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SR-307-002-04-01 (4) e --. S.5- , .?Il'?-'" ooz..-~ '/-0 I jJ'. g 1~86 C/ED:EDD:EF: Council Meeting: July 8, 1986 Santa Monica, California TO: The Mayor and City council FROM: City Staff SUBJECT: civic Center Improvement program Background and Technical Information Report INTRODUCTION This report transmits to the City Council the Background and Technical Information Report for the civic Center Improvement program. The report concludes part 1 of the planning and market analysis for the project prior to beginning the public review and comment period. This pUblic review periOd will be followed by part 2 , the draft civic Center Improvement Program document whiCh will provide an improvement and/or development program for the site. This staff report describes the purpose of the Background and Technical Intormation Report, summarizes the Report's major findings, presents a brief analysis of the opportunities and constraints of the civic Center site and describes four primary improvement/development scenarios plus several additional site plan concepts. The staff report recommends that the City council review the Technical Report and provide staff with its initial comments and directions prior to beginning public review and comments on the Technical Report. 5.5- , jU", 8 l~b6 - 1 - e e BACKGROUND In January 1986, the city retained the services of a team of consul tants headed by Barton Myers Associates to prepare the civic Center Improvement Program. Barton Myers Associates (project management and schematic site planning) is assisted by Harrison Price Company (market analyses), Edgardo contini and Harold Marks (parking and traffic circulation analyses), Theater Projects (technical feasibility of Auditorium reuse), and campbell and campbell (schematic site plans and landscaping). The Background and Technical Information Report is intended to provide information that will assist the city in determining an appropriate improvement program for the civic Auditorium and its adjacent surface parking lot. This project site totals approximately 473,000 square feet of land or about 10.9 acres. The Technical Report provides information on the "market demandll for cultural and civic facilities; on the net cost to construct, operate, and maintain these and other community facilities; and on the types of land uses and scale of development on the block that would be required to generate revenue to offset the cost (plus a 20% contingency to provide a margin of comfort) of building, operating, and maintaining desired cultural and civic facilities. The Technical Report contains four scenarios for the City Council's and community's consideration and illustrates these scenarios with conceptual site plans. These conceptual plans were prepared to help determine the ability of the site to - 2 - e e accommodate a variety of development mixes given the limited amount of land area available for development and the consequent market demand. The Technical Report also provides a "unit" of net revenues generated by office development. This information will enable the city Council to determine the all\ount of revenue-generating uses that would be required to be developed on the block to offset the cost of alternative mixes of cultural and civic facilities. On a gross basis, it is estimated that one square foot of office space would generate approxill\ately $1.39 per year in land lease revenue to the city. Each parking space will generate approximately $120 per year in direct and ground lease revenue to the City. MAJOR FINDINGS The Background and Technical Information Report presents a number of findings. Civic Auditorium 1) Operation of the Civic Auditorium resulted in a net deficit to the City during the first 11 years of its existence. During the 1970.s, the facility operated at a net surplus due to the popularity of rock and roll shows staged in the facility. By the mid-1980's, the facility fluctuated between operating losses or small profits. 2) Today, the Santa Monica civic Auditorium is a moderately successful financial entity compared with other civic auditoriums in Los Angeles county. 3) The short term prospects for the facility are far improved froll\ the decline or marginal nature of the facility during the early 1980's due to the enlarged capacity of the building and the agreement with Avalon Attractions to help book the facility. - 3 - e e 4) The civic Auditorium is an example of a multiple purpose hall which by its nature compromises its excellence for staging certain types of events. The facility is well suited to accommodating pop/rock concerts, film exhibitions, and special events. The building is not as well suited as a venue for opera, broadway-type theater productions, symphony, and dance programs. 