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SR-10-23-2007-8BCity Council Meeting: October 23, 2007 Agenda Item: To: Mayor and City Council From: Eileen Fogarty, Director, Planning and Community Development Subject: Request for the Exposition Construction Authority to Study an Additional Alignment Alternative on Colorado Avenue in the Phase 2 Light Rail Draft EIR/EIS, Provide Input to the Screening Process for Alternative within the City of Santa Monica and Authorize $300,000 for the Study of the Colorado Alternative Recommended Action Staff recommends that Council: 1) Authorize a request to the Exposition Construction Authority (Expo Authority) to study an alternative alignment into downtown Santa Monica along Colorado Avenue that would allow an at-grade station in downtown Santa Monica, and would assume removal of one travel lane in each direction to accommodate the light rail line. This review will enable City Council to be presented with options that will ensure the most successful implementation of the light rail line for the City of Santa Monica. 2) Recommend to the Exposition Construction Authority to study an Olympic Boulevard alternative that preserves the median island and coral trees and assumes removal of one travel lane in each direction. 1 3) Authorize the expenditure of an amount not-to-exceed $300,000 for the Exposition Construction Authority to study the additional Colorado alternative. The amount includes the cost of accelerating the study to avoid delaying the project and also a 10% contingency to cover possible additional community meetings Executive Summary The Exposition Construction Authority (Expo Authority) is completing the Initial Screening stage of Expo Phase 2 study and is scheduled to consider which alternatives will undergo full analysis in the Draft EIR/EIS at its November 1, 2007 Board meeting. The future Exposition light rail line is critically important to Santa Monica and it is crucial that the project serve the community in the best way possible. Much of the future land use planning focuses on the Exposition light rail and the opportunities that it presents. City staff has met with Expo Authority staff to review the Authority's preliminary assumptions regarding the alignment in Santa Monica and the staff has identified several issue areas; 1. As currently scoped, the mid-section of the line in Santa Monica is placed within the middle of Olympic Boulevard and requires removal of the landscaped median island and coral trees. Staff is recommending City Council request the Expo Phase 2 Study assume removal of one traffic lane on each side of the median island, consistent with the previous 2001 Draft EIR/EIS, in order to preserve the landscaped median island, coral trees and the green boulevard along Olympic. 2. The Phase 2 study currently assumes an approach into downtown adjacent to the north side of the Santa Monica Freeway with a sharp turn at the end so the station parallels 4th Street. This '/ mile section approaching into downtown is currently proposed to be an aerial structure in order to clear Lincoln Boulevard and the freeway ramps, culminating in the downtown station which would be 35 feet in the air above 4th Street. The downtown station cannot be at grade with this approach 2 because of the topography and site constraints. Staff is recommending that City Council request the Expo Authority to concurrently study a second alternative that assumes the mid-section would run at-grade along Colorado Avenue rather than Olympic Boulevard, which would allow for a downtown station that would be at street level. It is important that the light rail station be well-integrated into our downtown and the likelihood is vastly improved if the station is at-grade and easily accessible. This Colorado Avenue proposal would also be studied with the assumption that one travel lane in each direction would be removed to accommodate the light rail line and parking. The concurrent study of both alternatives will facilitate clear decision making and will ensure that the City, the Expo Authority and Metro have considered the best possible options. The two alternatives and their associated considerations are summarized in Exhibit A. Staff recommends that Council authorize covering the cost to accelerate the study of the new Colorado alternative so as not to delay or jeopardize the federal funding application process. Discussion Backaround Consideration of station placement and alignment issues are critical to the Land Use and Circulation Elements (LUCE) vision of the City's future as the light rail will transform areas into pedestrian oriented walkable districts. The incredible opportunity for the City and the importance of these placement decisions will define how these areas function in the future. The Expo Authority is reaching a next milestone, and it is anticipated that at the November 1, 2007 Board meeting it will confirm which alternatives will undergo the full analysis as part of the Draft EIR/EIS. The Expo Authority is on a tight schedule and 3 input into the study process at this point in time is critical, as changes to major assumptions in the future could delay the project. Analysis The Expo Authority is completing its Initial Screening for alternatives suggested during the Exposition Light Rail Phase 2 Draft EIR/EIS Scoping process. The proposed alignment in Santa Monica utilizes the Exposition Right-of-Way (ROW) until just west of Cloverfield Boulevard, where the light rail alignment diverges from the ROW and would follow Olympic Boulevard into downtown Santa Monica (Exhibit B). Staff has identified 4 several key issues with this alignment that are worthy of Council consideration: • Olympic Boulevard Median Island/Coral