objectives. Program objectives would be
fulfilled in the short term, but the ability to meet on-going parking needs would be
constrained. The original Kaku study identified a near-term need for over 1,000 spaces
and the subsequent Downtown Task Force assessment identified the longer-term objective
at total net gain of 1 ,712 spaces. Thus, Alternative 3B would result in a long-term deficit of
1,000 spaces. Additionally, Alternative 38 would not expand the downtown walking district,
a stated goal of the Program identified by the Downtown Parking Task Force as a tool for
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implementing a next phase of the Downtown Urban Design Plan. In the long range, this
alternative could adversely affect the downtown economic viability and vitality.
As detailed in Attachment C, the other alternatives either are not feasible, do not meet the
program objectives or are not environmentally superior.
Statement Of OverridinQ Considerations
In order to approve the project, the City Council must certify the EIR and adopt a statement
of overriding considerations. A statement of overriding considerations is a finding by the
City Council that the benefits of a proposed project outweigh the unavoidable adverse
environmental impacts. Staff recommends that a statement of overriding considerations is
warranted because the Downtown Parking Program will:
. Support the downtown area as an economically viable district by maintaining a
balanced approach of providing access to and within downtown, including an
adequate supply of parking.
. Provide parking facilities in the downtown to maintain the current level of parking in
proportion to commercial development.
. Continue to facilitate the successful and innovative approach to parking based on a
shared parking concept rather than tying parking requirements to each individual
development.
. Facilitate downtown circulation and accessibility by continuing to provide parking
resources within a walkable distance from downtown uses.
. Continue to expand the vitality of the downtown district in accordance with the goals
developed in the Downtown Urban Design Plan.
. Facilitate the continued availability and operation of the large number of spaces
ideally located within the downtown area through seismic retrofit of the tall
structures (#2 & #4.)
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. Improve utilization, efficiency and short-comings of the three 5-level (short)
structures by improving accessibility, circulation and adding spaces.
. Increase the activity at sidewalk level by including ground-floor commercial space in
the new and rebuilt structures.
. Reduce ongoing and increasing capital replacement requirements by tearing down
and rebuilding forty year-old parking structures. Additionally, Incorporate
environmental sustainability into the new and rebuilt structures.
Comments on EIR
A total of seven comment letters on the draft EIR received during the comment period are
included in the Final EIR along with responses to the comments (Section 1 of the EIR.)
An eighth comment letter was received after the close of the comment period and is
addressed here.
The Bay City Women's Club (Club) raised the issue that use of the Club's surface parking
lot directly north of Structure #1 was not adequately addressed in the EIR. The Club stated
that if the City's recent interest in acquiring the site was for the purpose of expanding the
existing parking structure, the EIR had failed to properly identify the scope of the project
and assess the potential impacts on the historic Women's Club Building. While the City
indeed made preliminary inquiries about the Club's interest in selling the parking lot, the
Club told the City that it was not interested. Consequently, negotiations for the purchase of
this site did not commence and no offer was made. As such, the EIR's analysis is
appropriate.
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PROGRAM IMPLEMENTATION:
Funding, Parking Fees and Parking Demand:
The conceptual Downtown Parking Plan adopted by Council in 2002 was estimated to cost
$92 million, not including the cost of the recommended tram operation. The original charge
from the Council for the task force was to develop a program that would not require
additional General Fund subsidy. A central feature of the program, as proposed, was that
people who benefit from the parking would pay for it. The task force recommended
moderate rate increases for all classes of parkers within the context of not driving business
away from downtown. They also recommended that the property owners contribute
through assessments so that short-term visitors would not have to pay the true cost of
parking. The recommendation to increase metered rates in the downtown to $1/hour has
been implemented, but monthly and short-term rates for those who park off-street have not
been increased. If the Council goes forward with the program, it should direct staff to
prepare a funding plan, identifying any proposed fee increases or City subsidies.
At the core of this project is the desire to create the right amount of parking for the
downtown, Le., enough so that downtown can continue to be an economic anchor and
great place for recreation, but not so much that City streets are choked with vehicles. For
the purposes of the study, demand for parking in the downtown was assumed to be
proportional to the square feet of development, at the same rates of parking per square
foot of development that is observed today. The downtown parking plan outlines a specific
strategy that would allow the City to meet this demand if development proceeds at a rate
approximating development over the past 10 years, roughly 50,000 square feet per year.