5) The civic Auditorium serves a limited number of community and civic users. Of the 52 "civic" events staged at the facility in 1985, only about 15 were events that would find it difficult to relocate to other facilities if the Auditorium were demolished and replaced with a smaller facility or rehabilitated to a different type of facility. Cultural and civic Facilities 1) The Los Angeles region could support no new theaters beyond those existing or currently proposed if the market demand for theater space was derived only from the supply of available seating in the region's facilities compared to the region's population (number of seats per 1,000 population). If all new theaters proposed for the Los Angeles region were constructed, the region would have the same number of theater seats per 1,000 population as New York. However, demand for theaters is derived from primarily the quality of the product being offered. If one theater offers a better show than another, the theater-goer may switch his or her allegiance to a particular theater. 2) There is a demand for using the civic Auditorium as a mid to large sized popular/rock music venue. At its current 4,500 person capacity, the civic Auditorium is the second largest enclosed mid-sized venue in the Los Angeles region, the largest behind the Universal Amphitheater. All seven of the most influential promoters in the Los Angeles market expressed strong interest in using the ci vie due to its capacity, location, parking, and general ambiance. 3) There is a demand for a small 300-500 seat performance theater based on discussions with numerous small theater companies in the surrounding area, on the number of performances given, and on the high attendance at local theater productions. These small theaters are usually designed with an adjoining 99 seat experimental theater or "black box". 4) There would be a demand created for a specialized use for the Civic Auditorium if new theatrical prOduct would be staged in the facility. This would require identifying an operator which has a theatrical product to import into the area (the traveling show of a Broadway play) or locating a group or organization which would use the facility for a specialized use (a film institute or organization). - 4 - e e 5) A 50,000 square foot conference center and a 350 room hotel to serve the center could be supported by the proj ected growth of conference and meeting activity in California resort areas. A 50,000 square foot conference center is of a scale that is compatible with a community the size of Santa Monica and would be served by not only hotel facilities in Santa Monica but also the westside area. compatible Revenue-Generating Land Uses 1) The demand for office development is approximately 200,000 square feet per year. 2) The Civic Center is not well suited to large scale retail development due to its proximity to Santa Monica Place and the Third Street Mall. The area is suitable for retail that would support office, conference, hotel, and other site employees and visitors. 3) There is an estimated demand for 844 first class hotel rooms not associated with a conference center in the Civic Center/Oceanfront area but approximately 1,050 are planned for the area. Depending on the timing of these planned new room, the Civic Center area could capture some of the demand. SITE ANALYSIS The Civic Center site has both opportunities that could enhance improvements and development of the site and constraints that will control the amount and location of improvements and development that are possible. site opportunities site opportunities that benefit the parcel include the direct and easy access to the Santa Monica Freeway which will be improved with construction of the proposed 4th street on-ramp; the surrounding surface street system which can accommodate additional traffic; and the potential redevelopment of the Rand - 5 - e e property which could incorporate visual and pedestrian linkages with Ocean Avenue, the Pier, and the Promenade. The city's general plan permits up to 1.4 million square feet of development on the Civic Auditorium parcel which is currently developed with the 72,000 square foot Auditorium facility for an FAR of 0.15. Traffic counts for street segments between Pico Boulevard and Colorado Avenue indicate that Ocean Avenue's current average daily traffic volume is about 65% - 70% of its design capacity, Main street is about 25% of its design capacity, and 4th street is at 58% - 75% of its capacity. Site Constraints The Civic Center area serves as the center of governmental and jUdicial activities in the city and any improvements and development of the Civic Auditorium parcel should be compatible with this activity. The civic Center/Oceanfront area is also expected to experience a significant amount of new development on adj acent parcels in the near future both on the Rand parcel across Main Street and on large parcels along Ocean Avenue and the school administration site. This major growth activity will significantly alter the character of the area and may also result in limits to development due to potential traffic congestion in the area. The parcel is physically and visually separated from major activity centers such as the Downtown, the Third street Mall, and the beach by the Freeway, the Rand parcel, and Santa Monica Place. - 6 - e e A major 120" storm drain traverses the civic Auditorium site 16' to 20' below the surface which limits the amount of underground parking that is possible on a key portion of the site