SR-05-12-2009-4A~®
~;tYo~ City Council Report
Santa Monica
City Council Meeting: May 12, 2009
Agenda Item: ~"'~
To: Mayor and City Council
From: Eileen Fogarty, Director of Planning and Community Development
Subject: Update on Progress Made Towards Draft Land Use and Circulation
Element for City Council Feedback and Direction.
Recommended Action
Review and provide direction on critical action items that integrate with the Land Use
and Circulation Element (LUCE) Strategy Framework and progress on development of
the Draft LUCE.
Executive Summary
Significant activity has been underway on the physical and programmatic action items
reflected in the Land Use and Circulation Elements (LUCE) Strategy Framework. These
action items are critical components supporting the LUCE vision which required
immediate action to take advantage of Exposition Light Rail timing, and to respond to
fundamental Council and community priorities. This update provides City Council with
information on recent and future activifies, and a preview of an intensive phase of public
meetings and outreach which is outlined in the attached graphic timeline.
The City is currently undertaking these key action items which are coordinated with and
reflected in the LUCE Strategy Framework:
• Expo Light Rail alignment and station area planning -implement the vision for
pedestrian-friendly stations and alignment on Colorado Avenue through station
area planning for Bergamot, Memorial Park and Downtown to address access,
create distinct places with open space and connections to neighborhoods, and to
locate services and housing near transit.
Downtown/Civic Center -capitalize on the confluence of the Expo light rail with
long-term .planning for the Civic Center/Downtown, set the framework for future
enhancement of each district that emphasizes connectivity and circulation, open
space, and shared parking. Create a transit gateway and pedestrian connections,
and explore freeway capping critical to integrating the districts. A community
meeting is being held on May 11, 2009 for the Downtown/Civic Center.
Specific work on significant community priorities, and directives from City Council, is
underway to refine the LUCE and to build a foundation for the Zoning Ordinance
Update.
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• Neighborhood Preservation -Flexible neighborhood conservation strategies are
being identified to preserve the character of distinctive neighborhoods and
unique areas worthy of protection but which may not be appropriate for
consideration as historic districts. Possible tools and approaches will be the
subject of a June 2, 2009 community meeting.
• Public Benefits and Workforce Housing -Identification and categorization of
public benefits as well as research on possible zoning approaches are underway.
Three-dimensional models are being developed to test the floor-area-ratios and
heights to remove excess massing if necessary. As directed, an economic
consultant will be evaluating the public benefits to be attained with the various
alternatives, including workforce housing.
Key action items are underway that are coordinated with the LUCE Strategic
Framework and deliver on the commitment to address the performance of the
transportation system for pedestrians, bicycles, transit and vehicles while achieving the
LUCE goal of "No Net New Trips". The transportation demand model is well underway
with the structure completed, key data collected and inputted, and validation and
calibration is in process. Performance measures and significance criteria are being
developed to facilitate forecasting, management and measurement.
The new Transportation Demand Management program manager is -currently
implementing outreach programs for employers, neighborhoods, and developing the
new TDM districts for the draft LUCE. Action items supporting the LUCE on
comprehensive bicycle planning and implementation have generated results for
sections of Arizona Avenue and Main Street, and for potential on 20th Street.
The environmental analysis which began this year will analyze a full range of CEQA
topics, to also include climate change and water conservation issues. A comprehensive
land use analysis to establish baseline and future forecast scenarios is being completed
for the EIR as well as for input to the transportation demand model. The EIR will identify
a range of alternatives that mitigate potential impacts. A scoping meeting is being held
on May 18, 2009.
The timeline illustrates the intensive schedule, including several community meetings,
that staff has developed to continue with these key action items and develop the Draft
LUCE over the upcoming year. Community-wide meetings are scheduled for May 11,
May 18, and June 2, with additional meetings to come in June and July and continuing
through the Fall.
Discussion
The LUCE is founded on innovative land use and transportation linkages that capitalize
on essential infrastructure components such as the Exposition alignment and station
area planning, and the integrated DowntownlCivic Center planning. The transportation
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demand model and performance measures identified as action items in the. LUCE
provide the tools to phase future change, measure, monitor, and forecast. The time-
sensitive work on these action items supporting the LUCE is described in more detail
below.
Included in the LUCE Strategy Framework are policies to protect the quality and
character of the neighborhoods and places in Santa Monica, which are fundamental
priorities of the Council and community. In response to City Council direction, specific
analyses, refinements, and testing efforts are underway on Neighborhood Conservation,
Public Benefits and Affordable/Workforce Housing, and Height/Floor Area to refine the
draft LUCE and to build a foundation for the Zoning Ordinance Update. Each of these
efforts is described in more detail below, including key community outreach meetings.
The mandatory environmental analysis has begun on the LUCE, and includes a full
range of CEQA topics, including Climate Change and Water Conservation issues. Any
necessary mitigation measures identified in the CEQA process will be incorporated into
the final LUCE.
