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SR-10-A (20) Ccr-rlrtJcf -tr h 1zo CC5 lOA d., PCD SF KG DM f \ppd\share\ccreport\downtown COUNCIL MEETING July 22, 1997 .; JUl 2 2 1991 Santa Monica, California TO. Mayor and City Council FROM' City Staff SUBJECT Recommendation to conduct a Public Heanng, Conceptually Approve the Downtown Urban Design Plan, Authorize the CIty Manager to Negotiate and Execute a Contract wIth C T & F I Inc for the ImplementatIon of the FIrst Phase of the Plan, and Direct Staff to Prepare Design and Construction Drawings for Phase II Improvements INTRODUCTION This staff report recommends that the City CouncIl conduct a public hearing, conceptually approve the Downtown Urban DeSign Plan, and authonze the City Manager to Negotiate and Execute a Contract With C T & F for the Implementation of the first phase of the plan This report provides Information on the Downtown Urban DeSign Plan, including a summary of key concepts and components of the plan, a phasing schedule for Implementation of the plan, a summary of project costs, and a summary of the public review and partICipation process Transmitted With thiS report are copies of the Downtown Urban DeSign Plan, DeSIgn Plans and Sections, and a general cost summary BACKGROUND In conjunction With the City CouncIl's adoption of the Bayslde District SpeCific Plan In 1 lOA ,.<;"1 " , JUl 221997 January 1996, the City Council authorized the City Manager to execute a contract with Roma Design Group to prepare the Downtown Urban Design Plan for the area bordered by Wilshire Boulevard on the north, the Santa MOnica Freeway on the south, the alley between Seventh Street and Lincoln Boulevard on the east, and Ocean Avenue on the west The Roma Design Group consultant team Includes Kim Yasuda, ArtiSt, Avacon Corporation, CIVil Engineering and Cost Estimation, The Engineering Enterprise, Street Lighting Consultant, EconomiC Planning Systems, Implementation, and Kaku ASSOCiates, Traffic Consultant The objectIves of the plan are to Improve traffiC Circulation Within the area, upgrade the pedestrian quality of the downtown streets, Improve transit faCilities In the downtown, and prOVide better linkages to adjOIning activity nodes such as the CIVIC Center, the Santa MOnica Pier, Palisades Park, and surrounding reSidential areas In order to assist In the development of the plan, and keep the Planning CommiSSion and City CounCil Informed of the progress In developing the plan, the CounCil appOinted a five member Downtown Urban DeSign Plan Steering Committee consisting of three City CounCIl members and two Planning CommiSSioners KEY COMPONENTS OF THE PLAN The proposed streetscape plan outlines a number of street Improvements In the 28-block downtown area One of the main objectives of the plan IS to balance the traffiC flow by 2 altering the eXisting lane configuration and Improving slgnage to promote way-finding and better dlstnbute traffiC In addition, the plan Includes a new street tree program, new lighting, transit Improvements, street furniture and public art concepts A more complete description of the plan objectives and concepts IS contained In the attached Downtown Urban Design Plan dated July, 1997 (Attachment A) Phase One - Roadwav Confiauration Modifications In September 1996, the City Council appropnated funding for the design of the first phase of the Downtown Circulation plan The first phase of the circulation plan Includes the follOWing o Restrrpe 4th Street to eliminate one lane northbound and add metered parking on the east Side between Wilshire Boulevard and Broadway, o Restnpe 5th Street to add one lane southbound and a two-way left turn median, maIntaining two lanes northbound, o Restnpe Broadway to carry two-way traffiC, o Modify the Santa MOnica Place parking structure located at the southwest corner of 4th Street and Broadway as necessary due to the Introduction of two-way traffiC on Broadway, o Eliminate left turns out of Santa Monica Place parking structure on to Colorado Avenue, o Establish a controlled nght-turn from northbound Ocean Avenue to eastbound Colorado Avenue, eliminating the "free right", o Convert the Intersection of Ocean Avenue and Colorado Boulevard to an "all cross" Intersection where there Will be an exclUSive pedestnan signal phase which Will allow pedestrian to cross the street In all directions on one time, and 3 o Modify traffic signals and timing to facIlitate new traffic flow A detailed description of these changes IS contained In the Downtown Urban Design Plan DesIgn Plans and Sections dated July 1997 (Attachment B) The purpose of the proposed first phase changes is to redistribute traffic from northbound Fourth Street and eastbound Santa Monica Boulevard onto less busy parallel streets (Fifth Street and Broadway) The conversion of Fifth Street to two-way traffiC may reroute some north bound traffiC from Fourth Street to Fifth Street, however, staff continues to have Significant concerns over the elimination of one north bound lane and the introduction of all day parking on the east