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City of Clty COUnCiI ^\~po~
Santa MonieaW
City Council Meeting: February 9, 2010
Agenda Item: .3 "_'1~
To: Mayor and City Council
From: Eileen Fogarty, Director, Planning and Community Development
Subject: Draft Environmental Impact Report for the Land Use and Circulation
Element
Recommended Action
Staff recommends that the City Council hold a study session concurrent with the release
of the Land Use and Circulation Element Draft Environmental Impact Report to provide
a report on the proposed program and a summary of the document.
Executive Summary
A Land Use and Circulation Element Draft Environmental Impact Report (DEIR) was
released for public review on January 21, 2010, based on the Draft LUCE completed in
November 2009. The DEIR has been prepared to meet the California Environmental
Quality Act (CEQA) requirements, including analysis of potential environmental impacts
of the LUCE program, using a horizon year of 2030 and considering a broad range of
impact categories. The DEIR also provides the community with an assessment of how
the policies from the LUCE would serve to minimize and self-mitigate impacts. As part
of its legal mandate, the DEIR presents a reasonable range of alternatives that could
achieve most of the major objectives of the LUCE while avoiding or lessening some of
its significant effects. Finally, the DEIR addresses cumulative impacts and regional
considerations. In accordance with Section 15087 of the State CEQA Guidelines, notice
of the DEIR has been distributed to affected agencies, surrounding cities, involved
public agencies, and interested parties fora 45-day review period, and is available at
www.shapethefuture2025.net.
The DEIR has identified very few significant impacts of the LUCE, and a number of
beneficial results related to Global Climate Change and reduced greenhouse gas
emissions. Additionally, impacts for the LUCE are less than the 1984 Plan in the
categories of Transportation/Traffic, Aesthetics, Air Quality, Cultural Resources, Land
Use, Noise, Population & Housing, Public Services, and Utilities. The LUCE is
structured to achieve a sustainable and integrated system of land use and
transportation that is consistent with the Sustainable City Plan as well as recent State
legislation (AB 32, SB 375) and the Attorney General's office guidance regarding
climate change.
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The LUCE emphasis on limited land use changes combined with trip reduction
strategies serves to preserve the distinguishing and valued qualities of the City and
create a sustainable and integrated system of land use and transportation. Of primary
importance, the LUCE conserves the existing pattern of uses and establishes policies
for the protection and long-term conservation of established residential neighborhoods.
It reduces the maximum development potential within the City compared to the existing
1984 Plan, and focuses it on transportation corridors and the Exposition Light Rail
stations to create complete, walkable neighborhoods. At the same time, the LUCE
establishes a base height above which a discretionary process is required so that
projects incorporate community benefits such as additional affordable housing,
Transportation Demand Management (TDM), infrastructure enhancements, social and
cultural facilities, and historic preservation.
Additionally, the LUCE provides traffic management tools to reduce the number and
length of vehicle trips, and encourage walking, bicycling, and transit use. TDM and
congestion management tools focus on designing and managing streets to support
multiple travel modes, recognizing that streets can accommodate more activity with
fewer greenhouse gas emissions by prioritizing more efficient modes of travel. The
LUCE also recognizes streets as the City's largest open space, and a place for
recreation as well as transportation. Through TDM districts, the LUCE would create
incentives for the reduction of single-occupancy trips, and encourage walking, bicycling,
shuttles, transit use, and shared parking to optimize the use of available parking
resources. The LUCE policies strive to achieve no net new vehicle trips in the PM peak
period as well as to reduce the average vehicle miles traveled on a per capita basis.
The DEIR examines probable environmental effects that could be associated with
implementation of the LUCE. Because the LUCE would guide the manner in -which
future land use change occurs throughout the City, the scope of the DEIR is by its
nature very broad. The Draft EIR identifies that impacts would primarily consist of short-
term construction-related activities such as the release of dust and particulate matter,
and generation of construction noise. The LUCE establishes a rigorous regulatory
framework that would preserve historic structures and character-defining features within
the City. However, it is conceivable that over the next 20 years a demolition or
substantial modification of a historic resource could occur resulting in a potentially
significant impact. And finally, the Draft EIR looks at the potential for traffic impacts with
consideration of anticipated regional growth in traffic, pass-through traffic, and with the
LUCE. In spite of the No Net New Evening Peak Period Trips achieved by the LUCE,
there is still a significant impact at 5 intersections -two in the AM peak, one in the PM
peak, and 2 during both AM and PM peak periods given the combined regional, pass-
through and local trips.
