SR-906-000 (19)
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FER 2 8 2006
EPWM: \Share\STAFF REPORTS\FY 05-06\02 28\415 PCH.doc
City Council Meeting: February 28, 2006 Santa Monica, California
TO: Mayor and City Council
FROM: City Staff
SUBJECT: Approval of Refined Schematic Design and Community Use Program for
the Rehabilitation of 415 Pacific Coast Highway
I ntrod uction
This report recommends that the City Council review, provide input and approve the
proposed refined schematic design for the rehabilitation and adaptive reuse of the property
at 415 Pacific Coast Highway. It further presents a proposed community use program and
financial projections for Council review and action. The proposed design refinements and
community use program reflect continuing community input as requested by the City
Council.
Backqround
Santa Monica State Beach is owned by the State of California and maintained and
operated by the City of Santa Monica under a long-term agreement. The five-acre historic
property located at 415 Pacific Coast Highway is directly adjacent to the beach, Santa
Monica's most recognized and used open space. The property, which was operated as a
private beach club for many years, has been vacant, boarded and fenced for twelve years.
A community planning process that resulted in a reuse plan was approved by the City
Council in 1999. In 2004, the Annenberg Foundation granted the City $21 M so that the
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site could be redeveloped as a public recreation facility.
On June 28, 2005, the City Council authorized the City Manager to enter into a design-
build contract with Pankow Special Projects for preconstruction services. Its team includes
design architect Frederick Fisher and Partners, landscape architect Mia Lehrer Associates,
historic consultant Historic Resources Group, and project artist Roy McMakin.
On July 28, 2005, a public open house was held on the site. On October 1 and 2, 2005,
public workshops were held on-site. The two-day event presented an emerging design and
involved participants in small group workshops focusing on specific aspects of the project.
A web site (415pch.smgov.net) was established that posted notes from the workshops and
continues to provide the public with periodic updates to the project's status. The interactive
website allows the public to post comments and provide feedback on the emerging design.
Design presentations on the status of the project have been made to California State
Parks, the State Office of Historic Preservation, the Annenberg Foundation, Landmarks
Commission, Recreation and Parks Commission, Arts Commission, Commission for a
Senior Community, Disabilities Commission, Social Services Commission, Pier Restoration
Corporation, Santa Monica Convention and Visitor's Bureau, Caltrans, and California
Coastal Commission. The response from these bodies has been positive. Meetings have
also been held with the Palisades Beach Road Property Owners Association.
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After hearing public comment, Council approved the schematic design on January 10,
2006. At that time Council requested that the project team return with additional design
details and also provide financial projections and potential operating subsidies. The
Council also asked City staff to meet with project neighbors to continue the dialogue
addressing their concerns related to the development of the site. Staff from the
Department of Community and Cultural Services and the City Attorney's office has met with
neighbors on three occasions since then, and there have been numerous other
communications.
Discussion
Project Goals
The continuing development of the 415 PCH project design is guided by the goals of the
reuse plan. The reuse plan envisions an exciting public place that:
. Preserves the history of the site
. Encourages a "light touch" on the site
. Creates a community-oriented destination
. Provides public recreational activities
. Creates a range of uses
. Encourages diverse users
. Provides year-round use
. Links to the regional open space network
Additional Design Detail
The following narrative and attached design documents (Attachment 1) respond to the
Council request in January to return with additional design detail prior to review by the
Planning and Landmarks Commissions. The design includes a series of inter-related
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indoor/outdoor spaces that encourage public beach recreational use year-round and also
provide for targeted event and cultural programming during non-peak periods. Issues of
scale, material selection and durability have been developed to achieve a strong public
identity for the project. Concrete, concrete block, wood panels and tile will be used to
evoke the permanence associated with other important community structures. Window
and door systems clad in wood on the interior and aluminum on the exterior and trellis
screens will add warmth and detail reminiscent of the construction and scale of the North
House and original Mansion while providing durability. Glass walls are planned throughout
the project for both their physical and temporal qualities.
The site will be identifiable from Pacific Coast Highway by a row of Washingtonian Palms
along its boundary. The facility will be accessed from the parking lot to the south through
the Entry Pavilion that will contain staff offices, storage, and relocated public restrooms.