Trees: As currently scoped, the rail alignment would require removal of the center median with its landscaping and coral trees. The Expo Authority has stated that it intends to add landscaping in the corridor where possible. The photo mock-up below (Exhibit C) provides an illustration of the stark appearance of the section of Olympic Boulevard with the median island replaced by the light rail line. The previous draft 2001 study preserved the median and the landscaping by locating the rail line on each side of the median and removing a lane of traffic in each direction. There may be a way to achieve the alignment without the removal of the island and the coral trees. Staff would like to request the Expo Authority to develop a street section that would retain the median island and the landscaping. The Expo Authority has stated that the City will need to identify the alternative, which could include the removal of a traffic lane in each direction rather than the removal of the median island. If requested, the Expo Authority would perform the analysis to understand the impacts. 5 • Downtown Station Aerial Configuration: The downtown station is proposed ih the Phase 2 Study to be located just north of Olympic Drive/the Santa Monica Freeway and parallel to 4t" Street, consistent with the adopted Civic Center Plan. However, the alignment is assumed to be in an aerial configuration some 35 feet (three plus stories above grade) in the air to clear Lincoln Boulevard and the 4t" Street on-ramp. The elevated section would extend approximately % mile and, depending on the location would range in height from 23 to 35 feet. The proposed station along 4t" at Colorado is also shown to be 35 feet above the sidewalk at 4t" and Colorado (Exhibit D). As depicted in the photograph below, aerial stations generally are supported by concrete columns. This elevated structure at the entrance to downtown could detract significantly from the City's character, scale and desired pedestrian environment. Staff has asked the Expo Authority whether there is a way to provide the station at grade. The Authority has indicated that with this alignment it will be necessary to elevate the downtown station, given the access and site topography. If this station should ultimately proceed, there will be a need to address the visual impact. 6 Proposed Colorado Alignment: As a part of the LUCE planning process staff has developed a proposed alternative alignment along Colorado Avenue, for study and evaluation, that could avoid both the 7 Olympic median and downtown elevated station issues. The proposed alignment would utilize the Expo ROW until it ends at 17th Street where the alignment would transition to run in the center of Colorado Avenue to the downtown Santa Monica Station. Examples of this transit and pedestrian friendly configuration can be seen in the photos below. The Colorado Avenue alignment has the potential for stimulating and revitalizing the traditional industrial neighborhood between 17th and 4th Streets. On- grade light rail corridors provide greater opportunities over time for retail businesses, enhanced pedestrian environments and walkable connections to the neighborhoods. As currently conceptualized the Colorado alignment could accommodate one lane of traffic in each direction and parking (Exhibit E). While the Colorado Avenue corridor will necessitate the removal of one lane of traffic in each direction, based on preliminary traffic and parking analysis, it may be possible to retain as many as half of the 157 on- street parking spaces, depending on the priorities for the street in terms of sidewalk widths, bicycle lanes, etc. To the extent existing parking would be removed, a feasible 8 replacement strategy would be identified. The track alignment will only affect the area west of 17t" Street and heavier volumes of traffic on Colorado tend to be located east of 20t" Street. Assumptions must. be fully analyzed with regard to traffic, parking, access, emergency response and other issues. Staff has conducted preliminary analysis including intersection level of service, turning movements and on-street parking in these areas and has not identified any issues that preclude further analysis of the Colorado corridor. While further detailed analysis is required, it also appears that there is the potential to create an on-grade downtown station within the Colorado corridor where the station would provide a gateway to the beach, linkage to the downtown, the Civic Center area and access to the soon to be revitalized Santa Monica Place. The station could either be located directly within Colorado Avenue between 5t" and 4t" Streets, 4t" and Main 9 Streets or 2"d and Ocean, which would require closing one block to traffic, or it could be located on City property between 4th and 5th Street. Staff has broached the issue of whether the Expo Authority could study the Colorado Avenue alignment as an additional alternative to the alignment along Olympic Boulevard. The Expo Construction authority is willing to work with the City but also has expressed the need for this request to come from City Council as this request involves additional work on the part of both Expo Authority staff and consultants which are not budgeted. For the Expo Authority to proceed with any new alternative, and particularly one that may reduce the number of traffic lanes, the Council will need to specifically recommend these steps. City staffs preliminary analysis and recommendation to City Council is that this alternative is worthy of further consideration both by the Expo Authority and the LUCE team to identify alternative solutions the potential issues identified with the Olympic Boulevard alignment. It is anticipated that the Colorado Avenue alignment will be significantly less expensive than the proposed Olympic aerial alignment. This more cost effective alternative could reduce the overall cost of the project. The Colorado alignment would also avoid the issue of median and Coral tree removal along the Olympic Corridor. Otherlssues: Several other issues were identified as staff reviewed the Expo Authority's initial assumptions. 