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The plan also recognizes a preference for the economic and recreational activity to occur in
the downtown without as many cars. The proposed program builds on the current model,
which provides off street parking near but not on the site of each downtown destination. It
also builds on the current model of charging people who park. If people who come to the
downtown don't value the parking enough to pay for it, that is a good sign the land could be
better used for something else. The plan includes not only a strategy to build for the
parking demand that is expected, but also a mechanism to allow the program to be
adjusted if future conditions change. The key element is a biennial review of progress and
parking occupancies. This will allow the City to monitor conditions and make adjustments,
either to the parking development program, to parking fees, or to other programs that affect
people's decisions how and when to come downtown.
Parking Structure Phasing/Next Steps:
· Seismic retrofit, painting and upgrade to frontages. The design of Structure #4 will
be underway this year and the implementation is anticipated to occur late 2006 or
early 2007. The upgrade of Structure #2 will follow shortly after Structure #4 is
completed. There is a coordinated plan to design and implement fayade
improvements.
· Staff is continuing to investigate opportunities to implement the proposed
expansion of parking facilities in the perimeter area to ensure that adequate
replacement parking is in place once the Civic Center parking structure is no longer
available as replacement parking for the downtown.
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· Staff will develop an approach for the re-building of the three existing structures.
· Staff in collaboration with the Finance Department, Redevelopment Agency, and the
City's financial advisors will develop a Downtown Parking Program funding plan in
accordance with the City's debt financing plan.
BUDGET / FINANCIAL IMPACT
Adoption of the Downtown Parking Program EIR will have no direct impact on the budget.
Each proposed Program implementation step will be reviewed by Council prior to action
and will include an assessment of budget and financial impacts.
RECOMMENDATION
It is recommended that the City Council take the following actions associated with the
environmental review of the Downtown Parking Program:
1) Adoptions of a Resolution Certifying the Final Program Environmental Impact
Report.
2) Adoption of a Resolution Making Necessary CEQA findings, adopting a
Statement of Overriding Considerations and Mitigation Monitoring and Reporting
Program.
3) Approve the Downtown Parking Program.
4) Authorize staff to proceed with next steps to implement the Downtown Parking
Program, including the procurement of design services.
Prepared by:
Andy Agle, Interim Director, Planning and Community Development Department
Ellen Gelbard, Deputy Director, Planning and Community Development Department
Lucy Dyke, Transportation Planning Management
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Reviewed by:
Jeff Mathieu, Director, Resource Management
Miriam Mack, Manager, Economic Development Manager
Tina Rodriguez, Manager, Redevelopment Administrator
Craig Perkins, Director, Environmental and Public Works Management
Tony Antich, City Engineer
Steve Stark, Director, Finance Department
Exhibits:
A - Final Program Environmental Impact Report Downtown Parking Program,
January, 2006
B - Resolution Certifying the Final Environmental Impact Report
C - Resolution Adopting a Statement of Overriding Considerations/ Mitigation Monitoring
and Reporting Program
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EXHIBIT A
Final Program
Environmental Impact
Report Downtown
Parking Program,
January, 2006
Available at
City Clerk's Office
EXHIBIT B
See Adopted
Resolution
10117 CCS
, .
"<" ~,
Resolution of Statement of Overriding Consideration
City Council Meeting: February 28, 2006
Santa Monica, California
RESOLUTION NO.
(City Council Series)
A RESOLUTION OF THE CITY COUNCIL
OF THE CITY OF SANTA MONICA MAKING FINDINGS NECESSARY
TO APPROVE THE DOWNTOWN PARKING PROGRAM,
ADOPTING A STATEMENT OF OVERRIDING CONSIDERATIONS, AND
ADOPTING A MITIGATION MONITORING PLAN
WHEREAS, an Environmental Impact Report has been prepared which analyzes the
environmental effects of the Downtown Parking Program; and
WHEREAS, the City Council, as Lead City Agency, reviewed the Final
Environmental Impact Report in full compliance with State and City CEQA Guidelines; and
WHEREAS, on February 28, 2006, the City Council certified that the Final
Environmental Impact Report was prepared in full compliance with State and City CEQA
Guidelines.