The number of restroom stalls will be equivalent to those located within the existing public
restroom building at the north end of the site and will include family changing rooms. From
this point, visitors may enter the controlled pool area or access the beach area to the west
or garden area to the north and east.
The beach area will be defined and organized by a series of boardwalks and concrete
pathways providing universal access and pedestrian circulation from the parking lots to the
pool, garden areas, and towards the ocean. The Beach Walk, composed of boardwalks
and enhanced concrete paving, will provide access from the parking areas. The alignment
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of the Beach Walk follows the historic 1921 Mean High Tide Line and historic bulkhead.
The Ocean Walk will provide access from the facility to the existing bike path and beyond
toward the ocean.
Beach volleyball and paddle tennis courts will be located at the north end of the site. The
existing beach restroom will be demolished. A new, low slung, 1,000 square foot
concession/storage building will be constructed slightly to the west. It will supply beach
amenities such as balls, sunscreen, and beach chairs to the public. On the south side of
the Ocean Walk, a Children's Play Area will include play equipment and poured-in-place
rubber safety surfacing and paths providing universal access to all equipment. Showers
and foot washes will be located at the north and south entrances to the beach from the
parking lot, the public restroom area, and the intersection of the Beach Walk and Ocean
Walk.
The facility amenities include the North House, the Event House, and the Pool and Pool
House. The historic North House will undergo rehabilitation. The first floor will be dedicated
to meeting spaces, an interpretive center, a small catering kitchen and office functions.
The second floor will provide space for meeting rooms (two with ocean views) and
associated support spaces. The North House Garden, located immediately to the west, will
provide an intimately scaled location for small gatherings.
The Garden Terrace, located between the Event House and the North House, will be a
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level landscaped area. A solid masonry or cast-in-place concrete wall at the east side of
the Garden Terrace will act as a sound buffer to Pacific Coast Highway. This wall will be
articulated with a re-circulating water element. On the north side of the garden, an existing
retaining wall will be retained. The existing pathway from the service drive to the North
House entrance will be reconstructed to eliminate the current step up to the porch. The
western edge of the Garden Terrace will be shaded by a grouping of palm trees and
defined by a railing, separating the Beach Walk and the Garden Terrace.
The Event House is designed to accommodate recreational, interpretative and cultural
programs and classes, meetings and retreats, and small social gatherings and functions.
Its amenities include a 100 person meeting room, a 50 person meeting room, and a 50
person multi-purpose room, as well as a food staging area that includes counter space with
a sink, electrical outlets and refrigeration.
The Pool enclosure will consist of a combination of eight foot high fencing and gates
surrounding the Entry Pavilion and Pool House. The Pool House will accommodate men's,
women's and family changing rooms, lockers, equipment/chemical storage and office
functions. The second level of the Pool House will provide a viewing deck and recreation
room for informal activities in the summer and small gatherings and meetings in non-peak
periods. The historic Pool and surrounding marble paving will be maintained and restored.
The historic concrete deck pavers with tile inserts will be removed for pool rehabilitation
and replaced in kind. Deck areas on the west and east sides of the Pool will be expanded
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for chairs and chaise lounges. A sloping walkway and integrated stairs will provide access
to the enclosed picnic and water play areas to the north. The Pool will be heated via a solar
collection system.
The existing parking lots will be repaved and landscaped. A perimeter wall along PCH will
be constructed using durable materials. The design will reflect a rhythm similar to the
original, historic fence, yet will be compatible with the contemporary architecture and
programmatic needs of the site. Plant materials will be selected for coastal zone
compatibility and minimal irrigation requirements.
The Draft Environment Impact Report identified a full traffic signal at PCH and the south
parking lot as a possible mitigation measure to address. vehicular access to the site.
Discussions regarding the installation of this signal are currently underway with Caltrans.
In order to minimize delays to through traffic, providing a signal that is demand-activated
and integrated into the signal progression along PCH will be pursued.
The Project will incorporate several sustainable features with the goal of attaining a
Leadership in Energy and Environmental Design (LEED) Silver rating in accordance with
the policies articulated in the Santa Monica Sustainable City Program and Green Building
Guidelines. Strategies include water efficiency measures, control of light pollution,
selection of materials with high recycled content and no or low Volatile Organic
Compounds (VOC's), dual flush toilets, waterless urinals, use of natural light and
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ventilation, solar water heating.