near the Freeway on-ramp. The underground storm drain requires that parking be located primarily in above-grade parking structures which limit the amount of Civic Center parcel available for buildings and open space. IMPROVEMENT AND DEVELOPMENT SCENARIOS The Background and Technical Information Report delineates four scenarios which illustrate a range of options for the City in improving the civic and cultural amenities in the area. (See Attachments 1 - 4.) The cost of providing these improvements (plus a 20% contingency for a margin of comfort) would be offset by the development of revenue-generating uses on the Civic Auditorium parcel which are compatible with both the Civic Center's role and function and the constraints of the area. TWO scenarios provide for the improvement of the existing Civic Auditorium and two scenarios provide for its demolition and replacement with new cultural amenities. The schematic site plans provided for each scenario are conceptual and are intended to illustrate for comparative purposes the scale and mass of development that would be required on the parcel under different scenarios. All scenarios assume that up to 1/3 of all parking is provided below-grade and the remaining 2/3 is provided in an above-grade parking structure due primarilY to the location of the underground storm drain. All scenarios also assume that parking currently provided on the Civic Auditorium parcel for - 7 - e e city Hall and County Courthouse employees, visitors, and jurors will be located in a structure built behind the city Hall and county buildings. Providing replacement parking on the Civic Auditorium parcel for City and County use would severely limit the improvement and development options available for the parcel. Scenario A scenario A suggests retaining and rehabilitating the civic Auditorium as a popular/rock music venue, constructing a small outdoor grassy amphitheater for community concerts and programs, constructing an art museum/gallery, and providing significantly improved landscaping to create a park-like environment. Tbe approximatelY $330,000 net annual cost for paying off capital improvements and providing for operatingjmaintenance expenses (including a 20% contingency) would require the development of 131,000 square feet of office space on the Civic Auditorium parcel to generate sufficient annual ground lease revenue to offset the cost of providing the Civic amenities. The total development on the Civic Auditorium parcel including above and below grade parking would be 457,000 square feet. All above-grade development would total 0.72 FAR. (This assumes that the area devoted to above-grade parking would be counted at 2j3rds of its actual floor area as permitted in the city's proposed Zoning Code.) scenario B scenario B recommends the conversion of the Civic AUditorium building to a musical theater venue or to another use that would - 8 - e e be compatible with a 350 room hotel and 50,000 square foot conference center. (Retaining the civic as a popular/rock music venue would be incompatible with hotel and conference center operations.) The scenario also recommends landscaping the block to create a park-like setting for the development. The report estimates that it would cost the City $1,092,000 per year to cover the construction, operation, and maintenance of the conference center (including a 20% contingency). To offset this cost, the City would be required to dedicate the transient occupancy tax revenue from the new 350 room hotel on the parcel and a portion of the transient occupancy tax revenue from the other hotels in the area that would be served by the conference center. This arrangement is typical of other communities with similar conference centers since the conference center helps to both stimulate and stabilize annual tourist and business travel in the community. To offset the approximately $697,900 net annual capital, operating, and maintenance costs (including a 20% contingency) required to rehabilitate and reuse the Civic AUditorium as a musical theater or other compatible facility and to provide a landscaped park-like setting, about 275,000 square feet of office space would have to be developed on the parcel. The resulting 1,231,000 square feet of development on the parcel including underground parking translates into an FAR of 1.9 for all above-ground development. Scenario C scenario c supposes the demolition of the Civic Auditorium and its replacement with other civic and cultural amenities. These - 9 - e e include a 50,000 square foot conference center, an art museum/gallery, and a landscaped park-like setting. As in scenario B, the cost of providing and operating the conference center would be offset by transient occupancy tax revenue from the on-site and other nearby hotels. To offset the $442,000 annual capital, and operating and maintenance costs (including a 20% contingency) for these facilities would require the construction of a 350 room hotel (which would be necessary for the efficient operation of the conference center) and 175,000 square feet of office space. There would be 922,000 square feet of development on the parcel including underground