NOW, THEREFORE, THE CITY COUNCIL OF THE CITY OF SANTA MONICA
DOES HEREBY RESOLVE AS FOLLOWS:
SECTION 1. Consistent with Article VI, Section 12 of the City of Santa Monica
CEQA Guidelines and Section 15128 of the State CEQA Guidelines, the Initial
Study/Notice of Preparation determined that the following environmental impacts were not
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considered potentially significant and were not addressed further in the Final EIR:
geological/soils, biological resources, hazards/hazardous materials, recreation, mineral
resources, population /housing, utilities service systems, cultural resources,
economic/social impacts, hydrology/water quality, public services and agricultural
resources impacts.
SECTION 2. Consistent with Article VI, Section 12 of the City of Santa Monica
CEQA Guidelines and Sections 15091 and 15092 of the State CEQA Guidelines, and as
detailed in the Final EIR in Sections 4.11 ,4.12, 4.13, and 4.15 incorporated by reference,
the City Council finds that there are no significant impacts for noise & vibration and land
use & planning.
SECTION 3. Consistent with Article VI, Section 12 of the City of Santa Monica
CEQA Guidelines and Sections 15091 and 15092 of the State of California CEQA
Guidelines, the City Council finds that most impacts resulting from the project can be
reduced to a level that is less than significant. More specifically, significant environmental
effects, as identified in this Section below, can feasibly be eliminated or substantially
reduced to below a level of significance. However, significant adverse environmental
effects in the areas of transportation/circulation, air quality, construction effects specific to
air quality and neighborhood effects cannot feasibly be avoided or mitigated below a level
of significance. Nevertheless, in accordance with Section 15033 of the State CEQA
Guidelines, these impacts are found to be acceptable due to overriding considerations as
discussed in Section 6 below.
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(a) The Final EIR determined that without mitigation, the project could have a potentially
significant effect on aesthetics/shadows. Consistent with Article VI, Section 12 of the City
of Santa Monica CEQA Guidelines and Section 15091 of the State CEQA Guidelines and
as detailed in the Final EIR at Section 4.5, incorporated herein by reference, the City
Council finds that the following mitigation measures have been required of the project,
which will mitigate or reduce the impact of the project on aesthetics to below a level of
significance:
Liqht and Glare
. Shielded Interior Lighting. The City shall design the parking structures and
related lighting to ensure that no light extends onto adjacent light sensitive
receptors. The lighting shall be focused within or on the parking structures and
pedestrian areas, incorporating cut-off shields as appropriate, to prevent light
spillover onto adjacent light sensitive receptors.
. Landscape/Exterior Lighting: Landscape illumination and exterior sign lighting
shall use low-level, unobtrusive fixtures that shield and direct light pools away
from off-site viewers.
Shade and Shadows
. The City shall conduct a shade/shadow analysis for Structure Nos. 11 and 12
to determine if these structures would shade shadow-sensitive uses for more
than three hours between the hours of9:00 A.M. and 3:00 P.M. PST between
late October and early April, or for more than four hours between these hours
between early April and late October. If shading of light-sensitive uses occur,
then analysis of the City's assessment factors (including affected land use,
duration, time of day, season, extent, nature ofthe shadow, and pre-existing
conditions) would be made. If determined necessary, the structure shall be
modified either in terms of location or design so as to minimize adverse
shading effects.
(b) The Final EIR determined that without mitigation, the project could have
potentially significant effects due to the effects of traffic congestion from parking shortages,
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truck traffic, air quality and noise related to construction activities. Consistent with Article
VI, Section 12 of the City of Santa Monica CEQA Guidelines and as detailed in the Final
EIR at Section 4.6, incorporated herein by reference, the City Council finds that the
following mitigation measures have been required in the project that will mitigate or reduce
the construction impacts of traffic congestion from parking shortages, noise and truck traffic
to below a level of significance:
Traffic Conoestion From Parkino Shortaoes
The City shall prepare and implement a Parking Replacement Plan during Phases 1
through 4 of the Parking Program to offset Program and cumulative temporary parking
shortfalls during construction of the structures. A Replacement Plan shall be prepared
prior to the loss of parking spaces and shall include:
. The use of surplus parking spaces in the Main Library parking structure during
Phase 1 of the Program to offset the temporary loss of spaces due to the
seismic retrofit of Structure NO.4.
