SR-02-10-2009-3ACity Council Meeting: February 10, 2009
Agenda Item: 3°~'
To: Mayor and City Council
From: Eileen Fogarty, Director, Planning and Community Development
Subject: Exposition Light Rail Phase 2 Draft Environmental Impact Report (DEIR)
.Presentation and Preliminary Discussion
Recommended Action
Staff recommends that Council receive this report as a first step toward developing the
City's recommendations to the Exposition Construction Authority and the Los Angeles
County Metropolitan Transportation Authority (Metro) concerning the future Exposition
light rail project within the City of Santa Monica.
Executive Summary
This Study Session is the first of two City Council meetings to provide information about
the Exposition Light Rail (Expo LR) Phase 2 Draft Environmental Impact Report (DEIR)
released by the Exposition Construction Authority (Expo Authority). in late January. The
Expo Authority, together with the Metropolitan Transportation Authority (Metro), will
select a "preferred alignment" after the DEIR has circulated -fora 45-day comment
period. Although the two regional agencies are responsible for deciding on the final
project, the agencies will be seeking guidance from the City of Santa Monica concerning
the alignment and project elements within the City of Santa Monica boundaries. A
second City Council meeting will be held within the 45-day period for Council to develop
.recommendations concerning the preferred alignment within Santa Monica and any
other comments on the proposed project and/or findings in the DEIR. These comments
will be transmitted to the Exposition Authority and Metro Boards of Directors.
The future Expo LR line is critically important to Santa Monica and it is crucial that the
project serve the community and the region in the best way possible. The Phase 2
DEIR contains two alternative alignments within the City of Santa Monica, an original
alignment identified as the "Olympic" alternative and an additional "Colorado" alternative
requested for study by the City. Each alignment includes three comparable station
locations within the City limits, one at .Bergamot, one at 17th Street and one in
Downtown at 4th Street and Colorado Avenue. The discussion also specifically
addresses several issues that have surfaced recently, including:
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• A proposed rail maintenance yard within the City boundaries; and
• Elimination of the dedicated Expo bike path as. part of the project, with a commitment
from the Exposition Authority that it will be built as a parallel project.
Planning staff presented information to the Planning Commission on January 7, 2009,
based on preliminary information provided by the Expo Authority staff from the
forthcoming DEIR. The Planning Commission unanimously recommended to City
Council that it support the at-grade Colorado alignment as opposed to the elevated
Olympic alignment. Planning staff concurs with Planning Commission's
recommendation for the Colorado alignment to create an at-grade environment and to
preserve the Coral Tree median on Olympic Boulevard.
The Expo Authority will provide a summary presentation of the DEIR at this meeting,
followed by a brief staff presentation and discussion by City Council. The formal
Council action is tentatively scheduled for the following City Council meeting (February
24) in order to ...remain within the 45-day comment period for the DEIR. PCD staff is
scheduling a community meeting and a .hearing with. the Planning. Commission to
specifically discuss the DEIR once the document is available. The Expo Authority also
plans. to hold a public hearing within the City of Santa Monica, tentatively scheduled for
the afternoon/evening of February 18th.
Once the Exposition Authority and Metro have selected the "preferred" alignment, the
Expo Authority will undertake preliminary .engineering and complete the Final
Environmental Impact Report so that construction can begin. The Expo Authority is
fast-tracking this project in response to voters approving a recent sales tax measure..
The City will need to work extremely closely with the Expo Authority during the
preliminary engineering stage to ensure the best possible project is built for City
residents, businesses, employees, visitors and the region as a whole.
The Council's Study Session on this matter has no financial impacts.
Background
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 has the
potential to transform areas into pedestrian-oriented walkable districts. The
extraordinary opportunity for the City and the importance of these placement decisions
will define how these areas function in the future. This report focuses on the section of
the alignment of Phase 2 within the City of-Santa Monica. When completed, the Expo
LR line will connect Santa Monica to Downtown Los Angeles and the regional rail
network. Phase 1 of Expo LR, currently under construction to Culver City, is slated to
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open in 2010. More information about both Phases can be found at the Expo Authority
web site www.buildexoo.org.
A transportation sales tax measure recently approved by County of Los Angeles voters
will enable the Expo Authority to accelerate implementation of the Expo light rail Phase
2 project from Culver City to Santa Monica by approximately eighteen months. The
local funds will replace. federal funds and reduce the need for additional federal
environmental review and funding negotiations. These recent events may accelerate
the original. plan so that Phase 2 can open before 2015.