Critical and Immediate Action Items
Expo Light Rail Planning and Design
Expo Light Rail is a key component of the LUCE integrated land use and transportation
goal. Staff has. been working to ensure that the light rail serves the City effectively by
coordinating its implementation with the LUCE Strategy Framework. These actions are
being driven by the schedule established by the Expo Construction Authority,
accelerated by the passage of Measure R last fall. To date, these efforts have included:
• Colorado Alignment. The LUCE identified an alternative at-grade alignment on
Colorado Avenue to foster an integrated, pedestrian-friendly environment. City
endorsement of the alignment resulted in the Metro Board supporting the
Colorado alignment for the Final EIR due out this Fall.
• Mid-Town Station. Identification of an additional mid-town station adjacent to
Memorial Park to provide better connectivity to Santa Monica College and the
two major hospitals.
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• Bike Path. Work on resolving the bike path location so that construction of the
bike path will be concurrent with light rail construction.
Currently underway are station area planning efforts for Bergamot, Memorial Park, and
Downtown/Civic Center coordinated with their respective LUCE districts and
recommended actions. Initial work is focusing on pedestrian and bicycle linkages, transit
and shuttle linkages, and supportive amenities. In June/July atransportation/station
area planning workshop is planned for the community to provide input on access,
design, and amenities for each station. The workshop will cover the Expo Bike Path,
which will provide both regional and station area access. This workshop will lay the
foundation for the LUCE area plans that will guide the creation of distinct pedestrian-
scale places, reconnected neighborhoods, expanded open space, services and housing
near transit.
Downtown/Civic Center LUCE Districts
Critical actions for the Downtown and Civic Center are moving forward based on
Council direction with LUCE policies, creating an integrated framework that
incorporates:
• Connection to the light rail, with a vibrant gateway/pedestrian plaza and linkage
to transit,
Pedestrian connections to the Civic Center, Santa Monica Place and the Pier,
• Shared parking and shared uses that encourage walking between the Downtown
and Civic Center,
Decking of the I-10 freeway for shared open. space, development of parking and
improved connections.
The integrated framework for the Downtown/Civic Center was presented to the City
Council on March 24 2009. Planning has been leading the first of these
interdepartmental efforts which integrate multiple functions and projects into a
comprehensive place-making plan. The City is hosting a community workshop on the
Downtown/Civic Center on May 11, 2009 at the Civic Center Auditorium in the East
Wing.
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Key Community Priorities-for Draft LUCE
The quality and character of the neighborhoods and places in Santa Monica is
fundamental to the policies in the LUCE Strategy Framework. The protection of
neighborhood character, diversity of housing types, appropriate building mass and
scale,. and good urban design are all community priorities identified by the City Council.
Specific work on refining the draft LUCE to strengthen these priorities is underway,
which will build a foundation for the Zoning Ordinance Update. These activities also
follow up on key directives from City Council during the LUCE hearings.
Neighborhood Conservation
The City is working on flexible approaches to neighborhood conservation to help
preserve the character of distinctive neighborhoods where consideration as designated
historic districts is not appropriate.-The significance of a neighborhood may be attributed
to the sum of its contributing parts, including building scale/size/type, lot layout, land use
patterns, and distinctive neighborhood features. The Neighborhood Conservation effort
will identify processes and tools that reflect the goals of individual neighborhoods, which
may include:
• Conservation Overlay Zone
• Refined development standards including ground level open space
• Possible design guidelines for new construction and significant building change
• Possible guidelines for streetscapes.
The solutions will be tailored to meet particular neighborhood needs. To ensure the
community is directly involved, the City is currently undertaking:
• Interviews and Outreach with:
o City representatives and Boards & Commissions
o Neighborhood Organizations and Associations
o Representatives of local historic presenratioh groups
• A Citywide Neighborhood Conservation Community Workshop (June 2, 2009)
with neighborhood-specific work sessions to provide information on:
o Background on neighborhood conservation programs;
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o Discussion of typically occurring issues addressed through neighborhood
conservation; and
o Possible approaches and tools for consideration.
Based on this community input, specific conservation tools and approaches will be
developed for three selected neighborhoods as a pilot project for additional
neighborhoods throughout the city.
The results of this effort will be brought back to the Planning Commission and City
Council and integrated with other specific studies being carried out and incorporated
into the final draft of the LUCE Strategy Framework.
Public Benefits Analysis and Workforce/Affordable Housing
The analysis of public benefits is underway including defining and categorizing types of
public benefits such as physical and measurable improvements (roads, bike and
pedestrian paths, open spaces), programmatic improvements (transportation demand
management), and incentives for the preservation of historic resources. Concurrently,
hybrid zoning approaches that maximize public benefits are being researched, including
potential mixtures of performance-based, form-based, and traditional Euclidean zoning.
Staff is working on strategies to facilitate the production of workforce housing as a
public benefit provided in addition to expanded opportunities for affordable housing.
Alternative formulas for incentivizing workforce housing in mixed-use projects are being
explored, particularly in activity centers .accessible to transit such as Downtown,
Bergamot, Memorial Park, and Wilshire Boulevard. An economic consultant will be
evaluating the feasibility of attaining public benefits for the various alternatives.