. The use of the 580 spaces in the Civic Center parking structure during Phases 3
and 4 of the Program as incorporated in this analysis to address cumulative
impacts. The City shall notify contract parkers in writing prior to the shift in
location of their parking spaces. This mitigation measure will result in temporary
secondary traffic impacts at three intersections: Ocean Avenue/Neilson
Way/Pico Boulevard, Fourth Street and Olympic Drive/I-1 0 eastbound on-ramp,
and Fourth Street / Pico Boulevard.
o Ocean Avenue/Neilson Way/Pico Boulevard will be mitigated through
Mitigation Measure T-2, as part of the Civic Center EIR Council Resolution
No. 9853, adopted May 20, 2003, and incorporated herein by reference, and
includes a protected/permissive phase for westbound left-turn movements
and modified intersection striping.
o The adverse traffic related impacts at Fourth Street and Olympic Drive/I-10
eastbound on-ramp and Fourth Street / Pico Boulevard can not be feasibly
mitigated, as physical constraints would require narrowing or eliminating
sidewalks and encroaching on adjacent public and/or private properties to
implement mitigation. These mitigation measures would themselves result in
significant negative impacts to the area. Narrowing or eliminating sidewalks
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adversely affects the pedestrian environment by reducing the walking area
and potentially forcing pedestrians into the street. Encroaching on adjacent
properties would require removal of landscaped areas and reduction of
public facilities/buildings and private buildings. These actions would
negatively affect the environment by removing green space that provides
visual relief, by reducing public and private facilities' ability to provide
services to the public, high school students and customers, and by reducing
the interest and variety of the pedestrian experience. Mitigation through
widening of City streets to accommodate additional vehicle trips is contrary to
City policy where preservation of the pedestrian environment is highly
valued.
. The City shall provide transportation, such as a shuttle service, from the Civic
Center parking structure to/from the downtown for contract parkers shifted to the
Civic Center parking structure as a result of Program mitigation.
. If necessary, the City shall ensure that surplus parking spaces in private
development are available. The City shall negotiate with property owners of
surplus parking to arrange for the availability of adequate replacement parking
during construction and implementation of the Program.
. The City shall implement a publicity program to inform visitors and residents of
the location of replacement parking. Such a campaign could include signage
posted along major approach routes to downtown, informational leaflets or
brochures and newspaper advertisements.
Noise
. Construction equipment, fixed or mobile, shall be equipped with properly
operating and maintained muffler exhaust systems.
. Construction activities shall be scheduled so as to avoid operating several
pieces of equipment simultaneously.
. Engine idling from construction equipment such as dozers and haul trucks
shall be limited to the extent feasible.
. Construction equipment, fixed or mobile, shall be located as far from noise-
sensitive uses as practical.
. For noise generating construction activity, additional noise attenuation
techniques shall be employed to reduce significant noise levels to the
greatest extent feasible. Such techniques may include, but are not limited to,
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the use of sound blankets and the construction of temporary sound barriers
between construction sites and nearby sensitive land uses.
. The City shall provide a telephone number for local residents to call to submit
complaints associated with construction noise. The number shall be posted
on the project site and shall be easily viewed from the adjacent public areas.
Truck Traffic
. Refer to measures listed under "Noise" above.
(c) The Final EIR determined that without mitigation, the project could have a
potentially significant effect on transportation and circulation. Consistent with Article VI,
Section 12 of the City of Santa Monica CEQA Guidelines and Section 15091 of the State
CEQA Guidelines and as detailed in the Final EIR at Section 4.1, incorporated herein by
reference, the City Council finds that the following mitigation measures have been required
of the project, which will mitigate or reduce the impact of the project at three of the thirty-
three study intersections to below a level of significance, as outlined below. However, as
detailed in Section 4(c) below, even with implementation of these measures, significant
traffic impacts remain.