In accordance with Section 15087 of the State CEQA Guidelines, the DEIR has been
distributed to affected agencies, surrounding cities, involved public agencies, and
interested parties fora 45-day review and comment period that will end on March 8,
2010.. Responses to all comments received during this period will be included in the
Final EIR.
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Background
In November 2009, the City of Santa Monica Draft Land Use and Circulation Element
(LUCE) document was released. The document was the culmination of a five year
community dialogue that involved thousands of residents and members of the business
community interested in developing a comprehensive; long-term vision for the City's
future. Employing a wide range of public participation tools and catering to a variety of
formats that included community workshops, televised discussions, and neighborhood
or special interest meetings, the inclusive public outreach process shaped the core
philosophy of the LUCE strategy.
The DEIR identifies very few impacts of the LUCE in large part because the LUCE is
designed to achieve a sustainable and integrated land use and transportation system
within Santa Monica. The LUCE addresses global climate change through its land use
and transportation decisions, such as focusing development near transit, creating
complete neighborhoods that put daily needs within walking distance, and supporting
transit and non-motorized travel. The LUCE includes the social aspects of sustainable
development by addressing affordable housing ahd access to jobs. It provides guidance
to reduce the consumption of natural resources such as water and energy, and it helps
to create along-term sustainable economy with a focus on green jobs and technology.
The LUCE is designed to achieve the goals of statewide climate change initiatives
including AB 32 and SB 375. Specifically, the LUCE uses the following approaches to
integrate land use and transportation planning:
• Directing land use changes to specific areas served by transit, including the Expo
Light Raii stations at Bergamot Station, Memorial Park and Downtown, and the
Metro Rapid Bus transit corridors such as Wilshire and Lincoln. Focusing land
use changes to rely less on the automobile, reducing per capita VMT, GHG
emissions and energy use. This approach addresses overall traffic congestion in
the City and the region and promotes a more walkable, healthy and physically
active community.
Creating transit villages at the light rail stations featuring a diversity of uses
including a range of housing types and levels of affordability, employment
opportunities, local-serving retail and services, arts and cultural facilities, and
open space. The goal of the LUCE is to maximize pedestrian, bicycle, and public
transit circulation to reduce automobile dependence and to promote new jobs
and employment in these locations that will reduce vehicle trips while creating a
healthy jobs base.
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^ Encouraging additional affordable and workforce housing along the transit
corridors near employment, thereby transforming regional commercial potential
into housing opportunities in a jobs-rich area. The LUCE emphasizes the
provision of housing near employment centers and near transit alorig with
significant pedestrian improvements to make walking safer and more attractive.
^ Enabling daily needs to be met within walking distance through the creation of
complete neighborhoods with increased local-serving goods and services,
employment, transit, open spaces and public gathering places which reduces
VMT, and GHG emissions.
• Creating pedestrian-oriented urban design to support transit use, walking and
bicycling -while also protecting existing residential neighborhoods. Measures
include pedestrian-oriented ground-floor uses, reducing large block sizes,
creating green connections and pathways, and locating parking away from the
pedestrian environment.
• Expanding the pedestrian and bicycle networks throughout the City, including
enhancements for additional shade, comfort and safety on the sidewalks, bicycle
friendly roadway standards and a complete network of high-quality bicycle
facilities, bicycle parking, shower and support facilities, and programs with
employers and institutions.
Implementing an aggressive Transportation Demand Management program that
reduces trips, VMT, and GHG emissions, with targets for 35 percent reduction in
peak trips for new residential uses, and 50 percent for new commercial uses.
Strategies include transit pass subsidies, car-sharing and shared parking,
universal transit passes, visitor and student education programs, and creation of
TDM districts around employment centers and the light rail stations.
• Expanding transit service iri Santa Monica and improving connections to the
greater Los Angeles area as the most efficient way to move people and reduce
GHG emissions. Facilitate high-frequency service on key corridors, expand
service at the Expo Light Rail stations including shuttles to major institutions and
employment .centers, and coordinate service improvements with land use
changes.
• Addressing additional sources of GHG emissions through comprehensive
planning efforts, including preparing a Climate Action Plan, developing a Zero
Waste Strategy, implementing water reduction strategies, exploring an Energy
Independence initiative, and increasing the sustainability of municipal operations.