10 • Grade Separation Policy: The Los Angeles County Metropolitan Transportation Authority (Metro) has an adopted Grade Separation Policy to be applied to all rail planning in the County. The initial screening analysis has identified Cloverfield and Lincoln Boulevards as two locations in Santa Monica that could be subject to the policy. If it is determined that a grade separation is warranted, the Construction Authority's policy is to utilize an aerial structure because they are far less costly that undergrounding a section of the alignment. As stated earlier, these aerial sections are generally about 35 feet above grade on earthen berms where possible and bridges supported by concrete columns where they cross streets. In addition, a transition of approximately 450 feet is required on each side of the elevated section, with the transition sections requiring awall-like structure. The Expo consultants will conduct further analysis of these potential grade separation locations during the Draft EIR/EIS process. The Expo Authority staff has committed to sharing the findings with the affected jurisdiction prior to completion and circulation of the Draft EIS/EIR. • Station Location: The screening analysis currently shows the easternmost station located above Cloverfield Boulevard in an aerial configuration. The Construction Authority has indicated that both aerial and at-grade will be evaluated, as discussed above. The proposed location over Cloverfield is not consistent with Santa Monica's long-time plan to place the station on or adjacent to City property at the Bergamot site that was purchased for the purpose of a future rail station. City staff also 11 anticipates that a station at Clovertield Boulevard would significantly increase congestion, making the interface with the City's bus system difficult. The exact placement of this station does not require immediate determination and is being explored as part of LUCE. However, it is recommended that Council direct staff to ask the Expo Authority to assume the station placement to be east of Cloverfield Boulevard on sites currently being developed in the LUCE planning. • Mid-City Station: The Expo Authority has included three locations in its analysis of a potential Mid-City station: 20th Street, 17th Street and 14th Street. Although the Expo Authority has not committed to a third station in Santa Monica, it will carry the analysis of a potential Mid-City station into the Draft EIR/EIS. The Expo staff has indicated their preliminary preference toward a 14th Street station because of the desired spacing between the other two stations and the fact that 14t" Street is a through street. City urban design staff has identified the special relationship of 17tH Street to Santa Monica College as an important connection and preliminary discussions with the Big Blue Bus have indicated that the station could be served by incorporating their cross-town service with this station location. Previous Council Actions On March 20, 2007 Council authorized preparation of comments to the Exposition Construction Authority as input the Exposition Light Rail Phase 2 scoping process. A letter was prepared based on the direction from City Council and submitted to the Expo Authority (Exhibit F). 12 Next Steps Staff will continue to involve and update Council regarding the light rail alignment and station planning during the LUCE process and the Expo Authority's Draft EIS/EIR preparation process will bring back preliminary findings/recommendations regarding grade crossings and additional information developed concerning Mid-City stations and other issues. Budaet/Financial Impact An amount not to exceed $300,000 will be paid to the Expo Authority to cover the cost of studying this additional Colorado alternative. There are sufficient funds in account 0200224.58900 to cover the cost of the study. Prepared by: Ellen Gelbard, Deputy Director, Special Projects Ap ved: Forwar ed to Council: een Foga y P. ont Ewell ~ Director, Plan in nd o munity C Manager Develo ment De artme Attachments Exhibit A: Preliminary Considerations: Olympic and Colorado Alignment Alternatives Exhibit F Letter to Expo Construction Authority (April 2, 2007) 13 Exhibit A Consider At-Grade Colorado Alignment Alternative in Addition to Olympic Boulevard Alternative to Ensure the Most Successful Implementation of the Light Rail Line in Santa Monica OI m is Boulevard Y P Colorado Avenue Land UselUrban Fabric Approach to Downtown along Olympic would require aerial structure 23-35' ~ Tracks would run at-grade in the middle of Colorado Avenue. Experience in over Lincoln Boulevard and the freeway ramps to the downtown ',other cities has shown that at-grade station can become a major activity (approximately 1/2 mile of aerial structure). Large concrete structures creates~',generator for surrounding uses. Some flexibility re location of station. visual impact. OR Landscaped Median Island (Current study proposal would remove median island and Coral trees No impact to median island on Olympic Boulevard (alterative would be to remove travel lanes -see traffic below) Traffic Council could recommend an alignment that removes one travel lane in each Council would need to recommend removing one travel lane in each direction direction (to retain median island and Coral trees) from