Side of Fourth Street ThiS modification Will result In additional delays and added congestion on Fourth Street Although staff has VOiced concerns over the modification, the Steering Committee was Willing to accept the added congestion as a necessary trade-off In order to Improve the pedestrian quality of Fourth Street and prOVide on-street parking for Fourth Street bUSinesses ThiS change IS not a Significant cost element, the only phYSical change required IS the modification of the eXisting parking meter slgnage to allow all day parking on the east Side of the street ThiS change should be Implemented on a pilot baSIS In order to measure the traffiC Impacts to 4th Street If It IS determined that the resulting congestion on Fourth Street IS not acceptable, a Simple change to the parkIng meter sIgnage would convert the parking lane on the east SIde of the street back to a north bound traffiC lanee 4 In September, 1996, when the Council appropnated funds for the design of the first phase Improvements, staff was dIrected to return to the Council for appropnatlon of funds for the Implementation of the Improvements Following the CouncIl's action, request for proposals were sent to seven firms for the design of the first phase Improvements The consulting firm of WPA Traffic Englneenng, Inc was selected to perform this task The plans and contract documents were completed by WPA In June, 1997 FollOWing the published advertisements, bidding packages for thiS project were requested by two contractors One bid was received, and read by the Deputy City Clerk on June 30, 1997 C T & F . Inc was the only firm to submit a bid for the project Staff has checked the references proVided by C T & F, Inc and all references found their work to be satisfactory The State Office of Consumer Affairs. the DIVISIon of Labor Standards Enforcement and the State Contractors License Board all venfled that the Contractor's license IS current. active and In good standing Staff IS recommending that the City Council authonze the City Manager to negotiate and execute a contract With C T & F , Inc In the amount of $473,643 for the Implementation of the first phase roadway configuration Improvements If approved by City Council, the roadway modifications would begin In late August, 1997 and would be completed pnor to ThanksgiVing, 1997 Phase Two - Transit Circulation Improvements In conjunction With the development of the streetscape plan, the consultant team and Steering Committee have worked closely With the Santa MOnica Transportation Department to develop a transit plan which IS consistent WIth the Transportation 5 Department's efforts to Improve transit operations within the Downtown area The key component of the plan IS the creation of a downtown transit loop to help balance circulatIon by shifting some route segments off heavily traveled Fourth Street and Santa Monica Boulevard and onto less busy parallel streets (Fifth Street and Broadway) As proposed, this transit loop will result In the creation of transit pnonty lanes on the south side of Santa Monica Boulevard and on the north side of Broadway, between Ocean Avenue and Fifth Street The transit pnonty lanes will be located adjacent to sIdewalks that are 19' wide on Santa MOnica Boulevard and 18' Wide on Broadway, which Will provide room for transit related facIlities such as benches, shelters, and InformatIon kiosks The addition of the transit pnonty lanes and Wider Sidewalks along the north Side of Broadway between Ocean Avenue and Fifth Street and on both Sides of Santa Monica Boulevard between Ocean Avenue and Fifth Street Will create a distinct "terminal" character In the area of greatest pedestrian concentrations In addition to the Big Blue Bus and the MTA, the Tide Shuttle Will use the transit loop to provide better service within the downtown area In order to link the transit mall wIth the Santa MOnica Library, thiS phase of the project WIll also Include new street furniture, lighting and landscaping on Santa Monica Boulevard between Fifth Street and Seventh Street The combination of Improved transit routing and a more pedestnan-onented downtown Will help make transit a more attractive alternative 6 The 1997/98 budget approved by the City Council Included an appropnatlon of five million dollars for the Implementation of the transit mall Following Council approval of the Downtown Urban Design Plan, staff will Issue a request for proposal for a design consultant to finalize the plan for the transit mall and to produce construction drawings for the project Staff will return to the City Council for authonzatlon to negotiate and execute a contract With a design consultant Additional Circulation Improvements In addition to the phase one roadway configuration modifications, and the phase two transit circulation Improvements, the Plan recommends that Second Street between Wilshire Boulevard and Broadway be restnped to create a southbound bias (two southbound lanes and one northbound lane) ThiS Improvement IS coupled With a recommendation to reconfigure the Second/Main