. Ocean Avenue / California Avenue: Convert the existing southbound exclusive
right-turn lane to a shared through/right-turn lane at the Ocean Avenue and
California Avenue intersection. Implementation ofthis mitigation measure would
necessitate the provision of some combination of new striping, signage,
controller cabinets, poles, mast arms, detectors, and/or signal heads. It would
also require relocating the bike lane on the southbound approach to be along the
curb rather than between the through lane and right-turn lane as at present.
This would better align the bike lane on the approach with the bike lane on the
southbound departure.
. Ocean Avenue / PCH Ramps (Moomat Ahiko Way): Restripe the eastbound
approach of the Ocean Avenue and Pacific Coast Highway Ramps (Moomat
Ahiko Way) to provide one left-turn lane and two right-turn lanes, retaining the
existing overlapping eastbound right-turn phase that occurs during the
northbound left-turn phase. Implementation of this mitigation measure would
necessitate the provision of some combination of new striping, signage,
6
controller cabinets, poles, mast arms, detectors, and/or signal heads.
. Lincoln Boulevard / Colorado Avenue: Modify the signal phasing at the Lincoln
Boulevard and Colorado Avenue intersection eastbound approach to provide an
overlapping right-turn phase during the left-turn phase on the northbound
approach. Implementation of this mitigation measure would necessitate the
provision of some combination of new signage, controller cabinets, poles, mast
arms, detectors, and/or signal heads.
(d) The Final EIR determined that without mitigation, the project could result in
significant neighborhood effects. Impacts identified include construction effects and
transportation / circulation. Consistent with Article VI, Section 12 of the City of Santa
Monica CEQA Guidelines and as detailed in the Final EIR at Section 4.7, the City Council
finds that the mitigation measures identified in Sections 3(b), and 3(c) have been required
in the project that will eliminate most of the project's neighborhood impacts. However,
even with the implementation.ofthese measures, significant neighborhood impacts would
remain as a result of neighborhood construction related air quality impacts and
transportation / circulation impacts as identified in Section 4(a) and (b) below.
SECTION 4. Consistent with Article VI, Section 12 of the City of Santa Monica
CEQA Guidelines and Sections 15091, 15092, and 15093 of the State of California CEQA
Guidelines, the City Council finds that the significant environmental effects as identified
below can be reduced but cannot feasibly be avoided or mitigated to below a level of
significance. Nevertheless. these impacts are found to be acceptable due to overriding
considerations as discussed in Section 6.
(a) The Final EIR determined that without mitigation, the project could result in
7
significant effects on air quality generated from vehicle trips associated with the project.
Consistent with Article VI, Section 12 of the City of Santa Monica CEQA Guidelines and as
detailed in the Final EIR at Section 4.2, incorporated herein by reference, the City Council
finds that the proposed project results in a significant and unavoidable regional air quality
impact. Although there are no quantifiable, feasible mitigation measures to lower the NOx
emissions to a less than significant level, the City has implemented a number of measures
to encourage alternative modes of travel in and to the downtown area, including dedicated
transit lanes, enhanced transit amenities, and an enhanced walking environment (wider
sidewalks, pedestrian lighting, etc.) bike parking and related facilities. In addition, the City
requires employers with ten or more employees to prepare a transportation demand
management (TDM) plan and employers with fifty or more employees to provide additional
incentives. The City has achieved national recognition for employee rideshare and transit
service programs. These measures will continue to encourage the use of alternative modes
of transportation to reduce the environmental impacts of mobile emissions.
(b) The Final EIR determined that without mitigation, the project could result in
significant effects on construction effects. Consistent with Article VI, Section 12 of the City
of Santa Monica CEQA Guidelines and as detailed in the Final EIR at Section 4.6,
incorporated herein by reference, the City Council finds that the following mitigation
measures will reduce the project's temporary air pollutant emissions and secondary traffic
impacts but not reduce the effects to below a level of significance:
Construction-Related Air Qualitv Measures.
. All equipment shall be properly tuned and maintained in accordance with
manufacturer's specifications.
8
. All equipment shall be equipped with diesel particulate filters.
. Low sulfur diesel or other alternative fuels shall be used in construction
equipment where feasible.