Proposed Design Refinements
Since Council approval of the schematic design In January, the project team has
concentrated on the community use aspects of the project and corresponding design
refinements. In addition, continuing discussions with project neighbors have resulted in
design responses to address their concerns. These concerns have focused primarily on
three key areas: site security and management, event impacts, and traffic safety.
Design refinements addressing site security and management include:
· Demolition and relocation of existing public restroom to controlled area
· Gating of Public Restroom entries
· Perimeter railings and fencing
· North Parking Lot landscaping
· Installation of security cameras
· Directed building and parking lot lighting
· Closure gates at all parking lots
· Gates at all entries to open space areas east of the Beach Walk
· Reduction in size of the Event Court and redefinition as the Garden
Terrace
· Addition of enclosed Family Picnic Area adjacent to Pool
· Timers for parking lot safety lighting
· Closure gate to North Parking Lot at North House port-cochere
· North Parking Lot landscaping to include screening west of North House
· South Parking Lot sound wall
· Concession Building roof design considerations
Design refinements addressing event impacts include:
· Reduction of Event House size by up to 1,000 sf
· Elimination of physical connection to the Pool House
· Elimination of Event House Viewing Deck and exterior stairs
· Elimination of large Event Room in Event House and reconfiguration of
interior spaces
./ Multipurpose Room (capacity 50)
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.,/ Meeting Room 1 (capacity 50)
.,/ Meeting Room 2 (capacity 100)
.,/ Interpretative Gallery Space
.,/ Refrigeration, Ice Machine and Counter Space for Catering
· Limitation on square footage of individual site meeting rooms, not to
exceed 2,000 sf
· Location of trash enclosures away from neighbors
As to traffic safety, staff and the Annenberg Foundation are working with Caltrans to
attempt to secure a traffic light to facilitate left-hand turns in and out of the property.
Proposed Community Use Program
Guided by the Council-approved project goals, the following proposed community use
program will serve as the basis for further design development and begins to more clearly
articulate the way in which the site will be operated, once open to the public. The pre-
eminent purpose of this site is to promote the Santa Monica beach experience. The site
provides a rare opportunity for community members and visitors to enjoy a quintessential
Southern California beach experience while at the same time sensing the site's important
and colorful history. In the summer, it promotes "an easy day at the beach" by providing
typical beach recreation and offering conveniences such as take-out food service, beach
concessions and advanced reservations for swimming, picnicking, volleyball, and paddle
tennis. In the winter, uses focus on indoor retreats, meetings, social functions and cultural
programs while still providing ocean views and access to open spaces designed to
complement these activities. At the same time, beach volleyball, paddle tennis, the
children's play area and the popular beach cafe will continue to draw those local residents
who have already discovered the benefits of this site during the summer season.
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Key to providing this optimal beach experience is a well-managed operation that balances
the desire for an open and accessible public place with the realities that come with
intensively used and popular recreational areas. The operation must also be sensitive to
the site's neighbors. In developing operating parameters, extensive input was received
from neighbors, as well as City staff who operate and maintain public facilities and event
managers of private and public retreat and meeting facilities.
Neighbor input proved to be extremely valuable in clarifying use issues and developing
solutions. The neighbors' operational concerns focused again on the areas of site security
and management, event impacts, and traffic safety. Additional concerns centered on the
need for formal mechanisms to ensure City compliance with Proposition S (establishing
permitted uses within a Beach Overlay Zone) and the operating plan and the need for
administrative and legal remedies. All input was evaluated in light of the Council-approved
project goals.