Clovefield Blvd from 17th Street westward (light rails remains on dedicated Expo ROW for westward to beginning of aerial track at downtown 4+ additional blocks to 17th Street) Downtown Station Downtown station is 35' above the sidewalk. Separates station from ground- ~~Station would be at-grade. ..level activity. Requires passenger to use stairs, elevators or escalators to traverse the 3+ stories to the sidewalk Narking Coultl affect some parking on Olympic (i.e. at mid-city station, transitions) Could affect approximately half of the on-street parking spaces, depending on the priorities for street. The Expo Construction Authority expressed concern that the additional time required to study a new alternative could affect their ability to be ready to submit for the New Starts ranking in July 2007 unless the study is conducted within a compressed time frame. (Additional Study Cost '~ (The cost to analyze the additional Colorado Alternative within an accelerated ~'. time frame is estimated at not-to-exceed $300,000. This cost would be born 'by the city-not currently in Expo budget. Future Capital Costs Capital intensive cost to build required aerial structures. '',May cost less a to build at-grade alignment. ~_ Mayor Richard Bioem EXHIBIT F nasyor Pro Tempore Harb Kau Counctfinem,Gers crcy of Kan Genaer $antu Monleai Robert Hotbreok Kevin MNtaown Pam O'Connor . Bobby 5hrivar April 2, 2007 Mr. Richard Thorpe, CEO Mr. Joel Sandberg, Project Manager Exposition Corridor Transit Project phase 2 707 Wilshire Boulevard, 34"' Fiow .Los Angeles, CA 90017 RE: F_tcposHion CaMdor Tranalt Project Phase 2 Scoping Process - Clty of Sanfa Monica Comments Dear Mr. Thorpe and Sandberg: This letter is to transmit the City of Santa Moniea's comments for consideration by the Exposition Construction Authority ~ the Authority proceeds with the Aitematives Analysis and Draft Environmental Impact ReportlStatement {DEIRlDtES}. Tire City has conaisterttly expressed strong support for the Exposition Light Rail Phase 2 extension to Santa Monica and is extremety pleased to be participating in the planning phase of the project The City's commer>is at this stage in the process are the following. Ahstnment Gonsiderations: Durir~ the scoping process theca has bean a suggestion far an alternative that would by-pass the City of Santa Monica all together. The City wants to make it dear that such an alignment wauid not FWfilt the purpose of this project and the City would not support w fmtl acceptable, in any way, a route that does not dirediy serve Santa Monies. in order for this extension to achieve the highest level of ridership successby offering a time-competitive aftemative to the private automobile, the City suggests that the Ifne follow the most direct route to Santa Monica. Ae the end of the Tina, it is important that travel times between Santa Manisa and Downtown Los Angeles era attractive to potential riders. Station Locations: In addftion to the two stations in the area of Bergamot and downtown Santa Monica currently identif~d in the scoping document, the City is requesting that the Construction Authorfty study a third Mid-Gity stop to serve Santa Monaca College and the Mid-City area. The student and employee population assoaated wBh the college could potentialty generate a high level of ridership A Mid-City stop could also provide service to the hospitals {particularly employees} and mufti-family residential areas both north and south of the area. The Gfty is sensitive to the trade-~f between station spaang and impags on travel time but thirdcs the information developed from this anatysis will be useful in determining the potential merits of a thud station. 1685 Main Street • PO Box 2260 • Santa Monica • CA 90407.2200 te1:3t0458-8201 + fax:3t0 458-f62t • e-mail: coundl6santa-moNCa.org City of Santa Monica Scopir~ Comments Page 2 Staton Area Congestion: The need to address congestion creffied by vehicles accessing the stations is of conoem to the Ciy, Various suggestions have been made including several dffferent rati alignment loop configura-ions to disperse access, such as a downtown loop along 5'" street to wtshire to ocean Avenue to Colorado or a lergec loop covering more of the City. A system of shuttle feeder lines serving the stallions could be layered in addition to regular bus service. Another suggestion is afeeder-system of streetcars sdnilar to Downtown Portland: Muki-Modal Connectivity: The stations must be designed to create convenfem and efficient access to all modes, includir~ pedestrians, bicycles and transit The stations need to offer faalities to safely park bicycles and motorcycles, The stations should be planned in such a way to accommodate bus and shuttle service efficiently. Station Parkins: The previous draft study in 2001 assumed a surface park-and-ride at the bergamot station. If parking is gosg to be propoced, it needs ro be either sut~errar~an or structured parkatg wrapped by a mukl-use development. The City does not support the use of surface parking lots. The amount of parking is also a concern to the City. There needs ro be a delicate balar~e and an emphasis on accommodating access through means other than the private automobile. Ocer nai Considerations: ft is suggested that the Expo Construction Authority and Metro cons~r operatir~ some form of express or skipetop service. This is particularly important to Santa Monica in terms of providing competitNe travel times Eo the and of the Tine. We appreciate the opportunity to provide our input ffi the outset of this study process. The City of Santa Monica looks forward to working cooperatively with the Exposition Construction Authority ro make this project a reality in the near future. Sincerery, Ri and Bloom Mayor