. Electrically powered construction activity shall utilize electricity from power poles
rather than temporary diesel power generators and/or gasoline power generators
(Le. air compressors) where feasible.
. General contractors shall maintain and operate construction equipment such
that exhaust emissions are minimized. For example, engines shall be turned off
while in queues or while loading I unloading. In addition, heavy equipment and
petroleum-powered generators shall be turned off when not in use.
. Petroleum-powered equipment shall be turned off during second-stage smog
alerts.
. Exposed surfaces during site preparation activity shall be kept visibly moist.
. Water spray techniques shall be employed during demolition activity to limit
fugitive dust.
No additional feasible mitigation measures are available to reduce the impacts of
temporary air pollutant emissions.
Secondary Traffic Impacts.
. Ocean Avenue I Neilson Way and Pico Boulevard: City Council Resolution No.
9853, adopted May 20, 2003, as part of the Civic Center Parking Structure EIR
actions, approved a mitigation measure at Ocean Avenue / Neilson Way and
Pico Boulevard that will provide a protected phase for all westbound left-turn
movement.
No feasible mitigation was identified for secondary construction-related traffic impacts
from replacement parking at the Civic Center Structure during Phases 3 and 4 at two
intersections: Fourth Street and Olympic Drivel 1-1 0 eastbound on-ramp and Fourth
Street / Pico Boulevard. As discussed in Section 3(b) above, the proposed mitigation
measures would themselves result in significant negative impacts to the area.
9
Because no feasible mitigations measures are available at these locations, the Program
would result in significant and unavoidable secondary impacts at these two
intersections during construction.
(c) The Final EIR determined that without mitigation, the project could result in
significant effects on transportation and circulation. Consistent with Article VI, Section 12 of
the City of Santa Monica CEQA Guidelines and as detailed in the Final EIR at Section 4.1,
incorporated herein by reference, the City Council finds that the proposed project results in
significant and unavoidable impacts at the following eleven intersections for which no
mitigation measures:
. PCH 1 California Incline
. Ocean Avenue 1 Colorado Avenue
. 4th Street / Broadway
. 4th Street 1 Colorado Avenue
. 4th Street 11-10 Westbound off-ramp
. 4th Street! 1-10 Eastbound on-ramp
. 5th Street 1 Colorado Avenue
. Lincoln Boulevard / Wilshire Boulevard
. Lincoln Boulevard 1 Santa Monica Boulevard
. Lincoln Boulevard 1 Broadway
. Lincoln Boulevard / 1-10 Westbound ramp
The adverse traffic-related environmental impacts identified at the these intersections and
street segments cannot be feasibly mitigated as physical constraints would require
narrowing or eliminating sidewalks, compromising pedestrian crossing facilities or
encroaching upon adjacent properties to implement mitigation. These mitigation measures
would themselves result in significant negative impacts to the area. Narrowing sidewalk
widths or eliminating sidewalks adversely affects the pedestrian environment by reducing
the walking area for pedestrians and potentially forcing pedestrians into the street.
10
Eliminating crosswalks would lengthen pedestrian times by reducing direct routes.
Encroachments on adjacent properties would involve removing landscaped areas or
buildings, which would negatively affect the environment by removing adjacent green
space that provides visual relief, by reducing public and private facilities' ability to provide
services to customers and the public, and by reducing the interest and variety of the
pedestrian experience. Mitigation through widening of City streets to accommodate
additional vehicle trips is contrary to City policy where the preservation of neighborhoods
and the pedestrian environment is highly valued.
There are also significant and unavoidable impacts on the regional transportation system.
There are no feasible mitigation measures to reduce project-related traffic impacts on the 1-
10 freeway east of Cloverfield Boulevard in the westbound direction during the a.m. peak
hour and the eastbound direction during the p.m. peak hour as the required freeway
improvements to address these impacts is beyond the ability of any individual project to
implement.