On October 23. 2007, Council requested and authorized funding for the Expo Authority
to .analyze the following additional considerations in the DEIR:
• Colorado Alignmenfi An additional at-grade "Colorado" alignment as an alternative.
to the "Olympic" alignment to eliminate the need for ahalf-mile aerial segment into
Downtown and a Downtown station .positioned approximately 35 feet in the air over
4th Street and Colorado Avenue. A Colorado alignment would also avoid the
removal of a large number of Coral trees in the Olympic Boulevard median;
• Alternative Olympic Alignment: An additional Olympic Alternative straddling the
median, taking a lane of traffic in each direction, in order to preserve the median and
Coral trees;
• Mid-City Station: Consideration of a third mid-city station to better serve potential
high demand users such as the College and the hospitals.
The Mid-City station has proved to be cost-effective in terms of ridership and the Expo
Authority is, therefore, including it in the base project. City staff and. Planning
Commission support the three station locations identified in the DEIR at Bergamot, 17th
Street and 4th/Colorado in Downtown. The DEIR provides explanations of the alternative
station locations analyzed and conclusions for the recommended locations. The Expo
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Authority was extremely responsive to addressing various station location alternatives
proposed by City staff. Briefly, the other station locations analyzed included:
^ Mid-City Station: In additional to a 17~" Street Station, the Expo Authority analyzed a
station located at 14t" Street and found the location less desirable because it was
not as central to the population served by a Mid-City station, including the. College
and the Hospitals, and it required more property acquisition. A 20t" Street station
was found to be too close to Bergamot Station.
^ Downtown Station: The Expo Authority staff analyzed at least three locations in
.Downtown, including one on Colorado Avenue west of 4t" Street in front of Santa
Monica Place and one on Colorado east of 4?" Street, as well as the recommended
location on the Sears Automotive site purchased by the City (Exhibit A). The Expo
Authority staff was extremely responsive in trying to fit a station west of 4t" Street
between Santa Monica Place, the Civic Center and the Pier, since this was thought
to be a highly desirable centralized location. However, in the end, the proposal
would require prohibiting a pedestrian. crosswalk between Santa Monica Place and
Sears, which was unacceptable. Additionally, there was .insufficient width and/or
length to accommodate a necessary 3`d storage track. The Downtown Santa Monica
station will be the end of the line and. Metro will need the operational flexibility to
store and start trains from the western terminus. This requirement for the 3`d track
adjacent to the other two tracks added width that could not be accommodated within
Colorado Avenue, and the 3`d storage track would need to be on the City's site. This
split into two locations is not advisable from a land use or operational perspective.
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The following analysis focuses on a discussion of the two alignment alternatives so that
the City can formally make a recommendation to the Expo Authority. The DEIR will not
identify a preference of one alignment within Santa Monica over another, as each has
benefits and drawbacks and they are not far apart in terms of the light rail operational
characteristics. The Colorado alternative is about $50 million less than the Olympic
alternative. The Expo Authority has said that it will look to the City of Santa Monica for
guidance and a recommendation.
Discussion
Exhibit B illustrates both the "Olympic' and the "Colorado" alternatives, which share a
common alignment in the eastern portion of the City. The alignments are described
below starting from the eastern City limit and proceeding westward to the western
terminus.
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Exhibit A: Downtown At-Grade Station Locations Analyzed
Shared Alignment in Eastern Portion of the City: Both alternatives enter the City at-
grade across Centinela Avenue along the 100 foot-wide Exposition Right-of-way (ROW)
between Olympic and Exposition Boulevards. An on-grade Bergamot Station is located
east of 26t" Street. Proceeding westward on the ROW, both alternatives elevate up and
over Cloverfield Boulevard, as Cloverfield Boulevard meets Metro's grade separation
criteria.
"Olympic" Alternative: After the rail line crosses over Cloverfield Boulevard and
crosses over the eastbound lane of Olympic Boulevard, it lands in the Olympic median
and proceeds westward, replacing the tree-planted median. A "split" station is located
on either side of 17t" Street with the eastbound platform east of 17t" Street and the
westbound platform west of 17t" Street. The rail line continues west on Olympic
Boulevard and begins elevating again just west of 11t" Street to cross over the Lincoln
freeway off-ramp, Lincoln Boulevard and the on-ramp, continuing at a height of 23-35
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Exhibit B: Olympic and Colorado Alternatives
feet above grade to an elevated station on the current Sears Automotive site. The line
curves so that the aerial station is parallel and. in close proximity to 4th Street.