Proposed operating parameters governing community use that address site security and
maintenance include:
· Public Restrooms and Sand Area site east of the Bike Path closed at
dark - year round
· General public parking closed at dark - year round
· Public parking fee incentives to use shuttle service during high season
from remote lots (under review)
· Facilities east of the Beach Walk closed at dark except for booked uses -
year round
· Priority use of the Garden Terrace for groups booking meeting facilities
- weekdays, low season
· Public use regulations for the Garden Terrace
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· Use of Children's Play Area restricted to children and accompanying
adults (existing ordinance)
· Increased management of adjacent Palisades Bluffs - maintenance and
enforcement (under review in the context of the City's Budget)
· Year-round program and site maintenance staffing
· Nighttime security staffing
· Daytime ranger staffing, peak use periods
· Fee-based booking for North House and Event House
· Priority Reservation System for public use of Pool and Family Picnic
Area, and Courts
· User fees for Pool and Family Picnic Area
· Advanced reservation fee for Courts
Proposed operating parameters addressing event impacts include:
· Focused Use of Event House
./ High Season (June - September) - Recreation and Fitness,
Cultural/Interpretative Programs and Exhibits, Weekday Meetings, No
Social Functions
./ Low Season (October - May) - Weekday and Weekend Meetings and
Social Functions, Weekend Afternoon Cultural Programs,
· Organized food service (limited to 2,000 sf at any given time on site
except for existing beach cafe)
· Exemption for incidental food service
· Limitation on event hours (10 pm weekdays, 11 pm weekends)
· Limitation on event parking lot hours (11 pm weekdays, 12 pm
weekends); managed and staffed event parking required; event permit
passes required for evening events
· Organized food service provided by on-site concessionaire and approved
offsite caterers under contract with City
· Event furniture provided by the City; prohibition against outside furniture
rentals
· Prohibited use of outdoor spaces for event set up except for designated,
limited parking areas
· Alcohol use restricted to beer and wine only; staffed bar service only
(caterer permit), for booked indoor events only; service to end % hour
before end of events
· Use of amplified music outdoors, for limited City day-time events only
· Enforcement of City noise ordinance limits
· Event parking use of middle parking lot before neighbor-adjacent lots
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Proposed communication strategies include:
· Posting of monthly event schedule on the project website
· Monthly e-mail event notifications to neighbors
· Periodic neighbor meetings with City staff
· Annual report and public hearing - City Councilor Recreation and Parks
Commission
Administrative and Legal Remedies
Legal staff advises that numerous possibilities exist for both administrative and legal
remedies. As to administrative remedies, neighbors may lodge complaints about the
facility's operation with City staff. Additionally, Council may wish to direct staff to report
periodically on the operation of the facility and to include information about any complaints
received from neighbors and actions taken to address complaints. Such Council review
would provide an opportunity for neighbors and others to express any concerns they may
have about operation. Alternatively, Council could direct the Recreation and Parks
Commission to conduct periodic hearings on the facility's operation. Another possibility for
administrative remedies has been suggested and considered. The Palisades Beach Road
Property Owners Association (the Association) has suggested the creation of a new public
body to oversee the facility in the same way as the Pier Restoration Corporation oversees
operation of the Pier. However, staff does not believe that it is necessary or desirable to
create a new body to oversee a single recreational facility, particularly in this case since the
City's contract with the Annenberg Foundation imposes very high performance standards.
As to legal remedies, several potential remedies already exist. For instance, permit
conditions may be imposed to reflect aspects of the plan and operating standards which
12
protect neighbors' quality of life. If these conditions are violated, permit revocation is a
possible remedy. Also, if, in the future, operation of the Event House changes significantly
from what is now proposed to the point that Proposition S constraints become an issue,
neighbors could assert claims under that measure. Likewise, if operation of the project
were to change and somehow deteriorate to the point that neighbors' quality of life became
gravely impacted, civil nuisance remedies might be available to them. However, staff notes
that this scenario is not a realistic possibility given the City's commitment to the Annenberg
Foundation.
Members of the Association have suggested that other legal remedies be created. For
instance, they have suggested a contractual agreement with the City or a stipulated
judgment, enforceable in court. Given the availability of other administrative and legal
remedies, and the necessity of maintaining some level of flexibility in the project's
operation, City staff does not believe that it is advisable or necessary to create additional
remedies. Most recently, neighbors have suggested establishing a procedure whereby an
action to enforce permit conditions could be brought in court to ensure a neutral forum.
The City Attorney is assessing the legalities of this proposal.
Next Steps
Action to certify the Final Environmental Impact Report and consider the project's
development review permit and other relevant discretionary actions is scheduled for the
March 15th Planning Commission meeting. Subsequently, the Landmarks Commission will
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take action on the required Certificate of Appropriateness. Coastal Commission review is
anticipated in Spring 2006. Staff will return to Council in Fall 2006, at the completion of the
design development phase, for approval of the proposed guaranteed maximum price
(GMP) and activation of the second phase GMP Amendment of the design-build contract.