StreeUColorado Avenue Intersection from two intersections to one intersection as Identified In the CIVIC Center SpecifiC Plan The proposed circulation changes to Second Street will be reevaluated after the installation of OlympIC Boulevard as part of future phases of the Downtown Urban Design Plan Steerino Committee Recommendation At the last Steenng Committee meetmg on June 12, 1997, the Committee discussed several outstanding Issues and adopted a motion to recommend City CounCil approval of the plan The attached Downtown Urban Design Plan documents reflect Steenng Committee recommendations The Issues discussed by the Committee are outlined below 7 Medians on Ocean Avenue and Wilshire Boulevard The proposed plan Includes medians on Ocean Avenue and Wilshire Boulevard The medians on Wilshire Boulevard were deSigned to provide a gateway entry Into the downtown area and add greenery to the street The medians extend the entire length of each block With left turn lanes at each Intersection The Ocean Avenue medians were deSigned to provide a landscape area where the landscaping In the park would connect With the downtown These medians were located on the north half of each block With the south half of the block maintained as a left turn lane Representatives from the Police Department and Fire Department expressed concerns about the proposed medians and their Impact on emergency services In response to the Issues raised by the Police and Fire Department, the Steering Committee recommended a modified approach to address the public safety concerns POSSible solutions to the emergency access Issues may Include deSigning the medians on Wilshire Boulevard With rolled curbs at the alley Intersections so that emergency vehicles can cross at mid-block On Ocean Avenue, Instead of a raised median, landscaping alternatives Will be evaluated to enhance the street aesthetiC These options Will be further explored when the final deSign for the medians IS developed Location of Bike Lanes The addition of the transit lane on the north Side of Broadway between Fifth Street and 8 Ocean Avenue will require the removal of the Class II bike lane that currently runs west on Broadway In response to this Issue, staff IS recommending that the bike lane be rerouted to run from Broadway, north on Seventh Street and west on Anzona Avenue to Ocean Avenue, where a Class II bIke lane currently eXists The section of Broadway between Seventh Street and Ocean Avenue would be reclassified to a Class III bike lane The Steenng Committee supports this recommendation 4th Street Wldenlna A recommendation was made to reduce the sidewalk widths on both sides of Fourth Street from 14' to 12' to provide parking on both the east and west sides of the street, while stili maintaining two lanes southbound and one lane northbound ThIS would result In the addition of 30 metered parking spaces on the west sIde of the street between Wilshire Boulevard and Broadway Staff believes that the cost Involved with this proposal outweighs the benefits and the resulting congestion would be detrimental to the downtown Furthermore, redUCing the Sidewalk Width IS InconSistent With the overall plan objective of increasing the amount of space available for the pedestrian Therefore staff does not support thiS recommendation While the Steering Committee agreed With staff's concerns about the Fourth Street Widening and felt that It should not be Included In the plan, they are recommending that the City re-examine thiS Issue at a later date once the circulation patterns have been modified and after Implementation of Phase II Improvements 9 Santa Monica Boulevard between Fifth Street and Seventh Street The onglnal concept for the transit mall on Santa MOnica Boulevard Included widening the sidewalks to 19 feet bet'Neen Ocean Avenue and Fifth Street In an effort to link the Third Street Promenade with the Mam Branch Library at Santa MOnica Boulevard and Sixth Street, widened sidewalks were proposed to be extended to Seventh Street ThiS concept has proven to be problematic since the extension of the Widened Sidewalks from Fifth Street to Seventh Street would result In the loss of approxImately forty on-street parking spaces which are relied upon by the bUSinesses fronting on Santa MOnica Boulevard, since these bUildings do not have anyon-site parking Staff beheves that the linkage to the hbrary can be accomplished with the addition of new street trees, lighting and street furniture without Widening the Sidewalks and that transit can utilize the eXisting roadway system, which has two lanes m each direction The Steering Committee concurs with proceeding to Widen the Sidewalks on Santa Monica Boulevard between Ocean Avenue and Fifth Street, and recommends revIsiting the additional Sidewalk WIdening adjacent to the Library when the Library Master Plan IS developed Post Office Box OraD-Off The proposed conversion of Fifth Street from one-way northbound to two-way traffic Will require the removal of the driver Side mall box drop-off at the Post Office Options for relocating thiS