Exhibit C: Olympic Alternative Cross-Section
"Colorado"Alternative: After the rail line crosses over Cloverfield Boulevard it crosses
over the entire width of Olympic Boulevard and lands on the Exposition ROW,
extending westward on the 100-foot ROW until just east of 17th Street. It then
transitions. into Colorado Avenue through the 17th Street intersection to a center platform
station west of 17th. Street and continues down the center of 17th Street at grade,
replacing a traffic lane in each direction. The at-grade sta#ion at 4th and Colorado enters
the Sears Automotive site at the east end of the property and angles across the site.
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CONCEFTUAE • E%AGT O15TANCES NOT YEf RROVIOEP SY EXPO
Exhibit D: Colorado Alternative Cross-Section
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Analysis of the "Olympic" Alternative:
The main benefit of the "Olympic" alignment is that it minimizes impacts on existing
traffic circulation. However, staff has identified several key issues with this alignment
that led to the request for development of the Colorado alternative.
• Olympic Boulevard Median Island/Coral Trees: The proposed alignment would
require removal of the landscaped median and 44 coral trees. The Expo Authority
has stated that it intends to add landscaping in the corridor where possible. In
response to a City Council request, the Expo Authority conducted preliminary
analysis on an alternative that would straddle the median, taking a lane of traffic in
each direction in order to preserve the Coral trees. However, the Expo Authority
concluded that even if the median was straddled, over half the Coral trees would still
need to be removed to accommodate the aerial structure footings and left turn lanes.
Therefore, they decided not to proceed further with this alternative.
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Exhibit E: Alternative Evaluated for Olympic Boulevard
Proposed Olympic Alignment
(eliminate median island)
Alternative Olympic Alignment
(straddle median & eliminate travel lane)
• Downtown Station Aerial Configuration: The Olympic Boulevard Downtown
Station is the .end point of an aerial segment starting west of 11t" Street to clear the
freeway off/on-ramps. and Lincoln Boulevard. The elevated section would extend
approximately''/z mile and, depending on the location, would range in height from 23
to 35 feet. The proposed station is approximately 35 feet (three plus stories) above
the sidewalk at 4t" and Colorado because the topography. The Sears site drops
down from Olympic. Drive and the rail line/station platform must remain level.
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Exhibit F: Olympic Boulevard Alt -Aerial Segment & Downtown Station
Exhibit G: Aerial stations generally are supported by concrete columns.
The rendering below shows the potential massing of the aerial station in the context
of the downtown. The station is particularly wide because it includes a third track for
a stored train - a requirement for the end-of -the-line.
This elevated structure at the entrance to downtown will detract significantly from the
City's character, scale and desired pedestrian environment. Staff does not concur
with the DEIR conclusion that the aerial structure is not a significant visual impact.
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Staff does not agree with the evaluation criteria utilized to evaluate Santa Monica's
Downtown area.
^ On-Street Parking: A notable impact identified in the DEIR is the removal of all on-
street parking from both sides of Olympic Boulevard to accommodate the existing
travel lanes and left turn lanes. Approximately 123 on-street spaces will be removed
from 20t" Street westward and no replacement parking is proposed.
Analysis of the "Colorado" Alternative:
The Colorado Avenue alignment has the potential for stimulating and revitalizing the
traditional industrial neighborhood between 17t" and 4t" Streets. On-grade light rail
corridors provide greater opportunities .over time for retail businesses, an enhanced
pedestrian environment and walkable connections to the neighborhoods. Examples of
this transit and pedestrian friendly configuration are shown the photos below.
Exhibit I: Examples of At-Grade Downtown Alignments
^ Traffic Impact: The proposed Colorado alignment will accommodate one lane of
traffic in each direction and provide mountable curbs for emergency vehicle access
to the center transit lanes. The Expo Authority has indicated that the DEIR analysis
concludes traffic impacts on Colorado are not significant, i.e., that there is capacity
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for traffic west of 17th Street to redistribute to the streets parallel to Colorado
Avenue: The DEIR analysis assumes that left turns from Colorado onto the cross
streets would be prohibited west of 17th Street, although left turns from the signalized
intersections onto Colorado Avenue would still be allowed. Some property owners
have expressed concern regarding reduced access to their properties, which is a
valid concern. However, this situation is similar to the impacts of converting a street
to one-way, in which drivers adjust to a new circulation pattern.