parking. The FAR for above-grade development would total 1.48 FAR. scenario D Scenario D recommends demolishing the Civic Auditorium and replacing it with a 500 seat and 99 seat theater complex, a grassy outdoor amphitheater, an art museum/gallery, and landscaped park areas. The $1,238,000 annual capital and operating/maintenance costs (including a 20% contingency) would require the development of 489,000 square feet of office space. This would result in 1,156,000 square feet of development (including underground parking) or 1.71 FAR for all above-grade development. Alternative scenarios In addition to the four scenarios presented in the body of the report, the consultants also provide additional site plan concepts that are included for the Council's consideration. - 10 - e It These alternative concepts would require a refocus of the present civic Center Improvement Program study and would require that additional work be done to refine these concepts. However, as concepts, they deserve the City Council's consideration as they represent a maj or rethinking of the the ci ty' s present (and historic) Civic Center grouping of facilities. Each alternative contains some major difficulties and significant tradeoffs in their implementation, but each provide the potential for a civic center complex that would directly link with the pier, the Promenade, beach, and Pacific Ocean. These alternatives suggest that the civic Center axis shift from a north-south (Santa Monica Freeway - pico Boulevard) orientation to an east-west (City Hall ocean) orientation. The alternatives suggests that new development of the Rand property accommodate a visual and pedestrian "civic" corridor across the Rand parcel. This corridor would require either the purchase of the property or shifting of development potential to other portions of the property. The civic corridor connection would continue across Ocean Avenue to the Promenade either utilizing city-owned property adjacent to Seaside Terrace (necessitating a "slanted axis" from city Hall to the ocean) or privately owned property between Seaside Terrace and Arcadia Autoway (permitting a "perpendicular axis" directly to the ocean). This would require purchasing residential property and relocating tenants and homeowners. civic and cultural facilities, pedestrian oriented uses such as retail shops and restaurants, view corridors, pedestrian promenades, and small one-way streets would - 11 - e e be located within this civic corridor. To offset the increased costs involved in implementing these alternatives, a significant amount of new development would be required on the civic Audi torium parcel to generate revenue. The costs to implement this scenario could be offset by maximizing development of the civic Auditorium parcel. The parcel could accommodate up to: 1) 475,000 square feet of office development plus a 350 room hotel and 50,000 square feet conference center which would generate about $1,085,000 per year or 2) 600,000 square feet of office development if no conference center/hotel is included which would generate up to $1,570,000 per year. This would fully develop the southern end of the Civic Center block and reorient the civic complex to the west toward the ocean. While the potential costs appear high and implementation would be lengthy and complex, the results would be dramatic. FINANCING AND IMPLEMENTATION Specific financing and implementation mechanisms will be presented in the draft civic Center Improvement Program once the city Council provides staff with directions on which scenario or combination of scenarios to utilize. However, it is assumed that the city would sell bonds based on the anticipated revenue the city could receive from a ground lease of the Civic Auditorium parcel. RECOMMENDATIONS It is recommended that the city Council review the Background and Technical Information Report and provide staff with its initial - 12 - e e comments. Based on Council comments, staff will proceed to conduct pUblic workshops on the Technical Report and return to the council in September with recommendations on drafting the Civic Center Improvement Program report. Attachment 1 Scenario A - civic as a popular music venue; grassy amphitheater; art museum/gallery; landscape/park; office space of 131,000 square feet Attachment 2 scenario B - civic Auditorium as a musical theater venue; conference center and hotel; landscape/park; and 275,000 square feet of office space Attachment 3 Scenario C - Demolish Civic; construct conference center and 350 room hotel; art museum/gallery; landscape/park; 175,000 square feet of office space Attachment 4 scenario D - Demolish Civic; add 500 and 99 small theater complex; grassy amphitheater; museum/gallery; landscape/park; 489,000 square of office space seat art feet Attachment 5 Background and Technical Information Report for the Civic Center Improvement Program Prepared by: Peggy Curran, Director, ClEO Ernesto R. Flores, Economic Development Manager Christopher S. Rudd, Senior Administrative Analyst cvctocc2 - 13 - ... e e ATTACH:-IEKT - , !I.I c:J U ..c .~ .....4- .~ 4- ..c c c. 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