Taken together, these elements of the LUCE provide long-term programs to reduce the
City's carbon footprint and its overall impact on the environment, while ensuring that
Santa Monica's high quality built and natural environment is maintained. This holistic
planning approach unites environmental, land use, economic, transportation, urban
design and social concerns into a single, flexible framework for decision-making.
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The Draft LUCE is considered a project under the California Environmental Quality Act
(CEQA) and is, therefore, subject to CEQA requirements. In accordance with
Section 15121 of the CEQA Guidelines, the purpose of this EIR is to serve as a
document that:
... will inform public agency decision-makers and the public generally of
the significant environmental effects of a project, identify possible ways
to minimize the significant effects, and describe reasonable alternatives
to the project.
Among. other elements, the EIR must also disclose significant environmental impacts
that cannot be avoided, growth inducing impacts, effects found not to be significant,-and
significant cumulative impacts of all past, present, and reasonably anticipated future
projects.
Discussion
The LUCE DEIR provides an opportunity to evaluate the potential environmental effects
of the Draft LUCE, and includes an examination of all environmental issues that require
study under CEQA including:
• Visual Resources
• Air Quality
• Biological Resources
• Cultural Resources
• Geology and Soils
• Hazards. and Hazardous
Materials
• Hydrology and Water Quality
• Land Use and Planning
^ Noise
• Population, Housing and
Employment
• Public Services
• Transportation/Traffic
• Utilities and Service Systems
• Global Climate Change
^ Energy
• Neighborhood Effects
• Construction Effects:
In preparing the EIR, a "baseline condition" of the physical environment in each of the
above categories was prepared, against which the project-related impacts could be
compared and evaluated, using a horizon year of 2030.
The DEIR has identified very few adverse impacts of the LUCE, and a number of
beneficial results related to Global. Climate Change and reduced greenhouse gas
emissions. Additionally, impacts for the LUCE are less than the 1984 Plan (the "No
Project" alternatives) in the categories of Transportation/Traffic, Aesthetics, Air Quality,
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Cultural Resources, Land Use, Noise, Population & Housing, Public Services, and
Utilities.
Beneficial or Less than Significant Impacts
The DEIR concludes that the LUCE would result in beneficial results or less than
significant impacts in all aspects of:
• Climate Change
• Visual Resources
• Biological Resources
• Geology and Soils
• Hazards and Hazardous Materials
• Hydrology and Water Quality
• Land Use and Planning
• Population and Housing
• Public Services
• Energy
Global Climate Change
The DEIR identifies a beneficial climate change results from the LUCE. It is now widely
recognized that the cumulative effects of past, present, and future anthropogenic
(human-caused) emissions of greenhouse gases and aerosols are contributing to
changes in the global climate. This section of the DEIR analysis was prepared in part
based upon a literature review that included advice for preparing CEQA climate change
analyses from the California Office of Planning and Research (OPR) as well as the
California Attorney General's Office (AGO), the California Air Pollution Control Officers
Association (CAPCOA), the United Nations and World Meteorological Organization's
Intergovernmental Panel on Climate Change (IPCC), and the Association of
Environmental Professionals (AEP).
The State of California, through Assembly Bill (AB) 32 and Executive Order S-3-05, has
set statewide targets for the reduction of greenhouse gas emissions. For this DEIR,
emissions from sources such as construction, vehicles, energy consumption, and solid
waste generation are inventoried and discussed quantitatively and. qualitatively.
Emissions associated with the water supply and wastewater treatment are also
discussed.
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The goals and policies of the LUCE reduce per capita emissions of greenhouse gases,
and are consistent with relevant plans and policies, resulting in a DEIR conclusion of
less than significant impacts. Ultimately, the LUCE represents a significant. improvement
compared to the existing 1984 Plan, including reduced C02 emission related to
vehicles, natural gas, and electricity, as well as reduced N20 and CHa associated with
motor vehicles compared to the existing plan.
As discussed above, the LUCE supports integration of land use and transportation
necessary to reduce per capita VMT and GHG emissions, to encourage infill mixed-use
housing and commercial linked to transit that reduces the demand for vehicle trips, to
complete and enhance the bicycle, pedestrian and transit network, to implement TDM
and congestion management programs that reduce trips, to increase affordable and
workforce housing linked to employment and transit, to reduce the consumption of
natural resources, and to create complete, walkable, and active neighborhoods where
daily needs are available within walking distance. These strategies are designed to
complement the recommendations of the Attorney General's Office, CAPCOA, and the
OPR.