^ Parking Impact: The proposed cross-section for the street-running portion of the
Colorado alignment preserves on-street parking on the north side of the street. The
Expo Authority has identified removal of approximately 75 spaces on the south side
but also has identified potential replacement parking. The Expo Authority has said
that they will continue to work with the City to develop a feasible replacement
strategy.
The City's transportation expert prepared an alternative street/LRT section on
Colorado Avenue from 5th to 16th Streets which would reduce the track-way width to
24' (similar to other cities) with parking maintained on both sides. The proposed
alternative replaces the. center power catenary poles between the tracks with a
support system utilizing the street lights on either side of the street. This
configuration would also better facilitate truck turning radius for driveway, alley and
cross street access. The DEIR does not recommend this alternative, however staff
believes it is a preferable solution and worthy of continued discussion with the Expo
Authority. This configuration is successfully used in other California Cities.
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Exhibit J: Proposed Alternative Cross-Section for Colorado with Parking on Both Sides
Exhibit K: Colorado Avenue could have the same transit-way configuration as Judah Street in
Other DEIR issues:
^ Property-Taking Identification Based on Erroneous Criteria: The Expo Authority
assumptions in the DEIR for identifying partial or full property-takings are based on
City of Los Angeles criteria and, as such, are very much overstated for the City of
Santa Monica, particularly along Colorado Avenue. The City of Los Angeles has an
adopted standard for vehicle turning radius that is wider than generally used
throughout the City of Santa Monica. The City of Santa Monica's approach balances
consideration for pedestrians, who benefit from a tighter turning radius that shortens
the crossing distance and calms traffic, while still accommodating necessary truck
movements. With respect to disabled curb-ramp access, the City's practice is to
create custom solutions in order to accommodate the built-out nature of the City.
The DEIR assumes a standard template for all curb ramps. It is staffs position that
no partial takings are required to accommodate curb ramps, since the ramps are
designed to meet the needs of the location and still fulfill legal accessibility
requirements. Staff has been unsuccessful in convincing the Expo Authority to
change the extremely conservative assumptions in the document because of the
desire to environmentally clear the "worst case". However, the Expo staff has told
City staff that they will work with the City during preliminary engineering to meet the
City's requirements. Compliance with City policy on turning radii and curb cuts
would clearly reduce costs and impacts of property takings identified in the DIER.
^ Proposed Maintenance Yard: The DEIR includes a proposed. maintenance yard
just east of Stewart Street between the ROW and Exposition Boulevard. The Expo
Authority has explained that they are required to have a yard for light maintenance
within the Phase 2 project and the location within Santa Monica was the only viable
site they could identify. Staff is not certain of the final boundaries .that will be
included in the DEIR, as the Expo Authority was exploring several possibilities.
The site would b.e at least 7 acres and possibly larger. The proposed site is in close
proximity to the Bergamot Station and from a planning perspective the location is
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important for the creation of a neighborhood surrounding the station. A rail
maintenance yard is not desirable in this location but needs to be located
somewhere along the line. Staff has suggested other potential locations but these
were not acceptable to the Expo Authority. If the yard ultimately is located within the
City, the City needs to work closely with Expo Authority to assure mitigation of
impacts and to identify possible opportunities that could benefit the City, such as a
park.
^ Park-and-Ride: The DEIR includes 225 (Colorado alternative) to 250 (Olympic
alternative) surface park-and-ride spaces on the City's Sears Automotive site;
approximately 70 spaces at the 17th Street Station for the Colorado alignment (and
none for the Olympic alignment); and no spaces at Bergamot Station. Staff
questions the need for park-and-ride spaces in the Downtown and is particularly
concerned if, consistent with Metro policy, they must be provided free of charge. It is
also unlikely that the City would allow these spaces to be built as surface parking,
but rather they would be incorporated into atransit-supportive development. Staff is
also concerned that. absolutely no parking is assumed or funded at Bergamot,
although stations east of Bergamot, within the City of Los Angeles, include large
supplies of parking. Expo Authority has told staff that parking requirements can be
discussed further during the preliminary engineering phase, although no
commitments have been made:
• Aerial Structure over Cloverfield Boulevard: The DEIR includes. an aerial
structure over Cloverfield, as this location meets the requirements of Metro's Grade
Separation Policy. Such aerial sections are generally about 35 feet above grade on
concrete clad embahkments and 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 a concrete retaining wall-
like structure for approximately 400 feet. The City had requested that the Expo
Authority analyze ah alternative that would depress the alignment under Cloverfield.