SECTION 5. The CEQA-mandated environmentally superior alternative was found
to be "Alternative 3B - Retrofit and Rebuild, No New Structures." As analyzed in the Final
EIR in Section 8, Alternative 3B would result in impacts that would be equal to or less than
the impacts for the proposed project, as well as for each of the other alternatives
considered. Both of the reduced intensity alternatives, Alternative 3A (Retrofit and New
Structures - No Rebuild) and Alternative 3B would provide less benefit than the proposed
Program, but would also generate less adverse impacts due to their reduced development
11
programs. Alternative 3B provided the least amount of additional spaces (712 net new
spaces.) Impacts still included significant and immitigable traffic impacts at eight
intersections, traffic impacts on the 1-10 Freeway in the westbound direction, air quality-
related construction impacts and neighborhood effects from a potential long-term shortage
of parking. Unique to Alternative 3B, were the congestion-relation construction impacts
due to a potential shortage of replacement parking. While Alternative 3B would reduce
the Program impacts, this reduction is commensurate with a reduction in the achievement
of the Program objectives. Program objectives would be fulfilled for the shorter-range
future, but the ability to meet on-going parking needs would be constrained. The original
Kaku study identified a near-term need for over 1,000 spaces and the subsequent
Downtown Task Force assessment identified the longer-term objective at total net gain of
1,712 spaces. Additionally, Alternative 3B would not expand the downtown walking
district, a stated goal of the Program identified by the Downtown Parking Task Force as a
tool for implementing a next phase ofthe Downtown Urban Design Plan. In the long term,
this alternative could adversely affect the downtown economic viability and vitality.
Other alternatives include:
. Alternative 1: No Project Alternative (as required by CEQA.) The No Project
Alternative would not fulfill the Program's underlying purpose to support the
downtown area as an economically viable shared parking district. This
alternative would not provide additional parking nor related parking benefits,
such as spaces to maintain a balanced approach to meet demand, facilitate
downtown circulation and accessibility and expand the walking district. Without
12
the provision of sufficient parking spaces, the streets would become more
crowded as parking structures fill up and drivers circulate in search of a space
or, alternatively people may decide not to visit the area. Further, this alternative
would not provide for seismic safety and other necessary upgrades of capital
facilities associated with aging structures.
· Alternative 2: Retrofit Only Alternative. In this alternative all five structures
would be undergo seismic retrofitting but there would be no increase in the
parking supply in the downtown area. This alternative would not fulfill the
Program's underlying objectives in all of the same ways as those described in
Alternative 1, except for the seismic objectives.
. Alternates 3A: Retrofit and New Structures - No Rebuild. In this alternative
a reduced number of total spaces are provided by adding only the new
structures, with up to 1,000 spaces, and seismically retrofitting the short (5-story)
existing structures rather than tearing them down and rebuilding them. This
alternative is similar to alternative 3B, in that the program objectives are partially
addressed, however, it would fall short of the objectives specifically related to
upgrading older structures and activating frontages of 2nd and 4th Streets with
ground-floor retail, as well as failing to achieve the longer-range objectives ofthe
program as described 3B above.
. Alternative 4: Retrofit, Rebuild and New Structure South of the Project Area.
13
This alternative provides all the components of the full program, but locates the
new spaces slightly outside the area designated by the Downtown Parking
Program. This program would fulfill the proposed Program's underlying purpose
to support the downtown area as an economically viable shared parking district.
The perimeter parking would be located on block further south of the project
area and would require a slightly longer walk for patrons of the parking location.
One additional intersection would be significantly impacted. This alternative is
not environmentally superior to the project.
. Alternatives 5A: Mixed Use Alternative with more parking underground. This
alternative would provide the same amount of additional parking as the Program.
The mixed-use program could include ground floor retail, restaurants and movie
theaters. The alternative would fulfill the proposed Program's underlying
purpose to support the downtown area as an economically viable shared parking
district and generally would meet the other objectives of the Program. However,
this alternative is not environmentally superior to the project.
. Alternatives 5B: Mixed Use Alternative with two rebuilt structures containing only
underground parking. This alternative would provide less net new parking
spaces than the Program by including only underground parking in the rebuilt
Structures NO.1 and 3. Aboveground, these facilities would include a mixed-use
program of ground floor retail, restaurants and movie theaters. The alternative
would fulfill the proposed Program's underlying purpose to support the
14
downtown area as an economically viable shared parking district. However, this
alternative would not provide the same amount of additional parking as the
Program. Less additional parking would be provided in the core to support the
economic vitality of the core businesses in the location where there is the most
demand for parking. This alternative is not environmentally superior to the
project.