A community-wide meeting is scheduled for late June/early July to engage the
community on these significant issues.
Reduced Height/FAR Refinements
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Compatibility with neighborhoods is a key goal of the LUCE. Three-dimensional models
are being developed to test the floor-area-ratios in the draft LUCE to remove excess
massing if necessary, and explore lower heights and floor-area ratios as directed by the
Council. An economic consultant will also be evaluating the extent to which public
benefits can be attained with the various FAR height alternatives.
Developing the Circulation Element and Achieving No Net New Trips
Key action items from Council direction are underway which are coordinated with LUCE
circulation policies. These are reflected in the LUCE Strategy Framework commitment
to addressing the performance of the transportation system from a multi-modal
perspective, ensuring that streets function effectively for pedestrians, bicycles, transit
and vehicles. This includes developing the tools to manage future congestion, measure
and monitor the transportation system on an on-going basis and phase change based
on the capacity of the transportation system.
Transportation Demand Model -Measuring Performance and Monitoring Change
The Transportation Demand Model is the critical tool to achieve the LUCE commitment
of No Net New Trips by proactively managing and phasing change. Performance
measures and impact criteria to evaluate and forecast future change are currently being
developed as identified by Council as priorities. This is coordinated with the model
development, and supplements the standard evaluation required by the City's adopted
methodology, with new tools such as travel time along corridors and the impact of the
plan on auto use.
The components of the model have been assembled, and data inputs such as the
comprehensive parcel-level land use survey of existing uses, regional data for the
horizon year of 2030, and intersection traffic counts have been inserted into the model.
The model is currently in the calibration and validation phase, and future scenario land
use data will be entered into the model within the next few weeks. The field work is also
currently underway to measure the baseline travel times for key travel corridors
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throughout the City. The model runs are coordinated with the EIR so that the multi-
modal strategy can be incorporated into the CEQA documentation.
Bicycle Network
As a LUCE action item, the -City is concurrently proceeding with planning a
comprehensive bicycle network and other measures to improve existing facilities, and
the City is implementing opportunities to add to the network, including:
• An analysis of 20th Street north of Pico Boulevard to determine the right-of-way
trade-offs and operational impacts of adding bike lanes in this section of the City.
This project is being integrated with the 20th and Clovertield streetscape project.
• Completion of a gap in the network on Arizona Avenue in the Downtown between
Lincoln Boulevard and Ocean Avenue. The addition of this segment will result in
a continuous east-west path through the City, starting at the eastern City limit.
• Restored bike lanes on Main Street north of Pico Boulevard (completed).
• Design of the Exposition Bike Path.
Transportation Demand Management (TDM)
The LUCE identifies a set of aggressive TDM strategies in districts throughout the City.
A new TDM Program Manager has been hired to work with the schools, neighborhood,
business improvement districts and employers to augment existing TDM requirements
while implementation of demand management districts is being developed. Efforts are in
progress that will be addressed at the June/July transportation/station area planning
community workshop.
Environmental Analysis
The LUCE EIR is underway, and a Notice of Preparation (NOP) has been distributed to
interested agencies, organizations, and individuals to solicit comment on the scope and
content of the EIR. Acommunity-wide scoping meeting is scheduled for May 18, 2009.
.The EIR is a "Program" EIR, which analyses typical CEQA-required issues including
transportation, climate change, and public services (among others) and their potential
for significant citywide and cumulative effects. In contrast to a project EIR, a program
EIR'analyzes more broad and general potential impacts.
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As required under CEQA, the LUCE EIR includes policy-level alternatives and policy-
level mitigation measures that may be necessary to reduce or avoid any identified
potential environmental effects. A city-wide land use analysis is being completed for
use in developing future scenarios for analysis in the EIR.
A 45-day circulation period for public comment on the Draft EtR is anticipated for Fall
2009. During this period, a public comment hearing will also be held. The Final EIR will
include revisions and response to public comments, and a Mitigation Monitoring
Program (MMP) that will guide implementation and monitoring of any mitigation
measures proposed in the EIR.
Upcoming Public Outreach and Timeline
An intensive schedule for the next steps of LUCE is provided in Attachment A. The
schedule identifies continued LUCE and Expo Light Rail planning efforts combined with
specific transportation and land use analyses to be continued in the upcoming months.
Substantial public outreach activities are planned to present findings and options related
to the major issues and solicit community input, these include:
• May 11, 2009: Downtown/Civic Centerlntegrated Framework
• May 18, 2009: LUCE EIR -Notice of Preparation Comments
• June 2, 2009: Neighborhood Conservation Strategies
• June/July: Transportation/Station Area Access
• July: Public Benefits and Height/FAR
In addition to these meetings, staff will regularly update the Planning Commission and
City Council
Financial Impacts & Budget Actions
There is no immediate financial impact associated with information presented in this
staff report.
Prepared by: Francie Stefan, Community and Strategic Planning Manager
Attachment A: LUCE Integrated Planning Process Timeline
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