Potential Impacts -Local or Cumulative
There are very few adverse impacts identified in the DEIR, with the majority being
construction-related or cumulative impacts within the context of regional changes such
as increase regional traffic and pass-through traffic. Below is a discussion of the
impacts identified in the DEIR, including a discussion of the transportation/traffic
analysis.
^ Construction Impacts: The potential for periodic air quality, noise and vibration
impacts related to temporary construction activities are identified as significant
and unavoidable at local and cumulative levels. Additional mitigation measures
may be available on a project basis, once additional detail about construction
activities is known. For operational air quality emissions, potential impacts could
be reduced to less than significant with minimal mitigation measures.
Cultural Resources: The LUCE establishes a rigorous regulatory framework that
would preserve historic structures and character-defining features within the City,
However, it is conceivable that over the next 20 years a demolition or substantial
modification of a historic resource could occur, resulting in a finding of
significance.
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Utilities: The LUCE is not anticipated to result in significant impacts on water or
wastewater utilities. Although the LUCE does not result in solid waste impacts at
the local level, cumulative regional increases in solid waste production combined
with local would result in a significant impact. While the City has on-going efforts
to reduce solid waste production and increase diversion and recycling, which are
supported by the LUCE, the City cannot regulate regional production and no
mitigation measures are available to reduce impacts to less than significant.
Transportation/Traffic
This section of the DEIR analyzes potential environmental effects on traffic, circulation,
access, parking and alternative transportation modes. It does this by following the City's
evaluation methodology and adopted criteria. Because the Plan itself proposes new
goals and policies, including many in support of walking, bicycling, transit use,
transportation demand management and congestion management, this chapter
supplements the traditional analysis of impacts with additional performance measures
including corridor travel times, vehicle miles traveled, and greenhouse gas emissions.
These criteria more directly address the sustainability and lifestyle goals that are the
overarching principles of the Plan.
The LUCE establishes the goal of achieving No Net New Evening Peak Period Vehicle
Trips from uses in the City of Santa Monica. In spite of the continued expansion and
growth in regional traffic due to land use and transportation decisions beyond the City's
control, the LUCE identifies local strategies that manage trips in the evening peak
period, typically the most congested time of the day, and achieve the no net new
evening peak trips goal. The LUCE treats the entire City as an integrated transportation
management sphere with requirements for trip reduction, transit enhancements,
pedestrian and bike improvements, shared parking and. appropriate impact fees,
designed to reduce GHG emissions. TDM programs that reduce automobile travel
demand and incentivize alternative modes such as carpool, vanpools, and shuttles,
walking, bicycling, and shared parking are all encouraged.
Notwithstanding the rigorous efforts outlined in the LUCE, over the 20 year horizon of
the plan, given the regional and pass-through traffic as well as local traffic, there would
be impacts at two locations during the AM peak hour (Lincoln & Ocean Park, Cloverfield
& I-10), at one location during the PM peak hour (Ocean Avenue & Pico), and at two
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locations during both the AM and PM peak (Ocean Park & 23'd, .Montana & 26th). By
comparison, the 1984 Plan would result in 5 impacts. in the AM Peak, 7 in the PM Peak
and 4 in both AM and PM Peaks. Mitigations would involve adding capacity through
lane additions or modifications. The roads are built-out within the existing right-of-way,
so those changes would degrade facilities for pedestrian, bicyclists and transit users,
which would conflict with a number of the City's other polices promoting alternative
modes of transportation. Thus, those impacts remain unavoidable.
In addition to using the traditional criteria, the DEIR evaluates the LUCE against
additional criteria, such as travel times through corridors, vehicle miles traveled (VMT),
and net new trip generation that are reflective of the goals of the integrated" land use
and transportation system that were identified as priorities during development of the
LUCE. The LUCE shows beneficial impacts in each of these categories as summarized
below:
Corridor Travel Time: The analysis finds that the LUCE would result in decreased
corridor travel time on ten corridors in at least one direction of travel during the
AM and/or PM peak hour compared to current baseline conditions. In contrast,
travel time on every analyzed corridor during the AM and PM peak hour would
increase under the 1984 Plan.
^ Vehicle Miles Traveled: Daily VMT per capita is projected to decline by nearly 4
percent under the LUCE compared to current baseline conditions. This signals
an effective shift in travel behavior to alternative modes, or to local destinations
which reduce travel distance and demand on the roadway system. Estimated
daily VMT under the 1984 Plan would be greater than the LUCE.