drop-off box have been studied In addition to the creation of an Island median In the southbound direction on Fifth Street City staff presented thiS Idea to the Post Master, who Indicated that the postal service would not allow their personnel to cross 10 traffic to the median to empty the mail boxes The Post Master proposed that mall boxes could be located on both sides of the street for drop-off from the passenger side of the car The Steenng Committee IS recommending that staff continue to work with the Post Master to place a mall box In a location where dnver Side drop off IS pOSSible Options may Include one way alleys or city owned parking lots Street Trees The Plan consists of a street tree program which expands the use of palm trees on the artenal streets surrounding the downtown area (Wilshire Boulevard, Ocean Avenue and Colorado Avenue) The eXisting palm trees on Wilshire Boulevard and Ocean Avenue would remain and additional palm trees would be planted on Colorado Avenue Along the north-south streets, an alternating pattern of London Plane trees IS proposed on Second Street, Fourth Street and Sixth Street, With Jacaranda trees on Fifth and Seventh Street to complement the eXisting Jacarandas on the Promenade The plan calls for the eXisting FICUS trees to be "reforested" over time With the lighter canopied Jacaranda The replacement of every other FICUS WIth Jacaranda IS proposed as a first phase Improvement In five to seven years, after the trees are well-establIshed, a second phase of replanting Will replace the remaining FICUS ThiS Will enable the street tree change to take place Without lOSing the tree-lined quality of the streets Additionally the plan calls for the creation of a gateway entrance on Fifth Street between 11 the Freeway and Colorado Avenue which may Include enhanced landscape treatment On Arizona Avenue, Santa Monica Boulevard, and Broadway, the plan recommends large, broad-canopied deciduous trees (such as LlqUldambar straclflua) to be planted to give dramatic fall These trees Will provide shade In the warmer months and help toward the cItywide goal of extending the community forest Into pavement-domlnated areas The final tree selection Will be made when the final designs for the Individual phases of the plan are developed In order to ensure that all new street trees are properly maintained, the plan Includes an automatic Irngatlon system throughout the downtown area The Steenng Committee IS recommending approval of the street tree program In their recommendation to approve the overall plan Street Lighting The proposed street lighting plan for the project area calls for uSing a hlstoncal light standard that was once used In the CIty and IS currently being reinstalled on Broadway The pole IS a traditional prestressed fluted concrete pole with double ornamental arms and acorn-type prismatic lumlnanes The light standard IS approximately 19 feet tall The plan proposes uSing thiS light standard on all downtown streets within the project area The eXlstlng cobra head light standards would be maintained at Intersections Downtown alleys Will be lit with single teardrop luminaries hung on a catenary cable between adjacent bUilding walls Poles Will be used where adjacent bUilding walls are not available The Steering Committee IS recommending approval of the lighting plan In their recommendation 12 to approve the overall plan Public Art The primary concepts that were developed by the team for the public art program Include a pedestrian paving treatment which would Involve a narrow strip of design within the eXisting sidewalks with a narrative on local history and native landscape, the design of the transit related street furniture within the transit mall area on Santa Monica Boulevard and Broadway, and the creative use of light to emphasize significant bUildings and locations throughout the downtown area The Steering Committee felt that while the public art plan IS conceptual, certain aspects of the plan should be focused on as the various phases of the plan are further developed SpeCifically, the Committee recommends that the pedestrian paving program and the lighting plan be Included as part of the final Urban DeSign Plan The Committee did not feel that the transit shelters should be part of the art program because they felt that the City should use commercially available shelters, which would be more affordable than custom bUilt shelters and would be consistent with shelters used In other areas of the City Role of Steerlna Committee Followlna Adoption of the Plan - - - This phase of the Downtown Urban DeSign Plan IS conceptual, and the Implementation of each phase Will require preparation of detailed deSign plans The Steenng Committee has recommended that they remain active on this project to assist In the development of the final deSign and Implementation of the plan ThiS IS a departure from how other public 13 Improvement prOjects have been Implemented and Staff has some concerns that this process may delay Implementation of Phase II Improvements However, should the Council