. Alternative 5C: Mixed Use Alternative with increased parking in the peripheral
structure south of the Project Area and underground-only parking in Structures
No. 1 and 3. This alternative is the same as 5B except the reduced spaces
provided in Structures NO.1 and 3 are added to the peripheral structure located
south of the Project Area. The alternative would fulfill the proposed Program's
underlying purpose to support the downtown area as an economically viable
shared parking district. However, fewer new parking spaces would be provided
in the core area of downtown where there is the most demand for parking. This
alternative is not environmentally superior to the project.
SECTION 6. As fully described in Section 4, the Final EIR found that the proposed
project would result in significant and unavoidable adverse impacts in the areas of air
quality, traffic and transportation and neighborhood effects. Consistent with Section 15093
of the State of California CEQA Guidelines, the City Council hereby makes a Statement of
Overriding Considerations and finds that the benefits of the Downtown Parking Program
outweigh the unavoidable environmental impacts based on the following reasons. The
15
Downtown Parking Program will:
1. Support the downtown area as an economically viable district by maintaining a
balanced approach of providing access to and within downtown, including an
adequate supply of parking.
2. Provide parking facilities in the downtown to maintain the current level of parking in
proportion to commercial development.
3. Continue to facilitate the successful and innovative approach to parking based on a
shared parking concept rather than tying parking requirements to each individual
development.
4. Facilitate downtown circulation and accessibility by continuing to provide parking
resources within a walkable distance from downtown uses.
5. Continue to expand the vitality of the downtown district in accordance with the goals
developed in the Downtown Urban Design Plan.
6. Facilitate the continued availability and operation of the large number of spaces
ideally located within the downtown area through seismic retrofit of the tall
structures (#2 & #4.)
7. Improve utilization, efficiency and short-comings of the three 5-level (short)
structures by improving accessibility, circulation and adding spaces.
8. Increase the activity at sidewalk level by including ground-floor commercial space in
the new and rebuilt structures.
9. Reduce ongoing and increasing capital replacement requirements by tearing down
and rebuilding forty year-old parking structures.
10. Incorporate environmental sustainability into the new and rebuilt structures.
SECTION 7. Consistent with Public Resources Code Section 21081.6, the City
Council adopts the Mitigation Monitoring and Reporting Program, which is included as
Attachment A, to mitigate or avoid significant effects of the Project on the environment and
to ensure compliance during project implementation.
16
SECTION 8. Consistent with Section 21 081.6(d) of the California Environmental
Quality Act, the documents which constitute the record of proceedings for approving this
project are located in the Planning and Community Development Department at 1685 Main
Street, Room 212, Santa Monica, California. The custodian of these documents is Ellen
Gelbard, Deputy Director.
SECTION 9. The City Clerk shall certify to the adoption of this Resolution, and
thenceforth and thereafter the same shall be in full force and effect.
APPROVED AS TO FORM:
17
Attachment A
MITIGATION MONITORING AND REPORTING PROGRAM
This Mitigation Monitoring and Reporting Program (MMRP) has been prepared pursuant
to Public Resources Code Section 21081.6, which requires adoption of a MMRP for projects in
which the Lead Agency has required changes or adopted mitigation to avoid significant
environmental effects. The City of Santa Monica (City) is the Lead Agency for the proposed
Santa Monica Downtown Public Parking Program and is, therefore, responsible for
administering and implementing the MMRP. The decisionmakers must define specific reporting
and/or monitoring requirements to be enforced during project implementation prior to final
approval of the proposed project. The primary purpose of the MMRP is to ensure that the
mitigation measures identified in the EIR are implemented thereby minimizing identified
environmental effects.
The potential impacts identified for the Program and therefore, the mitigation measures
for the Program are limited to the design phase (preconstruction) and construction phase. The
mitigation measures are presented by impact area, with an accompanying identification of:
. The method of verification of compliance;
. The timing during which the measure should be implemented;
. The frequency of monitoring; and
. The enforcement/monitoring/reporting agency.
City of Santa Monica
Downtown Parking Program
SCH No. 2002121122
January 2006
Page 1
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