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The Expo Authority determined that it would be feasible for the Colorado Alternative
but not for the Olympic Alternative. The Expo Authority has not estimated the cost of
undergrounding it. Undergrounding the alignment is generally much more expensive
and the Expo Authority has consistently denied such requests ih other locations
along Phase 1.
Exposition Bike Path: The .Expo Authority recently decided to sever the
dedicated Expo Bike Path from the DEIR because the funding for this portion of
the project includes federal sources and the Expo Authority has prepared an
environmental document that complies only with the California Environmental
Quality. Act (CEQA). The Expo Authority has stated that the Cities of Santa
Monica and Los Angeles will need to environmentally clear the bike projects and
that the Expo Authority will build the path as a separate and parallel project.
Staff is concerned that the bike path has become adjunct and could be
jeopardized. Several specific concerns are:
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Exhibit L: Aerial Crossing over Clovertield Boulevard
o Construction of the bike path as a separate project rather than an integral
project with the rail line is likely to result in compromises to the bike path, with
the City having little or no control-over the process. Since the bike path is not
included in the DEIR, there is no opportunity for the City to comment.
o The planning to-date by the Expo Authority has indicated that the bike path is
of secondary importance. Most recently, because of the location of .the
proposed Maintenance Yard in Santa Monica, the Expo Authority has
proposed to detour the path off the ROW around the maintenance yard and
truncate the path at Stewart, where. bicyclists would "share" a lane on
Olympic Boulevard with vehicles until the dedicated path picks up again on
the Expo ROW west of Cloverfield. City staff does not support this suggested
routing.
• Centinela Avenue Border: It should be noted that the City of Los Angeles is
requesting consideration of grade-separation over Centinela Avenue, but this is not
the Expo Authority's recommendation in the DEIR. Staff concurs with the Expo
Authority's recommendation to retain the crossing at grade.
Commission Action
Planning staff presented information to the Planning Commission on January 7, 2009,
based on preliminary information provided by the Expo Authority staff from the
forthcoming DEIR. The Planning Commission unanimously recommended to City
Council that it support the at-grade Colorado alignment. The reasons provided by the
Planning Commission for supporting the "Colorado" alignment included:
• The Olympic Boulevard alignment requires removal of the Coral trees planted
median and elevation of the westernmost half-mile of track into Downtown, with a
Downtown station 35 feet above the sidewalk grade at 4th Street and Colorado. Both
of these considerations would significantly change the character of the City in a way
that would be tremendously detrimental
• The elevated rail line and station in the Downtown would not only create visual blight
but the concrete columns would create a hostile environment for pedestrians in
downtown. The Planning Commission was clear in their comments that the aerial
structure would create a barrier between Civic Center and the Downtown.
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• The at-grade Colorado Avenue alignment would create a more active pedestrian-
friendly enviroriment along the alignment and a grand entrance into the Downtown.
The Planning Commission also recommended to Council that it request consideration of
an underground crossing at Cloverfield Boulevard rather than the proposed overhead
crossing that would require concrete embankments for 400+ feet on each side of
CloverField Boulevard. The increased cost implications and equity of treatment along
the line would make this option difficult to achieve.
Public Outreach
Staff is scheduling a community meeting and a hearing with the Planning Commission
to discuss the DEIR once the document is available. The City has sent out a LUCE
update to residents that identifies the discussion and recommendations for the Expo
light rail alignment to occur within the February time frame, and advises that residents
check the www.shaoethefuture2025.net web site to learn about opportunities for input.
The Expo Authority also plans to hold a public hearing within the City of Santa Monica
during the 45-day comment period. The Expo Authority is mailing notices to all
properties within 1/4 -mile of each alignment and walking flyers to additional properties
beyond.
B_udpeUFinancial Impact
There are no budget impact from the recommendations of this report.
Prepared by: Sarah Lejeune, Principal Planner
Approved:
Forwarded to Council:
Eileen P. Fogarty / ~ - P. a ont Ewell
Director, Planning and Co urn Ci anager
Development Departure
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