decide to continue the Involvement of the Steering Committee, Staff will work with the Committee to expedite the Improvements whIle affording the Committee the opportunity to review the plans PROJECT PHASING AND COSTS The phasing and costs of the proposed streetscape project are detailed In the Conceptual Summary of Probable Cost General Summary (Attachment C) As previously stated, Phase One of the project will Include Circulation modifications to Fourth Street, Fifth Street and Broadway, and modifications to the Santa Monica Place parking structure The estimated cost for the Phase One Improvements IS $568,000 As previously stated, the actual bid for thiS phase of the project came In at $473,643 Phase Two of the project will be Improvements to the transit priority streets (Santa MOnica Boulevard and Broadway) to Include wider sidewalks between Ocean Avenue and Fifth Streets for transit amenities, street lighting, landscaping and street furnishings ThiS phase also Includes new street lighting, street furnishings and landscaping for Santa MOnica Boulevard between Fifth Street and Seventh Street The cost for Phase Two IS $4,885,853 The 1997/98 budget contains an appropriation of $5,000,000 for thiS phase of the project 14 Phase Three of the project would Include street lighting, landscaping and street furnishings on Second and Fourth Streets at a cost of $1 ,572,345 Phase Four would Include street lighting, landscaping and street furnishings on Ocean Avenue, Fifth Street (Including the Fifth Street Gateway) at a cost of $2,236,018, Phase Five would Include street lighting, landscaping and furnishings for the remainder of the project area Including alley Improvements at a cost of $9,453,045 The total cost of the project would be $18,715,261 Funding sources have not been Identified for phases three, four and five The order of the prOject phases can be changed In response to needs and availability of funding SUMMARY OF PUBLIC REVIEW PROCI;SS Since January, 1996, staff and the consultants have been working with the Downtown Urban DeSign Plan Steenng Committee and the communIty to develop the components of the plan In addition, a Technical AdVISOry Committee (TAC) with representatives from vanous City departments was formed to address technical Issues related to the plan Members of the TAC Included representatives from the Pollee Department, the Fire Department, EnVironmental and Public Works Department, Community and Cultural Services Department, Resource Management Department, the Transportation Department the Library, and the Planning and Community Development Department The public review process has Included the follOWing meetIngs and workshops o Twelve stakeholder Interviews with vanous representatives from the downtown area bUSiness community o Three informational meetings Including a bUSiness group Informational meeting, a neighborhood group Informational meeting, 15 and a hotel/vIsitor Informational meeting o Three meetings with the City staff Technical AdvIsory Committee o Nine Steering Committee meetings o Two Community-Wide workshops o Planning Commission Heanng o Presentation to the Commission on Older Amencans o PresentatIon to the Public Art Committee Pubhc notice for the steenng committee meetings and the community Wide workshops has included extensive mailings to all property owners and tenants In the proJect area, mailings to all neighborhood groups and other Interested parties, and display ads and articles In the Outlook ENVIRONMENTAL ANALYSIS When the CIty Council adopted the Bayslde DJstnct SpecIfic Plan In January of 1996, the CounCil certified the Bayslde Dlstnct SpecifiC Plan Environmental Impact Report which contained an analysIs of the traffic in the downtown area The traffic consulting firm of Meyer Mohaddes Associates has examined the Impacts of the proposed circulation changes which would result from the adoption of the Downtown Urban Design Plan, and has concluded that the proposed clrculatlon changes would not result In any additional Impacts to intersections within the plan area 16 BUDGET/FINANCIAL IMPACT Staff IS recommending that the City Council authorize the City Manager to negotiate and execute a contract with C T & F , Inc In the amount of $473,643 for the Implementation of the first phase of the Downtown Urban DeSign Plan Funds In the amount of $675,000 have been budgeted for the first phase Improvements and are available In CIP account number 01-770-266-20098-8905-99464 RECOMMENDATION It IS recommended that the City Council hold a public hearing, conceptually approve the Downtown Urban DeSign Plan, authorize the City Manager to negotiate and execute a contract with C T & F I Inc for the Implementation of the first phase of the plan, and direct staff to prepare deSign and construction draWings for Phase II Improvements Prepared by Suzanne Fnck, Dlfector of PCD Karen Ginsberg, Planning Manager David Martin, Acting Semor Planner Attachments A 8 C Downtown Urban DeSign Plan dated July, 1997 DeSign Plans and Sections dated July, 1997 Cost Summary dated July, 1997 17