Construction is scheduled to commence in early 2007 with a projected opening date of
January 2009. This ambitious timeline has been developed in order to comply with
conditions of the City's Grant Agreement with the Annenberg Foundation.
BudqeUFinanciallmpact
Construction Cost
The proposed refined schematic design achieves a high level of responsiveness to the
goals of the reuse plan and to community members and site neighbors who have
participated in the recent community design process. Based on this schematic design, the
current total estimated project cost is $33.3M which includes previously approved
preconstruction and design fees, direct owner costs, construction and furniture, fixtures and
equipment (FFE). Approximately $24.6M of the total is for construction related activities
which includes construction, contractor's fee, contractor's contingency,
bonds/insurance/taxes, permits and a 10% escalation factor.
The currently available funding sources total approximately $23.1 M. This includes $21 M in
funds awarded by the Annenberg Foundation in December 2004. The City included an
additional request of $4M in its original grant request to the Foundation in anticipation of
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future design elements that would enhance the quality of the project. Recent close
conversations with the City have caused the Foundation to strengthen its financial
commitment to ensure that the project is community-responsive and is constructed and
operated at the highest level of quality. The Foundation is currently considering the
release of the additional requested $4M as well as an additional 15% grant contingency of
$3.6M for a total grant increase of up to $7.6M. This will reduce the project shortfall to
$2.6M. The team is continuing to look for other value engineering opportunities and
additional City funding sources. If a funding gap still remains as project estimates are
refined during design development, additional value engineering options will include
reductions in the square footage of proposed meeting spaces and amenities, and further
reductions in outdoor hardscape.
Operating Revenue and Expense Projections
At its January 10th meeting, the City Council asked staff to provide an operating pro
forma for the site with detail on projected operating revenues and expenditures and the
possible level of City subsidy that would be required if revenue-producing events were
minimized to respond to neighbor concerns. The attached 415 PCH Revenue and
Expense Pro Forma (Attachment 2) sets forth a "base program" that is consistent with
the operating parameters articulated in this report. This base program conservatively
estimates the number of booked, revenue-producing events and limits operating
expenses to site and event management, open space and facilities maintenance, site
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security, and seasonal recreation. The base program is revenue neutral (the attached
pro forma reflects positive net revenue of $18,000 annually).
A number of "variables" have also been identified in the attached analysis thafwould either
result in an annual operating subsidy or an increase in the net revenue generated. These
variables continue to assume compliance with the project's proposed operating
parameters. Variables are presented that either further enliven the site and maximize
public access and use (cultural and interpretative programming, extended pool hours,
additional site security, seasonal site shuttle service and reduced event rental rates) or
those that increase revenue generation (increased event bookings).
These variables have been presented separately to provide information on the financial
impact of various policy and program considerations so that Council can provide direction
on those variables that should be addressed as the full operating plan is finalized. For
instance, adding those variables that enhance public access and further address key goals
of the reuse plan result in a total annual operating subsidy of $340,000. Conversely, if only
variables that generate additional revenue were applied to the base program, the annual
net revenue would be increased to $217,000. If all variables are applied together, the
annual operating subsidy would be $141,000. This subsidy increases to $403,000 if
current onsite revenues generated from public parking and beach concessions are not
attributed to the site. These revenues currently are allocated to the City's Beach Fund to
support general beach maintenance costs.
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Final budget recommendations for 415 PCH operations will be included in the City
Manager's Proposed City Budgets in the coming three years. Council comment on the
attached financial information will inform those budget proposals.
Recommendations
City staff recommends that the City Council approve the refined Schematic Design and the
operating parameters presented in this report and provide policy direction on the extent to
which variables contributing to an ongoing operating subsidy should be considered in
developing the final Operating Plan for the site.
Prepared by: Craig Perkins, Director
Anthony Antich, P.E., City Engineer
Lauren Friedman, A.I.A., City Architect
Department of Environmental and Public Works Management
Barbara Stinchfield, Director
Karen Ginsberg, Assistant Director
Department of Community and Cultural Services
Steve Stark, Director
Finance Department
Attachment 1: Design Documents
Attachment 2: 415 PCH Revenue and Expense Pro Forma
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