^ Net New Peak Hour Trips: As a result of the strong TDM program targeting
commute trips, and supplemented by programs and policies that reduce peak
period non-commute trips, the LUCE would in no net increase in evening peak
period trips. In fact, the model projects a slight decrease in evening peak period
trips relative to existing baseline conditions. The 1984 Plan would not need the
goal of no net new evening peak period trips, and is projected to result in a nearly
9 percent increase in trips.
Alternatives
To meet additional requirements of CEQA, the DEIR describes and evaluates a
reasonable range of alternatives to the LUCE that are intended to reduce or eliminate
significant or potentially significant adverse environmental effects, while still meeting
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most if not all of the LUCE's objectives. Among the factors that have. been taken into
account when addressing the feasibility of alternatives are site suitability, economic
viability, availability of infrastructure, general plan consistency, other plans or regulatory
limitations, and jurisdictional boundaries. Because the LUCE would result in very few
adverse impacts, the range of alternatives analyzed in the DEIR is necessarily small
and are focused on those alternatives that could achieve most of the project objectives
and reduce the impacts of the LUCE. The alternatives include the following:
• Alternative 1: No Project (1984 Plan) This alternative reflects conditions likely to
occur in the future under the land use and circulation policies of the 1984
General Plan. For ease of comparison, the analysis of this legally-mandated
alternative is included in the body of the impact analysis section.
• Alternative 2: Existing City Development The Existing City Development
Alternative would limit the vast majority of new development activities in the City
over the next 20 years, limiting development to vacant lots, reuse of existing
buildings, or replacement or reconstruction of existing buildings. Vacant .lots
could be developed to a level compatible with the land uses on adjacent
properties. This alternative would be a means of reducing, as much as possible,
effects related to construction activities.
^ Alternative 3: Condensed Nodal Development This alternative would amplify
transit benefits through the clustering of uses at designated transit nodes and
activity centers and further avoid intrusion into the existing neighborhoods of the
City. Under this alternative, future land use changes would be condensed in a
smaller land area, resulting in additional height and higher floor-area. ratios
(FARs).
^ Alternative 4: Reduced Height and Development With this alternative, new
building heights and FAR would be lower than under the LUCE, but all other land
use and transportation policies of the LUCE would remain as proposed. New
land uses would be limited to 35 feet in height, and there would not be the
community benefits identified with the discretionary process for buildings above
32-35 feet. This alternative would affect a larger land area than the LUCE
because there would be inadequate land available to accommodate the projected
growth exclusively on transit corridors and activity centers.
^ Alternative 5: Existing Zoning This alternative anticipates that the City would
revise its land use and circulation policies to conform to the existing zoning
ordinance. Compared to the LUCE, this alternative would be higher in several
areas and lower in other areas. Like Alternative 4, this alternative would affect a
larger land area to because projected growth and economic development
pressures would impact more parcels across the City.
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An EIR is required to identify .the environmentally superior alternative from among the
reasonable range of alternatives that are evaluated. This would ideally be the alternative
that results the fewest significant and unavoidable impacts while achieving most of the
project objectives. There is no one alternative that would avoid all of the significant
environmental effects of the LUCE without creating one or more materially greater
effects. Thus, on balance, the condensed nodal development alternative is considered
environmentally. superior; and excluding that alternative the LUCE would be
environmentally superior to the remaining alternatives. Compared to the required "No
Project" alternative (the 1984 Plan) the LUCE performs better in many categories,
including Transportation/Traffic, Aesthetics, Air Quality, Cultural Resources, Land Use,
Noise, Population & Housing, Public Services, and Utilities.
Next Steps in the Environmental Analysis
The Draft EIR is accompanied by a public comment period lasting 45 days. The Final
EIR will include revisions and responses to public comments, and a Mitigation
Monitoring Program (MMP) that will guide implementation and monitoring of feasible
mitigation measures proposed in the EIR. Prior to adoption of a Final EIR and approval
of a new Land Use and Circulation Element, the City will hold public hearings before the
Planning Commission and City Council.
Financial Impacts & Budget Actions
The transmittal of the Draft LUCE EIR does not have any direct budget or fiscal impact.
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Prepared by: Francie Stefan, Manager, Strategic Planning Division
Approved:
Forwarded to Council:
~o
Ejleen ogarty
Director, Planning & C mu it
Development
Rod Gould
City Manager
Attachment A: Draft Environmental Impact Report
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ATTACHMENT A
DRAFT ENVIRONMENTAL IMPACT REPORT
Electronic version of attachment is not available for review. Document is
available for review at the City Clerk's office and the libraries.
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